election law cases full text

8/9/2019 Election Law Cases Full Text

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Republic of the Philippines

SUPREME COURT

Manila

EN BANC

G.R. No. 104848 January 29, 1993

ANTONIO GALLARO, ANTONIO ARE!ALO, CRESENCIO EC"A!ES,

EMMANUEL ARANAS, PALERMO SIA, RONNIE RAM#U$ON, PRIMO NA!ARRO,

an% NOEL NA!ARRO, petitioners,

vs.

"ON. SIN&OROSO !. TA#AMO, JR., 'n (') *a+a*'y a) Pr-)'%'n Ju%- o/

#ran*( 28 o/ (- R-'ona Tr'a Cour o/ Maaao, Ca'u'n, an% PERO P.

ROMUALO, respondents.

Villarama & Cruz for petitioners.

Marciano LL. Aparte, Jr. for private respondents.

A!IE, JR., J.:

This is a petition for certiorari and prohibition under Rule 65 of the Revised Rules of

Court. Petitioners ould have !s prohibit, restrain and en"oin public respondent

#inforoso $. Taba%o, &r., Presidin' &ud'e of Branch () of the Re'ional Trial Court

*RTC+ of Ma%ba"ao, Ca%i'uin, fro% continuin' ith the proceedin's in a petition for

in"unction, prohibition and mandamusith a praer for a rit of preli%inar in"unction

and restrainin' order filed as a ta-paers suit, doc/eted therein as #pecial Civil ActionNo. 065 and entitled 1Pedro P. Ro%ualdo, &r. versus 2ov. Antonio 2allardo, et al.1

Petitioners li/eise see/ to prohibit the enforce%ent of the Te%porar Restrainin'

3rder *TR3+, issued b the respondent &ud'e on 4 April 4(, on the 'round that the

latter acted hi%sicall, capriciousl and ithout "urisdiction hen he too/ co'ni7an

of the case and issued the said order. 8t is the petitioners thesis that the said case

principall involves an alle'ed violation of the provisions of the 3%nibus Election C

the "urisdiction over hich is e-clusivel vested in the Co%%ission on Elections

*C3ME9EC+. 8t is additionall averred that the action is co%pletel baseless, that th

private respondent is not a real part in interest and that the public respondent acte

ith undue haste, %anifest partialit and evident bias in favor of the private

respondent in issuin' the TR3.

8n 3ur Resolution of ( April 4(, :e re;uired the respondents to co%%ent on the

petition and issued a Te%porar Restrainin' 3rder directin' the respondent &ud'e

cease and desist fro% i%ple%entin' and enforcin' the challen'ed 3rder of 4 Apri

4((, and fro% continuin' ith the proceedin's in #pecial Civil Action No. 065.

At the ti%e of the filin' of both the special civil action and the instant petition, petitio

Antonio 2allardo as the incu%bent 2overnor of the Province of Ca%i'uin and a

see/in' re


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ere not covered b detailed en'ineerin' plans, specifications or a pro'ra% of or/ hich

are preconditions for the co%%ence%ent of an public or/s pro"ect? hence, the could

not have been lafull and validl underta/en? *(+ the hirin' of hundreds of laborers in the

different pro"ects continues unabated in fla'rant violation of para'raphs *a+, *b+, *v+ and

*+, #ection (64 of the 3%nibus Election Code? *+ the pro"ects ere underta/en in

violation of the provisions of the 9ocal 2overn%ent Code2'overnin' the use and

e-penditure of the tent percent *(+ develop%ent fund of the Province of Ca%i'uin?

*0+ these pro"ects, hich are 19ocall


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ith a praer for a rit of preli%inar in"unction and@or te%porar restrainin' order,

alle'in' as 'rounds therefor the folloin'

8

P!B98C RE#P3N=ENT GA# N3 &!R8#=8CT83N 3$ER #PEC8A9

C8$89 ACT83N N3. 065, BE8N2 *sic+ A #!8T 8NTEN=E= T3 EN&38N

AN A99E2E= $839AT83N 3D TGE 3MN8B!# E9ECT83N C3=E.

88

RE283NA9 TR8A9 C3!RT# &!R8#=8CT83N 8# 98M8TE= T3

CR8M8NA9 ACT83N# D3R $839AT83N 3D TGE 3MN8B!#

E9ECT83N C3=E.

888

TGE RE283NA9 TR8A9 C3!RT GA# N3 &!R8#=8CT83N T3 TAFE

C32N8HANCE 3D C3MP9A8NT#@PET8T83N BA#E= 3N E9ECT83N

3DDEN#E# PR83R T3 TGE C3N=!CT 3D PRE98M8NARI8N$E#T82AT83N BI TGE C3MM8##83N 3N E9ECT83N#?

D!RTGER, PR8$ATE RE#P3N=ENT GA# N3 R82GT T3 D89E

#PEC8A9 C8$89 ACT83N N3. 065 #8NCE TGE A!TG3R8TI T3

PR3#EC!TE E9ECT83N 3DDEN#E# BE93N2# T3 TGE

C3MM8##83N 3N E9ECT83N#.

8$

PR8$ATE RE#P3N=ENT DA89E= T3 E>GA!#T A99 G8#

A=M8N8#TRAT8$E REME=8E#

$

TGE PET8T83N =ATE= APR89 4( D89E= :8TG P!B98C

RE#P3N=ENT 8# C3MP9ETE9I BA#E9E## #8NCE

A. TGE P!B98C :3RF# PR3&ECT# BE8N2

!N=ERTAFEN BI PET8T83NER# ARE E>EMPTE

DR3M TGE P!B98C :3RF# BAN END3RCE= BI

TGE C3ME9EC.

B. TGE P!B98C :3RF# PR3&ECT# :ERE

C3MMENCE= 3N9I ADTER APPR3$A9 3D TGE

=ETA89E= EN28NEER8N2 P9AN# AN=

#PEC8D8CAT83N# AN= PR32RAM 3D :3RF.

C. TGE P!B98C :3RF# PR3&ECT# :ERE

PR3PER9I #!PP3RTE= BI A B!=2ET =!9I

PA##E= AN= APPR3$E= BI TGE #AN22!N8AN

PAN9A9A:82AN.

=. TGE =E$E93PMENT D!N= MAI $A98=9I BE

!#E= T3 D8NANCE TGE MA8NTENANCE 3D

PR3$8NC8A9 R3A=#.

$8

TGE TA>PAIER# #!8T D89E= BI PR8$ATE RE#P3N=ENT 8#

8MPR3PER #8NCE GE 8# N3T A REA9 PARTI 8N 8NTERE#T.

$88

TGE P!B98C RE#P3N=ENT ACTE= :8TG !N=!E GA#TE,

MAN8DE#T PART8A98TI AN= E$8=ENT B8A# 8N DA$3R 3D PR8$A

RE#P3N=ENT AN= A2A8N#T PET8T83NER# 8N 8##!8N2 TGE

TEMP3RARI RE#TRA8N8N2 3R=ER.6

As adverted to earlier, :e issued a Te%porar Restrainin' 3rder on ( April 4(.

3 | E l e c t i o n L a w A / Y 2 0 1 4 - 2 0 1 5 2 n d S e m e s t e r


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After considerin' the alle'ations, issues and ar'u%ents adduced in the Petition, the

Co%%ent thereto and the Repl to the Co%%ent, :e 'ave due course8to this Petition

and re;uired the parties to sub%it their respective Me%oranda hich the co%plied ith.

The %ain issue in this case is hether or not the trial court has "urisdiction over the

sub"ect %atter of #pecial Civil Action No. 065. The %aterial operative facts alle'ed in

the petition therein ine-orabl lin/ the private respondents principal 'rievance to

alle'ed violations of para'raphs *a+, *b+, *v+ and *+, #ection (64 of the 3%nibus

Election Code *Batas Pa%bansa Bl'. ))4+. There is particular e%phasis on the last

to *(+ para'raphs hich read

#ec. (64. $ro!i"ited Acts. J The folloin' shall be 'uilt of an election

offense

*a+ Vote-"uyin and vote-sellin. J

--- --- ---

*b+ Conspiracy to "ri"e voters. J

--- --- ---

*v+ $ro!i"ition aainst release, dis"ursement or e#penditure of pu"lic

funds. An public official or e%ploee includin' baran'a officials and

those of 'overn%ent


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1e-clusive char'e of the enforce%ent and ad%inistration of al l las relative to the

conduct of elections,1 e-ercised 1all other functions . . . conferred upon it b la111and

had the poer to deputi7e all la enforce%ent a'encies and instru%entalities of the

2overn%ent for the purpose of insurin' free, orderl and honest elections, 12and under the

4 Constitution it had, inter alia, the poer *a+ 1KELnforce and ad%inister all las relative

to the conduct of elections1 13*b+ 1K=Leputi7e, ith the consent or at the instance of the

Pri%e Minister, la enforce%ent a'encies and instru%entalities of the 2overn%ent,

includin' the Ar%ed Dorces of the Philippines, for the purpose of ensurin' free, orderl,and honest elections,114and *c+ 1KPLerfor% such other functions as %a be provided b

la,11it as not e-pressl vested ith the poer to pro%ul'ate re'ulations relative to the

conduct of an election. That poer could onl ori'inate fro% a special la enacted b

Con'ress? this is the necessar i%plication of the above constitutional provision authori7in'

the Co%%ission to 1KPLerfor% such other functions as %a be provided b la.1

The present Constitution, hoever, i%plicitl 'rants the Co%%ission the poer to

pro%ul'ate such rules and re'ulations. The pertinent portion of #ection ( of Article 8>


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*4+ Enforce and ad%inister all las and

reulations relative to the conduct of an election,

plebiscite, initiative, referendu%, and recall. *E%phasis

supplied+

--- --- ---

:ith all due respect, 8 sub%it that hat the C3ME9EC is authori7ed to do under that

provision is onl to 1enforce and ad%inister1 such las and re'ulations, not to

pro%ul'ate the%. The addition of the ord 1re'ulations1 in the ne subsection does

not e%poer it no to pro%ul'ate re'ulations an %ore than it can pro%ul'ate las.

As 8 read it, all that the chan'e i%ports is that the scope of the %easures the

C3ME9EC %a enforce and ad%inister has been e-pressl idened, to include

1re'ulations.1

Re'ulations are %ainl intended to i%ple%ent or supple%ent a la and %a be

'enerall issued onl pursuant to a valid dele'ation of le'islative poer. That is h

the are /non as 1subordinate le'islation.1 8n the case of the C3ME9EC, 8 see no

constitutional vesture in it of the poer to pro%ul'ate re'ulations, %uch less las.

There does not see% to be even an 1i%plicit1 'rant of that authorit, astheponencia su''ests.

arvasa, C. J., and *utierrez, Jr., J., concur.



10/22

Republic of the Philippines

SUPREME COURT

Manila

EN BANC

G.R. No. L1295 Juy 31, 198

JOSE L. GUE!ARA,petitioner,

vs.

T"E COMMISSION ON ELECTIONS,respondent.

(nrique M. Fernando for petitioner.

ominador . ayot for respondent.

#AUTISTA ANGELO, J.:

Petitioner as ordered b the Co%%issioner on Elections to sho cause h he

should not be punished for conte%pt for havin' published in the #unda Ti%es issue

of &une (, 45 an article entitled 1Ballot Bo-es Contract Git1, hich tended tointerfere ith and influence the Co%%ission on Elections and its %e%bers in the

ad"udication of a controvers then pendin' investi'ation and deter%ination before said

bod 1arisin' fro% the third petition for reconsideration of Ma (, 45 and the

supple%entar petition thereof of &une 4, 45 filed b Ac%e #teel Mf'. Co., 8nc.,

prain' for reconsideration of the resolutions of the Co%%ission of Ma 0 and 4,

45, aardin' the contracts for the %anufacture and suppl of 0, ballot bo-es to

the National #hipards #teel Corporation and the Asiatic #teel Mf'. Co., 8nc. and the

respective ansers of the latter to corporations to said petitions? and hich article

li/eise tended to de'rade, brin' into disrepute, and under%ine the e-clusive

constitutional function of this Co%%ission and its Chair%an =o%in'o 8%perial and

Me%ber #i-to Brillantes in the ad%inistration of al l the las relative to the conduct of

elections.1

Petitioner, anserin' su%%ons issued to hi% b the Co%%ission, appeared and filed

a %otion to ;uash on the folloin' 'rounds

a+ The Co%%ission has no "urisdiction to punish as conte%pt the publicatio

the alle'ed conte%ptuous article, as neither in the Constitution nor in statut

is the Co%%ission 'ranted a poer to so punish the sa%e, for should #ect

5 of Republic Act No. 4), vestin' the Co%%ission ith 1poer to punish

conte%pts provided for in Rule of the Court under the sa%e procedure and

ith the sa%e penalties provided therein,1 be applied to the case at hand, s

provision ould be unconstitutional.

b+ Assu%in' that the Co%%issions poer to punish conte%pt e-ists, the sa

cannot be applied to the instant case, here the Co%%ission is e-ercisin'

purel ad%inistrative function for purchasin' ballot bo-es.

c+ Assu%in' that the Co%%issions poer to punish conte%pt e-ists, said

poer cannot appl to the present case because the %atter of purchasin' t

ballot bo-es as alread a closed case hen the article in ;uestion as

published.

d+ Assu%in' that controvers conte%plated b the la as still pendin', the

article in ;uestion as a fair report because it could be assu%ed that the ne

report of the respondent as based on the %otion for reconsideration filed the Ac%e #teel here there as an alle'ation of fraud, etc.

The Co%%ission, after hearin', denied the %otion to ;uash but 'ranted petitioner a

period of fifteen *45+ das ithin hich to elevate the %atter to the #upre%e Court

vie of the issue raised hich assails the "urisdiction of the Co%%ission to investi'

and punish petitioner for conte%pt in connection ith the alle'ed publication. Genc

the present petition for prohibition ith preli%inar in"unction.

The facts hich 'ave rise to the present conte%ptuous incident are The Co%%issi

on Elections, on Ma 0, 45, after proper ne'otiations, aarded to the National

#hipards #teel Corporation *NA##C3+, the Ac%e #teel Mf'. Co., 8nc. *ACME+,

the Asiatic #teel Mf'. Co., 8nc. *A#8AT8C+, the contracts to %anufacture and suppl

Co%%ission 4(,, 44, and 44, ballot bo-es at P4.60, P40., and P4.

each, respectivel. 3n Ma ), 45, both the NA##C3 and the A#8AT8C si'ned it

the Co%%ission on Elections the correspondin' contracts thereon. 3n Ma 4, 45



11/22

the Co%%ission cancelled the aard to the ACME for failure of the latter to si'n the

contract ithin the desi'nated ti%e and aarded to the NA##C3 and the A#8AT8C,

one


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*#ection 4, Article $888+, for it is %erel an independent ad%inistrative bod *The

Nacionalista Part vs. $era, )5 Phil., 4(6? 0 3ff. 2a7. (5+, %a hoever e-ercise

;uasi


13/22

the e-clusive poers of the Co%%ission to resolve. All irre'ularities,

ano%alies and %isconduct co%%itted b an official in these preparator steps

are ithin the e-clusive poer of the Co%%ission to correct. An errin' official

%ust respond to the Co%%ission for investi'ation. 3f these preparator acts,

the preparation of the per%anent list of voters is the %atter involved in this

case, hich to our %ind is co%pletel an ad%inistrative %atter. *=ecision of

the Co%%ission on Elections, 3ctober (), 454, 8n Re Petition of An'el

2enuino vs. Prudente, et al., Case No. 46+4

Considerin' that the para%ount ad%inistrative dut of the Co%%ission is to set in

%otion all the %ultifarious preparator processes ran'in' fro% the purchase of

election supplies, printin' of election for%s and ballots, appoin%ents of %e%bers of

the board of inspectors, appoint%ent of precincts and desi'nation of pollin'

preparation of re'istr lists of voters, so as to as to put in readiness on election da

the election %achiner, it %a also be reasonabl said that the re;uisitionin' and

preparation of the necessar ballot bo-es to be used in the elections is b the sa%e

to/en an i%perative %inisterial dut hich the Co%%ission is bound to perfor% if the

elections are to be held. #uch is the incident hich 'ave rise to the conte%pt case

before us. 8t ste%s fro% the %inisterial act of the Co%%ission in re;uisitionin' for the

necessar ballot bo-es in connection ith the last elections and in so proceedin' it

provo/ed a dispute beteen several dealers ho offered to do the "ob.

Althou'h the ne'otiation conducted b the Co%%ission has resulted in controvers

beteen several dealers, that hoever %erel refers to a %inisterial dut hich the

Co%%ission has perfor%ed in its ad%inistrative capacit in relation to the conduct of

elections ordained b our Constitution. 8n proceedin' on this %atter, it onl dischar'ed

a %inisterial dut? it did not e-ercise an "udicial function. #uch bein' the case, it could

not e-ercise the poer to punish for conte%pt as postulated in the la, for such poer

is inherentl "udicial in nature. As this Court has aptl said 1The poer to punish for

conte%pt is inherent in all courts? its e-istence is essential to the preservation of order

in "udicial proceedin's, and to the enforce%ent of "ud'%ents, orders and %andates of

courts, and, conse;uentl, in the ad%inistration of "ustice1 *#lade Per/ins vs. =irector

of Prisons, 5) Phil., (4? !. #. vs. 9oo Goe, 6 Phil., )6? 8n Re #otto, 06 3ff. 2a7.(5? 8n Re Fell, 5 Phil., 00+. The e-ercise of this poer has alas been re'arded

as a necessar incident and attribute of courts *#lade Per/ins vs. =irector of

Prisons, /"id.+. 8ts e-ercise b ad%inistrative bodies has been invariabl li%ited to

%a/in' effective the poer to elicit testi%on *People vs. #ena, (6 P., (4+. And

e-ercise of that poer b an ad%inistrative bod in furtherance of its ad%inistrative

function has been held invalid *9an'enber' vs. =ec/er, 4 N.E. 4? 8n Re #i%s

45? Roberts vs. Gacne, 5) #.:., )4+. :e are therefore persuaded to conclude t

the Co%%ission on Elections has no poer nor authorit to sub%it petitioner to

conte%pt proceedin's if its purpose is to discipline h i% because of the publication o

the article %entioned in the char'e under consideration.

:herefore, petition is 'ranted. Respondent Co%%ission is hereb en"oined fro%

proceedin' ith the case set forth in its resolution of &une (, 45, ith

pronounce%ent as to costs.

The preli%inar in"unction issued b this Court is %ade per%anent.

$aras, C. J., $adilla, Montemayor, eyes, A., eyes, J. ). L., (ndencia and Feli#,

JJ.,concur.



14/22

Republic of the PhilippinesSUPREME COURT

Manila

EN BANC

G.R. No. 118602 Mar*( 15, 199

CIRILO RO$ G. MONTEJO, petitioner,vs.COMMISSION ON ELECTIONS, respondent.

SERGIO A.&. APOSTOL, intervenor.

PUNO, J.:

More than political fortunes are at sta/e in the case at bench. Petitioner Cirilo Ro 2.Monte"o, representin' the Dirst =istrict of 9ete, pleads for the annul%ent of section 4of Resolution No. (6 of the C3ME9EC, redistrictin' certain %unicipalities in 9ete,on the 'round that it violates the principle of e;ualit of representation. To re%ed thealle'ed ine;uit, petitioner see/s to transfer the %unicipalit of 0olosafro% his districtto the #econd =istrict of the province. 8ntervenor #er'io A.D. Apostol, representin' the#econd =istrict, vi'orousl opposed the inclusion of0olosain his district. :e 'ave duecourse to the petition considerin' that, at botto%, it involves the validit of theunprecedented e-ercise b the C3ME9EC of the leislative po%erof redistrictin' andreapportion%ent.

The province of 9ete ith the cities of Tacloban and 3r%oc is co%posed of five *5+

le'islative districts.1

The first district2covers Tacloban Cit and the %unicipalities of Alan'alan', Babatn'on,Palo, #an Mi'uel, #ta. De, Tanauan and 0olosa.

The second district3is co%posed of the %unicipalities of Baru'o, Barauen, CapoocanCari'ara, =a'a%i, =ula', &aro, &ulita, 9a Pat, Maor'a, MacArthur, Pastrana, Tabontaband Tun'a.

The third district4is co%posed of the %unicipalities of Al%eria, )iliran, Cabuc'aan,Caibiran, Calubian, Culaba, Faaan, 9ete, Maripipi, Naval, #an 8sidro, Taban'o, and

$illaba.

The fourth districtis co%posed of 3r%oc Cit and the %unicipalities of Albuera, 8sabeFanan'a, Mata'ob, Merida, and Palo%pon.

The fifth district5is co%posed of the %unicipalities of Abuo', Bate, Baba, Gilon'osGindan', 8nopacan, &avier, Mahapla', and Matalo%.

)iliran, located in the third district of 9ete , as %ade its sub


15/22

representatives shall have been elected in the ne-tre'ular con'ressional elections and ;ualified.

The conversion of Biliran into a re'ular province as approved b a %a"orit of thevotes cast in a plebiscite held on Ma 44, 4(. As a conse;uence of the conversion,ei'ht *)+ %unicipalities of the Third =istrict co%posed the ne province of Biliran, i.e.,Al%eria, Biliran, Cabuc'aan, Caibiran, Culaba, Faaan, Maripipi, and Naval. A

further conse;uence as to reduce the Third =istrict to five *5+ %unicipalities ith atotal population of 405,6 as per the 4 census.

To re%ed the resultin' ine;ualit in the distribution of inhabitants, voters and%unicipalities in the province of 9ete, respondent C3ME9EC held consultation%eetin's ith the incu%bent representatives of the province and other interestedparties. 3n =ece%ber (, 40, it pro%ul'ated Resolution No. (6 here, a%on'others, it transferred the %unicipalit of Capoocan of the #econd =istrict and the%unicipalit of Palo%pon of the Dourth =istrict to the Third =istrict of 9ete. Theco%position of the Dirst =istrict hich includes the %unicipalit of 0olosaand theco%position of the Difth =istrict ere not disturbed. After the %ove%ent of%unicipalities, the co%position of the five *5+ le'islative districts appeared as follos

First istrict$opulation eisteredVoters*4+ *40+

4. Tacloban Cit, 4,4 )4,6(. Alan'alan', ,5 (,50. Babatn'on, 4,5 ,(0. Palo, ),4 (,)465. #an Mi'uel, 4,0) ),466. #ta. De, 4(,44 ,0. Tanauan and, ), ((,5). Tolosa? 4,( ,JJJJ JJJJT3TA9 ,0 4),6))

1econd istrict$opulation eisteredVoters*4+ *40+

4. Baru'o, (,)4 4,((. Barauen, 06,( (,. Cari'ara ),)6 ((,6

0. =a'a%i, (5,66 46,545. =ula', ,( 4,56. &aro, 4,( 4,4. &ulita, ,00 6,46). 9a Pa7, 40,44 ,. Maor'a, 4,5 5,)6)4. Mac Arthur, 4,45 ),6()44. Pastrana, 4(,565 ,0)4(. Tabontabon, and ,4) 0,044. Tun'a? 5,04 ,)JJJJ JJJJT3TA9 ((,46 456,06(

0!ird istrict$opulation eistered

Voters*4+ *40+

4. Calubian, (5,6) 46,60(. 9ete, (,55 46,045. #an 8sidro, (0,00( 40,460. Taban'o, (,0 45,0)5. $illaba, (, (4,((6. Capoocan, and (,6) 4,55. Palo%pon? 05,05 (,00JJJJ JJJJT3TA9 (40,0 4(5,6

Fourt! istrict$opulation eisteredVoters*4+ *40+



16/22

4. 3r%oc Cit, 4(,056 5,40(. Albuera, (,5 4,0. 8sabel, ,) (4,))0. Fanan'a, 6,()) 4,)5. Mata'ob, 45,00 ,06. Merida, and ((,05 4(,00JJJJ JJJJT3TA9 (6,0 455,5

Fift! istrict$opulation eisteredVoters*4+ *40+

4. Abuo', 0,(65 (),6)((. Bato, (),4 446,4. Baba, )(,()4 0,(0. Gilon'os, 0),64 (6,)45. Gindan', 46,(( ,656. 8nopacan, 46,)0 4,04. &avier, 4),65) 44,4). Mahapla', and ((,6 4,646

. Matalo% (),(4 46,(0JJJJ JJJJT3TA9 ,40) 4)4,(0(

Petitioner Monte"o filed a %otion for reconsideration callin' the attention of respondentC3ME9EC, a%on' others, to the ine;uitable distribution of inhabitants and votersbeteen the Dirst and #econd =istricts. Ge alle'ed that the Dirst =istrict has 4),6))re'istered voters hile the #econd =istrict has 456,06( re'istered voters or adifference of ((,((6 re'istered voters. To di%inish the difference, he proposed that the%unicipalit of 0olosaith , re'istered voters be transferred fro% the Dirst to the#econd =istrict. The %otion as opposed b intervenor, #er'io A.D. Apostol.Respondent Co%%ission denied the %otion rulin' that *4+ its ad"ust%ent of%unicipalities involved the least disruption of the territorial co%position of each district?

and *(+ said ad"ust%ent co%plied ith the constitutional re;uire%ent that eachle'islative district shall co%prise, as far as practicable, conti'uous, co%pact andad"acent territor.

8n this petition, petitioner insists that #ection 8 of Resolution No. (6 violates theprinciple of e;ualit of representation ordained in the Constitution. Citin' 2es"erryv.1anders,8he ar'ues that respondent C3ME9EC violated 1the constitutional preceptthat as %uch as practicable one %ans vote in a con'ressional election is to be orth a%uch as anothers.1 The #olicitor 2eneral, in his Co%%ent, concurred ith the vies ofpetitioner. The intervenor, hoever, opposed the petition on to *(+ 'rounds *4+C3ME9EC has no "urisdiction to pro%ul'ate Resolution No. (6? and *(+ assu%in' it

"urisdiction, said Resolution is in accord ith the Constitution. Respondent C3ME9EC

its on Co%%ent alle'in' that it acted ithin the para%eters of the Constitution.

:e find section 4 of Resolution No. (6 void.

:hile the petition at bench presents a si'nificant issue, our first in;uir ill relate tothe constitutional poer of the respondent C3ME9EC9to transfer %unicipalities fro%one le'islative district to another le'islative district in the province of 9ete. The basicpoers of respondent C3ME9EC, as enforcer and ad%inistrator of our election las, aspelled out in blac/ and hite in section (*c+, Article 8> of the Constitution. Ri'htl,respondent C3ME9EC does not invo/e this provision but relies on the 3rdinanceappended to the 4) Constitution as the source of itspo%er of redistrictin %!ic! istraditionally rearded as part of t!e po%er to mae la%s. The 3rdinance is entitled1Apportionin' the #eats of the Gouse of Representatives of the Con'ress of the Philippto the =ifferent 9e'islative =istricts in Provinces and Cities and the Metropolitan Manila

Area.1 8ts substantive sections state

#ec. 4. Dor purposes of the election of Me%bers of the Gouse ofRepresentatives of the Dirst Con'ress of the Philippines under theConstitution proposed b the 4)6 Constitutional Co%%ission andsubse;uent elections, and until otherise provided b la, theMe%bers thereof shall be elected fro% le'islative districts apportiona%on' the provinces, cities, and the Metropolitan Manila Area asfollos

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#ec. (. The Co%%ission on Elections is hereb e%poered to

%a/e minor ad3ustmentsof the reapportion%ent herein %ade.



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#ec. . An province that %a hereafter be created, or an cit hosepopulation %a hereafter increase to %ore than to hundred fiftthousand shall be entitled in the i%%ediatel folloin' election to atleast one Me%ber or such nu%ber of Me%bers as it %a be entitled toon the basis of the nu%ber of its inhabitants and accordin' to thestandards set forth in para'raph *+, #ection 5 of Article $8 of theConstitution. The num"er of Mem"ersapportioned to the province outof hich such ne province as created or here the cit, hosepopulation has so increased, is 'eo'raphicall located s!all"ecorrespondinly ad3usted "y t!e Commission on (lectionsbut suchad"ust%ent shall not be %ade ithin one hundred and tent dasbefore the election. *E%phasis supplied+

The 3rdinance as %ade necessar because Procla%ation No. 10of PresidentCora7on C. A;uino, ordainin' the Provisional Constitution of the Republic of thePhilippines, abolished the )atasan $am"ansa. 11#he then e-ercised le'islative poersunder the Provisional Constitution. 12

The 3rdinance as the principal handior/ of then Co%%issioner Gilario 2. =avide,&r., 13no a distin'uished %e%ber of this Court. The records reveal that the ConstitutionalCo%%ission had to resolve several pre"udicial issues before authori7in' the first

con'ressional elections under the 4) Constitution. A%on' the vital issues ere hetherthe %e%bers of the Gouse of Representatives ould be elected b district or bprovince? %!oshall underta/e the apportion%ent of the le'islative districts? and, !o% theapportion%ent should be %ade. 14Co%%issioner =avide, &r. offered three *+ options forthe Co%%ission to consider *4+ allo President A;uino to do the apportion%ent b la? *(+e%poer the C3ME9EC to %a/e the apportion%ent? or *+ let the Co%%ission e-ercisethe poer b a of an 3rdinance appended to the Constitution. 1The differentdi%ensions of the options ere discussed b Co%%issioners =avide, Delicitas #. A;uinoand Blas D. 3ple. :e ;uote the debates in e#tenso, viz.15

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MR. PA=899A. Mr. Presidin' 3fficer.

TGE PRE#8=8N2 3DD8CER *Mr. &a%ir+. Co%%issioner Padilla isreco'ni7ed.

MR. PA=899A. 8 thin/ 8 have filed a ver si%ple %otion b a ofa%end%ent b substitution and this as, 8 believe, a prior or aproposed a%end%ent. Also, the chair%an of the Co%%ittee on the9e'islative said that he as proposin' a vote first b the Cha%ber othe concept of hether the election is b province and cities on the hand, or b le'islative districts on the other. #o 8 propose this si%plfor%ulation hich reads 1D3R TGE D8R#T E9ECT83N !N=ER TGC3N#T8T!T83N TGE 9E28#9AT8$E =8#TR8CT# #GA99 BEAPP3RT83NE= BI TGE C3MM8##83N 3N E9ECT83N#.1 8 hope chair%an ill accept the proposed a%end%ent.

#!#PEN#83N 3D #E##83N

MR. =A$8=E. The effect is, %ore or less, the sa%e insofar as theapportion%ent is concerned, but the Bernas


18/22

MR. =A$8=E. Mr. Presidin' 3fficer, as a co%pro%ise, 8 onder if theCo%%ission ill allo this. :e ill "ust delete the proposedsubpara'raph *0+ and all the capitali7ed ords in para'raph *5+. #othat in para'raph *5+, hat ould be left ould onl be the folloin'1:ithin three ears folloin' the return of ever census, the Con'ressshall %a/e a reapportion%ent of le'islative d istricts based on thestandards provided in this section.1

But e shall have an ordinance appended to the ne Constitutionindicatin' specificall the folloin' 1D3R P!RP3#E# 3D TGEE9ECT83N 3D MEMBER# 3D TGE G3!#E 3D REPRE#ENTAT8$E#8N TGE D8R#T C3N2RE##83NA9 E9ECT83N 8MME=8ATE9ID3993:8N2 TGE RAT8D8CAT83N 3D TG8# C3N#T8T!T83NPR3P3#E= BI TGE 4)6 C3N#T8T!T83NA9 C3MM8##83N AN=#!B#EO!ENT E9ECT83N# AN= !NT89 3TGER:8#E PR3$8=E=BI 9A:, TGE MEMBER# 3D TGE G3!#E 3D REPRE#ENTAT8$E##GA99 BE E9ECTE= DR3M 9E28#9AT8$E =8#TR8CT#APP3RT83NE= AM3N2 TGE PR3$8NCE#, C8T8E# AN= TGEMETR3P398TAN MAN89A AREA A# D3993:#.1

And hat ill follo ill be the allocation of seats to Metropolitan

Manila Area, to the provinces and to the cities, ithout indicatin' the%unicipalities co%prisin' each of the districts. Then, under #ection (,e ill %andate the C3ME9EC to %a/e the actual apportion%ent onthe basis of the nu%ber of seats provided for and allocated to eachprovince b us.

M#. AO!8N3. Mr. Presidin' 3fficer.

TGE PRE#8=8N2 3DD8CER *Mr. &a%ir+. Co%%issioner A;uino isreco'ni7ed.

M#. AO!8N3. 8 have to ob"ect to the provision hich ill 'ive %andateto C3ME9EC to do the redistrictin'. Redistrictin' is vitall lin/ed to the

baneful practices of cuttin' up areas or spheres of influence? in otherords, 'err%anderin'. This Co%%ission, bein' a nonpartisan, anonpolitical deliberative bod, is in the best possible situation under the

circu%stances to underta/e that responsibilit. :e are not antin' e-pertise and in ti%e because in the first place, the Co%%ittee on t9e'islative has prepared the report on the basis of thereco%%endation of the C3ME9EC.

MR. 3P9E. Mr. Presidin' 3fficer.

TGE PRE#8=8N2 3DD8CER *Mr. &a%ir+. Co%%issioner 3ple isreco'ni7ed.

MR. 3P9E. 8 ould li/e to support the position ta/en b Co%%issioA;uino in this respect. :e /no that the reapportion%ent of provinand cities for the purpose of redistrictin' is 'enerall inherent in theconstituent poer or in the le'islative poer. And 8 ould feel veruncertain about dele'atin' this to a ;uasi


19/22

MR. BEN2H3N. Mr. Presidin' 3fficer.

TGE PRE#8=8N2 3DD8CER *Mr. &a%ir+. Co%%issioner Ben'7on isreco'ni7ed.

MR. BEN2H3N.Apropos of that, 8 ould li/e to infor% the bod that 8believe the Co%%ittee on the 9e'islative has precisel or/ed on this

%atter and the are read ith a list of apportion%ent. The have, infact, apportioned the hole countr into various districts based on thereco%%endation of the C3ME9EC. #o the are read ith the list andif this bod ould ish to apportion the hole countr b district itself,then 8 believe e have the ti%e to do it because the Co%%ittee on the9e'islative is read ith that particular report hich need onl to beappended to the Constitution. #o if this bod is read to accept theor/ of the Co%%ittee on the 9e'islative e ould have no proble%. 8"ust ould li/e to 'ive that infor%ation so that the people here ould be'uided accordin'l hen the vote.

MR. R3=R823. Mr. Presidin' 3fficer.

TGE PRE#8=8N2 3DD8CER *Mr. &a%ir+ Co%%issioner Rodri'o isreco'ni7ed.

MR. R3=R823. 8 "ust ould li/e to as/ Co%%issioner =avide so%e;uestions.

TGE PRE#8=8N2 3DD8CER *Mr. &a%ir+. Co%%issioner =avide %aield if he so desires.

MR. =A$8=E. 2ladl.

MR. R3=R823. :ill this apportion%ent hich e are considerin'appl onl to the first election after the enact%ent of the Constitution

MR. =A$8=E. 3n the basis of the Padilla proposal, it ill be for the firstelection? on the basis of the #ar%iento proposal, it ill onl appl to thefirst election.

MR. R3=R823. And after that, Con'ress ill have the poer toreapportion.

MR. =A$8=E. Ies.

MR. R3=R823. #o, if e attach this to the Constitution J thereapportion%ent based on the C3ME9EC stud and beteen the

approval of the Constitution and the first election J the C3ME9EClon'er has the poer to chan'e that even a bit.

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TGE PRE#8=8N2 3DD8CER *Mr. &a%ir+ Co%%issioner Re'alado isreco'ni7ed.

MR. RE2A9A=3. Ma 8 address a clarificator ;uestion toCo%%issioner =avide

TGE PRE#8=8N2 3DD8CER *Mr. &a%ir+. 2entle%an ill pleaseproceed.

MR. RE2A9A=3. 3n the basis of the Co%%issioners proposedapportion%ent and considerin' the fact that there ill be acorrespondin' reduction to 4) seats, ould there be instancesrepresentation of under non


20/22

MR. RAMA. Mr. Presidin' 3fficer.

TGE PRE#8=8N2 3DD8CER *Mr. &a%ir+. The Dloor 9eader isreco'ni7ed.

MR. RAMA. The parlia%entar situation is that there as a %otion bCo%%issioner #ar%iento to %andate C3ME9EC to do the

redistrictin'. This as also al%ost the sa%e %otion b Co%%issionerPadilla and 8 thin/ e have had so%e /ind of %eetin' of %inds. 3n theother hand, there see%s to be a pre"udicial ;uestion, an a%end%ent tothe a%end%ent as su''ested b Co%%issioner A;uino, that instead ofthe C3ME9EC, it should be this Co%%ission that shall %a/e theredistrictin'. #o %a 8 as/ Co%%issioner A;uino, if she insists on thatidea, to please for%ulate it into a %otion so e can vote on that first asan a%end%ent to the a%end%ent.

TGE PRE#8=8N2 3DD8CER *Mr. &a%ir+.Co%%issioner A;uino isreco'ni7ed.

M# . AO!8N3. The %otion is for this Co%%ission to underta/e theapportion%ent of the le'islative districts instead of the proposal that

C3ME9EC be 'iven the %andate to underta/e the responsibilit.

--- --- ---

MR. #ARM8ENT3. Ma 8 be clarified, Mr. Presidin' 3fficer. 8s it the%otion or the proposed a%end%ent

TGE PRE#8=8N2 3DD8CER *Mr. &a%ir+. The proposed a%end%ent.

MR. #ARM8ENT3. Ma e %ove for the approval of this proposeda%end%ent hich e substitute for para'raphs 0 and 5.

MR. =A$8=E. Ma 8 re;uest that it should be treated %erel as a%otion to be folloed b a deletion of para'raph 0 because that shouldnot reall appear as a para'raph in #ection 5? otherise, it ill appearver u'l in the Constitution here e %andate a Co%%ission that ill

beco%efunctus officioto have the authorit. As a %atter of fact, ecannot e-ercise that authorit until after the ratification of the neConstitution.

TGE PRE#8=8N2 3DD8CER *Mr. &a%ir+. :hat does Co%%issioner#ar%iento sa

MR. #ARM8ENT3. 8t is accepted, Mr. Presidin' 3fficer. #o, %a 8%ove for the approval of this proposed a%end%ent.

M#. AO!8N3. Mr. Presidin' 3fficer.

TGE PRE#8=8N2 3DD8CER *Mr. &a%ir+. Co%%issioner A;uino isreco'ni7ed.

M#. AO!8N3. :ould that re;uire a to


21/22

M#. AO!8N3. Ma 8 be clarified a'ain on the %otion. 8s Co%%issioner#ar%iento, therefore, adoptin' % %otion :ould it not be ri'ht for hi%to %ove that the C3ME9EC be %andated

MR. #ARM8ENT3. No, e accepted the a%end%ent. 8t is alread theCo%%ission that ill be %andated.

M#. AO!8N3. #o, the 2entle%en has accepted the a%end%ent thea%end%ent.

Than/ ou.

MR. #ARM8ENT3. 8 a% votin' that this Co%%ission do thereapportion%ent.

$3T8N2

TGE PRE#8=8N2 3DD8CER *Mr. &a%ir+. 9et us proceed to vote.

As %an as are in favor, please raise their hand. *#everal Me%bers

raised their hand.+

As %an as are a'ainst, please raise their hand. *No Me%ber raisedhis hand.+

The results sho votes in favor and none a'ainst? the %otion isapproved.

Clearl then, the Constitutional Co%%ission denied to the C3ME9EC the ma3orpoerof le'islative apportion%ent as it itself e-ercised the poer. #ection ( of the 3rdinanceonl e%poered the C3ME9EC 1to %a/e minorad"ust%ents of thereapportion%ent !erein made.1 The %eanin' of the phrase 1minorad"ust%ents asa'ain clarified in the debates 16of the Co%%ission, viz.

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MR. 2!8N23NA. This is "ust clarificator, Mr. Presidin' 3fficer. 8n#ection (, the Co%%ission on Elections is e%poered to %a/e %inad"ust%ents on the apportion%ent %ade here.

MR. =A$8=E. Ies, Mr. Presidin' 3fficer.

MR. 2!8N23NA. :e have not set an ti%e li%it for this.

MR. =A$8=E. :e should not set a ti%e li%it unless durin' the perioa%end%ents a proposal is %ade. 0!e aut!ority conferred %ould "eminor corrections or amendments, meanin to say, for instance, t!a%e may !ave forotten an intervenin municipality in t!e enumeratio%!ic! ou!t to "e included in one district.0!at %e s!all consider aminor amendment.

MR. 2!8N23NA. Than/ ou.

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TGE PRE#8=8N2 3DD8CER *Mr. Ro%ulo+. Co%%issioner de Castr

reco'ni7ed.

MR. =E CA#TR3. Than/ ou.

8 as about to as/ the co%%ittee the %eanin' of %inorad"ust%ent. Can it "e possi"le t!at one municipality in a district "etransferred to anot!er district and call it a minor ad3ustment

MR. =A$8=E. 0!at cannot "e done, Mr.$residin 7fficer.Minor,meanin, t!at t!ere s!ould "e no c!ane in t!e allocations per distrGoever, it %a happen that e haveforotten a municipality inbeteen hich is still in the terri tor of one assi'ned district, or ther%a be an error in t!e correct name of a particularmunicipality because of chan'es %ade b the interi% Batasan'Pa%bansa and the Re'ular Batasan' Pa%bansa. There ere %anbatas pa%bansa enacted b both the interi% and the Re'ularBatasan' Pa%bansa chan'in' the na%es of %unicipalities.



22/22

MR. =E CA#TR3. #o, the %inor ad"ust%ent %a be %ade onl if oneof the %unicipalities is not %entioned in the ordinance appended to,and it ill be up for the C3ME9EC no to ad"ust or to put such%unicipalit to a certain district.

MR. =A$8=E. Ies, Mr. Presidin' 3fficer. Dor instance, e %a nothave the data re'ardin' a division of a %unicipalit b the interi%Batasan' Pa%bansa or the Re'ular Batasan' Pa%bansa into to%unicipalities, %eanin', a %other %unicipalit and the ne%unicipalit, but still actuall these are ithin the 'eo'raphical districtarea.

MR. =E CA#TR3. 1o t!e minor ad3ustment %!ic! t!e C7M(L(Ccannot do is t!at, if, for e#ample, my municipality is in t!e First istrictof Launa, t!ey cannot put t!at in any ot!er district.

MR. =A$8=E. 0!at is not even a minor correction./t is a su"stantiveone.

MR. =E CA#TR3. Than/ ou.

Consistent ith the li%its of its poer to %a/e %inor ad"ust%ents, #ection of the3rdinance did not also 'ive the respondent C3ME9EC an authorit totransfer municipalitiesfro% one le'islative district to another district. The poer'ranted b #ection to the respondent C3ME9EC is to ad3ust the nu%berof mem"ers *not %unicipalities+ 1apportioned to the province out of hich such neprovince as created. . . .1

Prescindin' fro% these pre%ises, e hold that respondent C3ME9EC co%%itted'rave abuse of discretion a%ountin' to lac/ of "urisdiction hen it pro%ul'ated section4 of its Resolution No. (6 transferrin' the %unicipalit of Capoocan of the #econd=istrict and the %unicipalit of Palo%pon of the Dourth =istrict to the Third =istrict of9ete.

8t %a ell be that the conversion of Biliran fro% a sub

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