PHILIPPINE MANPOWER SERVICES, INC., ADAWLIAH UNIVERSAL ELECTRONICS AND AFISCO INSURANCE CORPORATION, PETITIONERS, VS. NATIONAL LABOR RELATIONS COMMISSION AND ARTHUR P. PANGAN, R…

On August 10, 1990, the Philippine Overseas Employment
Administration (POEA) rendered a decision in POEA Case No. (L) 88-07-595
entitled Arthur Pangan v. Philippine Manpower Services, Inc. and Adawliah
Universal Electronics and Afisco Insurance Corporation, disposing as follows:

“WHEREFORE, premises considered, judgment is hereby rendered
ordering respondent Philippine Manpower Service Corporation, jointly and
severally with its principal Adawliah Universal Electronics, to pay complainant
Arthur F. Pangan the following amounts:

1.       ELEVEN THOUSAND FIVE
HUNDRED FIFTY U.S. DOLLARS (US$11,550.), representing his salaries for the
unexpired portion of his contract of employment; and

2.       FIVE PERCENT (5%) of
the total award as and by way of attorney’s fees.

All other claims of complainant as well as respondent’s
counterclaims are hereby dismissed for lack of merit.”

Payment of the above awards shall be made in Philippine Currency at
the prevailing rate of exchange at the time of payment.

SO ORDERED.^[1]

Petitioners herein appealed said POEA decision before public
respondent National Labor Relations Commission (NLRC). The NLRC, in its Resolution of March 4,
1991, modified the decision of the POEA but only insofar as it corrected the
POEA on the proper rate of exchange to be applied in converting the award of
US$11,550.00 to its equivalent in Philippine currency. It thus held:

“However, while we are convinced that because Pangan was illegally
dismissed, he should be paid the salaries corresponding to the unexpired
portion of his contract, we believe that because of the erratic devaluation of
the Philippine Peso vis-a-vis, the US Dollars, simple fairness dictates that
the payment of the awards in Philippine Currency should not be ‘at the rate of
exchange at the time of payment,’ as mandated by the POEA, but rather at the rate of exchange
prevailing at the time the complainant’s cause of action accrue or at the time
he was illegally dismissed on 21 July 1988.”^[2]

Consequently, said resolution disposed as
follows:

“WHEREFORE, subject to the modification above-stated, the
decision appealed from should be, as it is hereby, AFFIRMED.

SO ORDERED. ”^[3]

A motion for reconsideration of NLRC’s Resolution of March 4,
1991 was denied in its Resolution of April 24, 1991.

As a final recourse, petitioners filed the instant petition for
annulment of the NLRC’s Resolutions of March 4, 1991 and April 24, 1991.

The alleged dismissal without cause of private respondent Arthur
F. Pangan by his employer Adawliah Union Electronics and Afisco Insurance
Corporation (Adawliah, for short) based in Alkhobar, Saudi Arabia, spawned the
present controversy. Pangan filed with
the POEA, a case for illegal dismissal, underpayment of overtime pay,
separation pay, actual damages representing his salaries for the unexpired
portion of his contract of employment, and exemplary damages of US$10,000.00
plus attorney’s fees. His complaint
alleged that he entered into a two-year contract of employment with Adawliah,
as a data entry clerk technician for US$550.00 a month, commencing on April 30,
1988. He complained that he rendered
overtime work of fourteen (14) hours last May 1988 and another twenty-four (24)
hours in June 1988 without having received any compensation therefor; worse, he
was ordered to work as programmer in addition to his work as data entry clerk
technician without any offer to correspondingly increase his salary; that
Pangan’s demand for salary adjustment irked Mr. Ahmed Yosul, Administrative
Manager of Adawliah, who thus ordered Pangan’s termination on grounds of
incompetence. Pangan was consequently
compelled to accept payment of only US389.00 dollars, covering his services for
July 1-21. All other claims were waived
by him after he was threatened to be jailed.

Petitioner Philippine Manpower Services, Inc. (Philman) denied
Pangan’s allegations in his complaint. Philman justified Pangan’s termination as a valid exercise by his
employer Adawliah, of its management prerogative to fire employees who proved
to be incompetent while still under probation. It thus prayed for the dismissal of the instant case.

The POEA, however, found Pangan’s complaint meritorious. Though it recognized the management
prerogative to select its employees, it nevertheless ruled that the exercise
thereof is not without any qualification. The POEA explained that probationary employees can only be dismissed for
just cause duly proved. In the case at
bar, it found that there was no justified dismissal of complainant Pangan for
failure of Adawliah to substantiate its claim of his unsatisfactory
performance. General averments on
Pangan’s incompetence do not constitute just cause to warrant his termination.

Philman and Adawliah were thus ordered to pay in solidum,
the equivalent in Philippine currency of US$11,550.00 representing Pangan’s
salary for the unexpired portion of his contract and attorney’s fees amounting
to five percent (5%) of said award. The
POEA further ruled that in paying the above award in Philippine currency, the
conversion rate to be used shall be that prevailing at the time of payment.

Philman and Adawliah sought a reversal of said POEA ruling by
appealing before the National Labor Relations Commission (NLRC). As aforementioned, the NLRC affirmed, with
modification, the POEA ruling appealed from, in its Resolution of March 4,
1991.

Philman and Adawliah moved for reconsideration of the Resolution
of March 4, 1991 but were denied by the NLRC for lack of merit.

Consequently, the instant petition was filed by Philman and
Adawliah claiming that:

“I

With grave abuse of discretion, the Honorable Commission (Second
Division) together with POEA Administrator Jose N. Sarmiento brushed aside
petitioners-appellants submission that complainant-appellee was lawfully
dismissed in accordance with his contract of employment and in consonance with
previous POEA and NLRC rulings applicable to the case at bar.

II

With grave abuse of discretion, the Honorable Commission (Second
Division) disregarded appellant’s contention based on Article 281 of the Labor
Code of the Philippines, that workers on probation or trial acquire only
transitional rights to the fulfillment of their employment contracts and
therefore the complainant-appellee cannot lawfully be entitled to payment of
salary for the period of 21 months after failing to qualify as a regular
employee during his three months’ trial period.

III

The Honorable Commission (Second Division) gravely erred in holding
that appellee’s dismissal is sustained by the Supreme Court ruling in Manila
Hotel vs. NLRC, 141 SCRA 169.

IV

With grave abuse of discretion, the Honorable Commission (Second
Division) affirmed the findings of the POEA Administrator to the effect that
the dismissal of the complainant-appellee was capricious.”^[4]

Philman and Adawliah insist that during the probationary period,
the employer is acting within his rights in dismissing his employee who failed
to meet the qualification standard for continued employment. Moreover, they aver that Pangan’s inability
to satisfy the standards set by Adawliah amounts to incompetence which is a
just cause for termination of his services pursuant to the first paragraph of
the contract of employment executed between Adawliah and Pangan, to wit:

“If during the first three (3) months (probation period) of
employment, the EMPLOYER find the EMPLOYEE to be incompetent or incapable of
performing the type of work for which he was hired, then the EMPLOYER may
discharge the EMPLOYEE for cause with no obligation on the part of the EMPLOYER
except for payment of accrued pay up to the time of termination. The payment of economy class air
transportation back to the point of hire shall be for the account of
EMPLOYEE.”^[5]

On the basis of the foregoing, they argued that the determination
of whether Pangan is capable of performing the duties of Data Entry Clerk
Technician rests solely with Adawliah, his employer, who is in the best
position to observe Pangan’s performance during the probationary period. There is thus no necessity, contrary to the
views of the POEA and NLRC, to cite specific incidents of Pangan’s incompetence
in order to prove the legality of the dismissal.

Philman and Adawliah further maintained that as a result of
Pangan’s failure to qualify as a regular employee, he did not acquire any
rights whatsoever to work out the full term of his employment contract. Accordingly, they concluded that Pangan is
not entitled to an award equivalent to the unexpired portion of his two-year
employment contract.

In his Comment to the petition, the Solicitor General considers
petitioners’ arguments as untenable. He
contends that, notwithstanding Pangan’s probationary status, he nonetheless
enjoys the constitutional protection on security of tenure unless just cause
exists to justify his termination. He
further stressed that the prerogative of management to dismiss Pangan must be
exercised without abuse of discretion. The absence of sufficient evidence to substantiate Pangan’s dismissal
and the lack of specific acts or instances to show Pangan’s lackluster performance
negates the claim of Adawliah that the dismissal was a rightful exercise of
such prerogative. Due to the gross
violation of Pangan’s security of tenure, the Solicitor General opined that he
is entitled to an award equivalent to his salary for the unexpired portion of
his two-year employment contract.

The petition should be dismissed. Jurisprudence is rich in cases guaranteeing the security of
tenure, limited though it may be, of probationary employees.^[6]
Except for just cause as provided by law
or under the employment contract, a probationary employee cannot he
terminated.^[7]
Petitioners do not view Pangan’s termination as a violation of these legal precepts. Rather, they consider his incompetence as a just cause,
sufficient to constitute the basis of his dismissal under the contract.

At first blush,
petitioners’ position may seem sound, it appearing that their contract, which is the law between them, contains
a stipulation that the employer has the discretion to dismiss its employees for
incompetence. However, where the dismissed employee, Pangan in this instance,
challenges his dismissal as illegal, predicating his claim on the
absence of a just cause, the correct
issue is not so much Adawliah’s discretion to terminate as the existence of
Pangan’s alleged incompetence as ground for his termination. Hence, the POEA and NLRC did not commit grave abuse of discretion in requiring
petitioners to present proof of the alleged incompetence of Pangan. Thus, it has been held that:

“It is a basic principle in the dismissal of employees that the burden
of proof rests upon the employer to show that the dismissal of the employee is
for a just cause, and failure to
do so would necessarily mean that the dismissal is not justified [Polymedic
General Hospital v. NLRC, G.R. No. 64190, January 31, 1985, 134 SCRA 420;
Asphalt and Cement Pavers, Inc. v. Leogardo, et al., G.R. No. 74563, June 20,
1988.] Should the employer fail in discharging this duty, the dismissal of the
employee cannot be sustained. This is consonant with the constitutional
guarantee of security of tenure, as implemented in what is now Sec. 279 of the
Labor Code, as amended.”^[8]

This same principle
applies to probationary employees allegedly terminated without cause during
their limited tenure. Thus in Euro-Linea
Philippines Inc. v. NLRC, et al.,^[9]
this Court dismissed the petition on the
ground that:

“Petitioner not only failed to present sufficient evidence to
substantiate the cause of private respondent’s dismissal, but likewise failed
to cite particular acts or instances to show the latter’s poor
performance.”

Similarly, no convincing proof establishing
Pangan’s alleged incompetence was
presented. The POEA and NLRC,
therefore, correctly declared the dismissal to be illegal. Pangan’s dismissal without cause during the
probationary period constitutes a violation of his Constitutional right to
security of tenure. The Constitution,
which is built into all contracts entered into in the Philippines and
governed by Philippine law when it provides in Art. XIII, Sec. 3^[10]
that “they shall be entitled to security of tenure…” did not
distinguish between probationary and regular employees. Consequently, Pangan deserves the disputed
award of the POEA, entitling him to an amount representing his salary for the
unexpired portion of his employment contract. It was erroneous for petitioners to question the award as improper,
theorizing that he is not entitled to a sum equivalent to his salary for the
unexpired portion of the contract, he being merely a probationary employee who
has not acquired a vested right to demand fulfillment of his employment
contract.

Apparently, petitioners have misread the statutory grant of
security of tenure to probationary employees. Under Article 281 of the Labor Code,^[11] a
probationary employee may be terminated on two
grounds: (a) for just cause or (b) when he fails to qualify as a regular
employee in accordance with reasonable standards made known by the employer to
the employee at the time of his engagement. Since as established in the case at bar, petitioners were unable
to prove either ground as a
basis for terminating Pangan’s
employment, no reason exists to sever the employment relationship between
Adawliah and Pangan. Otherwise stated,
absent the grounds for termination of a probationary employee, he is entitled
to continued employment even beyond the probationary period. Accordingly, had not Pangan been
compelled to return to the Philippines, he could have demanded enforcement of
the employment contract. In the case of
Skillworld Management and Marketing Corp., et
al. v. NLRC, et al.,^[12]
we similarly upheld a POEA ruling awarding private respondents therein
$6,900.00 or its equivalent in Philippine currency at the time
of actual payment covering complainant’s salary for the
unexpired portion of twenty-three months
due to unjust dismissal as a probationary employee.

In the case of Republic
Resources and Development Corporation v.
Court of Appeals,^[13]
reiterating our decision in Kalalo
v. Luz,^[14] with
regard to obligations incurred after enactment of RA No. 529^[15]
on June 16, 1950, we also held that the rate of exchange to be applied should
be that prevailing at the time of payment.

As a consequence of our affirmance of the POEA award, we find
incorrect the NLRC Resolution of March 4, 1991 to the effect that the proper rate
of exchange to be applied in converting the award of US$11,550.00 to its
equivalent in Philippine currency is that prevailing at the time complainant’s
cause of action accrued and not at the time of actual payment as ruled by the
POEA.

WHEREFORE, finding no grave abuse of discretion on the
part of public respondents, the petition is DISMISSED. The decision of the POEA dated August 10,
1990 is hereby AFFIRMED in toto and the Resolution of the NLRC
dated March 4, 1991 is MODIFIED, insofar as the proper rate of exchange to be
applied in converting the award of US$11,550.00 in Philippine currency is that
prevailing at the time of actual payment.

SO ORDERED.

Feliciano, (Chairman), Bidin, Melo, and Vitug, JJ., concur.

^[1]
Rollo, pp. 24-25.

^[2]
Rollo, p. 18.

^[3]
Rollo, p. 19.

^[4]
Rollo, pp. 5-9.

^[5]
Rollo, p. 3.

^[6]
Euro-Linea Phils. Inc. v. National Labor Relations Commission, No.
L-75782, December 1, 1987, 157 SCRA 78; Manila Hotel Corporation v.
National Labor Relations Commission and Renato L. Cruz, No. L-53453, January 22, 1986,
141 SCRA 169; A.M. Oreta & Co. Inc. v. NLRC and Sixto Gnella Jr.,
G.R. No. 74004, August 10, 1989, 176 SCRA 218; Skillworld Management
Corporation, et al. v. National Labor Relations Commission, et al., G.R. No. 74412, June 15, 1990, 186
SCRA 465.

^[7]
A.M. Oreta & Co. Inc. v. NLRC, et al., supra.

^[8]
Quezon Electric Cooperative v. NLRC, et al., G.R. Nos. 79718-22, April
12, 1989, 172 SCRA 88, at 96-97.

^[9]
G.R. No. L-75782, December 1, 1987, 156 SCRA 78.

^[10]
SEC. 3. The State shall afford full protection to labor, local
and overseas, organized and unorganized, and promote full employment
opportunities for all.

It shall guarantee the rights of
all workers to self-organization, collective bargaining and negotiations, and
peaceful concerted activities, including the right to strike in accordance with
law. They shall be entitled to security
of tenure, humane, conditions of work, and a living wage. They shall also participate in policy and decision-making
processes affecting their rights and benefits as may be provided by law.

^[11]
ART. 281. Probationary
employment. -?

Probationary employment shall not
exceed six (6) months from the date the employee started working, unless it is
covered by an apprenticeship agreement stipulating a longer period. The services of an employee who has been
engaged on a probationary basis may be terminated for a just cause or when he
fails to qualify as a regular employee in accordance with reasonable standards made
known by the employer to the employee at the time of his engagement. An employee who is allowed to work after a
probationary period shall be considered a regular employee.

^[12]
G.R. No. 74412, June 30, 1990, 465.

^[13]
G.R. No. 33438, October 28,1991, 203 SCRA 164.

^[14]
G.R. No. L-27782, July 31, 1970, 34 SCRA 337.

^[15]
An Act To Assure Uniform Value To Philippine Coin and Currency.

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