My barber asked, “What is your take on the Senate Report on the
Mamasapano encounter? According to the report, PNoy is ‘ultimately responsible
for the outcome of the mission’. Do you agree?”
“NO, Poe!” I told my barber. The report bothers me. I believe that Senator
Poe and the other Senators who signed the report have an erroneous
understanding and incorrect application of the doctrine of Command
Responsibility. Their claim that as Commander in Chief as well as Chief
Executive of the Armed Forces of the Philippines (AFP) and the Philippine
National Police (PNP) respectively, he is responsible for the criminal or
illegal acts committed by the subordinates under his supervision and control.
There exists a body of law as well as jurisprudence that
govern and apply the doctrine of Command Responsibility.
Section 28 (a) of the Rome Statute states, “A military commander or person effectively acting as a military
commander shall be criminally responsible for crimes within the jurisdiction of
the Court committed by forces under his or her effective command and control,
or effective authority and control as the case may be, as a result of his or
her failure to exercise control properly over such forces, where:
(i) That military commander or person either knew or, owing to the
circumstances at the time, should have known that the forces were committing or
about to commit such crimes; and
(ii) That military commander or person failed to take all necessary and
reasonable measures within his or her power to prevent or repress their
commission or to submit the matter to the competent authorities for
investigation and prosecution.”
If the parties are non-military, Section 28 (b) applies, “With respect to superior and subordinate relationships not
described in paragraph (a), a superior shall be criminally responsible for
crimes within the jurisdiction of the Court committed by subordinates under his
or her effective authority and control, as a result of his or her failure to
exercise control properly over such subordinates, where:
(i) The superior either knew, or consciously disregarded information which
clearly indicated, that the subordinates were committing or about to commit
such crimes;
(ii) The crimes concerned activities that were within the effective
responsibility and control of the superior; and
(iii) The superior failed to take all necessary and reasonable measures within
his or her power to prevent or repress their commission or to submit the matter
to the competent authorities for investigation and prosecution.“
The doctrine enunciated in the case of General Yamashita and the
cases tried by the International Criminal Tribunal for the former Yugoslavia
(ICTY), the International Criminal Tribunal for Rwanda (ICTR), the Nuremberg
trials, and other cases, clearly illustrate how Command Responsibility was
applied.
According to the tribunals, for the Commanders to be liable and
responsible for the acts of others, look for the following elements:
1.
A
superior-subordinate relationship must exist, where the superior has
supervision and control over the subordinate;
2.
A subordinate
committed a criminal act;
3. The superior either knew,
should have known, or consciously disregarded information which clearly
indicated that the subordinates were committing or about to commit such
crimes; and
4.
The superior failed
to take all necessary and reasonable measures within his or her power to
prevent or repress their commission or to take steps for the punishment of the
subordinates.
Applying it to the Yamashita case, for example: The Japanese
Imperial Forces in the Philippines during World War II committed atrocities
amounting to mass murder, rape, and other war crimes or crimes against
humanity. It was decided that General Yamashita as Commander of the Imperial
Forces was as guilty as his subordinates who committed the crimes.
General Douglas MacArthur was the Commander of the US Armed
Forces in the Pacific that included the Philippines where he was initially
stationed. When he left the country for Australia, the Japanese atrocities
continued unabated during his absence. He failed to prevent them while he was
in Australia. He was not ultimately responsible. In fact, he returned to
liberate the Filipinos from these atrocities!
US President Harry Truman ordered the dropping of the atomic
bomb in Hiroshima and Nagasaki killing about 200,000 people. Was he ever cited
for being “ultimately responsible”? No, it ended World War II!
Let us apply it to the Mamasapano incident. The Senators insist
on calling it a “massacre” despite the fact that 392 SAF heavily armed
Commandos participated. The Senators and the Press called the SAF 44 heroes and
yet, they are being portrayed as having been mercilessly “massacred” by
unnumbered BIFF, MILF, and other armed groups. I assume that the
forty-four (44) SAF policemen fought valiantly killing the global terrorist
Marwan and other rebels. The Senate Report is silent on what the rest of the
392 did, but it was quick to conclude, “The President is ultimately
responsible for the outcome of the mission.”
What was the mission, and what was the outcome? The SAF
Commandos were tasked to serve the Warrants of Arrest to capture Marwan – a
globally wanted criminal and terrorist and Usman– another terrorist. Fully
aware that they were hiding in a very secluded area and protected by Muslim
rebels, the Commandos knew that it was a risky undertaking. It was a great
mission for them because capturing both would prevent more deaths from
terrorist bombings.
They successfully served the warrants and neutralized Marwan.
Usman was wounded but escaped. In the process, fighting ensued resulting in the
death of 44 SAF policemen, and 18 rebels. There were 348 SAF survivors
returning safely and successfully avoiding being “massacred”.
Except for the “massacre”, the mission was successful. But for
the “massacre”, the Senate Report says that the President is ultimately
responsible. The basis was a lot of “could have been”, “could have done more”,
and “might have been” which are in legal parlance “speculative” and therefore,
inadmissible.
Most importantly, the doctrine of Command Responsibility is
erroneously understood, and incorrectly applied.
First, the Senate Report claims that BIFF, MILF, and other armed
groups committed the alleged “massacre”. There is no superior-subordinate
relationship between President Aquino and the perpetrators of the “massacre”.
Second, President Aquino obviously did not know, could not have
known, or consciously disregarded any information that the rebels would be
committing a “massacre”. On the contrary, he received false information from
his subordinates to base his decision.
Third, he did not have the power to prevent the “massacre” but
definitely ordered the Armed Forces to go and pursue the criminals, and for the
Secretary of Justice to investigate and file the necessary charges for the
victims to obtain justice. Furthermore, he ordered the sacking of General
Napenas and forced the resignation of General Purisima.
Either as a Commander in Chief or Chief Executive, it is his
prerogative to skip any Chain of Command. He may consult officers or
officials of lower ranks if he chooses to in aid of Execution. He may rely on
certain advisers or resource persons who have expertise and his confidence also
in aid of Execution. That is why in Organizational Charts, there is what we
call Table of Organization vs. the Table of Power as well as those who have
Line vs. Staff functions.
In the Catholic hierarchy, here is the chain: God,
Pope, Cardinal, Archbishop, Parish Priest, and Parishioner. Sometimes the
Parishioner communicates directly with God or asks for the intercession of the
Blessed Virgin Mary and/or the Saints.
Sometimes the CEO asks low-level employees to give their
suggestions or express their complaints directly to him confidentially, thus –
skipping the Chain.
In the Mamasapano incident, the Court issued Warrants of Arrest
and asked the SAF policemen to serve the warrants, in aid of Justice
Administration. Prosecutors and Courts make use of State witnesses to
strengthen the cases also in aid of Justice Administration. Congress relies on
resource persons or experts in their investigations, in aid of Legislation.
Let
me reduce this thing to absurdity (reduction ad absurdum). The
cause of the cause is the cause of the final effect (causa causae est
causa causati).
If there were no warrants of arrest to serve, the SAF
policemen would not have gone there and have not been “massacred”. Is the Court
ultimately responsible”?
If BBL became law, Muslim courts would issue warrants, Muslim
policemen would serve them and no “massacre’” would occur. Is Congress
ultimately responsible?
President Aquino displayed bold leadership and daring to get the
SAF to serve and execute a Court Order for a national and global cause.
The Senate Report itself recognizes his commitment to the peace process that
even former President Ramos supports.
There is a need for the Rule of Law, Justice and Peace to
prevail in the Muslim region. The Comprehensive Peace Agreement and the BBL
(Bangsamoro Basic Law) are attempts to fulfill this need. PNoy and the
Executive branch have done their jobs.
Senators and Congressmen, do yours! Blaming PNoy would get you
and us nowhere! Amend it if you must but pass a constitutionally acceptable BBL
that would guide the destiny of our Muslim brothers and our nation!