Lambino vs COMELEC GR No. 174153 Oct 25, 2006 Requirements for Initiative Petition onstitutiona! "men#ment vs onstitutiona!

Revision $est to #etermine %&et&er amen#ment or revision FACTS: $&e 'am(ino Grou) commence# *at&erin* si*natures for an initiative )etition to c&an*e t&e 1+,7 onstitution an# t&en fi!e# a )etition %it& O-.'. to &o!# a )!e(iscite for ratification un#er /ec. 50(1 an# 0c1 an# /ec. 7 of R" 6735. $&e )ro)ose# c&an*es un#er t&e )etition %i!! s&ift t&e )resent 2icamera!3 Presi#entia! s4stem to a 5nicamera!3Par!iamentar4 form of *overnment. O-.'. #i# not *ive it #ue course for !ac6 of an ena(!in* !a% *overnin* initiative )etitions to amen# t&e onstitution, )ursuant to /antia*o v. ome!ec ru!in* ISSUES: - 7ON t&e )ro)ose# c&an*es constiture an amen#ment or revision - 7ON t&e initiative )etition is suffiecient com)!iance %it& t&e constitutiona! requirement on #irect )ro)osa! (4 t&e )eo)!e. RULING: Initiative )etition #oes not com)!4 %it& /ec. 2, "rt. 89II on #irect )ro)osa! (4 )eo)!e /ec. 2, "rt. 89II...is t&e *overnin* )rovision t&at a!!o%s a )eo)!e:s initiative to )ro)ose amen#ments to t&e onstitution. 7&i!e t&is )rovision #oes not e;)ress!4 state t&at t&e )etition must set fort& t&e fu!! te;t of t&e )ro)ose# amen#ments, t&e #e!i(erations of t&e framers of our onstitution c!ear!4 s&o% t&at< 0a1 t&e framers inten#e# to a#o)t re!evant "merican =uris)ru#ence on )eo)!e:s initiative> an# 0(1 in )articu!ar, t&e )eo)!e must first see t&e fu!! te;t of t&e )ro)ose# amen#ments (efore t&e4 si*n, an# t&at t&e )eo)!e must si*n on a )etition containin* suc& fu!! te;t. $&e essence of amen#ments ?#irect!4 )ro)ose# (4 t&e )eo)!e t&rou*& initiative u)on a )etition@ is t&at t&e entire )ro)osa! on its face is a )etition (4 t&e )eo)!e. $&is means t%o essentia! e!ements must (e )resent. 1. 2. $&e )eo)!e must aut&or an# t&us si*n t&e entire )ro)osa!. No a*ent or re)resentative can si*n on t&eir (e&a!f. "s an initiative u)on a )etition, t&e )ro)osa! must (e em(o#ie# in a )etition.

$&ese essentia! e!ements are )resent on!4 if t&e fu!! te;t of t&e )ro)ose# amen#ments is first s&o%n to t&e )eo)!e %&o e;)ress t&eir assent (4 si*nin* suc& com)!ete )ro)osa! in a )etition. $&e fu!! te;t of t&e )ro)ose# amen#ments ma4 (e eit&er %ritten on t&e face of t&e )etition, or attac&e# to it. If so attac&e#, t&e )etition must state# t&e fact of suc& attac&ment. $&is is an assurance t&at ever4one of t&e severa! mi!!ions of si*natories to t&e )etition &a# seen t&e fu!! te;t of t&e )ro)ose# amen#ments (efore A not after A si*nin*. -oreover, ?an initiative si*ner must (e informe# at t&e time of si*nin* of t&e nature an# effect of t&at %&ic& is )ro)ose#@ an# fai!ure to #o so is ?#ece)tive an# mis!ea#in*@ %&ic& ren#ers t&e initiative voi#. In t&e case of t&e 'am(ino Grou):s )etition, t&ere:s not a sin*!e %or#, )&rase, or sentence of te;t of t&e )ro)ose# c&an*es in t&e si*nature s&eet. Neit&er #oes t&e si*nature s&eet state t&at t&e te;t of t&e )ro)ose# c&an*es is attac&e# to it. $&e si*nature s&eet mere!4 as6s a question %&et&er t&e )eo)!e a))rove a s&ift from t&e 2icamera!3Presi#entia! to t&e 5nicamera!3 Par!iamentar4 s4stem of *overnment. $&e si*nature

s&eet #oes not s&o% to t&e )eo)!e t&e #raft of t&e )ro)ose# c&an*es (efore t&e4 are as6e# to si*n t&e si*nature s&eet. $&is omission is fata!. "n initiative t&at *at&ers si*natures from t&e )eo)!e %it&out first s&o%in* to t&e )eo)!e t&e fu!! te;t of t&e )ro)ose# amen#ments is most !i6e!4 a #ece)tion, an# can o)erate as a *i*antic frau# on t&e )eo)!e. $&at:s %&4 t&e onstitution requires t&at an initiative must (e ?#irect!4 )ro)ose# (4 t&e )eo)!e ; ; ; in a )etition@ 3 meanin* t&at t&e )eo)!e must si*n on a )etition t&at contains t&e fu!! te;t of t&e )ro)ose# amen#ments. On so vita! an issue as amen#in* t&e nation:s fun#amenta! !a%, t&e %ritin* of t&e te;t of t&e )ro)ose# amen#ments cannot (e &i##en from t&e )eo)!e un#er a *enera! or s)ecia! )o%er of attorne4 to unname#, face!ess, an# une!ecte# in#ivi#ua!s. $&e initiative vio!ates /ection 2, "rtic!e 89II of t&e onstitution #isa!!o%in* revision t&rou*& initiatives "rtic!e 89II of t&e onstitution s)ea6s of t&ree mo#es of amen#in* t&e onstitution. $&e first mo#e is t&rou*& on*ress u)on t&ree3fourt&s vote of a!! its -em(ers. $&e secon# mo#e is t&rou*& a constitutiona! convention. $&e t&ir# mo#e is t&rou*& a )eo)!e:s initiative. /ection 1 of "rtic!e 89II, referrin* to t&e first an# secon# mo#es, a))!ies to ?an4 amen#ment to, or revision of, t&is onstitution.@ In contrast, /ection 2 of "rtic!e 89II, referrin* to t&e t&ir# mo#e, a))!ies on!4 to ?amen#ments to t&is onstitution.@ $&is #istinction %as intentiona! as s&o%n (4 t&e #e!i(erations of t&e onstitutiona! ommission. " )eo)!e:s initiative to c&an*e t&e onstitution a))!ies on!4 to an amen#ment of t&e onstitution an# not to its revision. In contrast, on*ress or a constitutiona! convention can )ro)ose (ot& amen#ments an# revisions to t&e onstitution. Boes t&e 'am(ino Grou):s initiative constitute a revision of t&e onstitutionC Des. 24 an4 !e*a! test an# un#er an4 =uris#iction, a s&ift from a 2icamera!3Presi#entia! to a 5nicamera!3 Par!iamentar4 s4stem, invo!vin* t&e a(o!ition of t&e Office of t&e Presi#ent an# t&e a(o!ition of one c&am(er of on*ress, is (e4on# #ou(t a revision, not a mere amen#ment. "men#ment vs. Revision ourts &ave !on* reco*niEe# t&e #istinction (et%een an amen#ment an# a revision of a constitution. Revision (roa#!4 im)!ies a c&an*e t&at a!ters a (asic )rinci)!e in t&e constitution, !i6e a!terin* t&e )rinci)!e of se)aration of )o%ers or t&e s4stem of c&ec6s3an#3(a!ances. $&ere is a!so revision if t&e c&an*e a!ters t&e su(stantia! entiret4 of t&e constitution, as %&en t&e c&an*e affects su(stantia! )rovisions of t&e constitution. On t&e ot&er &an#, amen#ment (roa#!4 refers to a c&an*e t&at a##s, re#uces, or #e!etes %it&out a!terin* t&e (asic )rinci)!e invo!ve#. Revision *enera!!4 affects severa! )rovisions of t&e constitution, %&i!e amen#ment *enera!!4 affects on!4 t&e s)ecific )rovision (ein* amen#e#. 7&ere t&e )ro)ose# c&an*e a))!ies on!4 to a s)ecific )rovision of t&e onstitution %it&out affectin* an4 ot&er section or artic!e, t&e c&an*e ma4 *enera!!4 (e consi#ere# an amen#ment an# not a revision. For e;am)!e, a c&an*e re#ucin* t&e votin* a*e from 1, 4ears to 15 4ears is an amen#ment an# not a revision. /imi!ar!4, a c&an*e re#ucin* Fi!i)ino o%ners&i) of mass me#ia com)anies from 100G to 60G is an amen#ment an# not a revision. "!so, a c&an*e requirin* a co!!e*e #e*ree as an a##itiona! qua!ification for e!ection to t&e Presi#enc4 is an amen#ment an# not a revision. $&e c&an*es in t&ese e;am)!es #o not entai! an4 mo#ification of sections or artic!es of t&e onstitution ot&er t&an t&e s)ecific )rovision (ein* amen#e#. $&ese c&an*es #o not a!so affect t&e structure of *overnment or t&e s4stem of c&ec6s3an#3(a!ances amon* or %it&in t&e t&ree (ranc&es. Ho%ever, t&ere can (e no fi;e# ru!e on %&et&er a c&an*e is an amen#ment or a revision. " c&an*e in a sin*!e %or# of one sentence of t&e onstitution ma4 (e a revision an# not an amen#ment. For e;am)!e, t&e su(stitution of t&e %or# ?re)u(!ican@ %it& ?monarc&ic@ or ?t&eocratic@ in /ection 1, "rtic!e II of t&e onstitution ra#ica!!4 over&au!s t&e entire structure of *overnment an# t&e fun#amenta! i#eo!o*ica! (asis of t&e onstitution. $&us, eac& s)ecific c&an*e %i!! &ave to (e e;amine# case3(43case, #e)en#in* on &o% it

affects ot&er )rovisions, as %e!! as &o% it affects t&e structure of *overnment, t&e carefu!!4 crafte# s4stem of c&ec6s3an#3(a!ances, an# t&e un#er!4in* i#eo!o*ica! (asis of t&e e;istin* onstitution. /ince a revision of a constitution affects (asic )rinci)!es, or severa! )rovisions of a constitution, a #e!i(erative (o#4 %it& recor#e# )rocee#in*s is (est suite# to un#erta6e a revision. " revision requires &armoniEin* not on!4 severa! )rovisions, (ut a!so t&e a!tere# )rinci)!es %it& t&ose t&at remain una!tere#. $&us, constitutions norma!!4 aut&oriEe #e!i(erative (o#ies !i6e constituent assem(!ies or constitutiona! conventions to un#erta6e revisions. On t&e ot&er &an#, constitutions a!!o% )eo)!e:s initiatives, %&ic& #o not &ave fi;e# an# i#entifia(!e #e!i(erative (o#ies or recor#e# )rocee#in*s, to un#erta6e on!4 amen#ments an# not revisions. $ests to #etermine %&et&er amen#ment or revision In a!ifornia %&ere t&e initiative c!ause a!!o%s amen#ments (ut not revisions to t&e constitution =ust !i6e in our onstitution, courts &ave #eve!o)e# a t%o3)art test< t&e quantitative test an# t&e qua!itative test. $&e quantitative test as6s %&et&er t&e )ro)ose# c&an*e is so e;tensive in its )rovisions as to c&an*e #irect!4 t&e su(stantia! entiret4 of t&e constitution (4 t&e #e!etion or a!teration of numerous e;istin* )rovisions. $&e court e;amines on!4 t&e num(er of )rovisions affecte# an# #oes not consi#er t&e #e*ree of t&e c&an*e. $&e qua!itative test inquires into t&e qua!itative effects of t&e )ro)ose# c&an*e in t&e constitution. $&e main inquir4 is %&et&er t&e c&an*e %i!! accom)!is& suc& far reac&in* c&an*es in t&e nature of our (asic *overnmenta! )!an as to amount to a revision. 7&et&er t&ere is an a!teration in t&e structure of *overnment is a )ro)er su(=ect of inquir4. $&us, a c&an*e in t&e nature of It&eJ (asic *overnmenta! )!an inc!u#es c&an*e in its fun#amenta! frame%or6 or t&e fun#amenta! )o%ers of its 2ranc&es. " c&an*e in t&e nature of t&e (asic *overnmenta! )!an a!so inc!u#es c&an*es t&at =eo)ar#iEe t&e tra#itiona! form of *overnment an# t&e s4stem of c&ec6 an# (a!ances. 5n#er (ot& t&e quantitative an# qua!itative tests, t&e 'am(ino Grou):s initiative is a revision an# not mere!4 an amen#ment. Kuantitative!4, t&e 'am(ino Grou):s )ro)ose# c&an*es over&au! t%o artic!es 3 "rtic!e 9I on t&e 'e*is!ature an# "rtic!e 9II on t&e .;ecutive 3 affectin* a tota! of 105 )rovisions in t&e entire onstitution. Kua!itative!4, t&e )ro)ose# c&an*es a!ter su(stantia!!4 t&e (asic )!an of *overnment, from )resi#entia! to )ar!iamentar4, an# from a (icamera! to a unicamera! !e*is!ature. " c&an*e in t&e structure of *overnment is a revision " c&an*e in t&e structure of *overnment is a revision of t&e onstitution, as %&en t&e t&ree *reat co3equa! (ranc&es of *overnment in t&e )resent onstitution are re#uce# into t%o. $&is a!ters t&e se)aration of )o%ers in t&e onstitution. " s&ift from t&e )resent 2icamera!3Presi#entia! s4stem to a 5nicamera!3 Par!iamentar4 s4stem is a revision of t&e onstitution. -er*in* t&e !e*is!ative an# e;ecutive (ranc&es is a ra#ica! c&an*e in t&e structure of *overnment. $&e a(o!ition a!one of t&e Office of t&e Presi#ent as t&e !ocus of .;ecutive Po%er a!ters t&e se)aration of )o%ers an# t&us constitutes a revision of t&e onstitution. 'i6e%ise, t&e a(o!ition a!one of one c&am(er of on*ress a!ters t&e s4stem of c&ec6s3an#3(a!ances %it&in t&e !e*is!ature an# constitutes a revision of t&e onstitution. $&e 'am(ino Grou) t&eoriEes t&at t&e #ifference (et%een amen#ment an# revision is on!4 one of )roce#ure, not of su(stance. $&e 'am(ino Grou) )osits t&at %&en a #e!i(erative (o#4 #rafts an# )ro)oses c&an*es to t&e onstitution, su(stantive c&an*es are ca!!e# revisions (ecause mem(ers of t&e #e!i(erative (o#4 %or6 fu!!3time on t&e c&an*es. $&e same su(stantive c&an*es, %&en )ro)ose# t&rou*& an initiative, are ca!!e# amen#ments (ecause t&e c&an*es are ma#e (4 or#inar4 )eo)!e %&o #o not ma6e an occu)ation, )rofession, or vocation out of suc& en#eavor. $&e / , &o%ever, ru!e# t&at t&e e;)ress intent of t&e framers an# t&e )!ain !an*ua*e of t&e onstitution contra#ict t&e 'am(ino Grou):s t&eor4. 7&ere t&e intent of t&e framers an# t&e !an*ua*e of t&e onstitution are c!ear an# )!ain!4 state#, courts #o not #eviate from suc& cate*orica! intent an# !an*ua*e.