26/08/2026
PAGKALIWANGAN, BALDE, ET AL. v. COMMISSION ON AUDIT
G.R. No. 272465 | January 21, 2026 | En Banc | Inting, J.
MADERA DOCTRINE ON RETURN OF DISALLOWED AMOUNTS
FACTS:
The Civil Aviation Authority of the Philippines (CAAP) granted Flying Risk Pay (FRP) to certain officials and employees under Section 30 of Republic Act No. 776. COA later issued Notice of Disallowance No. 13-002 (2011), disallowing a total of P323,579.50 because the recipients’ functions were not inherently connected with aerial or flight operations and their positions were not included in the DBM-approved roster of FRP-eligible positions.
COA affirmed the disallowance and held the approving and certifying officers solidarily liable, while the recipient-payees were required to return the amounts they actually received. The petitioners invoked Madera v. Commission on Audit and claimed good faith.
ISSUES:
1. Whether the payment of Flying Risk Pay was valid under Section 30 of R.A. No. 776.
2. Whether the approving and certifying officers were liable to return the disallowed amounts.
3. Whether the recipient-payees were likewise required to return the amounts they received.
RULING:
The Supreme Court PARTLY GRANTED the petition. It upheld the disallowance of the FRP but modified the COA ruling on liability: the approving and certifying officers were ABSOLVED from solidary liability, while the recipient-payees remained individually liable to return the disallowed amounts they respectively received.
WHY THE FRP WAS DISALLOWED?
The Court held that Section 30 of R.A. No. 776 imposes a functional limitation. Flying Risk Pay is intended for personnel whose regular duties require regular and frequent aerial flights and whose functions are inherently connected with aircraft operations, navigation, flight safety, or similar technical and operational responsibilities.
Mere air travel in the performance of official duties does not qualify. Administrative, managerial, legal, or financial personnel who travel by aircraft merely as passengers to attend meetings, inspections, conferences, hearings, or other official engagements are not thereby entitled to FRP.
MADERA DOCTRINE: THE IMPORTANT PART
The Court emphasized that the validity of a Notice of Disallowance and the personal liability to return the disallowed amount are two separate questions. The fact that an expenditure is properly disallowed does NOT automatically mean that every approving or certifying officer must personally refund it.
VALID DISALLOWANCE ≠ AUTOMATIC PERSONAL LIABILITY
THE MADERA RULES ON RETURN
1. If the Notice of Disallowance is set aside: No return is required from the persons held liable.
2. Approving and certifying officers: They are not civilly liable if they acted in good faith, in the regular performance of official functions, and with the diligence of a good father of a family.
3. Bad faith, malice, or gross negligence: Approving and certifying officers who are clearly shown to have acted with any of these may be held solidarily liable for the net disallowed amount.
4. Recipient-payees: As a rule, they must return the amounts they actually received, even if they received them in good faith or merely as passive recipients, subject to the recognized Madera exceptions.
5. Exceptions for recipients: Return may be excused when the amount was genuinely given in consideration of services rendered under Rule 2(c), or when undue prejudice, social justice, or other bona fide considerations justify an exception under Rule 2(d).
APPLICATION OF MADERA TO THE APPROVING AND CERTIFYING OFFICERS
The Court found that the approving and certifying officers acted in good faith. At the time the FRP was granted in 2011, there was no Supreme Court precedent squarely interpreting Section 30 of R.A. No. 776. More importantly, COA Decision No. 2009-125 had previously lifted a disallowance involving similar FRP payments.
Thus, the officers relied on a then-prevailing interpretation issued by COA itself. The Court regarded that earlier COA ruling as a colorable legal basis. Although the Supreme Court later rejected that interpretation, it was a plausible reading of the law when the officers acted.
Under Madera, good faith is assessed based on the circumstances existing at the time the public officer acted. Because there was no showing of bad faith, malice, or gross negligence, the approving and certifying officers were absolved from solidary liability.
BADGES OF GOOD FAITH / DILIGENCE UNDER MADERA:
In determining whether an approving or certifying officer exercised proper diligence, the Court may consider: (1) a Certificate of Availability of Funds; (2) an in-house or Department of Justice legal opinion; (3) the absence of precedent disallowing a similar transaction; (4) a traditional agency practice with no prior disallowance; and (5) a reasonable textual interpretation supporting the legality of the transaction.
In Pagkaliwangan, the Court found particularly relevant the absence of contrary judicial precedent and the existence of a reasonable textual interpretation supported by the earlier COA decision.
WHY THE RECIPIENT-PAYEES STILL HAD TO RETURN THE MONEY?
Good faith does not have the same effect on recipient-payees. Under Madera, recipients are generally required to return amounts they were not legally entitled to receive, pursuant to unjust enrichment and solutio indebiti.
The “services rendered” exception under Madera Rule 2(c) did not apply. As clarified in Abellanosa v. COA, the benefit must have a proper legal basis and be disallowed merely because of procedural irregularities, and it must have a clear, direct, and reasonable connection to the recipient’s official work for which the benefit was intended as additional compensation.
Here, the defect was substantive, not merely procedural. The recipients were not legally entitled to FRP because their duties did not involve the aerial-flight functions contemplated by law. Hence, they had to return the amounts they respectively received.
KEY DOCTRINE
Madera is not simply a “good faith” doctrine. It is a framework for determining civil liability after a COA disallowance has been sustained. The legality of the expenditure and the liability of the persons involved must be analyzed separately.
UPHELD DISALLOWANCE + GOOD-FAITH APPROVING OFFICER = MAY BE ABSOLVED
UPHELD DISALLOWANCE + BAD FAITH / MALICE / GROSS NEGLIGENCE = MAY BE SOLIDARILY LIABLE
RECIPIENT WITHOUT LEGAL ENTITLEMENT = GENERALLY MUST RETURN
DISPOSITION
The COA Decision and Resolution were AFFIRMED WITH MODIFICATION. The approving and certifying officers were ABSOLVED from solidary liability to return the net disallowed amount. The recipients of the Flying Risk Pay remained individually liable to return the disallowed amounts they respectively received.
Full text of the case: https://sc.judiciary.gov.ph/272465-concordia-s-pagkaliwangan-alex-b-balde-and-other-officers-and-employees-of-the-civil-aviation-authority-of-the-philippines-caap-represented-herein-by-captain-manuel-antonio-l-tamayo-vs/
For educational and legal discussion purposes.