I.

Background

The Correctional System in the Philippines is composed of three different

departments of the national government: (1) Department of Interior and Local
Government (DILG); (2) Department of Social Welfare and Development (DSWD);
and (3) Department of Justice (DOJ). Offenders serving light sentences are detained
in city, municipal, or district jails under the Bureau of Jail Management and Penology
(BJMP) of DILG. While juvenile delinquents are sent to youth rehabilitation centers
handled by DSWS unless one committed a grave offense who will then be confined
at the national penitentiary. Lastly, offenders convicted of more than three years are
kept at the prison of Burau of Corrections (BuCor) as they are identified as national
prisoners. Several functions of the government are to prevent prisoners from
committing crimes, provide inmates basic needs, ensure rehabilitation programs are
made available to the inmates for their physical, intellectual and spiritual development,
and develop livelihood programs to assist inmates earn a living and develop their skills
while in prison.1

The government plays a role in the correction and rehabilitation of offenders2.

According to Executive Order No. 292, otherwise known as the Administrative Code
of 1987, BuCor has its principal task to rehabilitate national prisoners.3 It has
progressed from reprisal of criminal offenders to humanizing and enriching convicts
by rehabilitating, treating, and guiding inmates to become productive and responsible
members of the society once released.4

A. Statistics

1 Bureau of Corrections, http://www.bucor.gov.ph/about.html

2 Supreme Court of the Philippines, National Survey of Inmates and Institutional Assessment, 2004
3 Sec. 26, Chap. 8, Title III, Book IV of Executive Order No. 292, Administrative Code of 1987
4 THE PHILIPPINE CORRECTIONS SYSTEM: CURRENT SITUATION AND ISSUES, Mildred

Bernadette Baquilod Alvor, State Counsel, Department of Justice, Republic of the Philippines, 2003
 Year on year since 1998, number of prisoners are increasing on an average of 6%
per annum or 115% in a span of two decades. In fact, with the latest data gathered as of
September 2019, there are 47,326 inmates nationwide which is 6.6% increase from the
same month of previous year. The normal capacity of prison facilities in the Philippines
can only accommodate 12,299 inmates however given the count, occupancy rate on
average, yielded to 385%. Also considering the 1:23 ratio of custodial person per inmate
which is one of the resources which decreases for every additional inmate.

B. Issues

1. Congestion

According to United Nations (UN), a detainee is expected to have a three-

square meter space however the New Bilibid Prison alone which composed the
most number in Population and Actual Floor Area has a congestion rate of 332%,
with the latest data. It clearly shows that a detainee has a 1.1 square meters of
space or one-third of the space stipulated by UN. This situation created
unbecoming environments for prisoners and is in contrast with the goal of the
government, which is to rehabilitate5.

It was identified that overcrowding brought negative effects on individuals

such as poor physical, and mental health which provides negative output of
imprisonment. It likewise brought about a decrease if resources such as food, and
medical needs intended for prisoners. These issues increase the wall between
inmates and the goals of the government.6

5 Prison Overcrowding, John Howard, 1996

6 Overcrowding: The Emergence of a Destructive Correctional Norm, Haney, 1996
 2. Other Issues

Aside from Congestion, the Philippines is also facing problems on jail

institutions such as disorganized corrections system, lack of information
technology, and inadequate training.7

C. Good Conduct Time Allowance

Good Conduct Time Allowance (GCTA) refers to the deduction of days from
the sentence granted to prisoners for each month of good behavior while inside
the National penitentiary. Such sentence is computed starting upon conviction and
serving in the national penitentiary. The Director of Corrections may grant GCTA
to a prisoner who exhibits good behavior while inside the prison in exchange of
participating with the rehabilitation programs which will eventually resylt to early
release of the subject.8

II. Issue

Whether or not Good Conduct Time Allowance should be allowed for persons
guilty of heinous crimes.

III. Legal Basis

REPUBLIC ACT No. 10592

AN ACT AMENDING ARTICLES 29, 94, 97, 98 AND 99 OF ACT NO. 3815, AS AMENDED,
OTHERWISE KNOWN AS THE REVISED PENAL CODE

Be it enacted by the Senate and House of Representatives of the Philippines in Congress

assembled:

Section 1. Article 29 of Act No. 3815, as amended, otherwise known as the Revised Penal Code,
is hereby further amended to read as follows:

ART. 29. Period of preventive imprisonment deducted from term of imprisonment. – Offenders or
accused who have undergone preventive imprisonment shall be credited in the service of their
sentence consisting of deprivation of liberty, with the full time during which they have undergone
preventive imprisonment if the detention prisoner agrees voluntarily in writing after being informed
of the effects thereof and with the assistance of counsel to abide by the same disciplinary rules
imposed upon convicted prisoners, except in the following cases:

7 The Philippine Corrections System: Current Situation and Issues.” Resource Material, UNAFEI, Mildred
Bernadetter Alvor, 2005
8 Integrated Jail Management System for the Bureau of Corrections, Ma. Bernadetter B. Bautista
 1. When they are recidivists, or have been convicted previously twice or more times of any
crime; and

2. When upon being summoned for the execution of their sentence they have failed to
surrender voluntarily.

If the detention prisoner does not agree to abide by the same disciplinary rules imposed upon
convicted prisoners, he shall do so in writing with the assistance of a counsel and shall be credited
in the service of his sentence with four-fifths of the time during which he has undergone preventive
imprisonment.

Credit for preventive imprisonment for the penalty of reclusion perpetua shall be deducted from
thirty (30) years.1âwphi1

Whenever an accused has undergone preventive imprisonment for a period equal to the possible
maximum imprisonment of the offense charged to which he may be sentenced and his case is not
yet terminated, he shall be released immediately without prejudice to the continuation of the trial
thereof or the proceeding on appeal, if the same is under review. Computation of preventive
imprisonment for purposes of immediate release under this paragraph shall be the actual period of
detention with good conduct time allowance: Provided, however, That if the accused is absent
without justifiable cause at any stage of the trial, the court may motu proprio order the rearrest of
the accused: Provided, finally, That recidivists, habitual delinquents, escapees and persons
charged with heinous crimes are excluded from the coverage of this Act. In case the maximum
penalty to which the accused may be sentenced is lestierro, he shall be released after thirty (30)
days of preventive imprisonment."

Section 2. Article 94 of the same Act is hereby further amended to read as follows:

ART. 94. Partial extinction of criminal liability. – Criminal liability is extinguished partially:

1. By conditional pardon;

2. By commutation of the sentence; and

3. For good conduct allowances which the culprit may earn while he is undergoing
preventive imprisonment or serving his sentence."

Section 3. Article 97 of the same Act is hereby further amended to read as follows:

ART. 97. Allowance for good conduct. – The good conduct of any offender qualified for credit for
preventive imprisonment pursuant to Article 29 of this Code, or of any convicted prisoner in any
penal institution, rehabilitation or detention center or any other local jail shall entitle him to the
following deductions from the period of his sentence:

1. During the first two years of imprisonment, he shall be allowed a deduction of twenty
days for each month of good behavior during detention;

2. During the third to the fifth year, inclusive, of his imprisonment, he shall be allowed a
reduction of twenty-three days for each month of good behavior during detention;

3. During the following years until the tenth year, inclusive, of his imprisonment, he shall
be allowed a deduction of twenty-five days for each month of good behavior during
detention;
 4. During the eleventh and successive years of his imprisonment, he shall be allowed a
deduction of thirty days for each month of good behavior during detention; and

5. At any time during the period of imprisonment, he shall be allowed another deduction of
fifteen days, in addition to numbers one to four hereof, for each month of study, teaching
or mentoring service time rendered.

An appeal by the accused shall not deprive him of entitlement to the above allowances for good
conduct."

Section 4. Article 98 of the same Act is hereby further amended to read as follows:
ART. 98. Special time allowance for loyalty. – A deduction of one fifth of the period of his sentence
shall be granted to any prisoner who, having evaded his preventive imprisonment or the service of
his sentence under the circumstances mentioned in Article 158 of this Code, gives himself up to
the authorities within 48 hours following the issuance of a proclamation announcing the passing
away of the calamity or catastrophe referred to in said article. A deduction of two-fifths of the period
of his sentence shall be granted in case said prisoner chose to stay in the place of his confinement
notwithstanding the existence of a calamity or catastrophe enumerated in Article 158 of this Code.

The Implementing Rules and Regulation (IRR) of Republic Act 10592 defines good
behavior as:

"the conspicuous and satisfactory behavior of a detention or convicted prisoner consisting of active
involvement in rehabilitation programs, productive participation in authorized work activities or
accomplishment of exemplary deeds coupled with faithful obedience to all prison/jail rules and
regulations”

Under Republic Act 7659 or the Death Penalty Act, heinous crimes are:

“grievous, odious and hateful offenses and which, by reason of their inherent or manifest
wickedness, viciousness, atrocity and perversity are repugnant and outrageous to the common
standards and norms of decency and morality in a just, civilized and ordered society.”

The Death Penalty Act, which was repealed in 2006, classified murder and rape as “heinous
crimes” that may be punishable by death.

IV. Considerations

According to Senate Minority Leader Ralph Recto, flushing out inmates who
can be freed on humanitarian and legal grounds will lead the government to save
money and space.

Annually, the budget for every inmate is Php 73,910.00 to guard and feed
him. That is three times the budget of Department of Education (DepEd) for every
one student in basic education. In addition to that, a Php 1,825 medicine allowance
per annum is beyond the Php 96.00 budget of Department of Health (DoH) per
capita.9

9Recto: P74K yearly budget per prisoner is thrice bigger than gov't spending per student, Senate of the
Philippines, 2016
 On the other hand, Senator Leila de Lima who supervised the drafting of
IRR she is not disposed to exclude heinous crimes from GCTA as there is a
possibility to defeat the intent of the government which is to rehabilitate, treat, and
guide prisoners even those who committed heinous crimes. Nevertheless,
recidivist or convicts who have violated rules even inside the penitentiary shall be
disqualified as it good behavior cannot be an on and off.10

10
Beyond Sanchez: How to improve the Good Conduct Time Allowance Law, Lian Buan, Aug 6, 2019.