EN BANC [G.R. No. 157013. July 10, 2003.] ATTY. ROMULO B. MACALINTAL, petitioner, vs. COMMISSION ON ELECTIONS, HON.

ALBERTO ROMULO, in his officia capacit! as E"ec#tive Secretar!, an$ HON. EMILIA T. BONCO%IN, Secretar! of the %epart&ent of B#$'et an$ Mana'e&ent, respon$ents. (ete )#irino*C#a$ra an$ Si"to S. Bri iante, +r. for petitioner. Henr! S. Ro,as for Movant*Intervenor. SYNOPSIS (etitioner Ro&# o B. Maca inta , a &e&-er of the (hi ippine Bar, so#'ht to $ec are certain provisions of Rep#- ic Act No. ./0. entit e$, 1An Act (rovi$in' for A S!ste& of Overseas A-sentee 2otin' -! )#a ifie$ Citi3ens of the (hi ippines A-roa$, Appropriatin' 4#n$s Therefor, an$ for Other (#rposes1 as #nconstit#tiona . (etitioner conten$e$ that Section 56$7 is #nconstit#tiona -eca#se it vio ates Section /, Artic e 2 of the /.08 Constit#tion 9hich re:#ires that the voter &#st -e a resi$ent in the (hi ippines for at east one !ear an$ in the p ace 9here he proposes to vote for at east si" &onths i&&e$iate ! prece$in' an e ection. (etitioner cite$ the r# in' of the Co#rt in Caasi vs. Co#rt of Appea s to s#pport his c ai&. In that case, the Co#rt he $ that a 1'reen car$1 ho $er i&&i'rant to the Unite$ States is $ee&e$ to have a-an$one$ his $o&ici e an$ resi$ence in the (hi ippines. The S#pre&e Co#rt #phe $ the constit#tiona it! of Section 56$7 of R.A. No. ./0.. Accor$in' to the Co#rt, Section ; of Artic e 2 of the Constit#tion is an e"ception to the resi$enc! re:#ire&ent fo#n$ in Section / of the sa&e Artic e. Or$inari !, an a-sentee is not a resi$ent an$ vice versa< a person cannot -e at the sa&e ti&e, -oth a resi$ent an$ an a-sentee. Ho9ever, #n$er e"istin' e ection a9s an$ the co#nt ess prono#nce&ents of the Co#rt pertainin' to e ections, an a-sentee re&ains attache$ to his resi$ence in the (hi ippines as resi$ence is consi$ere$ s!non!&o#s 9ith $o&ici e. A9are of the $o&ici iar! e'a tie that in=s an overseas 4i ipino to his resi$ence in this co#ntr!, the fra&ers of the Constit#tion consi$ere$ the circ#&stances that i&pe e$ the& to re:#ire Con'ress to esta- ish a s!ste& for overseas a-sentee votin'. Th#s, Section ;, Artic e 2 of the Constit#tion ca&e into -ein' to re&ove an! $o#-t as to the inapp ica-i it! of the resi$enc! re:#ire&ent in Section /. It is precise ! to avoi$ an! pro- e&s that co# $ i&pe$e the i&p e&entation of its p#rs#it to enfranchise the ar'est n#&-er of :#a ifie$ 4i ipinos 9ho are not in the (hi ippines that the Constit#tiona Co&&ission e"p icit ! &an$ate$ Con'ress to provi$e a s!ste& for overseas a-sentee votin'. The Co#rt, ho9ever, $ec are$ certain provisions of the a9 #nconstit#tiona , na&e !, portions of Secs. /8./, /. an$ ;5, as the! tra&p e$ on the constit#tiona &an$ate of in$epen$ence of the Co&&ission on E ections. The Co#rt

a so #phe $ Section /0.5 of R.A. No. ./0. 9ith respect on ! to the a#thorit! 'iven to the COMELEC to proc ai& the 9innin' can$i$ates for Senators an$ part!* ist representatives -#t not as to the po9er to canvass the votes an$ proc ai& the 9innin' can$i$ates for (resi$ent an$ 2ice*(resi$ent 9hich is o$'e$ 9ith Con'ress #n$er Section >, Artic e 2II of the Constit#tion. The Co#rt i=e9ise #phe $ Sec. 5 6$7 of the a9. It a so $ec are$ that p#rs#ant to Sec. ?@ of the a9 the rest of the provision of sai$ a9 contin#es to -e in f# force an$ effect. SYLLABUS /. (OLITICAL LAA< +U%ICIAL %E(ARTMENT< (OAER O4 +U%ICIAL RE2IEA< RIBHT O4 (ETITIONER TO 4ILE (RESENT (ETITION, U(HEL%< THE CHALLENBE% (RO2ISION O4 LAA IN2OL2ES A (UBLIC RIBHT THAT A44ECTS A BREAT NUMBER O4 CITICENS AN% AN ISSUE O4 TRANSCEN%ENTAL SIBNI4ICANCE TO THE 4ILI(INO (EO(LE. D The Co#rt #pho $s the ri'ht of petitioner to fi e the present petition. R.A. No. ./0., entit e$, 1An Act (rovi$in' for A S!ste& of Overseas A-sentee 2otin' -! )#a ifie$ Citi3ens of the (hi ippines A-roa$, Appropriatin' 4#n$s Therefor, an$ for Other (#rposes,1 appropriates f#n$s #n$er Section ;. thereof 9hich provi$es that a s#pp e&enta -#$'et on the Benera Appropriations Act of the !ear of its enact&ent into a9 sha provi$e for the necessar! a&o#nt to carr! o#t its provisions. Ta"pa!ers, s#ch as herein petitioner, have the ri'ht to restrain officia s fro& 9astin' p#- ic f#n$s thro#'h the enforce&ent of an #nconstit#tiona stat#te. The Co#rt has he $ that the! &a! assai the va i$it! of a a9 appropriatin' p#- ic f#n$s -eca#se e"pen$it#re of p#- ic f#n$s -! an officer of the State for the p#rpose of e"ec#tin' an #nconstit#tiona act constit#tes a &isapp ication of s#ch f#n$s. The cha en'e$ provision of a9 invo ves a p#- ic ri'ht that affects a 'reat n#&-er of citi3ens. The Co#rt has a$opte$ the po ic! of ta=in' ,#ris$iction over cases 9henever the petitioner has serio#s ! an$ convincin' ! presente$ an iss#e of transcen$enta si'nificance to the 4i ipino peop e. This has -een e"p icit ! prono#nce$ in Eapatiran n' &'a Na' i in'=o$ sa (a&aha aan n' (i ipinas, Inc. vs. Tan, 9here the Co#rt he $F O-,ections to ta"pa!ersG s#it for ac= of s#fficient persona it! stan$in', or interest are, ho9ever, in the &ain proce$#ra &atters. Consi$erin' the i&portance to the p#- ic of the cases at -ar, an$ in =eepin' 9ith the Co#rtGs $#t!, #n$er the /.08 Constit#tion, to $eter&ine 9hether or not the other -ranches of 'overn&ent have =ept the&se ves 9ithin the i&its of the Constit#tion an$ the a9s an$ that the! have not a-#se$ the $iscretion 'iven to the&, the Co#rt has -r#she$ asi$e technica ities of proce$#re an$ has ta=en co'ni3ance of these petitions. In$ee$, in this case, the Co#rt &a! set asi$e proce$#ra r# es as the constit#tiona ri'ht of s#ffra'e of a consi$era- e n#&-er of 4i ipinos is invo ve$. ;. I%.< ELECTION LAAS< THE O2ERSEAS ABSENTEE 2OTINB ACT O4 ;@@? 6RE(UBLIC ACT NO. ./0.7< ENACTE% IN OBEISANCE TO THE

MAN%ATE O4 THE CONSTITUTION THAT CONBRESS SHALL (RO2I%E A SYSTEM 4OR 2OTINB BY )UALI4IE% 4ILI(INOS ABROA%. D As the essence of R.A. No. ./0. is to enfranchise overseas :#a ifie$ 4i ipinos, it -ehooves the Co#rt to ta=e a ho istic vie9 of the pertinent provisions of -oth the Constit#tion an$ R.A. No. ./0.. It is a -asic r# e in constit#tiona constr#ction that the Constit#tion sho# $ -e constr#e$ as a 9ho e. In Chion'-ian vs. %e Leon, the Co#rt he $ that a constit#tiona provision sho# $ f#nction to the f# e"tent of its s#-stance an$ its ter&s, not -! itse f a one, -#t in con,#nction 9ith a other provisions of that 'reat $oc#&ent. Constit#tiona provisions are &an$ator! in character #n ess, either -! e"press state&ent or -! necessar! i&p ication, a $ifferent intention is &anifest. The intent of the Constit#tion &a! -e $ra9n pri&ari ! fro& the an'#a'e of the $oc#&ent itse f. Sho# $ it -e a&-i'#o#s, the Co#rt &a! consi$er the intent of is fra&ers thro#'h their $e-ates in the constit#tiona convention. R.A. No. ./0. 9as enacte$ in o-eisance to the &an$ate of the first para'raph of Section ;, Artic e 2 of the Constit#tion that Con'ress sha provi$e a s!ste& for votin' -! :#a ifie$ 4i ipinos a-roa$. It &#st -e stresse$ that Section ; $oes not provi$e for the para&eters of the e"ercise of e'is ative a#thorit! in enactin' sai$ a9. Hence, in the a-sence of restrictions, Con'ress is pres#&e$ to have $# ! e"ercise$ its f#nction as $efine$ in Artic e 2I 6The Le'is ative %epart&ent7 of the Constit#tion. ?. I%.< I%.< I%.< SECTION ;, ARTICLE 2 O4 THE CONSTITUTION CAME INTO BEINB TO REMO2E %OUBT AS TO THE INA((LICABILITY O4 THE RESI%ENCY RE)UIREMENT IN SECTION /. D Or$inari !, an a-sentee is not a resi$ent an$ vice versa< a person cannot -e at the sa&e ti&e, -oth a resi$ent an$ an a-sentee. Ho9ever, #n$er o#r e ection a9s an$ the co#nt ess prono#nce&ents of the Co#rt pertainin' to e ections, an a-sentee re&ains attache$ to his resi$ence in the (hi ippines as resi$ence is consi$ere$ s!non!&o#s 9ith $o&ici e. A9are of the $o&ici iar! e'a tie that in=s an overseas 4i ipino to his resi$ence in this co#ntr!, the fra&ers of the Constit#tion consi$ere$ the circ#&stances that i&pe e$ the& to re:#ire Con'ress to esta- ish a s!ste& for overseas a-sentee votin'. Th#s, the Constit#tiona Co&&ission reco'ni3e$ the fact that 9hi e &i ions of 4i ipinos resi$e a-roa$ principa ! for econo&ic reasons an$ hence the! contri-#te in no s&a &eas#re to the econo&ic #p ift of this co#ntr!, their voices are &ar'ina insofar as the choice of this co#ntr!Gs ea$ers is concerne$. The Constit#tiona Co&&ission rea i3e$ that #n$er the a9s then e"istin' an$ consi$erin' the nove t! of the s!ste& of a-sentee votin' in this ,#ris$iction, vestin' overseas 4i ipinos 9ith the ri'ht to vote 9o# $ spa9n constit#tiona pro- e&s especia ! -eca#se the Constit#tion itse f provi$es for the resi$enc! re:#ire&ent of voters. Th#s, Section ;, Artic e 2 of the Constit#tion ca&e into -ein' to re&ove an! $o#-t as to the inapp ica-i it! of the resi$enc! re:#ire&ent in Section /. It is precise ! to avoi$ an! pro- e&s that co# $ i&pe$e the i&p e&entation of its p#rs#it to enfranchise the ar'est n#&-er of :#a ifie$ 4i ipinos 9ho are not in the (hi ippines that the Constit#tiona Co&&ission

e"p icit ! &an$ate$ Con'ress to provi$e a s!ste& for overseas a-sentee votin'. >. I%.< I%.< I%.< SECTION ; O4 ARTICLE 2 O4 THE CONSTITUTION IS AN EHCE(TION TO THE RESI%ENCY RE)UIREMENT 4OUN% IN SECTION / O4 THE SAME ARTICLE. D It is c ear fro& these $isc#ssions of the &e&-ers of the Constit#tiona Co&&ission that the! inten$e$ to enfranchise as &#ch as possi- e a 4i ipino citi3ens a-roa$ 9ho have not a-an$one$ their $o&ici e of ori'in. The Co&&ission even inten$e$ to e"ten$ to !o#n' 4i ipinos 9ho reach votin' a'e a-roa$ 9hose parentsG $o&ici e of ori'in is in the (hi ippines, an$ consi$er the& :#a ifie$ as voters for the first ti&e. It is in p#rs#ance of that intention that the Co&&ission provi$e$ for Section ; i&&e$iate ! after the resi$enc! re:#ire&ent of Section /. B! the $octrine of necessar! i&p ication in stat#tor! constr#ction, 9hich &a! -e app ie$ in constr#in' constit#tiona provisions, the strate'ic ocation of Section ; in$icates that the Constit#tiona Co&&ission provi$e$ for an e"ception to the act#a resi$enc! re:#ire&ent of Section / 9ith respect to :#a ifie$ 4i ipinos a-roa$. The sa&e Co&&ission has in effect $ec are$ that :#a ifie$ 4i ipinos 9ho are not in the (hi ippines &a! -e a o9e$ to vote even tho#'h the! $o not satisf! the resi$enc! re:#ire&ent in Section /, Artic e 2 of the Constit#tion. That Section ; of Artic e 2 of the Constit#tion is an e"ception to the resi$enc! re:#ire&ent fo#n$ in Section / of the sa&e Artic e 9as in fact the s#-,ect of $e-ate 9hen Senate Bi No. ;/@>, 9hich -eca&e R.A. No. ./0., 9as $e i-erate$ #pon on the Senate f oor. 5. I%.< I%.< I%.< EHECUTION O4 RE)UIRE% A44I%A2IT IS NOT THE ENABLINB OR EN4RANCHISINB ACT< A44I%A2IT MERELY SER2ES AS AN EH(LICIT EH(RESSION THAT )UALI4IE% ABSENTEE HA% NOT IN 4ACT ABAN%ONE% HIS OR HER %OMICILE O4 ORIBIN. D Section > of R.A. No. ./0. provi$es for the covera'e of the a-sentee votin' process. Ahich $oes not re:#ire ph!sica resi$enc! in the (hi ippines< an$ Section 5 of the assai e$ a9 9hich en#&erates those 9ho are $is:#a ifie$. As fina ! approve$ into a9, Section 56$7 of R.A. No. ./0. specifica ! $is:#a ifies an i&&i'rant or per&anent resi$ent 9ho is 1reco'ni3e$ as s#ch in the host co#ntr!1 -eca#se i&&i'ration or per&anent resi$ence in another co#ntr! i&p ies ren#nciation of oneGs resi$ence in his co#ntr! of ori'in. Ho9ever, sa&e Section a o9s an i&&i'rant an$ per&anent resi$ent a-roa$ to re'ister as voter for as on' as heIshe e"ec#tes an affi$avit to sho9 that heIshe has not a-an$one$ his $o&ici e in p#rs#ance of the constit#tiona intent e"presse$ in Sections / an$ ; of Artic e 2 that 1a citi3ens of the (hi ippines not other9ise $is:#a ifie$ -! a91 &#st -e entit e$ to e"ercise the ri'ht of s#ffra'e an$, that Con'ress &#st esta- ish a s!ste& for a-sentee votin'< for other9ise, if act#a , ph!sica resi$ence in the (hi ippines is re:#ire$, there is no sense for the fra&ers of the Constit#tion to &an$ate Con'ress to esta- ish a s!ste& for a-sentee votin'. Contrar! to the c ai& of petitioner, the e"ec#tion of the affi$avit itse f is not the ena- in' or enfranchisin' act. The affi$avit re:#ire$ in Section 56$7 is not on ! proof of the intention of the i&&i'rant or per&anent resi$ent to 'o -ac= an$ res#&e resi$enc! in the (hi ippines,

-#t &ore si'nificant !, it serves as an e"p icit e"pression that he ha$ not in fact a-an$one$ his $o&ici e of ori'in. Th#s, it is not correct to sa! that the e"ec#tion of the affi$avit #n$er Section 56$7 vio ates the Constit#tion that proscri-es 1provisiona re'istration or a pro&ise -! a voter to perfor& a con$ition to -e :#a ifie$ to vote in a po itica e"ercise.1 To repeat, the affi$avit is re:#ire$ of i&&i'rants an$ per&anent resi$ents a-roa$ -eca#se -! their stat#s in their host co#ntries, the! are pres#&e$ to have re in:#ishe$ their intent to ret#rn to this co#ntr!< th#s, 9itho#t the affi$avit, the pres#&ption of a-an$on&ent of (hi ippine $o&ici e sha re&ain. J. I%.< I%.< I%.< THE +URIS(RU%ENTIAL %ECLARATION IN CAASI 2S. COURT O4 A((EALS 4IN%S NO A((LICATION TO THE (RESENT CASE BECAUSE IT %I% NOT, 4OR OB2IOUS REASONS, CONSI%ER THE ABSENTEE 2OTINB RIBHTS O4 4ILI(INOS AHO ARE IMMIBRANTS AN% (ERMANENT RESI%ENTS IN THEIR HOST COUNTRIES. D The ,#rispr#$entia $ec aration in Caasi vs. Co#rt of Appea s that 'reen car$ ho $ers are $is:#a ifie$ to r#n for an! e ective office fin$s no app ication to the present case -eca#se the Caasi case $i$ not, for o-vio#s reasons, consi$er the a-sentee votin' ri'hts of 4i ipinos 9ho are i&&i'rants an$ per&anent resi$ents in their host co#ntries. In the a$vent of The Overseas A-sentee 2otin' Act of ;@@? or R.A. ./0., the! &a! sti -e consi$ere$ as a 1:#a ifie$ citi3en of the (hi ippines a-roa$1 #pon f# fi &ent of the re:#ire&ents of re'istration #n$er the ne9 a9 for the p#rpose of e"ercisin' their ri'ht of s#ffra'e. It &#st -e e&phasi3e$ that Section 56$7 $oes not on ! re:#ire an affi$avit or a pro&ise to 1res#&e act#a ph!sica per&anent resi$ence in the (hi ippines not ater than three !ears fro& approva of hisIher re'istration,1 the 4i ipinos a-roa$ &#st a so $ec are that the! have not app ie$ for citi3enship in another co#ntr!. Th#s, the! &#st ret#rn to the (hi ippines< other9ise, their fai #re to ret#rn 1sha -e ca#se for the re&ova 1 of their na&es 1fro& the Nationa Re'istr! of A-sentee 2oters an$ hisIher per&anent $is:#a ification to vote in a-sentia.1 8. I%.< I%.< I%.< ABSENTEE 2OTINB (RESU((OSES THAT THE 1)UALI4IE% CITICEN O4 THE (HILI((INES ABROA%1 IS NOT (HYSICALLY (RESENT IN THE COUNTRY< RE)UIRE% A44I%A2IT BI2ES THE ABSENTEE AN O((ORTUNITY TO EH(RESS THAT HE HAS NOT ACTUALLY ABAN%ONE% HIS %OMICILE IN THE (HILI((INES. D Contrar! to petitionerGs c ai& that Section 56$7 circ#&vents the Constit#tion, Con'ress enacte$ the a9 prescri-in' a s!ste& of overseas a-sentee votin' in co&p iance 9ith the constit#tiona &an$ate. S#ch &an$ate e"press ! re:#ires that Con'ress provi$e a s!ste& of a-sentee votin' that necessari ! pres#pposes that the 1:#a ifie$ citi3en of the (hi ippines a-roa$1 is not ph!sica ! present in the co#ntr!. The provisions of Sections 56$7 an$ // are co&ponents of the s!ste& of overseas a-sentee votin' esta- ishe$ -! R.A. No. ./0.. The :#a ifie$ 4i ipino a-roa$ 9ho e"ec#te$ the affi$avit is $ee&e$ to have retaine$ his $o&ici e in the (hi ippines. He is pres#&e$ not to have ost his $o&ici e -! his ph!sica a-sence fro& this co#ntr!. His havin' -eco&e an i&&i'rant or

per&anent resi$ent of his host co#ntr! $oes not necessari ! i&p ! an a-an$on&ent of his intention to ret#rn to his $o&ici e of ori'in, the (hi ippines. Therefore, #n$er the a9, he &#st -e 'iven the opport#nit! to e"press that he has not act#a ! a-an$one$ his $o&ici e in the (hi ippines -! e"ec#tin' the affi$avit re:#ire$ -! Sections 56$7 an$ 06c7 of the a9. 0. I%.< I%.< I%.< BY 2ESTINB ITSEL4 AITH THE (OAERS TO A((RO2E, RE2IEA, AMEN% AN% RE2ISE THE IM(LEMENTINB RULES AN% REBULATIONS 4OR THE O2ERSEAS ABSENTEE 2OTINB ACT O4 ;@@?, CONBRESS AENT BEYON% THE SCO(E O4 ITS CONSTITUTIONAL AUTHORITY AN% TRAM(LE% U(ON THE CONSTITUTIONAL MAN%ATE O4 IN%E(EN%ENCE O4 THE COMMISSION ON ELECTIONS. D The Co#rt has no 'enera po9ers of s#pervision over COMELEC 9hich is an in$epen$ent -o$! 1e"cept those specifica ! 'rante$ -! the Constit#tion,1 that is, to revie9 its $ecisions, or$ers an$ r# in's. In the sa&e vein, it is not correct to ho $ that -eca#se of its reco'ni3e$ e"tensive e'is ative po9er to enact e ection a9s, Con'ress &a! intr#$e into the in$epen$ence of the COMELEC -! e"ercisin' s#pervisor! po9ers over its r# e* &a=in' a#thorit!. B! virt#e of Section /. of R.A. No. ./0., Con'ress has e&po9ere$ the COMELEC to 1iss#e the necessar! r# es an$ re'# ations to effective ! i&p e&ent the provisions of this Act 9ithin si"t! $a!s fro& the effectivit! of this Act.1 This provision of a9 fo o9s the #s#a proce$#re in $raftin' r# es an$ re'# ations to i&p e&ent a a9 D the e'is at#re 'rants an a$&inistrative a'enc! the a#thorit! to craft the r# es an$ re'# ations i&p e&entin' the a9 it has enacte$, in reco'nition of the a$&inistrative e"pertise of that a'enc! in its partic# ar fie $ of operation. Once a a9 is enacte$ an$ approve$, the e'is ative f#nction is $ee&e$ acco&p ishe$ an$ co&p ete. The e'is ative f#nction &a! sprin' -ac= to Con'ress re ative to the sa&e a9 on ! if that -o$! $ee&s it proper to revie9, a&en$ an$ revise the a9, -#t certain ! not to approve, revie9, revise an$ a&en$ the IRR of the COMELEC. B! vestin' itse f 9ith the po9ers to approve, revie9, a&en$, an$ revise the IRR for The Overseas A-sentee 2otin' Act of ;@@?, Con'ress 9ent -e!on$ the scope of its constit#tiona a#thorit!. Con'ress tra&p e$ #pon the constit#tiona &an$ate of in$epen$ence of the COMELEC. Un$er s#ch a sit#ation, the Co#rt is eft 9ith no option -#t to 9ith$ra9 fro& its #s#a reticence in $ec arin' a provision of a9 #nconstit#tiona . .. I%.< I%.< I%.< (RO2ISION RE)UIRINB RE2IEA AN% A((RO2AL BY +OINT CONBRESSIONAL O2ERSIBHT COMMITTEE O4 2OTINB BY MAIL IN ANY COUNTRY A4TER THE ;@@> ELECTIONS %ECLARE% UNCONSTITUTIONAL< SAI% (OAER UN%ERMINES THE IN%E(EN%ENCE O4 THE COMMISSION ON ELECTIONS. D Si&i ar !, the phrase, 1s#-,ect to the approva of the Con'ressiona Oversi'ht Co&&ittee1 in the first sentence of Section /8./ 9hich e&po9ers the Co&&ission to a#thori3e votin' -! &ai in not &ore than three co#ntries for the Ma!, ;@@> e ections< an$ the phrase, 1on ! #pon revie9 an$

approva of the +oint Con'ressiona Oversi'ht Co&&ittee1 fo#n$ in the secon$ para'raph of the sa&e section are #nconstit#tiona as the! re:#ire revie9 an$ approva of votin' -! &ai in an! co#ntr! after the ;@@> e ections. Con'ress &a! not confer #pon itse f the a#thorit! to approve or $isapprove the co#ntries 9herein votin' -! &ai sha -e a o9e$, as $eter&ine$ -! the COMELEC p#rs#ant to the con$itions provi$e$ for in Section /8./ of R.A. No. ./0.. Other9ise, Con'ress 9o# $ overstep the -o#n$s of its constit#tiona &an$ate an$ intr#$e into the in$epen$ence of the COMELEC. BELLOSILLO, +., separate conc#rrin' opinionF /. (OLITICAL LAA< ELECTION LAAS< O2ERSEAS ABSENTEE 2OTINB ACT O4 ;@@? 6RE(UBLIC ACT NO. ./0.7< MERE AC)UISITION O4 AN IMMIBRANT OR (ERMANENT RESI%ENT STATUS BY A 4ILI(INO CITICEN IN A 4OREIBN COUNTRY %OES NOT I(SO +URE RESULT IN THE AUTOMATIC SE2ERANCE O4 HIS %OMICILIARY LINE TO THE (HILI((INES, NOR THE AC)UISITION O4 A NEA %OMICILE O4 CHOICE. D It has -een s#''este$ -! certain :#arters that a 4i ipino citi3ens 9ho are i&&i'rants an$ per&anent resi$ents a-roa$ are consi$ere$ to have a-an$one$ their (hi ippine $o&ici e an$ therefore cannot vote in (hi ippine e ections, since the! are not 9ithin the constit#tiona conte&p ation of 1:#a ifie$ 4i ipinos a-roa$1 9ho are e i'i- e to vote. In this ,#ris$iction, it is 9e sett e$ that 1$o&ici e1 an$ 1resi$ence1 as #se$ in e ection a9s are s!non!&o#s ter&s 9hich i&port not on ! an intention to resi$e in a fi"e$ p ace -#t a so persona presence in that p ace co#p e$ 9ith con$#ct in$icative of that intention. %o&ici e is a :#estion of intention an$ circ#&stances. There are three 6?7 r# es that &#st -e o-serve$ in the consi$eration of circ#&stancesF first, that a &an &#st have a resi$ence or $o&ici e so&e9here< secon$, $o&ici e is not easi ! ost, once esta- ishe$ it is retaine$ #nti a ne9 one is ac:#ire$< an$ thir$, a &an can have -#t one resi$ence or $o&ici e at a ti&e. The principa e e&ents of $o&ici e, i.e., ph!sica presence in the oca it! invo ve$ an$ intention to a$opt it as a $o&ici e, &#st conc#r in or$er to esta- ish a ne9 $o&ici e. No chan'e of $o&ici e 9i res# t if either of these e e&ents is a-sent. Intention to ac:#ire a $o&ici e 9itho#t act#a resi$ence in the oca it! $oes not res# t in the ac:#isition of $o&ici e, nor $oes the fact of ph!sica presence 9itho#t intention. The &ere ac:#isition of an i&&i'rant or per&anent resi$ent stat#s -! a 4i ipino citi3en in a forei'n co#ntr! $oes not ipso ,#re res# t in the a#to&atic severance of his $o&ici iar! in= to the (hi ippines, nor the ac:#isition of a ne9 $o&ici e of choice. ;. I%.< I%.< I%.< ACTUAL AN% (HYSICAL RESI%ENCE ABROA% SHOUL% NOT AUTOMATICALLY BE E)UATE% AITH ABAN%ONMENT O4 (HILI((INE %OMICILE. D The $iaspora of 4i ipinos in forei'n an$s starte$ in the 9a=e of the - #$'eonin' econo&ic crisis in the 0@Gs an$ its res# tin' ac#te shorta'e of e&p o!&ent opport#nities. This pheno&enon has contin#e$ to the present $a! as the stea$i ! risin' cost of ivin' an$ inter&ittent econo&ic crises D 9or $9i$e in their

effects D 9ei'he$ &ost heavi ! on the or$inar! 4i ipino. He $oes not have &#ch choiceF eave or starve. The #re of the prover-ia 'reener past#res in forei'n an$s is certain ! a potent incentive for an e"o$#s. In &ost cases, the $ecision to &i'rate is -orne o#t of the $ire necessities of ife rather than a conscio#s $esire to a-an$on the an$ of -irth. Most i&&i'rants an$ per&anent resi$ents re&ain -o#n$ ver! stron' ! -! inti&ate ties of fi ia , racia , c# t#ra an$ socia re ationships 9ith the (hi ippines. The! trave -ac= perio$ica ! to -e 9ith their frien$s an$ ove$ ones< so&e even o9n, &aintain an$ &ana'e their properties here< an$, the! contin#e to sho9 =een interest in, an$ =eep the&se ves a-reast 9ith, po itica an$ socia $eve op&ents in the co#ntr! thro#'h the &ass &e$ia. The! &a=e si'nificant contri-#tions to the nation, thro#'h their re'# ar $o ar re&ittances that have tre&en$o#s ! shore$ #p o#r sa''in' nationa econo&!. In the face of these rea ities, I a& convince$ &ore than ever that act#a an$ ph!sica resi$ence a-roa$ sho# $ not a#to&atica ! -e e:#ate$ 9ith a-an$on&ent of (hi ippine $o&ici e. The circ#&stances en#&erate$ in the i&&e$iate ! prece$in' para'raph are va i$ in$icia of ani&#s &anen$i 6intent to re&ain7 an$ ani&#s reverten$i 6intent to ret#rn7, 9hich sho# $ not si&p ! -e -r#she$ asi$e in $eter&inin' 9hether the ri'ht to vote sho# $ -e $enie$ the i&&i'rants an$ per&anent resi$ents. In$ee$, there is no rh!&e nor reason to #n$# ! &ar'ina i3e this c ass of 4i ipinos. ?. I%.< I%.< I%.< THE EHECUTION O4 THE RE)UIRE% A44I%A2IT IS AN A44IRMATION ON THE (ART O4 THE IMMIBRANT OR (ERMANENT RESI%ENT THAT HIS STAY ABROA% SHOUL% NOT BE CONSTRUE% AS RELIN)UISHMENT O4 HIS OL% %OMICILE. D It is si'nificant to stress, ho9ever, that Sec. 5, par. 6$7, of the A-sentee 2otin' La9 in fact $is:#a ifies i&&i'rants an$ per&anent resi$ents fro& votin' as a 'enera r# e. This is precise ! in reco'nition of the fact that their stat#s as s#ch &a! in$ee$ -e a -a$'e of their intent to a-an$on their (hi ippine $o&ici e an$ sett e per&anent ! in their host co#ntr!. B#t at the sa&e ti&e, the e'is at#re provi$e$ for a &echanis& in the a9 for ascertainin' rea intentF an i&&i'rant or per&anent resi$ent 9ho 9ishes to e"ercise his ri'ht of s#ffra'e is re:#ire$ as a con$ition sine :#a non to e"ec#te an affi$avit $ec arin' that he sha res#&e act#a , ph!sica an$ per&anent resi$ence in the (hi ippines not ater than three 6?7 !ears fro& his re'istration #n$er the a9< an$ that he has not app ie$ for citi3enship in another co#ntr!. The a9 in effect $ra9s a $istinction -et9een t9o 6;7 c asses of i&&i'rants or per&anent resi$ents D those 9ho have reno#nce$ their o $ $o&ici e in the (hi ippines, an$ those 9ho sti consi$er the (hi ippines as their $o&ici e of ori'in. The e"ec#tion of the affi$avit is an affir&ation on the part of the i&&i'rant or per&anent resi$ent that his sta! a-roa$ sho# $ not -e constr#e$ as a re in:#ish&ent of his o $ $o&ici e. >. I%.< I%.< I%.< THE LAA CONTAINS (RO(ER AN% A%E)UATE SA4EBUAR%S ABAINST MISUSE OR ABUSE O4 THE (RI2ILEBE< ABSOLUTE %IS)UALI4ICATION O4 4ILI(INO IMMIBRANTS AN% (ERMANENT RESI%ENTS, AITHOUT %ISTINCTION, 4ROM (ARTICI(ATINB

IN THE (HILI((INE ELECTORAL (ROCESS AOUL% RESULT, AS IN THE (AST, IN A MASSI2E %ISEN4RANCHISEMENT O4 )UALI4IE% 2OTERS. D I a& not #na9are of the possi-i it! that the i&&i'rant or per&anent resi$ent &a! rene'e or his #n$erta=in' in the affi$avit to res#&e act#a , ph!sica an$ per&anent resi$ence in the (hi ippines. B#t the a9 contains proper an$ a$e:#ate safe'#ar$s a'ainst the &is#se or a-#se of this privi e'e, i.e., his na&e 9i -e p#r'e$ fro& the Nationa Re'istr! of A-sentee 2oters an$ he 9i -e per&anent ! $is:#a ifie$ fro& votin' in a-sentia. As a c osin' o-servation, I 9ish to e&phasi3e that the a-so #te $is:#a ification of 4i ipino i&&i'rants an$ per&anent resi$ents, 9itho#t $istinction, fro& participatin' in the (hi ippine e ectora process 9o# $ invaria- ! res# t, as in the past, in a &assive $isenfranchise&ent of :#a ifie$ voters. It 9o# $ -e se f*$efeatin' in the e"tre&e if the A-sentee 2otin' La9 9o# $ fo#n$er on the roc= -! reason of an #n$# ! restrictive an$ $eci$e$ ! #nrea istic interpretation 'iven -! the &inorit! on the resi$enc! re:#ire&ent in the Constit#tion. 2ITUB, +., separate opinionF /. (OLITICAL LAA< ELECTION LAAS< THE O2ERSEAS ABSENTEE 2OTINB ACT O4 ;@@? 6RE(UBLIC ACT NO. ./0.7< THE IN%ICATORS USE% BY THE LEBISLATURE ARE REASONABLE BAUBES TO ESTABLISH THE INTENTION O4 THE IMMIBRANT NOT TO ABAN%ON HIS (HILI((INE %OMICILE< THE 4ACT THAT IMMIBRANT HAS NOT RELIN)UISHE% HIS (HILI((INE CITICENSHI( SHOUL% HEL( REMO2E ANY LINBERINB %OUBT ON HIS (RE4ERRE% STATUS. D The a9 &#st have reco'ni3e$ that ani&#s &anen$i an$ ani&#s non reverten$i, -ein' processes of the &in$ an$ incapa- e of a $efinitive $eter&ination, co# $ on ! -e $iscerne$ fro& perceiva- e circ#&stances. So a so, Rep#- ic Act No. ./0. or the 1Overseas A-sentee 2otin' Act of ;@@?,1 $is:#a ifies an 1i&&i'rant or a per&anent resi$ent 9ho is reco'ni3e$ as s#ch in the host co#ntr!1 to vote #n$er the Act on the pre&ise that s#ch a circ#&stance can -e a co'ent in$ication of the ho $erGs intention to a-an$on his o $ $o&ici e an$ esta- ish a ne9 one. B#t, in &#ch the sa&e vein, the a9 ac=no9 e$'es that the i&&i'rant or per&anent resi$ent &a! sti -e :#a ifie$ to vote, provi$e$ 1he e"ec#tes, #pon re'istration, an affi$avit prepare$ for the p#rpose -! the Co&&ission on E ections $ec arin' that he sha res#&e act#a ph!sica per&anent resi$ence in the (hi ippines not ater than three 6?7 !ears fro& approva of his re'istration #n$er 6the7 Act.1 The affi$avit sha a$$itiona ! confir& that he has not app ie$ for citi3enship in another co#ntr!. I a& convince$ that these in$icators #se$ -! the e'is at#re are reasona- e 'a#'es to esta- ish the intention of the i&&i'rant not to a-an$on his (hi ippine $o&ici e. The fact that he has not re in:#ishe$ his (hi ippine citi3enship sho# $ he p re&ove an! in'erin' $o#-t on his preferre$ stat#s. After a , the ri'ht of s#ffra'e, no9 9i$e ! consi$ere$ to -e an innate ri'ht of ever! nationa , is a -asic an$ perhaps the &ost o#tstan$in' &ar= of citi3enship. ;. I%.< I%.< I%.< THE (OAER BI2EN TO THE COMMISSION ON

ELECTIONS BY SECTION /0.5 O4 THE RE(UBLIC ACT NO. ./0. SHOUL% BE UN%ERSTOO% TO BE LIMITE% ONLY TO THE (ROCLAMATION O4 AINNINB CAN%I%ATES 4OR THE (OSITIONS O4 SENATORS AN% (ARTY* LIST RE(RESENTATI2ES. D Section > of the Act a o9s a :#a ifie$ 4i ipinos a-roa$ to vote for (resi$ent, 2ice*(resi$ent, Senators an$ part!* ist representatives. In re ation to this, Section /0.5 e&po9ers the Co&&ission on E ections to or$er the proc a&ation of 9innin' can$i$ates. Since it is Con'ress 9hich has -een 'rante$ -! the Constit#tion the a#thorit! an$ $#t! to canvass the votes an$ proc ai& the 9innin' can$i$ates for presi$ent an$ vice*presi$ent, I echo the senti&ent of &! co ea'#es that the po9er 'iven to COMELEC -! Section /0.5 of R.A. ./0. sho# $ -e #n$erstoo$ to -e i&ite$ on ! to the proc a&ation of 9innin' can$i$ates for the positions of senators an$ part!* ist representatives. The e ection ret#rns for the positions of presi$ent an$ vice*presi$ent sho# $ then -e certifie$ -! the Boar$ of Canvassers to Con'ress an$ not to COMELEC as provi$e$ for in Section /0.> of the Act. ?. I%.< I%.< I%.< THE ROLE O4 THE +OINT CONBRESSIONAL O2ERSIBHT COMMITTEE MUST BE UN%ERSTOO% AS BEINB LIMITE% ONLY TO THE MONITORINB AN% E2ALUATION O4 THE IM(LEMENTATION O4 THE ACT (URSUANT TO THE (OAER O4 CONBRESS TO CON%UCT IN)UIRIES IN AI% O4 LEBISLATION. D R.A. ./0. creates a +oint Con'ressiona Oversi'ht Co&&ittee 6+COC7 co&pose$ of Senators an$ Me&-ers of the Ho#se of Representatives, e&po9ere$ to 1revie9, revise, a&en$ an$ approve the I&p e&entin' R# es an$ Re'# ations 6IRR7 pro&# 'ate$ -! the COMELEC,1 an$ to approve the votin' -! &ai in not &ore than three 6?7 co#ntries for the Ma! ;@@> e ections an$ in an! co#ntr! $eter&ine$ -! COMELEC. The Co#rt here fin$s #nani&it! in ho $in' that Con'ress, -! vestin' itse f 9ith the aforesai$ po9ers, has 'one -e!on$ the scope of its constit#tiona a#thorit!. It is a prono#nce&ent that, in &! vie9, can har$ ! -e s#scepti- e to cha en'e. The Constit#tion or$ains that constit#tiona co&&issions s#ch as the COMELEC sha -e in$epen$ent. The COMELEC has the constit#tiona a#thorit! to 1enforce an$ a$&inister a a9s an$ re'# ations re ative to the con$#ct of an e ection1 an$ to pro&# 'ate its r# es of proce$#re. The ro e therefore of the +COC &#st -e #n$erstoo$ as -ein' i&ite$ on ! to the &onitorin' an$ eva #ation of the i&p e&entation of the Act p#rs#ant to the po9er of Con'ress to con$#ct in:#iries in ai$ of e'is ation. (ANBANIBAN, +., separate opinionF /. CONSTITUTIONAL LAA< SU44RABE< REASON 4OR RESI%ENCE RE)UIREMENT. D I -e ieve that, tra$itiona !, the a9 re:#ires resi$ence -eca#se presence in a certain oca it! ena- es a person to =no9 the nee$s an$ the pro- e&s of that area. E:#a ! i&portant, it a so &a=es one -eco&e ac:#ainte$ 9ith the can$i$ates D their :#a ifications, s#ita-i it! for a partic# ar office an$ p atfor& of 'overn&ent. Th#s, the f#n$a&enta a9 re:#ires, not ,#st that there -e a &ini&#& of one*!ear resi$ence in the co#ntr!, -#t a so that si" &onths of that perio$ -e spent in the p ace

9here the -a ot is to -e cast. S#ch $etai e$ re:#ire&ent 9i hopef# ! 'ive the voters s#fficient =no9 e$'e a-o#t a specific to9n as to he p the& choose its oca officia s 9ise !, :#ite apart fro& #n$erstan$in' eno#'h of the entire co#ntr! so as to prepare to vote sa'acio#s ! for nationa ea$ers. A tho#'h the fore'oin' $isc#ssions 9ere #se$ to ,#stif! the resi$ence re:#ire&ent vis*a*vis can$i$ates for e ective p#- ic offices, I -e ieve that their rationa e can easi ! an$ ana o'ica ! fit the nee$s of voters as 9e . ;. I%.< I%.< ACTUAL (RESENCE IN THE (HILI((INES IS NO LONBER IN%IS(ENSABLE TO MAEE %ISCERNINB 4ILI(INOS ENOA THE (ROBLEMS O4 THEIR COUNTRY AN% TO %ECI%E AHO AMONB THE CAN%I%ATES 4OR NATIONAL (OSITIONS %ESER2E THEIR MAN%ATE. D The $efinin' essence of &! position is thisF in the &i$st of the no9 avai a- e e*a'e co&&#nications faci ities, act#a presence in the (hi ippines is no on'er in$ispensa- e to &a=e $iscernin' 4i ipinos =no9 the pro- e&s of their co#ntr! an$ to $eci$e 9ho a&on' can$i$ates for nationa positions $eserve their &an$ate. In$ee$, the Infor&ation A'e has 'iven overseas 4i ipinos convenient &eans to infor& the&se ves of o#r co#ntr!Gs nee$s, as 9e as of the s#ita-i it! of can$i$ates for nationa offices. After a , &an! of the& ive a-roa$, not -eca#se the! 9ant to a-an$on their an$ of -irth, -#t -eca#se the! have -een constraine$ to $o so -! econo&ic, professiona , ive ihoo$ an$ other pressin' p#rs#its. Ine #cta- !, the! re&it their har$*earne$ &one! to he p their re atives here an$ their co#ntr! as a 9ho e. 2eri !, their eas! access to (hi ippine &ass &e$ia =eep the& constant ! a9are of happenin's in their native co#ntr!. Nationa $ai ies an$ other perio$ica s are so $ re'# ar ! in 4i ipino enc aves in forei'n shores. Severa oca an$ co&&#nit! p#- ications in these areas cater &ain ! to 4i ipino e"patriates, p#- ishin' ne9s an$ opinions not on ! a-o#t their a ien nei'h-orhoo$s, -#t a so :#ite e"tensive ! a-o#t their ho&e an$. ?. I%.< I%.< IT AOUL% BE THOROUBHLY UNREASONABLE TO EH(ECT 4OREIBN*BASE% 4ILI(INOS TO COME BACE TO THE (HILI((INES 4OR ONE YEAR E2ERY THREE YEARS AN% ABAN%ON THEIR +OBS +UST TO BE ABLE TO COM(LY LITERALLY AITH THE RESI%ENTIAL RE)UIREMENT O4 SU44RABE. D The e*a'e has opene$ 9in$o9s to the (hi ippines in a pervasive an$ thoro#'h &anner, s#ch that act#a presence in the co#ntr! is no on'er nee$e$ to &a=e an inte i'ent assess&ent of 9ho& to vote for as o#r nationa ea$ers. I &a=e this e&phasis on nationa officia s, -eca#se the A-sentee 2otin' La9 a o9s overseas votin' on ! for (resi$ent, 2ice (resi$ent, senators an$ part!* ist representatives. This $istinction is i&portant, -eca#se the infor&ation avai a- e thro#'h 9e-sites an$ other &o$ern &e$ia o#t ets is a$$resse$ &ain ! to nationa concerns. To insist that on ! those 9ho can $e&onstrate act#a ph!sica resi$ence in the co#ntr! for one !ear D or on ! those 9ho have co&p ie$ 9ith the &ore $iffic# t*to*#n$erstan$ concept of $o&ici e D 9o# $ -e entit e$ to vote 9o# $ -e to c in' a$a&ant ! an$ #nreasona- ! to a itera interpretation of the Constit#tion 9itho#t re'ar$ for its &ore i-eratin'

spirit or rationa e. S#ch insistence 9o# $ res# t in ren$erin' in#ti e an! &eanin'f# effort to accor$ s#ffra'e to 4i ipinos a-roa$. S#ch proposition 9o# $ &a=e the constit#tiona interpretation anachrono#s in the face of the refreshin' an$ p# satin' rea ities of the 9or $. In &! vie9, it 9o# $ -e thoro#'h ! #nreasona- e to e"pect forei'n*-ase$ 4i ipinos to co&e -ac= here for one !ear ever! three !ears an$ a-an$on their ,o-s ,#st to -e a- e to co&p ! itera ! 9ith the resi$entia re:#ire&ent of s#ffra'e. CAR(IO, +., conc#rrin' opinionF /. CONSTITUTIONAL LAA< SU44RABE< TO RE)UIRE ABSENTEE 2OTERS TO COM(LY AITH THE %OUBLE RESI%ENCY RE)UIREMENT IS TO IM(OSE AN IM(RACTICAL AN% E2EN IM(OSSIBLE CON%ITION TO THE EHERCISE O4 THE CONSTITUTIONAL RIBHT TO 2OTE. D To re:#ire a-sentee voters to co&p ! 9ith the $o#- e resi$enc! re:#ire&ent is to i&pose an i&practica an$ even an i&possi- e con$ition to the e"ercise of the constit#tiona ri'ht to vote. In the first p ace, the secon$ resi$enc! re:#ire&ent of esta- ishin' resi$ence in a oca it! in the (hi ippines 9here the voters propose to vote is i&possi- e to co&p ! since overseas 4i ipinos 9i o-vio#s ! not vote in an! oca it! in the (hi ippines. I&posin' the $o#- e resi$enc! re:#ire&ent &a=es the a-sentee votin' an e&pt! ri'ht of overseas 4i ipinos. Certain !, the 9ise fra&ers of the Constit#tion 9ere incapa- e of s#ch a-s#r$ sche&e. ;. I%.< I%.< THE CONCE(T O4 ABSENTEE 2OTINB NEBATES A RESI%ENCY RE)UIREMENT IN THE COUNTRY O4 CITICENSHI( O4 THE 2OTER< BY %E4INITION AN ABSENTEE 2OTER IS A NON*RESI%ENT 2OTER. D The concept of a-sentee votin' ne'ates a resi$enc! re:#ire&ent in the co#ntr! of citi3enship of the voter. B! $efinition, an a-sentee voter is a non*resi$ent voter. O-vio#s !, the $o#- e resi$enc! re:#ire&ent in Section / of Artic e 2 app ies on ! to resi$ent or non*a-sentee 4i ipino voters. To i&pose the $o#- e resi$enc! re:#ire&ent on a-sentee 4i ipino voters is an e're'io#s ano&a ! for it 9i re:#ire a-sentee 4i ipino voters to co&p ! 9ith the sa&e resi$enc! re:#ire&ent i&pose$ on resi$ent or non*a-sentee 4i ipino voters. If a-sentee 4i ipino voters are re:#ire$ to resi$e in the (hi ippines ,#st i=e resi$ent or non*a-sentee 4i ipino voters, 9h! create an a-sentee votin' s!ste& for overseas 4i ipinos in the first p aceK App !in' the $o#- e resi$enc! re:#ire&ent on a-sentee voters 9i ren$er the provision on a-sentee votin' in Section ; a s#rp #sa'e, a constit#tiona &an$ate $evoi$ of &eanin'. Even 9itho#t the a-sentee votin' provision in Section /, Con'ress can va i$ ! enact a a9 a o9in' resi$ent or non*a-sentee 4i ipino voters D those 9ho co&p ! 9ith the $o#- e resi$enc! re:#ire&ent D to vote a-roa$ in (hi ippine e&-assies or cons# ates. There is no constit#tiona prohi-ition on re'istere$ 4i ipino voters 9ho co&p ! 9ith the $o#- e resi$enc! re:#ire&ent to cast their -a ots at a (hi ippine e&-ass! or cons# ate a-roa$ 9here the! happen to -e on e ection $a!. If the a-sentee votin' s!ste& in Section ; 9ere for the -enefit on ! of resi$ent or non*a-sentee 4i ipinos,

then there 9o# $ -e no nee$ to provi$e for it in the Constit#tion. ?. I%.< I%.< THE 4RAMERS O4 THE /.08 CONSTITUTION INTEN%E% THE ABSENTEE 2OTINB (RO2ISION AS AN EHCE(TION TO THE %OUBLE RESI%ENCY RE)UIREMENT. D The fra&ers of the /.08 Constit#tion specifica ! intro$#ce$ the a-sentee votin' provision in Section ; precise ! to enfranchise overseas 4i ipinos 9ho $o not co&p ! 9ith the $o#- e resi$enc! re:#ire&ent in Section /. Aitho#t the a-sentee votin' provision in Section ;, Con'ress co# $ not va i$ ! enact a a9 enfranchisin' overseas 4i ipinos 9ho $o not co&p ! 9ith the $o#- e resi$enc! re:#ire&ent. As s#ccinct ! e"p aine$ -! Co&&issioner Christian Monso$ $#rin' the $e i-erations in the Constit#tiona Co&&ission. The fra&ers of the Constit#tion inten$e$ the a-sentee votin' provision as an e"ception to the $o#- e resi$enc! re:#ire&ent. >. I%.< I%.< THERE IS NO CONSTITUTIONAL (RO2ISION ABAINST THE ENACTMENT O4 LEBISLATION (RESCRIBINB THE REAC)UISITION O4 %OMICILE OR RESI%ENCE IN THE (HILI((INES, +UST AS THERE IS NO CONSTITUTIONAL (RO2ISION ABAINST THE ENACTMENT O4 LEBISLATION (RESCRIBINB THE REAC)UISITION O4 (HILI((INE CITICENSHI(. D The :#estion of ho9 a 4i ipino, 9ho has -eco&e a per&anent resi$ent or i&&i'rant in a forei'n co#ntr!, &a! reac:#ire his $o&ici e or resi$ence in the (hi ippines is a &atter for or$inar! e'is ation. The reac:#isition of the (hi ippine $o&ici e or resi$ence that a 4i ipino ha$ ost is 9ithin the po9er of Con'ress to e'is ate. The Constit#tion $oes not $efine 9hat $o&ici e or resi$ence &eans. There is a so no constit#tiona prohi-ition a'ainst the enact&ent of e'is ation prescri-in' the reac:#isition of $o&ici e or resi$ence in the (hi ippines, ,#st as there is no constit#tiona prohi-ition a'ainst the enact&ent of e'is ation prescri-in' the reac:#isition of (hi ippine citi3enship. Th#s, RA No. 0/8/ a o9s a for&er nat#ra * -orn 4i ipino 9ho -eca&e a forei'ner to reac:#ire (hi ippine citi3enship -! fi in' a si&p ifie$ a$&inistrative petition an$ ta=in' an oath of a e'iance to the (hi ippines. Section 56$7 of RA No. ./0., 9hich prescri-es the reac:#isition of resi$ence -! a 4i ipino thro#'h the e"ec#tion of an affi$avit statin' he is res#&in' resi$ence in the (hi ippines, is si&i ar ! 9e 9ithin the po9er of Con'ress to enact an$ is th#s constit#tiona . c$asia,#r 5. I%.< I%.< THE INTERNATIONAL CO2ENANT ON CI2IL AN% (OLITICAL RIBHTS RE)UIRES THE (HILI((INES TO RES(ECT THE (EO(LEGS RIBHT O4 SU44RABE 1AITHOUT UNREASONABLE RESTRICTIONS1< TO RE)UIRE O2ERSEAS 4ILI(INOS TO RETURN AITHIN /; MONTHS SO THEY MAY 2OTE ABROA% AS ABSENTEE 2OTERS IS (LAINLY AN UNREASONABLE RESTRICTION OUTLAAE% BY THE CO2ENANT. D The ri'ht of s#ffra'e is the cornerstone of a representative 'overn&ent i=e that esta- ishe$ in the /.08 Constit#tion. A representative 'overn&ent is e'iti&ate 9hen those represente$ e ect their representatives in 'overn&ent. The consent of the 'overne$ is 9hat sta&ps

e'iti&ac! on those 9ho 'overn. This consent is e"presse$ thro#'h the ri'ht of s#ffra'e. It is a precio#s ri'ht for 9hich &an! have fo#'ht an$ $ie$ so that others &a! free ! e"ercise it. A 'overn&ent that $enies s#ch ri'ht on f i&s! or &eanin' ess 'ro#n$s $oes so at its peri . The Internationa Covenant on Civi an$ (o itica Ri'hts, to 9hich the (hi ippines is a si'nator!, re:#ires the (hi ippines to respect the peop eGs ri'ht of s#ffra'e 19itho#t #nreasona- e restrictions.1 The (hi ippines is $#t! -o#n$ #n$er internationa a9 to co&p ! in 'oo$ faith 9ith its treat! o- i'ations #n$er the Covenant. To re:#ire overseas 4i ipinos to ret#rn to the (hi ippines t9ice 9ithin /; &onths so the! &a! vote a-roa$ as a-sentee voters is p ain ! an #nreasona- e restriction o#t a9e$ -! the Covenant. Ahen the fra&ers of the Constit#tion intro$#ce$ a-sentee votin' in Section ; of Artic e 2, the! 9ere a9are of the co#ntr!Gs o- i'ations #n$er the Covenant. In their $isc#ssions on the $eath pena t!, h#&an ri'hts an$ the Bi of Ri'hts, the fra&ers of the Constit#tion often referre$ to the co#ntr!Gs o- i'ations #n$er the Covenant. It is inconceiva- e that the fra&ers inten$e$ overseas 4i ipinos to co&p ! 9ith the $o#- e resi$enc! re:#ire&ent, an #nreasona- e restriction that 9o# $ patent ! vio ate Artic e ;5 of the Covenant an$ practica ! ne'ate the overseas 4i ipinosG ri'ht of s#ffra'e. CAR(IO*MORALES, +., separate opinionF /. (OLITICAL LAA< ELECTION LAAS< THE O2ERSEAS ABSENTEE 2OTINB ACT O4 ;@@? 6RE(UBLIC ACT NO. ./0.7< THE RE)UIRE% A44I%A2IT EHECUTE% IN ACCOR%ANCE AITH THE LAA BY A 4ILI(INO IMMIBRANT OR (ERMANENT RESI%ENT O4 ANOTHER COUNTRY EH(RESSINB HIS INTENT TO RESUME (HYSICAL (ERMANENT RESI%ENCE IN THE (HILI((INES IS AN ELO)UENT (ROO4 O4 HIS INTENTION NOT TO ABAN%ON HIS %OMICILE O4 ORIBIN IN THE (HILI((INES. D It is &! vie9 that the affi$avit e"ec#te$ in accor$ance 9ith Section 56$7 of R.A. ./0. -! a 4i ipino i&&i'rant or per&anent resi$ent of another co#ntr! e"pressin' his intent to res#&e ph!sica per&anent resi$ence in the (hi ippines is an e o:#ent proof of his intention not to a-an$on his $o&ici e of ori'in in the (hi ippines. It is a state&ent #n$er oath of 9hat a 4i ipino see=s to $o for the f#t#re of his &e&-ership in a po itica co&&#nit!. Ah! sho# $ this affi$avit -e $iscre$ite$ on the &ere spec# ation that the i&&i'rant &i'ht not f# fi his #n$erta=in' to ret#rn to the (hi ippines for 'oo$K If 4i ipinos 9ho are te&porari ! resi$in' in forei'n co#ntries are accor$e$ f# faith an$ cre$it as to their $o&ici iar! ties no &atter ho9 in$efinite their a-sence fro& the (hi ippines, 9hat &ore in the case of 4i ipino i&&i'rants 9ho have for&a ! $ec are$ their intent to sett e in their ho&e an$K Ahi e he &a! have sta!e$ on a &ore or ess per&anent -asis in the host co#ntr! 9hich conferre$ on hi& the stat#s of an i&&i'rant an$ &a! -e ani&ate$ 9ith a the $esire to re&ain there, #nti an$ #n ess a 4i ipino i&&i'rant ha$ cate'orica ! e"presse$ -! 9or$s or -! $ee$s his intent to no on'er ret#rn to his $o&ici e of ori'in, no conc #sion can -e reache$ as to a chan'e in $o&ici e fro& one of ori'in to one of

choice, hence, the o $ $o&ici e s#-sists. 4or at the core of ever! 4i ipino i&&i'rantGs -ein' is the fact of his (hi ippine citi3enship. He is, after a , sti a 4i ipino. ;. I%.< I%.< I%.< UNTIL THE O((ORTUNITY TO EHECUTE THE RE)UIRE% A44I%A2IT HAS BEEN TOTALLY 4OREBONE BY A 4ILI(INO IMMIBRANT, IN THE ABSENCE O4 ANY CONCLUSI2E E2I%ENCE O4 HIS AC)UISITION O4 A NEA %OMICILE, THE 4ILI(INO IMMIBRANTGS %OMICILE O4 ORIBIN IS INTACT, HIS (RESENCE ABROA% AN% HIS %ESIRE TO REMAIN THEREIN NOTAITHSTAN%INB. D The ac:#isition of a ne9 $o&ici e &#st -e co&p ete ! perfecte$ -! a conc#rrence of the fact#& of re&ova to a ne9 oca it!, the ani&#s to re&ain there, an$ a-an$on&ent of an$ intent not to ret#rn to the for&er $o&ici e, for if there is a p#rpose to ret#rn, 9hether secret or open, no oss or chan'e of $o&ici e 9i res# t. T9o t!pes of 4i ipino i&&i'rants &#st then -e $istin'#ishe$. The first, a 4i ipino 9ho has opte$ not to e"ec#te the re:#ire$ affi$avit #n$er Section 56$7 of R.A. ./0., is c ear ! $is:#a ifie$ to e"ercise s#ffra'e for he has &anifeste$ the ani&#s non reverten$i 9ith respect to his $o&ici e in the (hi ippines, there-! effect#atin' his ac:#isition of a ne9 $o&ici e. The secon$, a 4i ipino 9ho $ec ares his 9ish to -e re#nite$ 9ith his ho&e an$ has, 9itho#t $o#-t, sho9n that his resi$ence of ori'in re&aine$ #nchan'e$ an$ so he is entit e$ to vote #n$er the Overseas A-sentee 2otin' La9. Therefore, #nti that opport#nit! to e"ec#te the affi$avit has -een tota ! fore'one -! a 4i ipino i&&i'rant, in the a-sence of an! conc #sive evi$ence of his ac:#isition of a ne9 $o&ici e, the 4i ipino i&&i'rantGs $o&ici e of ori'in is intact, his presence a-roa$ an$ his $esire to re&ain therein not9ithstan$in'. ACCUNA, +., conc#rrin' opinionF /. (OLITICAL LAA< ELECTION LAAS< THE O2ERSEAS ABSENTEE 2OTINB ACT O4 ;@@? 6RE(UBLIC ACT NO. ./0.7< THE ABAN%ONMENT O4 THE (RESENT %OMICILE O4 CHOICE, BY THE EHECUTION O4 THE A44I%A2IT, O(ERATES TO RE2I2E THE %OMICILE O4 ORIBIN TO RE(LACE IT BECAUSE O4 THE (RINCI(LE THAT NO (ERSON CAN BE AITHOUT A %OMICILE AT ANYTIME. D (etitioner conten$s that 4i ipinos 9ho esta- ish per&anent resi$ence a-roa$ have there-! a-an$one$ their (hi ippine $o&ici e of ori'in an$ rep ace$ it 9ith a $o&ici e of choice in a forei'n co#ntr!. This &a! in$ee$ -e tr#e, -#t 9ith the e"ec#tion of the affi$avit provi$e$ for #n$er Section 5 6$7 afore&entione$, the affiant e"press ! states an a-an$on&ent of sai$ $o&ici e of choice. The e'a effect of this e"pression is to revive the $o&ici e of ori'in. 4or #n i=e a $o&ici e of choice, 9hich re:#ires -oth intention an$ ph!sica presence to -e esta- ishe$ or &aintaine$, the $o&ici e of ori'in can -e revive$ -! an intention proper ! e"presse$. Th#s, the a-an$on&ent of the present $o&ici e of choice, -! the e"ec#tion of the affi$avit, operates to revive the $o&ici e of ori'in to rep ace it, -eca#se of the princip e that no person can -e 9itho#t a $o&ici e at an! ti&e. ;. I%.< I%.< I%.< THROUBH THE EHECUTION O4 THE RE)UIRE%

A44I%A2IT, THE A44IANT %OES THE O(ERATI2E ACT THAT MAEES HIM ONCE MORE A (HILI((INE %OMICILIARY< THE RE)UIREMENT O4 RESUMINB ACTUAL (HYSICAL (RESENCE AITHIN THREE 6?7 YEARS IS ONLY TEST O4 SUCH INTENTION, BUT IS NOT NEE%E% TO E44ECT CHANBE OR RE2ERSION O4 %OMICILE. D The &o&ent a forei'n $o&ici e is a-an$one$, the native $o&ici e is reac:#ire$. Ahen a person a-an$ons his $o&ici e of choice, his $o&ici e of ori'in i&&e$iate ! reverts an$ re&ains #nti a ne9 $o&ici e of choice is esta- ishe$. On the a-an$on&ent of a $o&ici e of choice, the $o&ici e of ori'in i&&e$iate ! reverts, 9itho#t re'ar$ to an! $efinite intent to ret#rn to s#ch ori'ina $o&ici e, provi$e$ there is a $efinite intent fina ! to a-an$on the ac:#ire$ $o&ici e of choice. Thro#'h the e"ec#tion of the affi$avit, the affiant $oes the operative act that &a=es sai$ affiant once &ore a (hi ippine $o&ici iar!. The re:#ire&ent of res#&in' act#a ph!sica presence 9ithin three 6?7 !ears is on ! a test of s#ch intention, -#t is not nee$e$ to effect the chan'e or reversion of $o&ici e. If the affiant $oes not res#&e the resi$ence ph!sica ! 9ithin sai$ perio$, then the intent e"presse$ in the affi$avit is $efective an$ the a9 9i $ee& it inoperative, there-! a o9in' re&ova of affiantGs na&e fro& the Nationa Re'istr! of A-sentee 2oters. PUNO, J., co cu!!" # $ % %"&&' (" # o)" "o * /. (OLITICAL LAA< ELECTION LAAS< THE O2ERSEAS ABSENTEE 2OTINB ACT O4 ;@@? 6RE(UBLIC ACT NO. ./0.7< THE MA+ORITY ERRE% IN RULINB THAT SECTION ; O4 ARTICLE 2 O4 THE CONSTITUTION %IS(ENSE% AITH THE RESI%ENCE RE)UIREMENTGS (RO2I%E% UN%ER SECTION / O4 THE SAME ARTICLE. D The intent of the &e&-ers of the Constit#tiona Co&&ission to app ! the resi$ence re:#ire&ents to a-sentee voters is evi$ent fro& its $e i-erations. The! precise ! #se$ the phrase 1)UALI4IE% 4ILI(INOS ABROA%1 to stress that the a-sentee voter &#st have a the :#a ifications in Section /, Artic e 2I of the Constit#tion. In the co#rse of the $e i-erations, 4r. Bernas perceive$ a pro- e& that &a! arise fro& the &eanin' of the secon$ resi$ence re:#ire&ent on the p ace of re'istration an$ votin'. As note$, a :#a ifie$ voter nor&a ! re'isters an$ votes in the p ace 9here he is $o&ici e$ or has resi$e$ for si" &onths. 4r. Bernas feare$ that the secon$ resi$ence re:#ire&ent &a! pose a constit#tiona o-stac e to a-sentee votin' 1#n ess the vote of the person 9ho is a-sent is a vote 9hich 9i -e consi$ere$ as cast in the p ace of his $o&ici e.1 4o o9in' the o-servation of 4ather Bernas an$ to o-viate the constit#tiona pro- e&, the &e&-ers of the Constit#tiona Co&&ission then $isc#sse$ the s!ste& of re'istration of :#a ifie$ 4i ipinos a-roa$ 9ho 9i -e a o9e$ to vote. It 9as a'ree$ that their re'istration a-roa$ 9o# $ -e consi$ere$ as re'istration in a partic# ar oca it! in the (hi ippines 9here he is $o&ici e$, an$ the vote cast a-roa$ 9o# $ -e consi$ere$ cast in that partic# ar oca it!. It is cr!sta c ear fro& the $e i-erations, that the &a,orit! erre$ in r# in' that Section ; of Artic e 2 of the Constit#tion $ispense$

9ith the resi$ence re:#ire&ents provi$e$ #n$er Section / of the sa&e Artic e. ;. I%.< I%.< I%.< AN 1IMMIBRANT1 OR A 1(ERMANENT RESI%ENT1 O4 A 4OREIBN COUNTRY IS %EEME% TO HA2E ABAN%ONE% HIS %OMICILE IN THE (HILI((INES. D In Ro&#a $e3*Marcos v. COMELEC, 9e r# e$ that $o&ici e of ori'in is not easi ! ost. To s#ccessf# ! effect a chan'e of $o&ici e, one &#st $e&onstrate an act#a re&ova or an act#a chan'e of $o&ici e< a -ona fi$e intention of a-an$onin' the for&er p ace of resi$ence an$ esta- ishin' a ne9 one< an$ acts 9hich correspon$ 9ith p#rpose. This chan'e of $o&ici e is effecte$ -! a 4i ipino 9ho -eco&es an 1i&&i'rant1 or a 1per&anent resi$ent1 of a forei'n co#ntr!. Th#s, 9e he $ in Caasi v. Co#rt of Appea s, vi3F Mi'#e Gs app ication for i&&i'rant stat#s an$ per&anent resi$ence in the U.S. an$ his possession of a 'reen car$ attestin' to s#ch stat#s are conc #sive proof that he is a per&anent resi$ent of the U.S. $espite his occasiona visits to the (hi ippines. The 9aiver of s#ch i&&i'rant stat#s sho# $ -e as in$#-ita- e as his app ication for it. A-sent c ear evi$ence that he &a$e an irrevoca- e 9aiver of that stat#s or that he s#rren$ere$ his 'reen car$ to the appropriate U.S. a#thorities -efore he ran for &a!or. . . The $octrine in Caasi is -! no &eans ne9. O#r e ection a9s have contin#o#s ! re'ar$e$ 1i&&i'rants1 or 1per&anent resi$ents1 of a forei'n co#ntr! to have ost their $o&ici es in the (hi ippines an$ hence are not :#a ifie$ to r#n for p#- ic office. There is no reason not to app ! the Caasi r# in' in $isp#tes invo vin' the :#a ification of voters. In essence, -oth cases concern f# fi &ent of the resi$ence re:#ire&ents. Section 56$7 of Rep. Act No. ./0. itse f reinforces the app ica-i it! of the Caasi $octrine. As o-serve$ -! the &a,orit!, Rep. Act No. ./0. $is:#a ifies an i&&i'rant or a per&anent resi$ent 9ho is reco'ni3e$ as s#ch in another co#ntr! 1-eca#se i&&i'ration or per&anent resi$ence in another co#ntr! i&p ies ren#nciation of oneGs resi$ence in his co#ntr! of ori'in.1 ?. I%.< I%.< I%.< THE MA+ORITY RULINB ON THE NATURE O4 THE A44I%A2IT TO BE EHECUTE% BY AN 1IMMIBRANT1 OR A 1(ERMANENT RESI%ENT1 IS INCONSISTENT. D I s#-&it that the &a,orit! r# in' on the nat#re of the affi$avit to -e e"ec#te$ -! an 1i&&i'rant1 or a 1per&anent resi$ent1 is inconsistent. On one han$, it theori3es that the act 1serves as an e"p icit e"pression that he ha$ not in fact a-an$one$ his $o&ici e of ori'in.1 This conce$es that 9hi e an 1i&&i'rant1 or a 1per&anent resi$ent1 has ac:#ire$ a ne9 $o&ici e in a forei'n co#ntr! -! virt#e of his stat#s as s#ch, Rep. Act No. ./0. 9o# $ consi$er hi& not to have a-an$one$ his $o&ici e in the (hi ippines. On the other han$, the &a,orit! a so theori3es that the affi$avit constit#tes an 1e"press 9aiver of his stat#s as an i&&i'rant or per&anent resi$ent,1 an$ #pon f# fi &ent of the re:#ire&ents of re'istration, 1he &a! sti -e consi$ere$ as a G:#a ifie$ citi3en of the (hi ippines a-roa$G for p#rposes of e"ercisin' his ri'ht of s#ffra'e.1 This pres#pposes that the 1i&&i'rant1 or 1per&anent resi$ent1 a-an$one$ his $o&ici e in the (hi ippines, -#t see=s to reac:#ire this $o&ici e -! the e"ec#tion of the affi$avit. The first theor! is #ntena- e. Its inevita- e res# t 9o# $ -e the esta- ish&ent of t9o $o&ici es, i.e., $o&ici e in the

(hi ippines an$ $o&ici e in a forei'n co#ntr! 9here he is consi$ere$ an 1i&&i'rant1 or a 1per&anent resi$ent.1 This r# in' 9i contravene the princip e in private internationa a9 that a person can -e $o&ici e$ on ! in one p ace at a 'iven ti&e. The secon$ theor! is e:#a ! #ntena- e. A person 9ho has a-an$one$ his $o&ici e of ori'in -! esta- ishin' a $o&ici e of choice cannot ,#st revert -ac= to his $o&ici e of ori'in. He &#st satisf! the sa&e re:#isites for ac:#irin' a ne9 $o&ici e, i.e., an act#a re&ova or an act#a chan'e of $o&ici e< a -ona fi$e intention of a-an$onin' the for&er p ace of resi$ence an$ esta- ishin' a ne9 one< an$ acts 9hich correspon$ 9ith the p#rpose. An e"istin' $o&ici e cannot -e ost -! a-an$on&ent a one, even if there is an intent to ac:#ire a ne9 one< the e"istin' $o&ici e contin#es #nti a ne9 one is in fact 'aine$. To a-an$on $o&ici e, a person &#st choose a ne9 $o&ici e, act#a ! resi$e in the p ace chosen, an$ inten$ that it -e the principa an$ per&anent resi$ence. That is, there can -e no chan'e of $o&ici e 9itho#t the conc#rrence of act an$ intent. >. I%.< I%.< I%.< THE RE)UIRE% A44I%A2IT MERELY (RO2ES THE INTENT TO RETURN BUT NOT THE OTHER RE)UISITES 4OR RE* AC)UIRINB THE %OMICILE O4 ORIBIN< AHAT MAEES THE INTENT EH(RESSE% IN THE A44I%A2IT E44ECTI2E AN% O(ERATI2E IS THE 4UL4ILLMENT O4 THE (ROMISE TO RETURN TO THE (HILI((INES AN% UNTIL THEN, THE ABSENTEE %OES NOT (OSSESS THE NECESSARY RE)UISITES AN% THERE4ORE, CANNOT BE CONSI%ERE% A )UALI4IE% 2OTER. D Aith $#e respect, I s#-&it that the affi$avit &ere ! proves the intent to ret#rn -#t not the other re:#isites for reac:#irin' the $o&ici e of ori'in. Intent, 9hich is not co#p e$ 9ith act#a ph!sica transfer, is not s#fficient either to a-an$on the for&er $o&ici e or to esta- ish a ne9 $o&ici e. Th#s, the vie9 that $o&ici e co# $ -e esta- ishe$ as soon as the o $ is a-an$one$ even tho#'h the person has not !et arrive$ at the ne9 $o&ici e, has not -een accepte$. To stress, the -#r$en of esta- ishin' a chan'e in $o&ici e is #pon the part! 9ho asserts it. A personGs $ec arations as to 9hat he consi$ers his ho&e, resi$ence, or $o&ici e are 'enera ! a$&issi- e 1as evi$ence of his attit#$e of &in$.1 Ho9ever, 9hatever the conte"t, 1their acc#rac! is s#spect -eca#se of their se f*servin' nat#re, partic# ar ! 9hen the! are &a$e to achieve so&e e'a o-,ective.1 In the case at -ar, the -#r$en rests on an 1i&&i'rant1 or a 1per&anent resi$ent1 to prove that he has a-an$one$ his $o&ici e in the forei'n co#ntr! an$ reesta- ishe$ his $o&ici e in the (hi ippines. A se f*servin' affi$avit 9i not s#ffice, especia ! 9hen 9hat is at sta=e is a ver! i&portant privi e'e as the ri'ht of s#ffra'e. I respectf# ! s#-&it that 9hat &a=es the intent e"presse$ in the affi$avit effective an$ operative is the f# fi &ent of the pro&ise to ret#rn to the (hi ippines. (h!sica presence is not a &ere test of intent -#t the 1principa confir&in' evi$ence of the intention of the person.1 Unti s#ch pro&ise is f# fi e$, he contin#es to -e a $o&ici iar! of another co#ntr!. Unti then, he $oes not possess the necessar! re:#isites an$ therefore, cannot -e consi$ere$ a :#a ifie$ voter. 5. I%.< I%.< I%.< COUNTINB THE 2OTES O4 IMMIBRANTS OR

(ERMANENT RESI%ENTS AHO 4AIL TO RETURN TO THE (HILI((INES AILL %ILUTE THE 2ALI% 2OTES O4 4ULLY )UALI4IE% ELECTORS< MAY RESULT IN THE ANOMALY AHERE THE HIBHEST (UBLIC O44ICIALS O4 THE LAN% AILL OAE THEIR ELECTION TO 1IMMIBRANTS1 OR 1(ERMANENT RESI%ENTS1 AHO 4AILE% TO 4UL4ILL THEIR (ROMISE TO RETURN TO THE COUNTRY OR AHO RE(U%IATE% THEIR %OMICILE HERE. D The on ! conse:#ence i&pose$ -! Rep. Act No. ./0. to an 1i&&i'rant1 or a 1per&anent resi$ent1 9ho $oes not f# fi his pro&ise to ret#rn to the (hi ippines is the re&ova of his na&e fro& the Nationa Re'istr! of A-sentee 2oters an$ his per&anent $is:#a ification to vote in a-sentia. B#t his vote 9o# $ -e co#nte$ an$ accor$e$ the sa&e 9ei'ht as that cast -! -ona fi$e :#a ifie$ 4i ipino voters. I respectf# ! s#-&it that this sche&e $i&inishes the va #e of the ri'ht of s#ffra'e as it $i #tes the ri'ht of :#a ifie$ voters to the proportionate va #e of their votes. The one person, one vote princip e is sacrosanct in a rep#- ican for& of 'overn&ent. The cha en'e$ provision 9hich a o9s the va #e of the va i$ votes of :#a ifie$ voters to -e $i&inishe$ -! the inva i$ votes of $is:#a ifie$ voters vio ates the soverei'nt! of o#r peop e. The va i$ation -! the &a,orit! of this #nconstit#tiona provision &a! res# t in the ano&a ! 9here the hi'hest p#- ic officia s of o#r an$ 9i o9e their e ection to 1i&&i'rants1 or 1per&anent resi$ents1 9ho fai e$ to f# fi their pro&ise to ret#rn to o#r co#ntr! or 9ho rep#$iate$ their $o&ici e here. J. I%.< I%.< I%.< SECTION /0.5 O4 RE(UBLIC ACT NO. ./0. EM(OAERINB THE COMMISSION ON ELECTIONS TO (ROCLAIM THE AINNINB CAN%I%ATES SHOUL% BE CONSTRUE% AS LIMITE% TO THE (OSITIONS O4 SENATORS AN% (ARTY LIST RE(RESENTATI2ES. D On its face, Section /0.5 of Rep. Act No. ./0. appears to -e rep#'nant to Section >, Artic e 2II of the /.08 Constit#tion. It 'ives the i&pression that Con'ress a-$icate$ to COMELEC its constit#tiona $#t! to canvass an$ proc ai& the 9innin' can$i$ates for (resi$ent an$ 2ice*(resi$ent. I a'ree 9ith the &a,orit! that the i&p#'ne$ provision sho# $ -e 'iven a reasona- e interpretation that 9o# $ save it fro& a constit#tiona infir&it!. To -e s#re, Con'ress co# $ have not a o9e$ the COMELEC to e"ercise a po9er e"c #sive ! -esto9e$ #pon it -! the Constit#tion. Th#s, Section /0.5 of Rep. Act No. ./0. e&po9erin' the COMELEC to proc ai& the 9innin' can$i$ates sho# $ -e constr#e$ as i&ite$ to the positions of Senators an$ part!* ist representatives. 8. I%.< I%.< I%.< THE LEBISLATI2E 2ETO (OAER OR CONBRESSIONAL O2ERSIBHT (OAER O2ER THE AUTHORITY O4 THE COMMISSION ON ELECTIONS TO ISSUE RULES AN% REBULATIONS IN OR%ER TO EN4ORCE ELECTION LAAS IS UNCONSTITUTIONAL< THE (OAER TO (ROMULBATE RULES AN% REBULATIONS IN OR%ER TO A%MINISTER ELECTION LAAS HAS BEEN 2ESTE% EHCLUSI2ELY BY THE /.08 CONSTITUTION TO THE COMMISSION AN% IT CANNOT BE TRENCHE% U(ON BY CONBRESS IN THE EHERCISE O4 ITS O2ERSIBHT (OAERS. D The Constit#tion $ivi$e$ the

po9ers of o#r 'overn&ent into three cate'ories, e'is ative, e"ec#tive, an$ ,#$icia . A tho#'h not 1her&etica ! sea e$1 fro& one another, the po9ers of the three -ranches are f#nctiona ! i$entifia- e. In this respect, e'is ative po9er is 'enera ! e"ercise$ in the enact&ent of the a9< e"ec#tive po9er, in its e"ec#tion< an$ ,#$icia po9er, in its interpretation. In the a-sence of specific provision in the Constit#tion, it is f#n$a&enta #n$er the princip e of separation of po9ers that one -ranch cannot e"ercise or share the po9er of the other. In a$$ition, o#r Constit#tion create$ other offices asi$e fro& the e"ec#tive, the e'is ative an$ the ,#$iciar! an$ $efine$ their po9ers an$ prero'atives. A&on' these -o$ies especia ! create$ -! the Constit#tion itse f is the COMELEC. The COMELEC occ#pies a $istinct p ace in o#r sche&e of 'overn&ent. As the constit#tiona -o$! char'e$ 9ith the a$&inistration of o#r e ection a9s, it is en$o9e$ 9ith in$epen$ence in the e"ercise of so&e of its po9ers an$ the $ischar'e of its responsi-i ities. The po9er to pro&# 'ate r# es an$ re'# ations in or$er to a$&inister o#r e ection a9s -e on's to this cate'or! of po9ers as this has -een veste$ e"c #sive ! -! the /.08 Constit#tion to the COMELEC. It cannot -e trenche$ #pon -! Con'ress in the e"ercise of its oversi'ht po9ers. 0. I%.< I%.< I%.< SECTION /8./ O4 RE(UBLIC ACT NO. ./0. IS UNCONSTITUTIONAL 4OR IT ALLOAS CONBRESS TO NEBATE THE EHCLUSI2E (OAER O4 THE COMMISSION ON ELECTIONS TO A%MINISTER AN% EN4ORCE ELECTION LAAS AN% REBULATIONS BRANTE% BY THE CONSTITUTION ITSEL4< SAI% (OAER IS EHCLUSI2E AN% IS NOT MEANT TO BE SHARE% BY ANY OTHER BRANCH OR ABENCY O4 THE BO2ERNMENT. D I ,oin the &a,orit! in ho $in' that Section /8./ of Rep. Act No. ./0. is #nconstit#tiona for it a o9s Con'ress to ne'ate the e"c #sive po9er of the COMELEC to a$&inister an$ enforce e ection a9s an$ re'# ations 'rante$ -! the Constit#tion itse f. This is not to &aintain that the I&p e&entin' R# es an$ Re'# ations pro&# 'ate$ -! the COMELEC, or the s!ste& it $evise$ to i&p e&ent votin' -! &ai cannot -e cha en'e$. If the! are i e'a or constit#te 'rave a-#se of $iscretion, the co#rts can stri=e the& $o9n in an appropriate case. This po9er is veste$ to the co#rts #n$er Section /, Artic e 2III of the Constit#tion $efinin' the scope of ,#$icia po9er, an$ &ore specifica ! #n$er Section 5, Artic e 2III e&po9erin' this Co#rt to revie9, revise, reverse, &o$if! or affir& on appea or certiorari, 1a cases in 9hich the constit#tiona it! or va i$it! of an! treat!, internationa or e"ec#tive a'ree&ent, a9, presi$entia $ecree, proc a&ation, or$er, instr#ction, or$inance, or re'# ation is in :#estion.1 A'ain, this po9er is e"c #sive an$ is not &eant to -e share$ -! an! other -ranch or a'enc! of the 'overn&ent. YNARES*SANTIABO, +., conc#rrin' an$ $issentin' opinionF /. (OLITICAL LAA< ELECTION LAAS< THE O2ERSEAS ABSENTEE 2OTINB ACT O4 ;@@? 6RE(UBLIC ACT NO. ./0.7< BRANTS THE RIBHT O4 SU44RABE TO A CATEBORY O4 2OTERS AHO %O NOT (OSSESS THE CONSTITUTIONAL RE)UIREMENT O4 RESI%ENCE< THE MA+ORITY

O(INION O2ERLOOEE% THE 4ACT THAT AHILE SECTION ;, ARTICLE 2 O4 THE CONSTITUTION (RO2I%ES A SYSTEM 4OR ABSENTEE 2OTINB, ANY ABSENTEE AHO 2OTES MUST 4IRST MEET THE )UALI4ICATIONS 4OUN% IN SECTION / O4 THE SAME ARTICLE. D I a& constraine$ to $issent fro& the &a,orit! opinion -eca#se R.A. ./0. 'rants the ri'ht of s#ffra'e to a cate'or! of voters 9ho $o not possess the constit#tiona re:#ire&ent of resi$ence. These are &en an$ 9o&en 9ho are sti 4i ipino citi3ens -#t 9ho have vo #ntari ! an$ #na&-i'#o#s ! chosen act#a , ph!sica , an$ per&anent resi$ence in a forei'n co#ntr!. In other 9or$s, the :#estione$ a9 a o9s non*resi$ents to vote. As phrase$, Section 5 6$7 of R.A. ./0. 'rants to 4i ipinos 9ho are i&&i'rants or per&anent resi$ents of another co#ntr!, an$ 9ho are consi$ere$ as s#ch -! their host co#ntr!, the option to e"ercise their ri'ht of s#ffra'e. (roponents of R.A. ./0. are tr!in' to constr#e Section ; of Artic e 2 of the Constit#tion as a proviso 9hich e"pan$s an$ en ar'es the scope of the prece$in' section. The! over oo= the fact that 9hi e Section ; provi$es a s!ste& for a-sentee votin', an! a-sentee 9ho votes &#st first &eet the :#a ifications fo#n$ in Section / of the sa&e artic e. ;. I%.< I%.< I%.< SINCE THE (RO2ISION ON ABSENTEE 2OTINB IN RE(UBLIC ACT NO. ./0. NEITHER LIMITS NOR ENLARBES A (RO2ISION O4 AHICH IT IS A (ART, THE (HRASE 1)UALI4IE% 4ILI(INOS ABROA%1 CAN BE INTER(RETE% ONLY TO MEAN THAT THOSE AHO ARE )UALI4IE% TO 2OTE UN%ER SECTION /, ARTICLE > O4 THE CONSTITUTION MAY BECOME THE ABSENTEE 2OTERS AN% MUST, THERE4ORE, (OSSESS ON ELECTION %AY THE CONSTITUTIONAL RE)UIREMENTS AS TO CITICENSHI(, ABE AN% RESI%ENCE. D As state$ -! the petitioner, if the fra&ers of the Constit#tion inten$e$ to &a=e Section ; of Artic e 2 a proviso or e"ception to its first section, the! sho# $ have a$$e$ it to the atter. The Constit#tion $oes not &a=e the a-sentee votin' provision a &ere proviso of the first section on resi$ence :#a ifications. To'ether 9ith the s!ste& 9hich sec#res the secrec! an$ sanctit! of the -a ot, the provision on a-sentee votin' is an entire ! $istinct an$ separate section 9hich a o9s on ! those :#a ifie$ #n$er Section / to ta=e a$vanta'e of the privi e'e #n$er Section ;. The office of a proviso is to i&it the app ication of a section or provision or to :#a if! or restrain its 'enera it!. Ho9ever, a proviso &a! a so en ar'e 9hat other9ise is a phrase of i&ite$ i&port ha$ there -een no proviso :#a if!in' it. Since the provision on a-sentee votin' in R.A. ./0. neither i&its nor en ar'es a provision of 9hich it is a part, the phrase 1:#a ifie$ 4i ipinos a-roa$1 can -e interprete$ on ! to &ean that those 9ho are :#a ifie$ to vote #n$er the prece$in' section &a! -eco&e a-sentee voters. The! &#st possess on e ection $a! the constit#tiona re:#ire&ents as to citi3enship, a'e an$ resi$ence. ?. I%.< I%.< I%.< MA%AM +USTICE YNARES*SANTIABO %OES NOT ABREE AITH THE MA+ORITYGS BELIE4 THAT THE (OSITION O4 ARTICLE 2, SECTION ; O4 THE CONSTITUTION IS IN%ICATI2E O4 AN INTENT TO

MAEE IT A((EAR TO BE AN EHCE(TION TO THE RESI%ENCE RE)UIREMENT (RO2I%E% IN SECTION / O4 THE SAME ARTICLE. D It is s#-&itte$ that a va i$ an$ ver! rea $istinction e"ists -et9een either of these t9o 'ro#ps of 4i ipinos, on the one han$, an$ those 4i ipinos 9ho are per&anent resi$ents or i&&i'rants in their host co#ntries, on the other. The =e! $ifference ies in the chan'e of per&anent resi$ence or ac= thereof, for the fra&ers of o#r Constit#tion c ear ! inten$e$ that 4i ipinos 9ho ha$ ta=en #p per&anent resi$ence in their host co#ntries 9o# $ -e e"c #$e$ fro& the -enefits of a-sentee votin'. No other interpretation can -e s#pporte$ -! the recor$s at han$. It is c ear that the Constit#tiona Co&&ission $i$ not inten$ to &a=e a-sentee voters an e"ception to the 'enera r# e on resi$ence in the e"ercise of the ri'ht of s#ffra'e. Ae $o not a'ree 9ith the &a,orit!Gs -e ief that the position of Artic e 2, Section ; of the Constit#tion is in$icative of an intent to &a=e it appear to -e an e"ception to the resi$ence re:#ire&ent provi$e$ for in the section i&&e$iate ! prece$in' it. As ear ier state$, Section ; is not a proviso of Section /. It is patent fro& the e"cerpts of the $e i-erations -! &e&-ers of the constit#tiona co&&issions that the Co&&issioners too= pains to ens#re that the reasonin' -ehin$ Artic e 2, Section ; of the Constit#tion 9o# $ not -e &is#n$erstoo$. The! never inten$e$ to accor$ a specia stat#s nor 'ive specia consi$eration to 4i ipinos 9ho have -eco&e per&anent resi$ents of their host co#ntries. These necessari ! inc #$e i&&i'rants. >. I%.< I%.< I%.< 1ABSENTEE1 RE4ERS TO THOSE (EO(LE AHOSE INTENT TO RETURN HOME AN% 4ORSAEE THE 4OREIBN COUNTRY IS CLEAR< IT CANNOT RE4ER TO IMMIBRANTS AN% A MERE (ROMISE TO RETURN HOME AITHIN THREE YEARS 4ROM 2OTINB IS NO (ROO4 O4 INTENT TO RETURN TO A (ERMANENT RESI%ENCE. D I -e' to $iffer fro& the conc #sion in the &a,orit! opinion 9hich states that an a-sentee re&ains attache$ to his resi$ence in the (hi ippines -eca#se 1resi$ence1 is s!non!&o#s 9ith 1$o&ici e.1 1A-sentee1 has to -e :#a ifie$. It refers on ! to those peop e resi$in' a-roa$ 9hose intent to ret#rn ho&e an$ forsa=e the forei'n co#ntr! is c ear. It cannot refer to i&&i'rants. A &ere pro&ise to ret#rn ho&e 9ithin three !ears fro& votin' is no proof of intent to ret#rn to a per&anent resi$ence. The sanction for its enforce&ent is so fee- e that the pro&ise 9i -e an e&pt! one. As ear ier state$, an i&&i'rant 'ives #p &an! thin's, inc #$in' the ri'ht or opport#nit! of votin' in the (hi ippines, 9hen he &oves 9ith his fa&i ! a-roa$. A sanction of f#t#re $isenfranchise&ent 9o# $ not -other hi& in the east -it. In the &eanti&e, the i&&i'rant vote in c ose ! conteste$ cases &a! have e ecte$ the (resi$ent, a Senator or a Con'ress&an. Un:#a ifie$ voters 9i have s9#n' the e ections. In the sa&e 9a! that a co#nterfeit coin $rives a9a! or res# ts in the hoar$in' of 'en#ine or 'oo$ coins, the votes of non*:#a ifie$ persons 9i not on ! 9ea=en or n# if! the va #e of the 'oo$ votes -#t &a! &a=e an e ection itse f sha& an$ &eanin' ess. SAN%O2AL*BUTIERREC, +., conc#rrin' an$ $issentin' opinionF

/. (OLITICAL LAA< ELECTION LAAS< THE O2ERSEAS ABSENTEE 2OTINB ACT O4 ;@@? 6RE(UBLIC ACT NO. ./0.7< RESI%ENCE 4OR 2OTINB IS NOT AHOLLY A )UESTION O4 INTENTION, BUT IS A )UESTION O4 4ACT AN% INTENTION. D No person has &ore than one $o&ici e at a ti&e. A 4i ipino i&&i'rant, -! his per&anent resi$enc! in the host co#ntr!, oses the (hi ippines as his $o&ici e. He cannot reac:#ire it -! the &ere act of e"ec#tin' an affi$avit e"pressin' his intention to ret#rn to the (hi ippines at so&e f#t#re ti&e. Resi$ence for votin' is not 9ho ! a :#estion of intention, -#t it is a :#estion of fact an$ intention. Un ess his intention is fortifie$ -! the conc#rrent act of reesta- ishin' the (hi ippines as his $o&ici e, he cannot -e consi$ere$ a :#a ifie$ voter #n$er the (hi ippine Constit#tion. ;. I%.< I%.< I%.< THE INTENTION O4 THE 4RAMERS TO LIMIT THE (HRASE 1)UALI4IE% 4ILI(INOS ABROA%1 TO 4ILI(INOS TEM(ORARILY RESI%INB ABROA% IS CLEAR AN% UNMISTAEABLE< A LAA, SUCH AS RE(UBLIC ACT NO. ./0. AHICH EH(AN%S THE MEANINB AS TO INCLU%E THOSE OTHERAISE NOT CO2ERE% THROUBH THE MERE IM(OSITION O4 CERTAIN RE)UIREMENTS, 1RISES A %ECLARATION O4 UNCONSTITUTIONALITY1. D There is no $isp#te that the /.08 Constit#tion $enies to 4i ipino i&&i'rants the ri'ht of s#ffra'e. The 4ra&ers ha$ no choice, the! ha$ to &aintain consistenc! a&on' the provisions of the Constit#tion. Section /, Artic e 2 prescri-es resi$enc! in the (hi ippines as one of the :#a ifications for the e"ercise of the ri'ht of s#ffra'e. Initia !, this 9as perceive$ as an o-stac e to the incorporation of the constit#tiona provision re:#irin' Con'ress to provi$e for a s!ste& of a-sentee votin' -! 1:#a ifie$ 4i ipinos a-roa$.1 Ho9ever, the 4ra&ers resorte$ to the e'a connotation of the ter& 1resi$ence.1 The! e&phasi3e$ that 1resi$ence1 is to -e #n$erstoo$ not in its co&&on acceptance as referrin' to 1$9e in'1 or 1ha-itation,1 -#t rather to 1$o&ici e1 or 1 e'a resi$ence,1 that is, the 1p ace 9here a part! act#a ! or constr#ctive ! has his per&anent ho&e, 9here he, no &atter 9here he &a! -e fo#n$ at an! 'iven ti&e, event#a ! inten$s to ret#rn an$ re&ain.1 Th#s, as on' as the 4i ipino a-roa$ &aintains his $o&ici e in the (hi ippines, he is consi$ere$ a :#a ifie$ voter #n$er the Constit#tion. Si'nificant !, at the ear ! sta'e of the $e i-eration, the 4ra&ers &a$e it c ear that the ter& 1:#a ifie$ 4i ipinos a-roa$1 refers on ! to those 9hose presence in the forei'n co#ntr! is on ! 1te&porar!1 an$ 9hose $o&ici e is sti the (hi ippines D th#s, $efinite ! e"c #$in' i&&i'rants or per&anent resi$ents of a forei'n co#ntr!. Let &e :#ote the Recor$s of the Constit#tiona Co&&ission. The intention of the 4ra&ers to i&it the phrase 1:#a ifie$ 4i ipinos a-roa$1 to 4i ipinos te&porari ! resi$in' a-roa$ is c ear an$ #n&ista=a- e. Therefore, a a9, s#ch as R.A. No. ./0., 9hich e"pan$s the &eanin' as to inc #$e those other9ise not covere$ 6s#ch as 4i ipino i&&i'rants or per&anent resi$ents of forei'n co#ntries7, thro#'h the &ere i&position of certain re:#ire&ents, 1ris=s a $ec aration of #nconstit#tiona it!.1

?. I%.< I%.< I%.< TO RULE THAT A SAORN %ECLARATION O4 INTENTION IS SU44ICIENT TO AC)UIRE A 2OTINB RESI%ENCE IS TO ESTABLISH A BA% (RECE%ENT CONSI%ERINB THAT THE 2OTERS CAN CHOOSE THE (LACE AHERE THEY AANT TO 2OTE BY SIM(LY SAEARINB THAT THEY INTEN% TO (ERMANENTLY RESI%E THEREIN. D Mere $ec aration that he inten$s to res#&e act#a ph!sica per&anent resi$ence in the (hi ippines $oes not have the effect of conferrin' #pon the i&&i'rant the necessar! :#a ification of 1resi$enc!1 here. To reiterate, resi$ence for votin' is not 9ho ! a :#estion of intention, it is a :#estion of fact an$ intention. A voterGs state&ents, $ec arations, or testi&on! 9ith respect to his intention is not contro in', -#t &#st -e ta=en in connection 9ith his acts an$ con$#ct. Hence, the ri'ht to vote in a certain p ace or precinct re:#ires the occ#rrence of t9o thin's, the act of resi$in' co#p e$ 9ith the intention to $o so. In or$er to constit#te a resi$ence for votin' p#rposes, there &#st -e the intention to resi$e there for votin' p#rposes, an$ that intention &#st -e acco&panie$ -! acts of ivin', $9e in', o$'in', or resi$in' reasona- ! s#fficient to esta- ish that it is the rea an$ act#a resi$ence of the voter. To r# e that a s9orn $ec aration of intention is s#fficient to ac:#ire a votin' resi$ence is to esta- ish a -a$ prece$ent consi$erin' that voters can choose the p ace 9here the! 9ant to vote si&p ! -! s9earin' that the! inten$ to per&anent ! resi$e therein. >. I%.< I%.< I%.< AN IMMIBRANTGS (LAIN %ECLARATION O4 HIS INTENTION CANNOT (RE2AIL O2ER THE ACTUAL 4ACTS SURROUN%INB HIS RESI%ENCE. D The &a,orit! r# es that the affi$avit re:#ire$ in Section 5 6$7 1serves as an e"p icit e"pression that the i&&i'rant ha$ not in fact a-an$one$ his $o&ici e of ori'in.1 A'ain, I cannot s#-scri-e to this vie9. An i&&i'rantGs p ain $ec aration of his intention cannot prevai over the act#a facts s#rro#n$in' his resi$enc!. Con$#ct has 'reater evi$entia va #e than a $ec aration. The fact that a person o-tains an i&&i'rantGs visa, an$ not a visitorGs or to#ristGs visa, p ain ! sho9s that his entrance in the forei'n co#ntr! is for a per&anent p#rpose. In$ee$, $ec arations are a 9a!s s#-,ect to the infir&it! of an! se f*servin' $ec aration an$ &a! -e contra$icte$ -! inconsistent acts. Ahen in conf ict 9ith the facts, a $ec are$ intention to ac:#ire a $o&ici e 6or to &aintain the $o&ici e of ori'in7 has itt e 9ei'ht. Besi$es, to a$&it the i&&i'rantGs representation that he has not a-an$one$ his (hi ippine $o&ici e $espite his i&&i'rant stat#s is to to erate 9hat 9e proscri-e$ in Caasi vs. Co#rt of Appea s, th#sF 1In other 9or$s, he 9o# $ have this Co#rt -e ieve that he app ie$ for i&&i'ration to the U.S. #n$er fa se pretenses< that a this ti&e he on ! ha$ one foot in the Unite$ States -#t =ept his other foot in the (hi ippines. Even if that 9ere tr#e, this Co#rt 9i not a o9 itse f to -e a part! to his $#p icit! -! per&ittin' hi& to -enefit fro& it an$ 'ivin' hi& the -est of -oth 9or $s so to spea=.1 Honorin' o#r co#ntr!&enGs s9orn $ec arations to res#&e per&anent resi$enc! in the (hi ippines, not9ithstan$in' their i&&i'rant stat#s an$ the host co#ntr!Gs contin#o#s reco'nition of the& as s#ch, $oes not spea= 9e of 4i ipino va #es. In effect, it

enco#ra'es $#p icito#s or $eceptive con$#ct a&on' o#r co#ntr!&en. Ae sho# $ not a o9 s#ch acts to -e $one -ehin$ the host co#ntr!Gs -ac=. 5. I%.< I%.< I%.< ASSAILE% (RO2ISION MAY ONLY BE AN A2ENUE 4OR 4RAU%. D Another 'ro#n$ 9h! I cannot ,oin the &a,orit! is the 'reat pro-a-i it! that the assai e$ provision &a! on ! -e an aven#e for e ection fra#$. Rea it! 9ise, o#r co#ntr! is !et to achieve a tr# ! c ean an$ honest e ection. To 'rant the ri'ht of s#ffra'e to the vast n#&-er of i&&i'rants in forei'n co#ntries 9here 9e cannot enforce o#r a9s 9ith the sa&e efficac! as 9ithin o#r territor!, is to en$an'er o#r citi3ensG constit#tiona ri'ht to an #n$efi e$ s#ffra'e. (ara&o#nt in the preservation of the princip es of $e&ocratic 'overn&ent is the o-servance of preca#tionar! re:#ire&ents $esi'ne$ to ins#re the sanctit! of the -a ot. Conse:#ent !, it is i&perative that o#r e ections are not tainte$ 9ith fra#$. This cannot -e achieve$ #n ess 9e i&pose stricter ter&s on the 'rant of the ri'ht of s#ffra'e to a-sentee citi3ens. Si'nificant !, the on ! sanction i&pose$ -! Section 56$7 #pon an i&&i'rant 9ho fai s to perfor& his pro&ise to res#&e per&anent resi$enc! in the (hi ippines 9ithin the prescri-e$ perio$ is that his na&e 9i -e stric=en fro& the Nationa Re'istr! of A-sentee 2oters an$ he 9i -e per&anent ! $is:#a ifie$ to vote in a-sentia. Ahat a p#nish&ent for so&eone 9ho &a$e a &oc=er! of the e ection processL This p#nitive &eas#re is virt#a ! &eanin' ess. It cannot #n$o the res# t of an e ection nor can it $iscip ine or $a#nt i&&i'rant voters. J. I%.< I%.< I%.< SECTION 5 6$7 O4 RE(UBLIC ACT NO. ./0. IS UNCONSTITUTIONAL 4OR IT %IMINISHES THE 1RESI%ENCY RE)UIREMENT1 O4 THE CONSTITUTION BY INCLU%INB AITHIN THE (HRASE 1)UALI4IE% 4ILI(INOS ABROA%1 IMMIBRANTS AN% (ERMANENT RESI%ENTS O4 4OREIBN COUNTRIES< SAI% (RO2ISION %E4IES THE CLEAR INTENTION O4 THE CONSTITUTION TO LIMIT THE A((LICATION O4 THE ABSENTEE 2OTINB LAA TO 4ILI(INOS AHO ARE 1TEM(ORARILY ABROA%.1 D Let it -e stresse$ that 9here the Constit#tion fi"es the :#a ifications of voters, these :#a ifications cannot -e increase$, $i&inishe$ or chan'e$ -! e'is ative enact&ent, #n ess the po9er to $o so is e"press ! 'rante$, or necessari ! i&p ie$. The inc #sion of the resi$enc! re:#ire&ent in the Constit#tion is not 9itho#t reason. It constit#tes an inva #a- e protection a'ainst fra#$ an$ f#rther affor$s so&e s#ret! that the e ector has in fact -eco&e a &e&-er of the co&&#nit! an$ that, as s#ch, he has a co&&on interest in a &atters pertainin' to its 'overn&ent, an$ is therefore &ore i=e ! to e"ercise his ri'ht inte i'ent !. The specification in the Constit#tion is an i&p ie$ prohi-ition a'ainst interference. It is not co&petent for Con'ress to $i&inish or a ter s#ch :#a ification. Section 56$7 of R.A. No. ./0. is #nconstit#tiona for it $i&inishes the 1resi$enc! re:#ire&ent1 of the Constit#tion -! inc #$in' 9ithin the phrase 1:#a ifie$ 4i ipinos a-roa$1 i&&i'rants an$ per&anent resi$ents of forei'n co#ntries. It $efies the c ear intent of the Constit#tion to i&it the app ication of the a-sentee votin' a9 to 4i ipinos 9ho are 1te&porari ! a-roa$.1

Th#s, as stat#tes 9hich p#rport to &o$if! constit#tiona ! fi"e$ :#a ifications are voi$, so &#st Section 56$7 of R.A. No. ./0. s#ffer the sa&e fate. CALLE+O, SR., +., conc#rrin' an$ $issentin' opinionF /. CONSTITUTIONAL LAA< SU44RABE< MR. +USTICE CALLE+O %OES NOT SUBSCRIBE TO THE 2IEA THAT SECTION ; O4 ARTICLE 2 O4 THE CONSTITUTION AAS INTEN%E% BY THE 4RAMERS TO BE AN EHCE(TION TO THE RESI%ENCE )UALI4ICATION RE)UIREMENT (RESCRIBE% IN THE SECTION / O4 THE SAME ARTICLE. D Section /, Artic e 2 9hich prescri-es the :#a ifications of voters as to citi3enship, a'e an$ resi$ence is c ear an$ #na&-i'#o#s. On the other han$, Section ; of the sa&e artic e a#thori3es Con'ress to provi$e a s!ste& to faci itate a-sentee votin' -! :#a ifie$ 4i ipinos a-roa$. I $o not s#-scri-e to the vie9 that Section ; 9as inten$e$ -! the fra&ers to -e an e"ception to the resi$ence :#a ification re:#ire&ent prescri-e$ in the section i&&e$iate ! prece$in' it. Basic is the r# e in stat#tor! constr#ction that the Constit#tion sho# $ -e constr#e$ in s#ch a &anner as to 'ive effect to each an$ ever! part of the entire instr#&ent. Co#rts sho# $ ean in favor of a constr#ction that 9i har&oni3e ever! provision of the Constit#tion rather than one 9hich raises conf ict -et9een its provisions, or ren$er in#ti e an! portion thereof. Section ; can an$ &#st -e constr#e$ to conte&p ate 9ithin its ter&s the enfranchise&ent on ! of 4i ipinos 9ho possess a the prere:#isite :#a ifications specifie$ #n$er Section /, -#t 9ho are a-roa$ an$ cannot e"ercise their ri'ht to vote in the (hi ippines on the $a! of the e ection. Even fro& a c#rsor! e"a&ination of the procee$in's of the Constit#tiona Co&&ission 9hich $rafte$ the /.08 Constit#tion, the fore'oin' inten$&ent is &a$e cr!sta c ear. ;. I%.< I%.< %ISTINCTION BETAEEN 1RESI%ENCE1 AN% 1%OMICILE.1 D 4or &an! e'a p#rposes, there is a c ear $istinction -et9een 1resi$ence1 an$ 1$o&ici e.1 1Resi$ence1 &eans ivin' in a partic# ar oca it!, an$ si&p ! re:#ires -o$i ! presence as an inha-itant in a 'iven p ace, 9hi e, 1$o&ici e1 &eans ivin' in that oca it! 9ith intent to &a=e it a fi"e$ an$ per&anent ho&e. 1Resi$ence1 $enotes that a person $9e s in a 'iven p ace -#t 1$o&ici e1 is a personGs e'a ho&e, or a p ace 9here the a9 pres#&es a person has the intention of per&anent ! resi$in' a tho#'h he &a! -e a-sent fro& it. 1%o&ici e1 then is a &atter of intention 9hi e 1resi$ence1 is a ph!sica fact. Hence, a person &a! have t9o p aces of 1resi$ence1 -#t on ! one 1$o&ici e.1 1Resi$ence,1 ho9ever, for the p#rpose of votin', is to -e #n$erstoo$ not in its co&&on acceptation as referrin' to 1$9e in'1 or 1ha-itation,1 -#t rather to 1$o&ici e1 or e'a resi$ence, that is, 1the p ace 9here a part! act#a ! or constr#ctive ! has his per&anent ho&e, 9here he, no &atter 9here he &a! -e fo#n$ at an! 'iven ti&e, event#a ! inten$s to ret#rn an$ re&ain 6ani&#s &anen$i7.1 In $eter&inin' a personGs 1resi$ence1 for votin' p#rposes, the fo o9in' r# es are 9e * esta- ishe$F 6a7 A person &#st have a resi$ence or $o&ici e so&e9here< 6-7 Ahere once esta- ishe$, it re&ains #nti a ne9 one is ac:#ire$< an$ 6c7 A person can have -#t one $o&ici e at a ti&e.

?. I%.< I%.< A 4ILI(INO 1IMMIBRANT1 OR 1(ERMANENT RESI%ENT,1 AS THE 2ERY %ESIBNATION O4 THE STATUS CLEARLY IM(LIES, IS A 4ILI(INO AHO HAS ABAN%ONE% HIS (HILI((INE RESI%ENCE OR %OMICILE, AITH THE INTENTION O4 RESI%INB (ERMANENTLY IN HIS HOST COUNTRY. D C ear !, for votin' p#rposes, one cannot have a resi$ence or -e $o&ici e$ in t9o p aces at the sa&e ti&e, for the ri'ht to vote in a certain p ace or precinct re:#ires the conc#rrence of t9o thin'sF the act of resi$in' co#p e$ 9ith the intention to $o so. Accor$in' !, in or$er to 9or= a chan'e resi$ence for votin', there &#st -e an act#a re&ova , an act#a chan'e of $o&ici e, correspon$in' 9ith a -ona fi$e intention of a-an$onin' the for&er p ace of resi$ence an$ esta- ishin' a ne9 one. Hence, an a-sence for &onths or even !ears, if a the 9hi e the part! inten$e$ it as a &ere te&porar! arran'e&ent, to -e fo o9e$ -! a res#&ption of his for&er resi$ence, 9i not -e an a-an$on&ent of s#ch resi$ence or $eprive hi& of his ri'ht to vote thereat, the test -ein' the presence or a-sence of the ani&#s reverten$i. S#ch is the case overseas 4i ipino 9or=ers 9ho, on acco#nt of the nat#re or e"i'encies of their 9or=, fai to -e ph!sica ! present for so&e ti&e in the (hi ippines -#t are not $ee&e$ to have a-an$one$ their (hi ippine $o&ici e -! virt#e of their intent to res#&e resi$enc! in the (hi ippines #pon the ter&ination their e&p o!&ent contracts. Ho9ever, the sa&e cannot -e sai$ of 4i ipinos 9ho, 9hi e &aintainin' their 4i ipino citi3enship, have in the &eanti&e ac:#ire$ the stat#s of i&&i'rants or per&anent resi$ents of their respective host co#ntries. An i&&i'rant, as $efine$ in a9, is a person 9ho re&oves into a co#ntr! for the p#rpose of per&anent resi$ence. Therefore, a 4i ipino 1i&&i'rant1 or 1per&anent resi$ent,1 as the ver! $esi'nation of his stat#s c ear ! i&p ies, is a 4i ipino 9ho has a-an$one$ his (hi ippine resi$ence or $o&ici e, 9ith the intention of resi$in' per&anent ! in his host co#ntr!. Thencefor9ar$, he ac:#ires a ne9 resi$ence in his host co#ntr! an$ is $ee&e$ to have a-an$one$ his (hi ippine $o&ici e. It has -een he $ that 9here a voter a-an$ons his resi$ence in a state an$ ac:#ires one in another state, a tho#'h he after9ar$ chan'es his intention an$ ret#rns, he cannot a'ain vote in the state of his for&er resi$ence or $o&ici e #nti he has re'aine$ his resi$ence -! re&ainin' in the ,#ris$iction for the stat#tor! perio$. >. I%.< I%.< AHILE INTENTION IS AN IM(ORTANT 4ACTOR TO BE CONSI%ERE% IN %ETERMININB AHETHER OR NOT A RESI%ENCE HAS BEEN AC)UIRE%, INTENTION ALONE IS INSU44ICIENT TO ESTABLISH A RESI%ENCE 4OR 2OTINB (UR(OSES. D Aith $#e respect to the &a,orit!, I $o not s#-scri-e to the vie9 that the e"ec#tion of the affi$avit re:#ire$ #n$er Section 5 6$7 is e o:#ent proof of the fact that the 4i ipino i&&i'rant has not a-an$one$ his (hi ippine $o&ici e, as evince$ -! his intention to 'o -ac= an$ res#&e resi$enc! in the (hi ippines, 9hich th#s entit es hi& to e"ercise the ri'ht of s#ffra'e p#rs#ant to the constit#tiona intent e"presse$ in Section ;, in re ation to Section /, Artic e 2 of o#r Constit#tion. The &a,orit! vie9, I h#&- ! s#-&it, is non*se:#it#r for it is 9e *

entrenche$ that 9hi e intention is an i&portant factor to -e consi$ere$ in $eter&inin' 9hether or not a resi$ence has -een ac:#ire$, intention a one is ins#fficient to esta- ish a resi$ence for votin' p#rposes. Hence, a &ere intention to re&ove, not cons#&&ate$, can neither forfeit the part!Gs o $ $o&ici e nor ena- e hi& to ac:#ire a ne9 one. An$ the fact that a person inten$s to re&ove at a f#t#re ti&e $oes not of itse f $efeat his resi$ence -efore the act#a ! $oes re&ove. 5. (OLITICAL LAA< ELECTION LAAS< THE O2ERSEAS ABSENTEE 2OTINB ACT O4 ;@@? 6RE(UBLIC ACT NO. ./0.7< SECTION 5 6$7 THEREO4 IS 2IOLATI2E O4 THE E)UAL (ROTECTION CLAUSE O4 THE CONSTITUTION. D I -e ieve that the provision is vio ative of the 1e:#a protection1 c a#se of the Constit#tion. Ahi e it a o9s a 4i ipino per&anent ! resi$in' in a forei'n co#ntr! to vote on the &ere p e$'e that he 9i a'ain per&anent ! resi$e in this co#ntr! 9ithin three !ears fro& his votin' in the e ections, a 4i ipino per&anent ! resi$in' in the (hi ippines -#t for ess than one !ear or, in the p ace 9here he proposes to vote, for ess than si" &onths is not a o9e$ to vote. The voter c assification so#'ht to -e effecte$ -! Section 56$7 $oes not rest on s#-stantia $istinctions for it #n$# ! favors an$ e"ten$s the privi e'e of the e ective franchise to 4i ipino citi3ens 9ho $o not in an! 9a! co&p ! 9ith the resi$enc! re:#ire&ent prescri-e$ -! o#r Constit#tion, 9hi e 9ithho $in' the sa&e privi e'e to those 9ho are an$ have -een per&anent resi$ents of the (hi ippines, a -eit not in the oca it! or precinct 9here the! inten$ to vote. J. I%.< I%.< I%.< SECTION /0.5 THEREO4 %OES NOT (ASS THE TEST O4 CONSTITUTIONALITY. D It is c ear fro& the Artic e 2II, Section >, para'raph > of the /.08 Constit#tion that the po9er to canvass the votes of the e ectorate for presi$ent an$ vice*presi$ent is o$'e$ 9ith Con'ress. This inc #$es, -! e"press &an$ate of the Constit#tion, the $#t! to proc ai& the 9innin' can$i$ates in s#ch e ection. As pointe$ o#t in the &a,orit! opinion the phrase proc a&ation of 9innin' can$i$ates #se$ in the assai e$ stat#te is a s9eepin' state&ent, 9hich th#s inc #$es even the 9innin' can$i$ates for the presi$enc! an$ vice*presi$enc!. 4o o9in' a -asic princip e in stat#tor! constr#ction, 'enera i $ict#& 'ena iter est interpretan$#& 6a 'enera state&ent is #n$erstoo$ in a 'enera sense7, the sai$ phrase cannot -e constr#e$ other9ise. To #pho $ the assai e$ provision of Rep. Act No. ./0. 9o# $ in effect -e sanctionin' the 'rant of a po9er to the COMELEC, 9hich #n$er the Constit#tion, is e"press ! veste$ in Con'ress< it 9o# $ va i$ate a co#rse of con$#ct that the f#n$a&enta a9 of the an$ e"press ! for-i$s.

+ECISION AUSTRIA*MARTINEC, + pF Before the Co#rt is a petition for certiorari an$ prohi-ition fi e$ -! Ro&# o B. Maca inta , a &e&-er of the (hi ippine Bar, see=in' a $ec aration that certain provisions of Rep#- ic Act No. ./0. 6The Overseas A-sentee 2otin' Act of ;@@?7 / s#ffer fro& constit#tiona infir&it!. C ai&in' that he has act#a an$ &ateria e'a interest in the s#-,ect &atter of this case in seein' to it that p#- ic f#n$s are proper ! an$ a9f# ! #se$ an$ appropriate$, petitioner fi e$ the instant petition as a ta"pa!er an$ as a a9!er. HaTISE The Co#rt #pho $s the ri'ht of petitioner to fi e the present petition. R.A. No. ./0., entit e$, 1An Act (rovi$in' for A S!ste& of Overseas A-sentee 2otin' -! )#a ifie$ Citi3ens of the (hi ippines A-roa$, Appropriatin' 4#n$s Therefor, an$ for Other (#rposes,1 appropriates f#n$s #n$er Section ;. thereof 9hich provi$es that a s#pp e&enta -#$'et on the Benera Appropriations Act of the !ear of its enact&ent into a9 sha provi$e for the necessar! a&o#nt to carr! o#t its provisions. Ta"pa!ers, s#ch as herein petitioner, have the ri'ht to restrain officia s fro& 9astin' p#- ic f#n$s thro#'h the enforce&ent of an #nconstit#tiona stat#te. ; The Co#rt has he $ that the! &a! assai the va i$it! of a a9 appropriatin' p#- ic f#n$s ? -eca#se e"pen$it#re of p#- ic f#n$s -! an officer of the State for the p#rpose of e"ec#tin' an #nconstit#tiona act constit#tes a &isapp ication of s#ch f#n$s. > The cha en'e$ provision of a9 invo ves a p#- ic ri'ht that affects a 'reat n#&-er of citi3ens. The Co#rt has a$opte$ the po ic! of ta=in' ,#ris$iction over cases 9henever the petitioner has serio#s ! an$ convincin' ! presente$ an iss#e of transcen$enta si'nificance to the 4i ipino peop e. This has -een e"p icit ! prono#nce$ in Eapatiran n' &'a Na' i in'=o$ sa (a&aha aan n' (i ipinas, Inc. vs. Tan, 5 9here the Co#rt he $F O-,ections to ta"pa!ersG s#it for ac= of s#fficient persona it! stan$in', or interest are, ho9ever, in the &ain proce$#ra &atters. Consi$erin' the i&portance to the p#- ic of the cases at -ar, an$ in =eepin' 9ith the Co#rtGs $#t!, #n$er the /.08 Constit#tion, to $eter&ine 9hether or not the other -ranches of 'overn&ent have =ept the&se ves 9ithin the i&its of the Constit#tion an$ the a9s an$ that the! have not a-#se$ the $iscretion 'iven to the&, the Co#rt has -r#she$ asi$e technica ities of proce$#re an$ has ta=en co'ni3ance of these petitions. J In$ee$, in this case, the Co#rt &a! set asi$e proce$#ra r# es as the constit#tiona

ri'ht of s#ffra'e of a consi$era- e n#&-er of 4i ipinos is invo ve$. The :#estion of propriet! of the instant petition 9hich &a! appear to -e visite$ -! the vice of pre&at#rit! as there are no on'oin' procee$in's in an! tri-#na , -oar$ or -efore a 'overn&ent officia e"ercisin' ,#$icia , :#asi*,#$icia or &inisteria f#nctions as re:#ire$ -! R# e J5 of the R# es of Co#rt, $i&s in i'ht of the i&portance of the constit#tiona iss#es raise$ -! the petitioner. In TaMa$a vs. An'ara, 8 the Co#rt he $F In see=in' to n# if! an act of the (hi ippine Senate on the 'ro#n$ that it contravenes the Constit#tion, the petition no $o#-t raises a ,#sticia- e controvers!. Ahere an action of the e'is ative -ranch is serio#s ! a e'e$ to have infrin'e$ the Constit#tion, it -eco&es not on ! the ri'ht -#t in fact the $#t! of the ,#$iciar! to sett e the $isp#te. 1The :#estion th#s pose$ is ,#$icia rather than po itica . The $#t! 6to a$,#$icate7 re&ains to ass#re that the s#pre&ac! of the Constit#tion is #phe $.1 Once a 1controvers! as to the app ication or interpretation of constit#tiona provision is raise$ -efore this Co#rt 6as in the instant case7, it -eco&es a e'a iss#e 9hich the Co#rt is -o#n$ -! constit#tiona &an$ate to $eci$e.1 In another case of para&o#nt i&pact to the 4i ipino peop e, it has -een e"presse$ that it is i o'ica to a9ait the a$verse conse:#ences of the a9 in or$er to consi$er the controvers! act#a an$ ripe for ,#$icia reso #tion. 0 In !et another case, the Co#rt sai$ thatF . . . $espite the inhi-itions pressin' #pon the Co#rt 9hen confronte$ 9ith constit#tiona iss#es, it 9i not hesitate to $ec are a a9 or act inva i$ 9hen it is convince$ that this &#st -e $one. In arrivin' at this conc #sion, its on ! criterion 9i -e the Constit#tion an$ Bo$ as its conscience 'ives it in the i'ht to pro-e its &eanin' an$ $iscover its p#rpose. (ersona &otives an$ po itica consi$erations are irre evancies that cannot inf #ence its $ecisions. B an$ish&ent is as ineffect#a as inti&i$ation, for a the a9eso&e po9er of the Con'ress an$ E"ec#tive, the Co#rt 9i not hesitate 1to &a=e the ha&&er fa heavi !,1 9here the acts of these $epart&ents, or of an! officia , -etra! the peop eGs 9i as e"presse$ in the Constit#tion . . . . The nee$ to consi$er the constit#tiona iss#es raise$ -efore the Co#rt is f#rther -#ttresse$ -! the fact that it is no9 &ore than fifteen !ears since the ratification of the /.08 Constit#tion re:#irin' Con'ress to provi$e a s!ste& for a-sentee votin' -! :#a ifie$ 4i ipinos a-roa$. Th#s, stron' reasons of p#- ic po ic! $e&an$ that the Co#rt reso ves the instant petition /@ an$ $eter&ine 9hether Con'ress has acte$ 9ithin the i&its of the Constit#tion or if it ha$ 'rave ! a-#se$ the $iscretion entr#ste$ to it. // The petitioner raises three principa :#estionsF A. %oes Section 56$7 of Rep. Act No. ./0. a o9in' the re'istration of voters 9ho are i&&i'rants or per&anent resi$ents in other co#ntries -! their &ere act of e"ec#tin' an affi$avit e"pressin' their intention to ret#rn to the (hi ippines, vio ate

the resi$enc! re:#ire&ent in Section / of Artic e 2 of the Constit#tionK B. %oes Section /0.5 of the sa&e a9 e&po9erin' the COMELEC to proc ai& the 9innin' can$i$ates for nationa offices an$ part! ist representatives inc #$in' the (resi$ent an$ the 2ice*(resi$ent vio ate the constit#tiona &an$ate #n$er Section >, Artic e 2II of the Constit#tion that the 9innin' can$i$ates for (resi$ent an$ the 2ice* (resi$ent sha -e proc ai&e$ as 9inners -! Con'ressK C. Ma! Con'ress, thro#'h the +oint Con'ressiona Oversi'ht Co&&ittee create$ in Section ;5 of Rep. Act No. ./0., e"ercise the po9er to revie9, revise, a&en$, an$ approve the I&p e&entin' R# es an$ Re'# ations that the Co&&ission on E ections sha pro&# 'ate 9itho#t vio atin' the in$epen$ence of the COMELEC #n$er Section /, Artic e IH*A of the Constit#tionK The Co#rt 9i reso ve the :#estions in seriati&. A. %oes Section 56$7 of Rep. Act No. ./0. vio ate Section /, Artic e 2 of the /.08 Constit#tion of the Rep#- ic of the (hi ippinesK Section 56$7 provi$esF Sec. 5. %is:#a ifications. D The fo o9in' sha -e $is:#a ifie$ fro& votin' #n$er this ActF """ """ """ $7 An i&&i'rant or a per&anent resi$ent 9ho is reco'ni3e$ as s#ch in the host co#ntr!, #n ess heIshe e"ec#tes, #pon re'istration, an affi$avit prepare$ for the p#rpose -! the Co&&ission $ec arin' that heIshe sha res#&e act#a ph!sica per&anent resi$ence in the (hi ippines not ater than three 6?7 !ears fro& approva of hisIher re'istration #n$er this Act. S#ch affi$avit sha a so state that heIshe has not app ie$ for citi3enship in another co#ntr!. 4ai #re to ret#rn sha -e ca#se for the re&ova of the na&e of the i&&i'rant or per&anent resi$ent fro& the Nationa Re'istr! of A-sentee 2oters an$ hisIher per&anent $is:#a ification to vote in a-sentia. (etitioner posits that Section 56$7 is #nconstit#tiona -eca#se it vio ates Section /, Artic e 2 of the /.08 Constit#tion 9hich re:#ires that the voter &#st -e a resi$ent in the (hi ippines for at east one !ear an$ in the p ace 9here he proposes to vote for at east si" &onths i&&e$iate ! prece$in' an e ection. (etitioner cites the r# in' of the Co#rt in Caasi vs. Co#rt of Appea s /; to s#pport his c ai&. In that case, the Co#rt he $ that a 1'reen car$1 ho $er i&&i'rant to the Unite$ States is $ee&e$ to have a-an$one$ his $o&ici e an$ resi$ence in the (hi ippines. (etitioner f#rther ar'#es that Section /, Artic e 2 of the Constit#tion $oes not a o9 provisiona re'istration or a pro&ise -! a voter to perfor& a con$ition to -e :#a ifie$ to vote in a po itica e"ercise< /? that the e'is at#re sho# $ not -e a o9e$ to circ#&vent the re:#ire&ent of the Constit#tion on the ri'ht of s#ffra'e -! provi$in' a con$ition thereon 9hich in effect a&en$s or a ters the aforesai$ resi$ence re:#ire&ent

to :#a if! a 4i ipino a-roa$ to vote. /> He c ai&s that the ri'ht of s#ffra'e sho# $ not -e 'rante$ to an!one 9ho, on the $ate of the e ection, $oes not possess the :#a ifications provi$e$ for -! Section /, Artic e 2 of the Constit#tion. Respon$ent COMELEC refraine$ fro& co&&entin' on this iss#e. /5 In co&p iance 9ith the Reso #tion of the Co#rt, the So icitor Benera fi e$ his co&&ent for a p#- ic respon$ents. He contraposes that the constit#tiona cha en'e to Section 56$7 &#st fai -eca#se of the a-sence of c ear an$ #n&ista=a- e sho9in' that sai$ provision of a9 is rep#'nant to the Constit#tion. He stressesF A a9s are pres#&e$ to -e constit#tiona < -! the $octrine of separation of po9ers, a $epart&ent of 'overn&ent o9es a -eco&in' respect for the acts of the other t9o $epart&ents< a a9s are pres#&e$ to have a$here$ to constit#tiona i&itations< the e'is at#re inten$e$ to enact a va i$, sensi- e, an$ ,#st a9. In a$$ition, the So icitor Benera points o#t that Section /, Artic e 2 of the Constit#tion is a ver-ati& repro$#ction of those provi$e$ for in the /.?5 an$ the /.8? Constit#tions. Th#s, he cites Co vs. E ectora Tri-#na of the Ho#se of Representatives /J 9herein the Co#rt he $ that the ter& 1resi$ence1 has -een #n$erstoo$ to -e s!non!&o#s 9ith 1$o&ici e1 #n$er -oth Constit#tions. He f#rther ar'#es that a person can have on ! one 1$o&ici e1 -#t he can have t9o resi$ences, one per&anent 6the $o&ici e7 an$ the other te&porar!< /8 an$ that the $efinition an$ &eanin' 'iven to the ter& resi$ence i=e9ise app ies to a-sentee voters. Invo=in' Ro&#a $e3*Marcos vs. COMELEC /0 9hich reiterates the Co#rtGs r# in' in 4a!pon vs. )#irino, /. the So icitor Benera &aintains that 4i ipinos 9ho are i&&i'rants or per&anent resi$ents a-roa$ &a! have in fact never a-an$one$ their (hi ippine $o&ici e. ;@ Ta=in' iss#e 9ith the petitionerGs contention that 1'reen car$1 ho $ers are consi$ere$ to have a-an$one$ their (hi ippine $o&ici e, the So icitor Benera s#''ests that the Co#rt &a! have to $iscar$ its r# in' in Caasi vs. Co#rt of Appea s ;/ in so far as it re ates to i&&i'rants an$ per&anent resi$ents in forei'n co#ntries 9ho have e"ec#te$ an$ s#-&itte$ their affi$avits confor&a- ! 9ith Section 56$7 of R.A. No. ./0.. He &aintains that thro#'h the e"ec#tion of the re:#isite affi$avits, the Con'ress of the (hi ippines 9ith the conc#rrence of the (resi$ent of the Rep#- ic ha$ in fact 'iven these i&&i'rants an$ per&anent resi$ents the opport#nit!, p#rs#ant to Section ;, Artic e 2 of the Constit#tion, to &anifest that the! ha$ in fact never a-an$one$ their (hi ippine $o&ici e< that in$#-ita- !, the! 9o# $ have for&a ! an$ cate'orica ! e"presse$ the re:#isite intentions, i.e., 1ani&#s &anen$i1 an$ 1ani&#s reverten$i1< that 4i ipino i&&i'rants an$ per&anent resi$ents a-roa$ possess the #n:#estiona- e ri'ht to e"ercise the ri'ht of s#ffra'e #n$er Section /, Artic e 2 of the Constit#tion #pon approva of their re'istration, confor&a- ! 9ith R.A. No. ./0.. ;; The see$ of the present controvers! is the interpretation that is 'iven to the phrase, 1:#a ifie$ citi3ens of the (hi ippines a-roa$1 as it appears in R.A. No. ./0., to 9itF

SEC. ;. %ec aration of (o ic!. D It is the pri&e $#t! of the State to provi$e a s!ste& of honest an$ or$er ! overseas a-sentee votin' that #pho $s the secrec! an$ sanctit! of the -a ot. To9ar$s this en$, the State ens#res e:#a opport#nit! to a :#a ifie$ citi3ens of the (hi ippines a-roa$ in the e"ercise of this f#n$a&enta ri'ht. SEC. ?. %efinition of Ter&s. D 4or p#rposes of this ActF a7 1A-sentee 2otin'1 refers to the process -! 9hich :#a ifie$ citi3ens of the (hi ippines a-roa$, e"ercise their ri'ht to vote< . . . 6Ita ics s#pp ie$7 f7 1Overseas A-sentee 2oter1 refers to a citi3en of the (hi ippines 9ho is :#a ifie$ to re'ister an$ vote #n$er this Act, not other9ise $is:#a ifie$ -! a9, 9ho is a-roa$ on the $a! of e ections. 6Ita ics s#pp ie$7 SEC. >. Covera'e. D A citi3ens of the (hi ippines a-roa$, 9ho are not other9ise $is:#a ifie$ -! a9, at east ei'hteen 6/07 !ears of a'e on the $a! of e ections, &a! vote for presi$ent, vice*presi$ent, senators an$ part!* ist representatives. 6Ita ics s#pp ie$7 in re ation to Sections / an$ ;, Artic e 2 of the Constit#tion 9hich rea$F SEC. /. S#ffra'e &a! -e e"ercise$ -! a citi3ens of the (hi ippines not other9ise $is:#a ifie$ -! a9, 9ho are at east ei'hteen !ears of a'e, an$ 9ho sha have resi$e$ in the (hi ippines for at east one !ear an$ in the p ace 9herein the! propose to vote for at east si" &onths i&&e$iate ! prece$in' the e ection. No iterac!, propert!, or other s#-stantive re:#ire&ent sha -e i&pose$ on the e"ercise of s#ffra'e. SEC. ;. The Con'ress sha provi$e a s!ste& for sec#rin' the secrec! an$ sanctit! of the -a ot as 9e as a s!ste& for a-sentee votin' -! :#a ifie$ 4i ipinos a-roa$. . . . 6Ita ics s#pp ie$7 Section /, Artic e 2 of the Constit#tion specifica ! provi$es that s#ffra'e &a! -e e"ercise$ -! 6/7 a citi3ens of the (hi ippines, 6;7 not other9ise $is:#a ifie$ -! a9, 6?7 at east ei'hteen !ears of a'e, 6>7 9ho are resi$ents in the (hi ippines for at east one !ear an$ in the p ace 9here the! propose to vote for at east si" &onths i&&e$iate ! prece$in' the e ection. Un$er Section 56$7 of R.A. No. ./0., one of those $is:#a ifie$ fro& votin' is an i&&i'rant or per&anent resi$ent 9ho is reco'ni3e$ as s#ch in the host co#ntr! #n ess heIshe e"ec#tes an affi$avit $ec arin' that heIshe sha res#&e act#a ph!sica per&anent resi$ence in the (hi ippines not ater than three !ears fro& approva of hisIher re'istration #n$er sai$ Act. (etitioner :#estions the ri'htness of the &ere act of e"ec#tion of an affi$avit to :#a if! the 4i ipinos a-roa$ 9ho are i&&i'rants or per&anent resi$ents, to vote. He foc#ses so e ! on Section /, Artic e 2 of the Constit#tion in ascri-in' constit#tiona infir&it! to Section 56$7 of R.A. No. ./0., tota ! i'norin' the provisions of Section ; e&po9erin' Con'ress to provi$e a s!ste& for a-sentee votin' -! :#a ifie$ 4i ipinos

a-roa$. A si&p e, c#rsor! rea$in' of Section 56$7 of R.A. No. ./0. &a! in$ee$ 'ive the i&pression that it contravenes Section /, Artic e 2 of the Constit#tion. 4i ipino i&&i'rants an$ per&anent resi$ents overseas are perceive$ as havin' eft an$ a-an$one$ the (hi ippines to ive per&anent ! in their host co#ntries an$ therefore, a provision in the a9 enfranchisin' those 9ho $o not possess the resi$enc! re:#ire&ent of the Constit#tion -! the &ere act of e"ec#tin' an affi$avit e"pressin' their intent to ret#rn to the (hi ippines 9ithin a 'iven perio$, ris=s a $ec aration of #nconstit#tiona it!. Ho9ever, the ris= is &ore apparent than rea . The Constit#tion is the f#n$a&enta an$ para&o#nt a9 of the nation to 9hich a other a9s &#st confor& an$ in accor$ance 9ith 9hich a private ri'hts &#st -e $eter&ine$ an$ a p#- ic a#thorit! a$&inistere$. ;? La9s that $o not confor& to the Constit#tion sha -e stric=en $o9n for -ein' #nconstit#tiona . HcTEaA Benera !, ho9ever, a a9s are pres#&e$ to -e constit#tiona . In (era ta vs. COMELEC, the Co#rt sai$F . . . An act of the e'is at#re, approve$ -! the e"ec#tive, is pres#&e$ to -e 9ithin constit#tiona i&itations. The responsi-i it! of #pho $in' the Constit#tion rests not on the co#rts a one -#t on the e'is at#re as 9e . The :#estion of the va i$it! of ever! stat#te is first $eter&ine$ -! the e'is ative $epart&ent of the 'overn&ent itse f. ;> Th#s, pres#&ption of constit#tiona it! of a a9 &#st -e overco&e convincin' !F . . . To $ec are a a9 #nconstit#tiona , the rep#'nanc! of that a9 to the Constit#tion &#st -e c ear an$ #ne:#ivoca , for even if a a9 is ai&e$ at the attain&ent of so&e p#- ic 'oo$, no infrin'e&ent of constit#tiona ri'hts is a o9e$. To stri=e $o9n a a9 there &#st -e a c ear sho9in' that 9hat the f#n$a&enta a9 con$e&ns or prohi-its, the stat#te a o9s it to -e $one. ;5 As the essence of R.A. No. ./0. is to enfranchise overseas :#a ifie$ 4i ipinos, it -ehooves the Co#rt to ta=e a ho istic vie9 of the pertinent provisions of -oth the Constit#tion an$ R.A. No. ./0.. It is a -asic r# e in constit#tiona constr#ction that the Constit#tion sho# $ -e constr#e$ as a 9ho e. In Chion'-ian vs. %e Leon, ;J the Co#rt he $ that a constit#tiona provision sho# $ f#nction to the f# e"tent of its s#-stance an$ its ter&s, not -! itse f a one, -#t in con,#nction 9ith a other provisions of that 'reat $oc#&ent. Constit#tiona provisions are &an$ator! in character #n ess, either -! e"press state&ent or -! necessar! i&p ication, a $ifferent intention is &anifest. ;8 The intent of the Constit#tion &a! -e $ra9n pri&ari ! fro& the an'#a'e of the $oc#&ent itse f. Sho# $ it -e a&-i'#o#s, the Co#rt &a! consi$er the intent of its fra&ers thro#'h their $e-ates in the constit#tiona convention. ;0 R.A. No. ./0. 9as enacte$ in o-eisance to the &an$ate of the first para'raph of Section ;, Artic e 2 of the Constit#tion that Con'ress sha provi$e a s!ste& for votin' -! :#a ifie$ 4i ipinos a-roa$. It &#st -e stresse$ that Section ; $oes not

provi$e for the para&eters of the e"ercise of e'is ative a#thorit! in enactin' sai$ a9. Hence, in the a-sence of restrictions, Con'ress is pres#&e$ to have $# ! e"ercise$ its f#nction as $efine$ in Artic e 2I 6The Le'is ative %epart&ent7 of the Constit#tion. To p#t &atters in their ri'ht perspective, it is necessar! to $9e first on the si'nificance of a-sentee votin'. The concept of a-sentee votin' is re ative ! ne9. It is vie9e$ th#sF The &etho$ of a-sentee votin' has -een sai$ to -e co&p ete ! separa- e an$ $istinct fro& the re'# ar s!ste& of votin', an$ to -e a ne9 an$ $ifferent &anner of votin' fro& that previo#s ! =no9n, an$ an e"ception to the c#sto&ar! an$ #s#a &anner of votin'. The ri'ht of a-sentee an$ $isa- e$ voters to cast their -a ots at an e ection is p#re ! stat#tor!< a-sentee votin' 9as #n=no9n to, an$ not reco'ni3e$ at, the co&&on a9. A-sentee votin' is an o#t'ro9th of &o$ern socia an$ econo&ic con$itions $evise$ to acco&&o$ate those en'a'e$ in &i itar! or civi ife 9hose $#ties &a=e it i&practica- e for the& to atten$ their po in' p aces on the $a! of e ection, an$ the privi e'e of a-sentee votin' &a! f o9 fro& constit#tiona provisions or -e conferre$ -! stat#tes, e"istin' in so&e ,#ris$ictions, 9hich provi$e in var!in' ter&s for the castin' an$ reception of -a ots -! so $iers an$ sai ors or other :#a ifie$ voters a-sent on e ection $a! fro& the $istrict or precinct of their resi$ence. S#ch stat#tes are re'ar$e$ as conferrin' a privi e'e an$ not a ri'ht, or an a-so #te ri'ht. Ahen the e'is at#re chooses to 'rant the ri'ht -! stat#te, it &#st operate 9ith e:#a it! a&on' a the c ass to 9hich it is 'rante$< -#t stat#tes of this nat#re &a! -e i&ite$ in their app ication to partic# ar t!pes of e ections. The stat#tes sho# $ -e constr#e$ in the i'ht of an! constit#tiona provisions affectin' re'istration an$ e ections, an$ 9ith $#e re'ar$ to their te"ts prior to a&en$&ent an$ to pre$ecessor stat#tes an$ the $ecisions there#n$er< the! sho# $ a so -e constr#e$ in the i'ht of the circ#&stances #n$er 9hich the! 9ere enacte$< an$ so as to carr! o#t the o-,ects thereof, if this can -e $one 9itho#t $oin' vio ence to their provisions an$ &an$ates. 4#rther, in passin' on stat#tes re'# atin' a-sentee votin', the co#rt sho# $ oo= to the 9ho e an$ ever! part of the e ection a9s, the intent of the entire p an, an$ reasons an$ spirit of their a$option, an$ tr! to 'ive effect to ever! portion thereof. ;. 6Ita ics s#pp ie$7 Or$inari !, an a-sentee is not a resi$ent an$ vice versa< a person cannot -e at the sa&e ti&e, -oth a resi$ent an$ an a-sentee. ?@ Ho9ever, #n$er o#r e ection a9s an$ the co#nt ess prono#nce&ents of the Co#rt pertainin' to e ections, an a-sentee re&ains attache$ to his resi$ence in the (hi ippines as resi$ence is consi$ere$ s!non!&o#s 9ith $o&ici e. In Ro&#a $e3*Marcos, ?/ the Co#rt en#nciate$F Artic e 5@ of the Civi Co$e $ecrees that 1NfOor the e"ercise of civi ri'hts an$ the

f# fi &ent of civi o- i'ations, the $o&ici e of nat#ra persons is their p ace of ha-it#a resi$ence.1 In On' vs. Rep#- ic, this co#rt too= the concept of $o&ici e to &ean an in$ivi$#a Gs 1per&anent ho&e,1 1a p ace to 9hich, 9henever a-sent for -#siness or for p eas#re, one inten$s to ret#rn, an$ $epen$s on facts an$ circ#&stances in the sense that the! $isc ose intent.1 Base$ on the fore'oin', $o&ici e inc #$es the t9in e e&ents of 1the fact of resi$in' or ph!sica presence in a fi"e$ p ace1 an$ ani&#s &anen$i, or the intention of ret#rnin' there per&anent !. Resi$ence, in its or$inar! conception, i&p ies the fact#a re ationship of an in$ivi$#a to a certain p ace. It is the ph!sica presence of a person in a 'iven area, co&&#nit! or co#ntr!. The essentia $istinction -et9een resi$ence an$ $o&ici e in a9 is that resi$ence invo ves the intent to eave 9hen the p#rpose for 9hich the resi$ent has ta=en #p his a-o$e en$s. One &a! see= a p ace for p#rposes s#ch as p eas#re, -#siness, or hea th. If a personGs intent -e to re&ain, it -eco&es his $o&ici e< if his intent is to eave as soon as his p#rpose is esta- ishe$ it is resi$ence. It is th#s, :#ite perfect ! nor&a for an in$ivi$#a to have $ifferent resi$ences in vario#s p aces. Ho9ever, a person can on ! have a sin' e $o&ici e, #n ess, for vario#s reasons, he s#ccessf# ! a-an$ons his $o&ici e in favor of another $o&ici e of choice. In U!ten's# vs. Rep#- ic, 9e ai$ this $istinction :#ite c ear !F 1There is a $ifference -et9een $o&ici e an$ resi$ence. GResi$enceG is #se$ to in$icate a p ace of a-o$e, 9hether per&anent or te&porar!< G$o&ici eG $enotes a fi"e$ per&anent resi$ence to 9hich, 9hen a-sent, one has the intention of ret#rnin'. A &an &a! have a resi$ence in one p ace an$ a $o&ici e in another. Resi$ence is not $o&ici e, -#t $o&ici e is resi$ence co#p e$ 9ith the intention to re&ain for an #n i&ite$ ti&e. A &an can have -#t one $o&ici e for the sa&e p#rpose at an! ti&e, -#t he &a! have n#&ero#s p aces of resi$ence. His p ace of resi$ence is 'enera ! his p ace of $o&ici e, -#t it is not -! an! &eans necessari ! so since no en'th of resi$ence 9itho#t intention of re&ainin' 9i constit#te $o&ici e.1 4or po itica p#rposes the concepts of resi$ence an$ $o&ici e are $ictate$ -! the pec# iar criteria of po itica a9s. As these concepts have evo ve$ in o#r e ection a9, 9hat has c ear ! an$ #ne:#ivoca ! e&er'e$ is the fact that resi$ence for e ection p#rposes is #se$ s!non!&o#s ! 9ith $o&ici e. ?; 6E&phasis an$ ita ics s#pp ie$7 A9are of the $o&ici iar! e'a tie that in=s an overseas 4i ipino to his resi$ence in this co#ntr!, the fra&ers of the Constit#tion consi$ere$ the circ#&stances that i&pe e$ the& to re:#ire Con'ress to esta- ish a s!ste& for overseas a-sentee votin', th#sF MR. O(LE. Aith respect to Section /, it is not c ear 9hether the ri'ht of s#ffra'e, 9hich here has a resi$entia restriction, is not $enie$ to citi3ens te&porari ! resi$in' or 9or=in' a-roa$. Base$ on the statistics of severa 'overn&ent a'encies, there o#'ht to -e a-o#t t9o &i ion s#ch 4i ipinos at this ti&e. Co&&issioner Bernas ha$ ear ier pointe$ o#t that these provisions are rea ! ifte$ fro& the t9o previo#s

Constit#tions of /.?5 an$ /.8?, 9ith the e"ception of the ast para'raph. The! co# $ not therefore have foreseen at that ti&e the pheno&enon no9 $escri-e$ as the 4i ipino a-or force e"p osion overseas. Accor$in' to 'overn&ent $ata, there are no9 a-o#t J@@,@@@ contract 9or=ers an$ e&p o!ees, an$ a tho#'h the &a,or portions of these e"patriate co&&#nities of 9or=ers are to -e fo#n$ in the Mi$$ e East, the! are scattere$ in /88 co#ntries in the 9or $. In a previo#s hearin' of the Co&&ittee on Constit#tiona Co&&issions an$ A'encies, the Chair&an of the Co&&ission on E ections, Ra&on 4e ipe, sai$ that there 9as no ins#pera- e o-stac e to &a=in' effective the ri'ht of s#ffra'e for 4i ipinos overseas. Those 9ho have a$here$ to their 4i ipino citi3enship not9ithstan$in' stron' te&ptations are e"pose$ to e&-race a &ore convenient forei'n citi3enship. An$ those 9ho on their o9n or #n$er press#re of econo&ic necessit! here, fin$ that the! have to $etach the&se ves fro& their fa&i ies to 9or= in other co#ntries 9ith $efinite ten#res of e&p o!&ent. Man! of the& are on contract e&p o!&ent for one, t9o, or three !ears. The! have no intention of chan'in' their resi$ence on a per&anent -asis, -#t are technica ! $is:#a ifie$ fro& e"ercisin' the ri'ht of s#ffra'e in their co#ntries of $estination -! the resi$entia re:#ire&ent in Section / 9hich sa!sF S#ffra'e sha -e e"ercise$ -! a citi3ens of the (hi ippines not other9ise $is:#a ifie$ -! a9, 9ho are ei'hteen !ears of a'e or over, an$ 9ho sha have resi$e$ in the (hi ippines for at east one !ear an$ in the p ace 9herein the! propose to vote for at east si" &onths prece$in' the e ection. I, therefore, as= the Co&&ittee 9hether at the proper ti&e the! &i'ht entertain an a&en$&ent that 9i &a=e this e"ercise of the ri'ht to vote a-roa$ for 4i ipino citi3ens an effective, rather than &ere ! a no&ina ri'ht #n$er this propose$ Constit#tion. 4R. BERNAS. Certain !, the Co&&ittee 9i consi$er that. B#t &ore than ,#st sa!in' that, I 9o# $ i=e to &a=e a co&&ent on the &eanin' of 1resi$ence1 in the Constit#tion -eca#se I thin= it is a concept that has -een $isc#sse$ in vario#s $ecisions of the S#pre&e Co#rt, partic# ar ! in the case of 4a!pon vs. )#irino, a /.5> case 9hich $ea t precise ! 9ith the &eanin' of 1resi$ence1 in the E ection La9. A o9 &e to :#oteF A citi3en &a! eave the p ace of his -irth to oo= for 'reener past#res, as the sa!in' 'oes, to i&prove his ot an$ that, of co#rse, inc #$es st#$! in other p aces, practice of his avocation, reen'a'in' in -#siness. Ahen an e ection is to -e he $, the citi3en 9ho eft his -irthp ace to i&prove his ot &a! $eci$e to ret#rn to his native to9n, to cast his -a ot, -#t for professiona or -#siness reasons, or for an! other reason, he &a! not a-sent hi&se f fro& the p ace of his professiona or -#siness activities. So, the! are here re'istere$ as voters as he has the :#a ifications to -e one, an$ is not

9i in' to 'ive #p or ose the opport#nit! to choose the officia s 9ho are to r#n the 'overn&ent especia ! in nationa e ections. %espite s#ch re'istration, the ani&#s reverten$i to his ho&e, to his $o&ici e or resi$ence of ori'in has not forsa=en hi&. This &a! -e the e"p anation 9h! the re'istration of a voter in a p ace other than his resi$ence of ori'in has not -een $ee&e$ s#fficient to consi$er a-an$on&ent or oss of s#ch resi$ence of ori'in. In other 9or$s, 1resi$ence1 in this provision refers to t9o resi$ence :#a ificationsF 1resi$ence1 in the (hi ippines an$ 1resi$ence1 in the p ace 9here he 9i vote. As far as resi$ence in the (hi ippines is concerne$, the 9or$ 1resi$ence1 &eans $o&ici e, -#t as far as resi$ence in the p ace 9here he 9i act#a ! cast his -a ot is concerne$, the &eanin' see&s to -e $ifferent. He co# $ have a $o&ici e so&e9here e se an$ !et he is a resi$ent of a p ace for si" &onths an$ he is a o9e$ to vote there. So that there &a! -e serio#s constit#tiona o-stac es to a-sentee votin', #n ess the vote of the person 9ho is a-sent is a vote 9hich 9i -e consi$ere$ as cast in the p ace of his $o&ici e. MR. O(LE. Than= !o# for citin' the ,#rispr#$ence. It 'ives &e scant co&fort thin=in' of a-o#t t9o &i ion 4i ipinos 9ho sho# $ en,o! the ri'ht of s#ffra'e, at east a s#-stantia se'&ent of these overseas 4i ipino co&&#nities. The Co&&ittee, of co#rse, is a9are that 9hen this Artic e of the Constit#tion e"p icit ! an$ #ne:#ivoca ! e"ten$s the ri'ht of effective s#ffra'e to 4i ipinos a-roa$, this 9i ca for a o'istica e"ercise of ' o-a proportions. In effect, this 9i re:#ire -#$'etar! an$ a$&inistrative co&&it&ents on the part of the (hi ippine 'overn&ent, &ain ! thro#'h the COMELEC an$ the Ministr! of 4orei'n Affairs, an$ perhaps, a &ore e"tensive e a-oration of this &echanis& that 9i -e p#t in p ace to &a=e effective the ri'ht to vote. Therefore, see=in' she ter in so&e 9ise ,#rispr#$ence of the past &a! not -e s#fficient to &eet the $e&an$s of the ri'ht of s#ffra'e for 4i ipinos a-roa$ that I have &entione$. B#t I 9ant to than= the Co&&ittee for sa!in' that an a&en$&ent to this effect &a! -e entertaine$ at the proper ti&e. . . . ?? 6E&phasis an$ Ita ics S#pp ie$7 Th#s, the Constit#tiona Co&&ission reco'ni3e$ the fact that 9hi e &i ions of 4i ipinos resi$e a-roa$ principa ! for econo&ic reasons an$ hence the! contri-#te in no s&a &eas#re to the econo&ic #p ift of this co#ntr!, their voices are &ar'ina insofar as the choice of this co#ntr!Gs ea$ers is concerne$. The Constit#tiona Co&&ission rea i3e$ that #n$er the a9s then e"istin' an$ consi$erin' the nove t! of the s!ste& of a-sentee votin' in this ,#ris$iction, vestin' overseas 4i ipinos 9ith the ri'ht to vote 9o# $ spa9n constit#tiona pro- e&s especia ! -eca#se the Constit#tion itse f provi$es for the resi$enc! re:#ire&ent of votersF MR. REBALA%O. Before I act on that, &a! I in:#ire fro& Co&&issioner Monso$ if

the ter& 1a-sentee votin'1 a so inc #$es transient votin'< &eanin', those 9ho are, et #s sa!, st#$!in' in Mani a nee$ not 'o -ac= to their p aces of re'istration, for instance, in Min$anao, to cast their votes. MR. MONSO%. I thin= o#r provision is for a-sentee votin' -! 4i ipinos a-roa$. MR. REBALA%O. Ho9 a-o#t those peop e 9ho cannot 'o -ac= to the p aces 9here the! are re'istere$K MR. MONSO%. Un$er the present E ection Co$e, there are provisions for a o9in' st#$ents an$ &i itar! peop e 9ho are te&porari ! in another p ace to re'ister an$ vote. I -e ieve that those sit#ations can -e covere$ -! the O&ni-#s E ection Co$e. The reason 9e 9ant a-sentee votin' to -e in the Constit#tion as a &an$ate to the e'is at#re is that there co# $ -e inconsistenc! on the resi$ence r# e if it is ,#st a :#estion of e'is ation -! Con'ress. So, -! a o9in' it an$ sa!in' that this is possi- e, then e'is ation can ta=e care of the rest. ?> 6E&phasis an$ Ita ics s#pp ie$7 Th#s, Section ;, Artic e 2 of the Constit#tion ca&e into -ein' to re&ove an! $o#-t as to the inapp ica-i it! of the resi$enc! re:#ire&ent in Section /. It is precise ! to avoi$ an! pro- e&s that co# $ i&pe$e the i&p e&entation of its p#rs#it to enfranchise the ar'est n#&-er of :#a ifie$ 4i ipinos 9ho are not in the (hi ippines that the Constit#tiona Co&&ission e"p icit ! &an$ate$ Con'ress to provi$e a s!ste& for overseas a-sentee votin'. The $isc#ssion of the Constit#tiona Co&&ission on the effect of the resi$enc! re:#ire&ent prescri-e$ -! Section /, Artic e 2 of the Constit#tion on the propose$ s!ste& of a-sentee votin' for :#a ifie$ 4i ipinos a-roa$ is en i'htenin'F MR. SUAREC. Ma! I ,#st -e reco'ni3e$ for a c arification. There are certain :#a ifications for the e"ercise of the ri'ht of s#ffra'e i=e havin' resi$e$ in the (hi ippines for at east one !ear an$ in the p ace 9here the! propose to vote for at east si" &onths prece$in' the e ections. Ahat is the effect of these &an$ator! re:#ire&ents on the &atter of the e"ercise of the ri'ht of s#ffra'e -! the a-sentee voters i=e 4i ipinos a-roa$K THE (RESI%ENT. Ao# $ Co&&issioner Monso$ care to ans9erK MR. MONSO%. I -e ieve the ans9er 9as a rea$! 'iven -! Co&&issioner Bernas, that the $o&ici e re:#ire&ents as 9e as the :#a ifications an$ $is:#a ifications 9o# $ -e the sa&e. THE (RESI%ENT. Are 9e eavin' it to the e'is at#re to $evise the s!ste&K 4R. BERNAS. I thin= there is a ver! e'iti&ate pro- e& raise$ there. THE (RESI%ENT. Yes. MR. BENBCON. I -e ieve Co&&issioner S#are3 is c arifie$. 4R. BERNAS. B#t I thin= it sho# $ -e f#rther c arifie$ 9ith re'ar$ to the resi$ence

re:#ire&ent or the p ace 9here the! vote in practice< the #n$erstan$in' is that it is f e"i- e. 4or instance, one &i'ht -e a resi$ent of Na'a or $o&ici e$ therein, -#t he satisfies the re:#ire&ent of resi$ence in Mani a, so he is a- e to vote in Mani a. MR. TINBSON. Ma$a& (resi$ent, &a! I then s#''est to the Co&&ittee to chan'e the 9or$ 14i ipinos1 to )UALI4IE% 4ILI(INO 2OTERS. Instea$ of 12OTINB BY 4ILI(INOS ABROA%,1 it sho# $ -e )UALI4IE% 4ILI(INO 2OTERS. If the Co&&ittee 9ants )UALI4IE% 2OTERS LI2INB ABROA%, 9o# $ that not satisf! the re:#ire&entK THE (RESI%ENT. Ahat $oes Co&&issioner Monso$ sa!K MR. MONSO%. Ma$a& (resi$ent, I thin= I 9o# $ accept the phrase 1)UALI4IE% 4ILI(INOS ABROA%1 -eca#se 1)UALI4IE%1 9o# $ ass#&e that he has the :#a ifications an$ none of the $is:#a ifications to vote. MR. TINBSON. That is ri'ht. So $oes the Co&&ittee acceptK 4R. BERNAS. 1)UALI4IE% 4ILI(INOS ABROA%1K THE (RESI%ENT. %oes the Co&&ittee accept the a&en$&entK MR. REBALA%O. Ma$a& (resi$ent. THE (RESI%ENT. Co&&issioner Re'a a$o is reco'ni3e$. MR. REBALA%O. Ahen Co&&issioner Ben'3on as=e$ &e to rea$ &! propose$ a&en$&ent, I specifica ! state$ that the Nationa Asse&- ! sha prescri-e a s!ste& 9hich 9i ena- e :#a ifie$ citi3ens, te&porari ! a-sent fro& the (hi ippines, to vote. Accor$in' to Co&&issioner Monso$, the #se of the phrase 1a-sentee votin'1 a rea$! too= that into acco#nt as its &eanin'. That is referrin' to :#a ifie$ 4i ipino citi3ens te&porari ! a-roa$. MR. MONSO%. Yes, 9e accepte$ that. I 9o# $ i=e to sa! that 9ith respect to re'istration 9e 9i eave it #p to the e'is ative asse&- !, for e"a&p e, to re:#ire 9here the re'istration is. If it is, sa!, &e&-ers of the $ip o&atic corps 9ho &a! -e contin#o#s ! a-roa$ for a on' ti&e, perhaps, there can -e a s!ste& of re'istration in the e&-assies. Ho9ever, 9e $o not i=e to pree&pt the e'is ative asse&- !. THE (RESI%ENT. +#st to c arif!, Co&&issioner Monso$Gs a&en$&ent is on ! to provi$e a s!ste&. MR. MONSO%. Yes. THE (RESI%ENT. The Co&&issioner is not statin' here that he 9ants ne9 :#a ifications for these a-sentee voters. MR. MONSO%. That is ri'ht. The! &#st have the :#a ifications an$ none of the $is:#a ifications. THE (RESI%ENT. It is ,#st to $evise a s!ste& -! 9hich the! can vote.

MR. MONSO%. That is ri'ht, Ma$a& (resi$ent. ?5 6Ita ics s#pp ie$7 C ear ! therefro&, the intent of the Constit#tiona Co&&ission is to entr#st to Con'ress the responsi-i it! of $evisin' a s!ste& of a-sentee votin'. The :#a ifications of voters as state$ in Section / sha re&ain e"cept for the resi$enc! re:#ire&ent. This is in fact the reason 9h! the Constit#tiona Co&&ission opte$ for the ter& :#a ifie$ 4i ipinos a-roa$ 9ith respect to the s!ste& of a-sentee votin' that Con'ress sho# $ $ra9 #p. As stresse$ -! Co&&issioner Monso$, -! the #se of the a$,ective :#a ifie$ 9ith respect to 4i ipinos a-roa$, the ass#&ption is that the! have the 1:#a ifications an$ none of the $is:#a ifications to vote.1 In fine*t#nin' the provision on a-sentee votin', the Constit#tiona Co&&ission $isc#sse$ ho9 the s!ste& sho# $ 9or=F MR. SUAREC. 4or c arification p#rposes, 9e ,#st 9ant to state for the recor$ that in the case of :#a ifie$ 4i ipino citi3ens resi$in' a-roa$ an$ e"ercisin' their ri'ht of s#ffra'e, the! can cast their votes for the can$i$ates in the p ace 9here the! 9ere re'istere$ to vote in the (hi ippines. So as to avoi$ an! co&p ications, for e"a&p e, if the! are re'istere$ in An'e es Cit!, the! co# $ not vote for a &a!or in Na'a Cit!. In other 9or$s, if that :#a ifie$ voter is re'istere$ in An'e es Cit!, then he can vote on ! for the oca an$ nationa can$i$ates in An'e es Cit!. I ,#st 9ant to &a=e that c ear for the recor$. MR. REBALA%O. Ma$a& (resi$ent. THE (RESI%ENT. Ahat $oes Co&&issioner Re'a a$o sa!K MR. REBALA%O. I ,#st 9ant to &a=e a note on the state&ent of Co&&issioner S#are3 that this envisions 4i ipinos resi$in' a-roa$. The #n$erstan$in' in the a&en$&ent is that the 4i ipino is te&porari ! a-roa$. He &a! not -e act#a ! resi$in' a-roa$< he &a! ,#st -e there on a -#siness trip. It ,#st so happens that the $a! -efore the e ections he has to f ! to the Unite$ States, so he co# $ not cast his vote. He is te&porari ! a-roa$, -#t not resi$in' there. He sta!s in a hote for t9o $a!s an$ co&es -ac=. This is not i&ite$ on ! to 4i ipinos te&porari ! resi$in' a-roa$. B#t as on' as he is te&porari ! a-roa$ on the $ate of the e ections, then he can fa 9ithin the prescription of Con'ress in that sit#ation. MR. SUAREC. I than= the Co&&issioner for his f#rther c arification. (recise !, 9e nee$ this c arification on recor$. MR. MONSO%. Ma$a& (resi$ent, to c arif! 9hat 9e &ean -! 1te&porari ! a-roa$,1 it nee$ not -e on ver! short trips. One can -e a-roa$ on a treat! tra$ers visa. Therefore, 9hen 9e ta = a-o#t re'istration, it is possi- e that his resi$ence is in An'e es an$ he 9o# $ -e a- e to vote for the can$i$ates in An'e es, -#t Con'ress or the Asse&- ! &a! provi$e the proce$#re for re'istration, i=e istin' oneGs na&e, in a re'istr! ist in the e&-ass! a-roa$. That is sti possi- e #n$er the s!ste&.

4R. BERNAS. Ma$a& (resi$ent, ,#st one c arification if Co&&issioner Monso$ a'rees 9ith this. S#ppose 9e have a sit#ation of a chi $ of a $ip o&atic officer 9ho reaches the votin' a'e 9hi e ivin' a-roa$ an$ he has never re'istere$ here. Ahere 9i he re'isterK Ai he -e a re'istere$ voter of a certain oca it! in the (hi ippinesK MR. MONSO%. Yes, it is possi- e that the s!ste& 9i ena- e that chi $ to co&p ! 9ith the re'istration re:#ire&ents in an e&-ass! in the Unite$ States an$ his na&e is then entere$ in the officia re'istration -oo= in An'e es Cit!, for instance. 4R. BERNAS. In other 9or$s, he is not a re'istere$ voter of Los An'e es, -#t a re'istere$ voter of a oca it! here. MR. MONSO%. That is ri'ht. He $oes not have to co&e ho&e to the (hi ippines to co&p ! 9ith the re'istration proce$#re here. 4R. BERNAS. So, he $oes not have to co&e ho&e. MR. BENBCON. Ma$a& (resi$ent, the 4 oor Lea$er 9ishes to in:#ire if there are &ore c arifications nee$e$ fro& the -o$!. A so, the 4 oor Lea$er is happ! to anno#nce that there are no &ore re'istere$ Co&&issioners to propose a&en$&ents. So I &ove that 9e c ose the perio$ of a&en$&ents. ?J 6E&phasis an$ Ita ics s#pp ie$7 It is c ear fro& these $isc#ssions of the &e&-ers of the Constit#tiona Co&&ission that the! inten$e$ to enfranchise as &#ch as possi- e a 4i ipino citi3ens a-roa$ 9ho have not a-an$one$ their $o&ici e of ori'in. The Co&&ission even inten$e$ to e"ten$ to !o#n' 4i ipinos 9ho reach votin' a'e a-roa$ 9hose parentsG $o&ici e of ori'in is in the (hi ippines, an$ consi$er the& :#a ifie$ as voters for the first ti&e. It is in p#rs#ance of that intention that the Co&&ission provi$e$ for Section ; i&&e$iate ! after the resi$enc! re:#ire&ent of Section /. B! the $octrine of necessar! i&p ication in stat#tor! constr#ction, 9hich &a! -e app ie$ in constr#in' constit#tiona provisions, ?8 the strate'ic ocation of Section ; in$icates that the Constit#tiona Co&&ission provi$e$ for an e"ception to the act#a resi$enc! re:#ire&ent of Section / 9ith respect to :#a ifie$ 4i ipinos a-roa$. The sa&e Co&&ission has in effect $ec are$ that :#a ifie$ 4i ipinos 9ho are not in the (hi ippines &a! -e a o9e$ to vote even tho#'h the! $o not satisf! the resi$enc! re:#ire&ent in Section /, Artic e 2 of the Constit#tion. That Section ; of Artic e 2 of the Constit#tion is an e"ception to the resi$enc! re:#ire&ent fo#n$ in Section / of the sa&e Artic e 9as in fact the s#-,ect of $e-ate 9hen Senate Bi No. ;/@>, 9hich -eca&e R.A. No. ./0., 9as $e i-erate$ #pon on the Senate f oor, th#sF Senator Arro!o. Mr. (resi$ent, this -i sho# $ -e oo=e$ into in re ation to the constit#tiona provisions. I thin= the sponsor an$ I 9o# $ a'ree that the Constit#tion

is s#pre&e in an! stat#te that 9e &a! enact. Let &e rea$ Section /, Artic e 2, of the Constit#tion entit e$, 1S#ffra'e.1 It sa!sF Section /. S#ffra'e &a! -e e"ercise$ -! a citi3ens of the (hi ippines not other9ise $is:#a ifie$ -! a9, 9ho are at east ei'hteen !ears of a'e, an$ 9ho sha have resi$e$ in the (hi ippines for at east one !ear an$ in the p ace 9herein the! propose to vote for at east si" &onths i&&e$iate ! prece$in' the e ection. No9, Mr. (resi$ent, the Constit#tion sa!s, 19ho sha have resi$e$ in the (hi ippines.1 The! are per&anent i&&i'rants. The! have chan'e$ resi$ence so the! are -arre$ #n$er the Constit#tion. This is 9h! I as=e$ 9hether this co&&ittee a&en$&ent 9hich in fact $oes not a ter the ori'ina te"t of the -i 9i have an! effect on thisK Senator An'ara. Boo$ :#estion, Mr. (resi$ent. An$ this has -een as=e$ in vario#s fora. This is in co&p iance 9ith the Constit#tion. One, the interpretation here of 1resi$ence1 is s!non!&o#s 9ith 1$o&ici e.1 As the 'ent e&an an$ I =no9, Mr. (resi$ent, 1$o&ici e1 is the intent to ret#rn to oneGs ho&e. An$ the fact that a 4i ipino &a! have -een ph!sica ! a-sent fro& the (hi ippines an$ &a! -e ph!sica ! a resi$ent of the Unite$ States, for e"a&p e, -#t has a c ear intent to ret#rn to the (hi ippines, 9i &a=e hi& :#a ifie$ as a resi$ent of the (hi ippines #n$er this a9. This is consistent, Mr. (resi$ent, 9ith the constit#tiona &an$ate that 9e P that Con'ress P &#st provi$e a franchise to overseas 4i ipinos. If 9e rea$ the Constit#tion an$ the s#ffra'e princip e itera ! as $e&an$in' ph!sica presence, then there is no 9a! 9e can provi$e for offshore votin' to o#r offshore =a-a-a!an, Mr. (resi$ent. Senator Arro!o. Mr. (resi$ent, 9hen the Constit#tion sa!s, in Section ; of Artic e 2, it rea$sF 1The Con'ress sha provi$e a s!ste& for sec#rin' the secrec! an$ sanctit! of the -a ot as 9e as a s!ste& for a-sentee votin' -! :#a ifie$ 4i ipinos a-roa$.1 The =e! to this 9ho e e"ercise, Mr. (resi$ent, is 1:#a ifie$.1 In other 9or$s, an!thin' that 9e &a! $o or sa! in 'rantin' o#r co&patriots a-roa$ &#st -e anchore$ on the proposition that the! are :#a ifie$. A-sent the :#a ification, the! cannot vote. An$ 1resi$ents1 6sic7 is a :#a ification. I 9i ose votes here fro& per&anent resi$ents so*ca e$ 1'reen*car$ ho $ers,1 -#t the Constit#tion is the Constit#tion. Ae cannot co&pro&ise on this. The Senate cannot -e a part! to so&ethin' that 9o# $ affect or i&pair the Constit#tion. Loo= at 9hat the Constit#tion sa!s D 1In the p ace 9herein the! propose to vote for at east si" &onths i&&e$iate ! prece$in' the e ection.1 Mr. (resi$ent, a of #s here have r#n 6sic7 for office.

I ive in Ma=ati. M! nei'h-or is (ateros 9here Senator Ca!etano ives. Ae are separate$ on ! -! a cree=. B#t one 9ho votes in Ma=ati cannot vote in (ateros #n ess he resi$es in (ateros for si" &onths. That is ho9 restrictive o#r Constit#tion is. I a& not ta =in' even a-o#t the E ection Co$e. I a& ta =in' a-o#t the Constit#tion. As I have sai$, if a voter in Ma=ati 9o# $ 9ant to vote in (ateros, !es, he &a! $o so. B#t he &#st $o so, &a=e the transfer si" &onths -efore the e ection, other9ise, he is not :#a ifie$ to vote. That is 9h! I a& raisin' this point -eca#se I thin= 9e have a f#n$a&enta $ifference here. Senator An'ara. It is a 'oo$ point to raise, Mr. (resi$ent. B#t it is a point a rea$! 9e *$e-ate$ even in the constit#tiona co&&ission of /.0J. An$ the reason Section ; of Artic e 2 9as p ace$ i&&e$iate ! after the si"*&onthIone*!ear resi$enc! re:#ire&ent is to $e&onstrate #n&ista=a- ! that Section ; 9hich a#thori3es a-sentee votin' is an e"ception to the si"*&onthIone*!ear resi$enc! re:#ire&ent. That is the first princip e, Mr. (resi$ent, that one &#st re&e&-er. The secon$ reason, Mr. (resi$ent, is that #n$er o#r ,#rispr#$ence D an$ I thin= this is so 9e *entrenche$ that one nee$ not ar'#e a-o#t it D 1resi$enc!1 has -een interprete$ as s!non!&o#s 9ith 1$o&ici e.1 B#t the thir$ &ore practica reason, Mr. (resi$ent, is, if 9e fo o9 the interpretation of the 'ent e&an, then it is e'a ! an$ constit#tiona ! i&possi- e to 'ive a franchise to vote to overseas 4i ipinos 9ho $o not ph!sica ! ive in the co#ntr!, 9hich is :#ite ri$ic# o#s -eca#se that is e"act ! the 9ho e point of this e"ercise D to enfranchise the& an$ e&po9er the& to vote. ?0 6E&phasis an$ ita ics s#pp ie$7 Accor$in' !, Section > of R.A. No. ./0. provi$es for the covera'e of the a-sentee votin' process, to 9itF SEC. >. Covera'e. D A citi3ens of the (hi ippines a-roa$, 9ho are not other9ise $is:#a ifie$ -! a9, at east ei'hteen 6/07 !ears of a'e on the $a! of e ections, &a! vote for presi$ent, vice*presi$ent, senators an$ part!* ist representatives. 9hich $oes not re:#ire ph!sica resi$enc! in the (hi ippines< an$ Section 5 of the assai e$ a9 9hich en#&erates those 9ho are $is:#a ifie$, to 9itF SEC. 5. %is:#a ifications. D The fo o9in' sha -e $is:#a ifie$ fro& votin' #n$er this ActF a7 Those 9ho have ost their 4i ipino citi3enship in accor$ance 9ith (hi ippine a9s< -7 Those 9ho have e"press ! reno#nce$ their (hi ippine citi3enship an$ 9ho have p e$'e$ a e'iance to a forei'n co#ntr!< c7 Those 9ho have co&&itte$ an$ are convicte$ in a fina ,#$'&ent -! a co#rt or

tri-#na of an offense p#nisha- e -! i&prison&ent of not ess than one 6/7 !ear, inc #$in' those 9ho have co&&itte$ an$ -een fo#n$ '#i t! of %is o!a t! as $efine$ #n$er Artic e /?8 of the Revise$ (ena Co$e, s#ch $isa-i it! not havin' -een re&ove$ -! p enar! par$on or a&nest!F (rovi$e$, ho9ever, That an! person $is:#a ifie$ to vote #n$er this s#-section sha a#to&atica ! ac:#ire the ri'ht to vote #pon e"piration of five 657 !ears after service of sentence< (rovi$e$, f#rther, That the Co&&ission &a! ta=e co'ni3ance of fina ,#$'&ents iss#e$ -! forei'n co#rts or tri-#na s on ! on the -asis of reciprocit! an$ s#-,ect to the for&a ities an$ processes prescri-e$ -! the R# es of Co#rt on e"ec#tion of ,#$'&ents< $7 An i&&i'rant or a per&anent resi$ent 9ho is reco'ni3e$ as s#ch in the host co#ntr!, #n ess heIshe e"ec#tes, #pon re'istration, an affi$avit prepare$ for the p#rpose -! the Co&&ission $ec arin' that heIshe sha res#&e act#a ph!sica per&anent resi$ence in the (hi ippines not ater than three 6?7 !ears fro& approva of hisIher re'istration #n$er this Act. S#ch affi$avit sha a so state that heIshe has not app ie$ for citi3enship in another co#ntr!. 4ai #re to ret#rn sha -e ca#se for the re&ova of the na&e of the i&&i'rant or per&anent resi$ent fro& the Nationa Re'istr! of A-sentee 2oters an$ hisIher per&anent $is:#a ification to vote in a-sentia. e7 An! citi3en of the (hi ippines a-roa$ previo#s ! $ec are$ insane or inco&petent -! co&petent a#thorit! in the (hi ippines or a-roa$, as verifie$ -! the (hi ippine e&-assies, cons# ates or forei'n service esta- ish&ents concerne$, #n ess s#ch co&petent a#thorit! s#-se:#ent ! certifies that s#ch person is no on'er insane or inco&petent. As fina ! approve$ into a9, Section 56$7 of R.A. No. ./0. specifica ! $is:#a ifies an i&&i'rant or per&anent resi$ent 9ho is 1reco'ni3e$ as s#ch in the host co#ntr!1 -eca#se i&&i'ration or per&anent resi$ence in another co#ntr! i&p ies ren#nciation of oneGs resi$ence in his co#ntr! of ori'in. Ho9ever, sa&e Section a o9s an i&&i'rant an$ per&anent resi$ent a-roa$ to re'ister as voter for as on' as heIshe e"ec#tes an affi$avit to sho9 that heIshe has not a-an$one$ his $o&ici e in p#rs#ance of the constit#tiona intent e"presse$ in Sections / an$ ; of Artic e 2 that 1a citi3ens of the (hi ippines not other9ise $is:#a ifie$ -! a91 &#st -e entit e$ to e"ercise the ri'ht of s#ffra'e an$, that Con'ress &#st esta- ish a s!ste& for a-sentee votin'< for other9ise, if act#a , ph!sica resi$ence in the (hi ippines is re:#ire$, there is no sense for the fra&ers of the Constit#tion to &an$ate Con'ress to esta- ish a s!ste& for a-sentee votin'. AISHc% Contrar! to the c ai& of petitioner, the e"ec#tion of the affi$avit itse f is not the ena- in' or enfranchisin' act. The affi$avit re:#ire$ in Section 56$7 is not on ! proof of the intention of the i&&i'rant or per&anent resi$ent to 'o -ac= an$ res#&e resi$enc! in the (hi ippines, -#t &ore si'nificant !, it serves as an e"p icit e"pression that he ha$ not in fact a-an$one$ his $o&ici e of ori'in. Th#s, it is not correct to sa! that the e"ec#tion of the affi$avit #n$er Section 56$7 vio ates the Constit#tion that

proscri-es 1provisiona re'istration or a pro&ise -! a voter to perfor& a con$ition to -e :#a ifie$ to vote in a po itica e"ercise.1 To repeat, the affi$avit is re:#ire$ of i&&i'rants an$ per&anent resi$ents a-roa$ -eca#se -! their stat#s in their host co#ntries, the! are pres#&e$ to have re in:#ishe$ their intent to ret#rn to this co#ntr!< th#s, 9itho#t the affi$avit, the pres#&ption of a-an$on&ent of (hi ippine $o&ici e sha re&ain. 4#rther per#sa of the transcripts of the Senate procee$in's $isc oses another reason 9h! the Senate re:#ire$ the e"ec#tion of sai$ affi$avit. It 9ante$ the affiant to e"ercise the option to ret#rn or to e"press his intention to ret#rn to his $o&ici e of ori'in an$ not to pree&pt that choice -! e'is ation. Th#sF Senator 2i ar. Yes, 9e are 'oin' -ac=. It states thatF 14or 4i ipino i&&i'rants an$ those 9ho have ac:#ire$ per&anent resi$ent stat#s a-roa$,1 a re:#ire&ent for the re'istration is the s#-&ission of 1a S9orn %ec aration of Intent to Ret#rn $# ! s9orn -efore an! (hi ippine e&-ass! or cons# ate officia a#thori3e$ to a$&inister oath. . . 1 Mr. (resi$ent, &a! 9e =no9 the rationa e of this provisionK Is the p#rpose of this S9orn %ec aration to inc #$e on ! those 9ho have the intention of ret#rnin' to -e :#a ifie$ to e"ercise the ri'ht of s#ffra'eK Ahat if the 4i ipino i&&i'rant has no p#rpose of ret#rnin'K Is he a#to&atica ! $is-arre$ fro& e"ercisin' this ri'ht to s#ffra'eK Senator An'ara. The rationa e for this, Mr. (resi$ent, is that 9e 9ant to -e e"pansive an$ a *inc #sive in this a9. That as on' as he is a 4i ipino, no &atter 9hether he is a 'reen*car$ ho $er in the U.S. or not, he 9i -e a#thori3e$ to vote. B#t if he is a rea$! a 'reen*car$ ho $er, that &eans he has ac:#ire$ per&anent resi$enc! in the Unite$ States, then he &#st in$icate an intention to ret#rn. This is 9hat &a=es for the $efinition of 1$o&ici e.1 An$ to ac:#ire the vote, 9e tho#'ht that 9e 9o# $ re:#ire the i&&i'rants an$ the 'reen*car$ ho $ers . . . Mr. (resi$ent, the three a$&inistration senators are eavin', &a!-e 9e &a! as= for a vote NLa#'hterO. Senator 2i ar. 4or a &erien$a, Mr. (resi$ent. Senator An'ara. Mr. (resi$ent, 'oin' -ac= to the -#siness at han$. The rationa e for the re:#ire&ent that an i&&i'rant or a 'reen*car$ ho $er sho# $ fi e an affi$avit that he 9i 'o -ac= to the (hi ippines is that, if he is a rea$! an i&&i'rant or a 'reen*car$ ho $er, that &eans he &a! not ret#rn to the co#ntr! an! &ore an$ that contra$icts the $efinition of 1$o&ici e1 #n$er the a9. B#t 9hat 9e are tr!in' to $o here, Mr. (resi$ent, is rea ! provi$e the choice to the voter. The voter, after cons# tin' his a9!er or after $e i-eration 9ithin the fa&i !, &a! $eci$e QNo, I thin= 9e are ris=in' o#r per&anent stat#s in the Unite$ States if 9e fi e an affi$avit that 9e 9ant to 'o -ac=.1 B#t 9e 9ant to 'ive hi& the opport#nit! to

&a=e that $ecision. Ae $o not 9ant to &a=e that $ecision for hi&. ?. 6E&phasis an$ ita ics s#pp ie$7 The ,#rispr#$entia $ec aration in Caasi vs. Co#rt of Appea s that 'reen car$ ho $ers are $is:#a ifie$ to r#n for an! e ective office fin$s no app ication to the present case -eca#se the Caasi case $i$ not, for o-vio#s reasons, consi$er the a-sentee votin' ri'hts of 4i ipinos 9ho are i&&i'rants an$ per&anent resi$ents in their host co#ntries. In the a$vent of The Overseas A-sentee 2otin' Act of ;@@? or R.A. ./0., the! &a! sti -e consi$ere$ as a 1:#a ifie$ citi3en of the (hi ippines a-roa$1 #pon f# fi &ent of the re:#ire&ents of re'istration #n$er the ne9 a9 for the p#rpose of e"ercisin' their ri'ht of s#ffra'e. It &#st -e e&phasi3e$ that Section 56$7 $oes not on ! re:#ire an affi$avit or a pro&ise to 1res#&e act#a ph!sica per&anent resi$ence in the (hi ippines not ater than three !ears fro& approva of hisIher re'istration,1 the 4i ipinos a-roa$ &#st a so $ec are that the! have not app ie$ for citi3enship in another co#ntr!. Th#s, the! &#st ret#rn to the (hi ippines< other9ise, their fai #re to ret#rn 1sha -e ca#se for the re&ova 1 of their na&es 1fro& the Nationa Re'istr! of A-sentee 2oters an$ hisIher per&anent $is:#a ification to vote in a-sentia.1 Th#s, Con'ress crafte$ a process of re'istration -! 9hich a 4i ipino voter per&anent ! resi$in' a-roa$ 9ho is at east ei'hteen !ears o $, not other9ise $is:#a ifie$ -! a9, 9ho has not re in:#ishe$ (hi ippine citi3enship an$ 9ho has not act#a ! a-an$one$ hisIher intentions to ret#rn to hisIher $o&ici e of ori'in, the (hi ippines, is a o9e$ to re'ister an$ vote in the (hi ippine e&-ass!, cons# ate or other forei'n service esta- ish&ents of the p ace 9hich has ,#ris$iction over the co#ntr! 9here heIshe has in$icate$ hisIher a$$ress for p#rposes of the e ections, 9hi e provi$in' for safe'#ar$s to a c ean e ection. Th#s, Section // of R.A. No. ./0. provi$esF SEC. //. (roce$#re for App ication to 2ote in A-sentia. D //./. Ever! :#a ifie$ citi3en of the (hi ippines a-roa$ 9hose app ication for re'istration has -een approve$, inc #$in' those previo#s ! re'istere$ #n$er Rep#- ic Act No. 0/0., sha , in ever! nationa e ection, fi e 9ith the officer of the e&-ass!, cons# ate or other forei'n service esta- ish&ent a#thori3e$ -! the Co&&ission, a s9orn 9ritten app ication to vote in a for& prescri-e$ -! the Co&&ission. The a#thori3e$ officer of s#ch e&-ass!, cons# ate or other forei'n service esta- ish&ent sha trans&it to the Co&&ission the sai$ app ication to vote 9ithin five 657 $a!s fro& receipt thereof. The app ication for& sha -e acco&p ishe$ in trip icate an$ s#-&itte$ to'ether 9ith the photocop! of hisIher overseas a-sentee voter certificate of re'istration. //.;. Ever! app ication to vote in a-sentia &a! -e $one persona ! at, or -! &ai to, the e&-ass!, cons# ate or forei'n service esta- ish&ent, 9hich has ,#ris$iction over

the co#ntr! 9here heIshe has in$icate$ hisIher a$$ress for p#rposes of the e ections. //.?. Cons# ar an$ $ip o&atic services ren$ere$ in connection 9ith the overseas a-sentee votin' processes sha -e &a$e avai a- e at no cost to the overseas a-sentee voter. Contrar! to petitionerGs c ai& that Section 56$7 circ#&vents the Constit#tion, Con'ress enacte$ the a9 prescri-in' a s!ste& of overseas a-sentee votin' in co&p iance 9ith the constit#tiona &an$ate. S#ch &an$ate e"press ! re:#ires that Con'ress provi$e a s!ste& of a-sentee votin' that necessari ! pres#pposes that the 1:#a ifie$ citi3en of the (hi ippines a-roa$1 is not ph!sica ! present in the co#ntr!. The provisions of Sections 56$7 an$ // are co&ponents of the s!ste& of overseas a-sentee votin' esta- ishe$ -! R.A. No. ./0.. The :#a ifie$ 4i ipino a-roa$ 9ho e"ec#te$ the affi$avit is $ee&e$ to have retaine$ his $o&ici e in the (hi ippines. He is pres#&e$ not to have ost his $o&ici e -! his ph!sica a-sence fro& this co#ntr!. His havin' -eco&e an i&&i'rant or per&anent resi$ent of his host co#ntr! $oes not necessari ! i&p ! an a-an$on&ent of his intention to ret#rn to his $o&ici e of ori'in, the (hi ippines. Therefore, #n$er the a9, he &#st -e 'iven the opport#nit! to e"press that he has not act#a ! a-an$one$ his $o&ici e in the (hi ippines -! e"ec#tin' the affi$avit re:#ire$ -! Sections 56$7 an$ 06c7 of the a9. (etitionerGs spec# ative apprehension that the i&p e&entation of Section 56$7 9o# $ affect the cre$i-i it! of the e ections is insi'nificant as 9hat is i&portant is to ens#re that a those 9ho possess the :#a ifications to vote on the $ate of the e ection are 'iven the opport#nit! an$ per&itte$ to free ! $o so. The COMELEC an$ the %epart&ent of 4orei'n Affairs have eno#'h reso#rces an$ ta ents to ens#re the inte'rit! an$ cre$i-i it! of an! e ection con$#cte$ p#rs#ant to R.A. No. ./0.. As to the event#a it! that the 4i ipino a-roa$ 9o# $ rene'e on his #n$erta=in' to ret#rn to the (hi ippines, the pena t! of perpet#a $isenfranchise&ent provi$e$ for -! Section 56$7 9o# $ s#ffice to serve as $eterrence to non*co&p iance 9ith hisIher #n$erta=in' #n$er the affi$avit. (etitioner ar'#es that sho# $ a si3a- e n#&-er of 1i&&i'rants1 rene'e on their pro&ise to ret#rn, the res# t of the e ections 9o# $ -e affecte$ an$ co# $ even -e a 'ro#n$ to contest the proc a&ation of the 9innin' can$i$ates an$ ca#se f#rther conf#sion an$ $o#-t on the inte'rit! of the res# ts of the e ection. In$ee$, the pro-a-i it! that after an i&&i'rant has e"ercise$ the ri'ht to vote, he sha opt to re&ain in his host co#ntr! -e!on$ the thir$ !ear fro& the e"ec#tion of the affi$avit, is not farfetche$. Ho9ever, it is not for this Co#rt to $eter&ine the 9is$o& of a e'is ative e"ercise. As e"presse$ in TaMa$a vs. T#vera, >@ the Co#rt is not ca e$ #pon to r# e on the 9is$o& of the a9 or to repea it or &o$if! it if 9e fin$ it i&practica . Con'ress itse f 9as conscio#s of sai$ pro-a-i it! an$ in fact, it has a$$resse$ the

e"pecte$ pro- e&. Section 56$7 itse f provi$es for a $eterrence 9hich is that the 4i ipino 9ho fai s to ret#rn as pro&ise$ stan$s to ose his ri'ht of s#ffra'e. Un$er Section ., sho# $ a re'istere$ overseas a-sentee voter fai to vote for t9o consec#tive nationa e ections, his na&e &a! -e or$ere$ re&ove$ fro& the Nationa Re'istr! of Overseas A-sentee 2oters. Other serio#s e'a :#estions that &a! -e raise$ 9o# $ -eF 9hat happens to the votes cast -! the :#a ifie$ voters a-roa$ 9ho 9ere not a- e to ret#rn 9ithin three !ears as pro&ise$K Ahat is the effect on the votes cast -! the non*ret#rnees in favor of the 9innin' can$i$atesK The votes cast -! :#a ifie$ 4i ipinos a-roa$ 9ho fai e$ to ret#rn 9ithin three !ears sha not -e inva i$ate$ -eca#se the! 9ere :#a ifie$ to vote on the $ate of the e ections, -#t their fai #re to ret#rn sha -e ca#se for the re&ova of the na&es of the i&&i'rants or per&anent resi$ents fro& the Nationa Re'istr! of A-sentee 2oters an$ their per&anent $is:#a ification to vote in a-sentia. In fine, consi$erin' the #n$er !in' intent of the Constit#tion, the Co#rt $oes not fin$ Section 56$7 of R.A. No. ./0. as constit#tiona ! $efective. B. Is Section /0.5 of R.A. No. ./0. in re ation to Section > of the sa&e Act in contravention of Section >, Artic e 2II of the Constit#tionK Section > of R.A. No. ./0. provi$es that the overseas a-sentee voter &a! vote for presi$ent, vice*presi$ent, senators an$ part!* ist representatives. Section /0.5 of the sa&e Act provi$esF SEC. /0. On*Site Co#ntin' an$ Canvassin'. D """ """ """ /0.5 The canvass of votes sha not ca#se the $e a! of the proc a&ation of a 9innin' can$i$ate if the o#tco&e of the e ection 9i not -e affecte$ -! the res# ts thereof. Not9ithstan$in' the fore'oin', the Co&&ission is e&po9ere$ to or$er the proc a&ation of 9innin' can$i$ates $espite the fact that the sche$# e$ e ection has not ta=en p ace in a partic# ar co#ntr! or co#ntries, if the ho $in' of e ections therein has -een ren$ere$ i&possi- e -! events, factors an$ circ#&stances pec# iar to s#ch co#ntr! or co#ntries, in 9hich events, factors an$ circ#&stances are -e!on$ the contro or inf #ence of the Co&&ission. 6Ita ics s#pp ie$7 (etitioner c ai&s that the provision of Section /0.5 of R.A. No. ./0. e&po9erin' the COMELEC to or$er the proc a&ation of 9innin' can$i$ates insofar as it affects the canvass of votes an$ proc a&ation of 9innin' can$i$ates for presi$ent an$ vice* presi$ent, is #nconstit#tiona -eca#se it vio ates the fo o9in' provisions of para'raph >, Section > of Artic e 2II of the Constit#tionF SEC. >. . . . The ret#rns of ever! e ection for (resi$ent an$ 2ice*(resi$ent, $# ! certifie$ -! the -oar$ of canvassers of each province or cit!, sha -e trans&itte$ to the Con'ress,

$irecte$ to the (resi$ent of the Senate. Upon receipt of the certificates of canvass, the (resi$ent of the Senate sha , not ater than thirt! $a!s after the $a! of the e ection, open a the certificates in the presence of the Senate an$ the Ho#se of Representatives in ,oint p#- ic session, an$ the Con'ress, #pon $eter&ination of the a#thenticit! an$ $#e e"ec#tion thereof in the &anner provi$e$ -! a9, canvass the votes. The person havin' the hi'hest n#&-er of votes sha -e proc ai&e$ e ecte$, -#t in case t9o or &ore sha have an e:#a an$ hi'hest n#&-er of votes, one of the& sha forth9ith -e chosen -! the vote of a &a,orit! of a the Me&-ers of -oth Ho#ses of the Con'ress, votin' separate !. The Con'ress sha pro&# 'ate its r# es for the canvassin' of the certificates. """ """ """ 9hich 'ives to Con'ress the $#t! to canvass the votes an$ proc ai& the 9innin' can$i$ates for presi$ent an$ vice*presi$ent. The So icitor Benera asserts that this provision &#st -e har&oni3e$ 9ith para'raph >, Section >, Artic e 2II of the Constit#tion an$ sho# $ -e ta=en to &ean that COMELEC can on ! proc ai& the 9innin' Senators an$ part!* ist representatives -#t not the (resi$ent an$ 2ice*(resi$ent. >/ Respon$ent COMELEC has no co&&ent on the &atter. In$ee$, the phrase, proc a&ation of 9innin' can$i$ates, in Section /0.5 of R.A. No. ./0. is far too s9eepin' that it necessari ! inc #$es the proc a&ation of the 9innin' can$i$ates for the presi$enc! an$ the vice*presi$enc!. Section /0.5 of R.A. No. ./0. appears to -e rep#'nant to Section >, Artic e 2II of the Constit#tion on ! insofar as sai$ Section tota ! $isre'ar$e$ the a#thorit! 'iven to Con'ress -! the Constit#tion to proc ai& the 9innin' can$i$ates for the positions of presi$ent an$ vice*presi$ent. In a$$ition, the Co#rt notes that Section /0.> of the a9, to 9itF /0.>. . . . I&&e$iate ! #pon the co&p etion of the canvass, the chair&an of the Specia Boar$ of Canvassers sha trans&it via facsi&i e, e ectronic &ai , or an! other &eans of trans&ission e:#a ! safe an$ re ia- e the Certificates of Canvass an$ the State&ents of 2otes to the Co&&ission, . . . NIta ics s#pp ie$O c ashes 9ith para'raph >, Section >, Artic e 2II of the Constit#tion 9hich provi$es that the ret#rns of ever! e ection for (resi$ent an$ 2ice*(resi$ent sha -e certifie$ -! the -oar$ of canvassers to Con'ress. Ec%ATH Con'ress co# $ not have a o9e$ the COMELEC to #s#rp a po9er that constit#tiona ! -e on's to it or, as apt ! state$ -! petitioner, to encroach 1on the po9er of Con'ress to canvass the votes for presi$ent an$ vice*presi$ent an$ the

po9er to proc ai& the 9inners for the sai$ positions.1 The provisions of the Constit#tion as the f#n$a&enta a9 of the an$ sho# $ -e rea$ as part of The Overseas A-sentee 2otin' Act of ;@@? an$ hence, the canvassin' of the votes an$ the proc a&ation of the 9innin' can$i$ates for presi$ent an$ vice*presi$ent for the entire nation &#st re&ain in the han$s of Con'ress. C. Are Sections /. an$ ;5 of R.A. No. ./0. in vio ation of Section /, Artic e IH*A of the Constit#tionK (etitioner avers that Sections /. an$ ;5 of R.A. No. ./0. vio ate Artic e IH*A 6Co&&on (rovisions7 of the Constit#tion, to 9itF Section /. The Constit#tiona Co&&issions, 9hich sha -e in$epen$ent, are the Civi Service Co&&ission, the Co&&ission on E ections, an$ the Co&&ission on A#$it. 6Ita ics s#pp ie$7 He s#-&its that the creation of the +oint Con'ressiona Oversi'ht Co&&ittee 9ith the po9er to revie9, revise, a&en$ an$ approve the I&p e&entin' R# es an$ Re'# ations pro&# 'ate$ -! the COMELEC, R.A. No. ./0. intr#$es into the in$epen$ence of the COMELEC 9hich, as a constit#tiona -o$!, is not #n$er the contro of either the e"ec#tive or e'is ative $epart&ents of 'overn&ent< that on ! the COMELEC itse f can pro&# 'ate r# es an$ re'# ations 9hich &a! -e chan'e$ or revise$ on ! -! the &a,orit! of its &e&-ers< an$ that sho# $ the r# es pro&# 'ate$ -! the COMELEC vio ate an! a9, it is the Co#rt that has the po9er to revie9 the sa&e via the petition of an! intereste$ part!, inc #$in' the e'is ators. It is on ! on this :#estion that respon$ent COMELEC s#-&itte$ its Co&&ent. It a'rees 9ith the petitioner that Sections /. an$ ;5 of R.A. No. ./0. are #nconstit#tiona . Li=e the petitioner, respon$ent COMELEC anchors its c ai& of #nconstit#tiona it! of sai$ Sections #pon Section /, Artic e IH*A of the Constit#tion provi$in' for the in$epen$ence of the constit#tiona co&&issions s#ch as the COMELEC. It asserts that its po9er to for&# ate r# es an$ re'# ations has -een #phe $ in Ba ar$o vs. Ta-a&o, +r. >; 9here this Co#rt he $ that the po9er of the COMELEC to for&# ate r# es an$ re'# ations is i&p icit in its po9er to i&p e&ent re'# ations #n$er Section ;6/7 of Artic e IH*C >? of the Constit#tion. COMELEC ,oins the petitioner in assertin' that as an in$epen$ent constit#tiona -o$!, it &a! not -e s#-,ect to interference -! an! 'overn&ent instr#&enta it! an$ that on ! this Co#rt &a! revie9 COMELEC r# es an$ on ! in cases of 'rave a-#se of $iscretion. The COMELEC a$$s, ho9ever, that another provision, vis*R*vis its r# e*&a=in' po9er, to 9itF SEC. /8. 2otin' -! Mai . D /8./. 4or the Ma!, ;@@> e ections, the Co&&ission sha a#thori3e votin' -! &ai in not &ore than three 6?7 co#ntries, s#-,ect to the approva of the Con'ressiona Oversi'ht Co&&ittee. 2otin' -! &ai &a! -e a o9e$ in co#ntries that satisf! the

fo o9in' con$itionsF a7 Ahere the &ai in' s!ste& is fair ! 9e *$eve ope$ an$ sec#re to prevent occasion for fra#$< -7 Ahere there e"ists a technica ! esta- ishe$ i$entification s!ste& that 9o# $ prec #$e &# tip e or pro"! votin'< an$ c7 Ahere the s!ste& of reception an$ c#sto$! of &ai e$ -a ots in the e&-assies, cons# ates an$ other forei'n service esta- ish&ents concerne$ are a$e:#ate an$ 9e * sec#re$. Thereafter, votin' -! &ai in an! co#ntr! sha -e a o9e$ on ! #pon revie9 an$ approva of the +oint Con'ressiona Oversi'ht Co&&ittee. """ """ """ 6Ita ics s#pp ie$7 is i=e9ise #nconstit#tiona as it vio ates Section /, Artic e IH*A &an$atin' the in$epen$ence of constit#tiona co&&issions. The So icitor Benera ta=es e"ception to his prefator! state&ent that the constit#tiona cha en'e &#st fai an$ a'rees 9ith the petitioner that Sections /. an$ ;5 are inva i$ an$ #nconstit#tiona on the 'ro#n$ that there is nothin' in Artic e 2I of the Constit#tion on Le'is ative %epart&ent that 9o# $ as &#ch as i&p ! that Con'ress has conc#rrent po9er to enforce an$ a$&inister e ection a9s 9ith the COMELEC< an$ -! the princip es of e"c #sio #ni#s est e"c #sio a teri#s an$ e"press#& facit cessare tacit#&, the constit#tiona ! en#&erate$ po9ers of Con'ress circ#&scri-e its a#thorit! to the e"c #sion of a others. The parties are #nani&o#s in c ai&in' that Sections /., ;5 an$ portions of Section /8./ are #nconstit#tiona . Th#s, there is no act#a iss#e for'e$ on this :#estion raise$ -! petitioner. Ho9ever, the Co#rt fin$s it e"pe$ient to e"po#n$ on the ro e of Con'ress thro#'h the +oint Con'ressiona Oversi'ht Co&&ittee 6+COC7 vis*R*vis the in$epen$ence of the COMELEC, as a constit#tiona -o$!. R.A. No. ./0. create$ the +COC, as fo o9sF SEC. ;5. +oint Con'ressiona Oversi'ht Co&&ittee. D A +oint Con'ressiona Oversi'ht Co&&ittee is here-! create$, co&pose$ of the Chair&an of the Senate Co&&ittee on Constit#tiona A&en$&ents, Revision of Co$es an$ La9s, an$ seven 687 other Senators $esi'nate$ -! the Senate (resi$ent, an$ the Chair&an of the Ho#se Co&&ittee on S#ffra'e an$ E ectora Refor&s, an$ seven 687 other Me&-ers of the Ho#se of Representatives $esi'nate$ -! the Spea=er of the Ho#se of RepresentativesF (rovi$e$, That, of the seven 687 &e&-ers to -e $esi'nate$ -! each Ho#se of Con'ress, fo#r 6>7 sho# $ co&e fro& the &a,orit! an$ the re&ainin' three 6?7 fro& the &inorit!.

The +oint Con'ressiona Oversi'ht Co&&ittee sha have the po9er to &onitor an$ eva #ate the i&p e&entation of this Act. It sha revie9, revise, a&en$ an$ approve the I&p e&entin' R# es an$ Re'# ations pro&# 'ate$ -! the Co&&ission. 6Ita ics s#pp ie$7 SEC. /.. A#thorit! of the Co&&ission to (ro&# 'ate R# es. D The Co&&ission sha iss#e the necessar! r# es an$ re'# ations to effective ! i&p e&ent the provisions of this Act 9ithin si"t! 6J@7 $a!s fro& the effectivit! of this Act. The I&p e&entin' R# es an$ Re'# ations sha -e s#-&itte$ to the +oint Con'ressiona Oversi'ht Co&&ittee create$ -! virt#e of this Act for prior approva . """ """ """ 6Ita ics s#pp ie$7 Co&pose$ of Senators an$ Me&-ers of the Ho#se of Representatives, the +oint Con'ressiona Oversi'ht Co&&ittee 6+COC7 is a p#re ! e'is ative -o$!. There is no :#estion that the a#thorit! of Con'ress to 1&onitor an$ eva #ate the i&p e&entation1 of R.A. No. ./0. is 'eare$ to9ar$s possi- e a&en$&ents or revision of the a9 itse f an$ th#s, &a! -e perfor&e$ in ai$ of its e'is ation. Ho9ever, asi$e fro& its &onitorin' an$ eva #ation f#nctions, R.A. No. ./0. 'ives to the +COC the fo o9in' f#nctionsF 6a7 to 1revie9, revise, a&en$ an$ approve the I&p e&entin' R# es an$ Re'# ations1 6IRR7 pro&# 'ate$ -! the COMELEC NSections ;5 an$ /.O< an$ 6-7 s#-,ect to the approva of the +COC NSection /8./O, the votin' -! &ai in not &ore than three co#ntries for the Ma! ;@@> e ections an$ in an! co#ntr! $eter&ine$ -! COMELEC. The a&-it of e'is ative po9er #n$er Artic e 2I of the Constit#tion is circ#&scri-e$ -! other constit#tiona provisions. One s#ch provision is Section / of Artic e IH*A of the /.08 Constit#tion or$ainin' that constit#tiona co&&issions s#ch as the COMELEC sha -e 1in$epen$ent.1 Interpretin' Section /, Artic e H of the /.?5 Constit#tion provi$in' that there sha -e an in$epen$ent COMELEC, the Co#rt has he $ that 1N9Ohatever &a! -e the nat#re of the f#nctions of the Co&&ission on E ections, the fact is that the fra&ers of the Constit#tion 9ante$ it to -e in$epen$ent fro& the other $epart&ents of the Bovern&ent.1 >> In an ear ier case, the Co#rt e #ci$ate$F The Co&&ission on E ections is a constit#tiona -o$!. It is inten$e$ to p a! a $istinct an$ i&portant part in o#r sche&e of 'overn&ent. In the $ischar'e of its f#nctions, it sho# $ not -e ha&pere$ 9ith restrictions that 9o# $ -e f# ! 9arrante$ in the case of a ess responsi- e or'ani3ation. The Co&&ission &a! err, so &a! this co#rt a so. It sho# $ -e a o9e$ consi$era- e atit#$e in $evisin' &eans an$ &etho$s that 9i ins#re the acco&p ish&ent of the 'reat o-,ective for 9hich it 9as create$ D free, or$er ! an$ honest e ections. Ae &a! not a'ree f# ! 9ith its choice of &eans, -#t #n ess these are c ear ! i e'a or constit#te 'ross a-#se of $iscretion, this co#rt sho# $ not interfere. (o itics is a practica &atter, an$ po itica :#estions &#st -e $ea t 9ith

rea istica ! P not fro& the stan$point of p#re theor!. The Co&&ission on E ections, -eca#se of its fact*fin$in' faci ities, its contacts 9ith po itica strate'ists, an$ its =no9 e$'e $erive$ fro& act#a e"perience in $ea in' 9ith po itica controversies, is in a pec# iar ! a$vanta'eo#s position to $eci$e co&p e" po itica :#estions. >5 6Ita ics s#pp ie$7 The Co#rt has no 'enera po9ers of s#pervision over COMELEC 9hich is an in$epen$ent -o$! 1e"cept those specifica ! 'rante$ -! the Constit#tion,1 that is, to revie9 its $ecisions, or$ers an$ r# in's. >J In the sa&e vein, it is not correct to ho $ that -eca#se of its reco'ni3e$ e"tensive e'is ative po9er to enact e ection a9s, Con'ress &a! intr#$e into the in$epen$ence of the COMELEC -! e"ercisin' s#pervisor! po9ers over its r# e*&a=in' a#thorit!. B! virt#e of Section /. of R.A. No. ./0., Con'ress has e&po9ere$ the COMELEC to 1iss#e the necessar! r# es an$ re'# ations to effective ! i&p e&ent the provisions of this Act 9ithin si"t! $a!s fro& the effectivit! of this Act.1 This provision of a9 fo o9s the #s#a proce$#re in $raftin' r# es an$ re'# ations to i&p e&ent a a9 P the e'is at#re 'rants an a$&inistrative a'enc! the a#thorit! to craft the r# es an$ re'# ations i&p e&entin' the a9 it has enacte$, in reco'nition of the a$&inistrative e"pertise of that a'enc! in its partic# ar fie $ of operation. >8 Once a a9 is enacte$ an$ approve$, the e'is ative f#nction is $ee&e$ acco&p ishe$ an$ co&p ete. The e'is ative f#nction &a! sprin' -ac= to Con'ress re ative to the sa&e a9 on ! if that -o$! $ee&s it proper to revie9, a&en$ an$ revise the a9, -#t certain ! not to approve, revie9, revise an$ a&en$ the IRR of the COMELEC. B! vestin' itse f 9ith the po9ers to approve, revie9, a&en$, an$ revise the IRR for The Overseas A-sentee 2otin' Act of ;@@?, Con'ress 9ent -e!on$ the scope of its constit#tiona a#thorit!. Con'ress tra&p e$ #pon the constit#tiona &an$ate of in$epen$ence of the COMELEC. Un$er s#ch a sit#ation, the Co#rt is eft 9ith no option -#t to 9ith$ra9 fro& its #s#a reticence in $ec arin' a provision of a9 #nconstit#tiona . The secon$ sentence of the first para'raph of Section /. statin' that 1NtOhe I&p e&entin' R# es an$ Re'# ations sha -e s#-&itte$ to the +oint Con'ressiona Oversi'ht Co&&ittee create$ -! virt#e of this Act for prior approva ,1 an$ the secon$ sentence of the secon$ para'raph of Section ;5 statin' that 1NiOt sha revie9, revise, a&en$ an$ approve the I&p e&entin' R# es an$ Re'# ations pro&# 'ate$ -! the Co&&ission,1 9here-! Con'ress, in -oth provisions, arro'ates #nto itse f a f#nction not specifica ! veste$ -! the Constit#tion, sho# $ -e stric=en o#t of the s#-,ect stat#te for constit#tiona infir&it!. Both provisions -ra3en ! vio ate the &an$ate on the in$epen$ence of the COMELEC. Si&i ar !, the phrase, 1s#-,ect to the approva of the Con'ressiona Oversi'ht Co&&ittee1 in the first sentence of Section /8./ 9hich e&po9ers the Co&&ission to a#thori3e votin' -! &ai in not &ore than three co#ntries for the Ma!, ;@@> e ections<

an$ the phrase, 1on ! #pon revie9 an$ approva of the +oint Con'ressiona Oversi'ht Co&&ittee1 fo#n$ in the secon$ para'raph of the sa&e section are #nconstit#tiona as the! re:#ire revie9 an$ approva of votin' -! &ai in an! co#ntr! after the ;@@> e ections. Con'ress &a! not confer #pon itse f the a#thorit! to approve or $isapprove the co#ntries 9herein votin' -! &ai sha -e a o9e$, as $eter&ine$ -! the COMELEC p#rs#ant to the con$itions provi$e$ for in Section /8./ of R.A. No. ./0.. >0 Other9ise, Con'ress 9o# $ overstep the -o#n$s of its constit#tiona &an$ate an$ intr#$e into the in$epen$ence of the COMELEC. %#rin' the $e i-erations, a the &e&-ers of the Co#rt a'ree$ to a$opt the separate opinion of +#stice Re!nato S. (#no as part of the ponencia on the #nconstit#tiona it! of Sections /8./, /. an$ ;5 of R.A. No. ./0. insofar as the! re ate to the creation of an$ the po9ers 'iven to the +oint Con'ressiona Oversi'ht Co&&ittee. AHERE4ORE, the petition is part ! BRANTE%. The fo o9in' portions of R.A. No. ./0. are $ec are$ 2OI% for -ein' UNCONSTITUTIONALF a7 The phrase in the first sentence of the first para'raph of Section /8./, to 9itF 1s#-,ect to the approva of the +oint Con'ressiona Oversi'ht Co&&ittee<1 -7 The portion of the ast para'raph of Section /8./, to 9itF 1on ! #pon revie9 an$ approva of the +oint Con'ressiona Oversi'ht Co&&ittee<1 c7 The secon$ sentence of the first para'raph of Section /., to 9itF 1The I&p e&entin' R# es an$ Re'# ations sha -e s#-&itte$ to the +oint Con'ressiona Oversi'ht Co&&ittee create$ -! virt#e of this Act for prior approva <1 an$ $7 The secon$ sentence in the secon$ para'raph of Section ;5, to 9itF 1It sha revie9, revise, a&en$ an$ approve the I&p e&entin' R# es an$ Re'# ations pro&# 'ate$ -! the Co&&ission1 of the sa&e a9< for -ein' rep#'nant to Section /, Artic e IH*A of the Constit#tion &an$atin' the in$epen$ence of constit#tiona co&&ission, s#ch as COMELEC. The constit#tiona it! of Section /0.5 of R.A. No. ./0. is U(HEL% 9ith respect on ! to the a#thorit! 'iven to the COMELEC to proc ai& the 9innin' can$i$ates for the Senators an$ part!* ist representatives -#t not as to the po9er to canvass the votes an$ proc ai& the 9innin' can$i$ates for (resi$ent an$ 2ice*(resi$ent 9hich is o$'e$ 9ith Con'ress #n$er Section >, Artic e 2II of the Constit#tion. The constit#tiona it! of Section 56$7 is U(HEL%. (#rs#ant to Section ?@ of R.A. No. ./0., the rest of the provisions of sai$ a9 contin#es to -e in f# force an$ effect. IcESaA SO OR+ERE+. %avi$e, +r., C.+. an$ Corona, ++., conc#r. Be osi o, +., see conc#rrin' opinion.

2it#' an$ (an'ani-an, ++., see separate opinion. Carpio, Carpio*Mora es an$ A3c#na, ++., see conc#rrin' opinion. (#no, Ynares*Santia'o an$ Ca e,o, Sr., ++., see conc#rrin' an$ $issentin' opinion. San$ova *B#tierre3, +., is on officia eave an$ eft her conc#rrin' an$ $issentin' opinion. Tin'a, +., too= no part. )#is#&-in', +., is on eave.

S')$!$(' O)" "o & BELLOSILLO, +.F conc#rrin' The concept of a-sentee votin' e"#$es an arrestin' char& of nove t! an$ i&portance. 4or the first ti&e in o#r chec=ere$ po itica histor!, 9e are e"pan$in' the frontiers of o#r e ectora process D 9ari ! trea$in' into a verita- e terra inco'nita. The A-sentee 2otin' La9 / e&po9ers citi3ens, hitherto o#tsi$e the reaches of the -a ot, to assert their soverei'n 9i an$ $ictate the nationa $estin!. It caters to their f#n$a&enta !earnin' for so&e &eas#re of participation in the process of reachin' fatef# $ecisions for their co#ntr!, a tho#'h the! &a! -e at so&e $istant shores. ISAcH% I conc#r 9ith the co ective 9is$o& of the &a,orit!. I 9ish ho9ever to e"press &! vie9s on the pivota iss#e of 9hether Sec. 5, par. 6$7, of the A-sentee 2otin' La9 D a o9in' the re'istration of voters 9ho are i&&i'rants or per&anent resi$ents in other co#ntries -! their &ere act of e"ec#tin' an affi$avit e"pressin' their intention to ret#rn to the (hi ippines D vio ates the resi$enc! re:#ire&ent in Sec. /, Art. 2, /.08 Constit#tion. The f#n$a&enta a9 &an$ates D ARTICLE 2 SU44RABE Section /. S#ffra'e &a! -e e"ercise$ -! a citi3ens of the (hi ippines not other9ise $is:#a ifie$ -! a9, 9ho are at east ei'hteen !ears of a'e, an$ 9ho sha have resi$e$ in the (hi ippines for at east one !ear an$ in the p ace 9herein the! propose to vote for at east si" &onths i&&e$iate ! prece$in' the e ection. No iterac!, propert! or

other s#-stantive re:#ire&ent sha -e i&pose$ on the e"ercise of s#ffra'e. Section ;. The Con'ress sha provi$e a s!ste& for sec#rin' the secrec! an$ sanctit! of the -a ot as 9e as a s!ste& for a-sentee votin' -! :#a ifie$ 4i ipinos a-roa$ . . . . 6ita ics s#pp ie$7. On the other han$, Sec. 5, par. 6$7, of the A-sentee 2otin' La9, the rest ess -att e'ro#n$ of passionate a$vocac!, provi$es D Sec. 5. %is:#a ifications. D The fo o9in' sha -e $is:#a ifie$ fro& votin' #n$er this ActF . . . $7 An i&&i'rant or a per&anent resi$ent 9ho is reco'ni3e$ as s#ch in the host co#ntr!, #n ess heIshe e"ec#tes, #pon re'istration, an affi$avit prepare$ for the p#rpose -! the Co&&ission $ec arin' that heIshe sha res#&e act#a ph!sica per&anent resi$ence in the (hi ippines not ater than three 6?7 !ears fro& approva of hisIher re'istration #n$er this Act. S#ch affi$avit sha a so state that heIshe has not app ie$ for citi3enship in another co#ntr!. 4ai #re to ret#rn sha -e ca#se for the re&ova of the na&e of the i&&i'rant or per&anent resi$ent fro& the Nationa Re'istr! of A-sentee 2oters an$ hisIher per&anent $is:#a ification to vote in a-sentia 6ita ics s#pp ie$7. It has -een s#''este$ -! certain :#arters that a 4i ipino citi3ens 9ho are i&&i'rants an$ per&anent resi$ents a-roa$ are consi$ere$ to have a-an$one$ their (hi ippine $o&ici e an$ therefore cannot vote in (hi ippine e ections, since the! are not 9ithin the constit#tiona conte&p ation of 1:#a ifie$ 4i ipinos a-roa$1 9ho are e i'i- e to vote. In this ,#ris$iction, it is 9e sett e$ that 1$o&ici e1 an$ 1resi$ence1 as #se$ in e ection a9s are s!non!&o#s ter&s 9hich i&port not on ! an intention to resi$e in a fi"e$ p ace -#t a so persona presence in that p ace co#p e$ 9ith con$#ct in$icative of that intention. ; %o&ici e is a :#estion of intention an$ circ#&stances. There are three 6?7 r# es that &#st -e o-serve$ in the consi$eration of circ#&stancesF first, that a &an &#st have a resi$ence or $o&ici e so&e9here< secon$, $o&ici e is not easi ! ost, once esta- ishe$ it is retaine$ #nti a ne9 one is ac:#ire$< an$ thir$, a &an can have -#t one resi$ence or $o&ici e at a ti&e. ? The principa e e&ents of $o&ici e, i.e., ph!sica presence in the oca it! invo ve$ an$ intention to a$opt it as a $o&ici e, &#st conc#r in or$er to esta- ish a ne9 $o&ici e. No chan'e of $o&ici e 9i res# t if either of these e e&ents is a-sent. Intention to ac:#ire a $o&ici e 9itho#t act#a resi$ence in the oca it! $oes not res# t in the ac:#isition of $o&ici e, nor $oes the fact of ph!sica presence 9itho#t intention. > The &ere ac:#isition of an i&&i'rant or per&anent resi$ent stat#s -! a 4i ipino citi3en in a forei'n co#ntr! $oes not ipso ,#re res# t in the a#to&atic severance of his $o&ici iar! in= to the (hi ippines, nor the ac:#isition of a ne9 $o&ici e of choice. %ifferent ,#ris$ictions var! in their e'a characteri3ation of the ter&s i&&i'rant an$ per&anent resi$ent, 9ith $issi&i ar re:#ire&ents, con$itions an$ restrictions for the

ac:#isition an$ &aintenance of those stat#ses. Territories 9ith conservative po icies on i&&i'ration ten$ to -e restrictive an$ e"c #sive, especia ! on &atters re atin' to resi$enc! 6or $o&ici iar!7< 9hi e &ore open societies ten$ to -e i-era an$ inc #sive. To i #strateF In the Unite$ States, an over9he &in' &a,orit! of o#r co&patriots are no9 en,o!in' the ri'hts an$ privi e'es of per&anent resi$ents an$ i&&i'rants. The U.S. I&&i'ration an$ Nationa it! Act $efines the ter& per&anent as 1a re ationship of contin#in' an$ astin' nat#re, as $istin'#ishe$ fro& te&porar!, -#t a re ationship &a! -e per&anent even tho#'h it is one that &a! -e $isso ve$ event#a ! at the instance either of the Unite$ States or of the in$ivi$#a , in accor$ance 9ith a9<1 5 an$ resi$ence as 1a p ace of 'enera a-o$e< an$ the p ace of 'enera a-o$e of a person &eans his principa , act#a $9e in' p ace in fact, 9itho#t re'ar$ to intent.1 J Th#s, consi$erin' that intent is not necessar! in esta- ishin' per&anent resi$enc! in the U.S., it is entire ! possi- e for a 4i ipino citi3en to -e a per&anent resi$ent in the U.S., i.e., the U.S. &a! -e his 'enera p ace of a-o$e, 1his principa , act#a $9e in' p ace in fact,1 for an in$efinite perio$ of ti&e, 9itho#t ho9ever a-an$onin' his (hi ippine $o&ici e to 9hich he inten$s to ret#rn ater. I&&i'rants, on the other han$, have -een oose ! $efine$ as referrin' to 1ever! a ien in the Unite$ States, e"cept an a ien 9ho is 9ithin one of the non*i&&i'rant a iens en#&erate$ in the I&&i'ration an$ Nationa it! Act of the Unite$ States.1 8 The! are c assifie$ into the non*:#ota i&&i'rants an$ the :#ota i&&i'rants. The :#ota i&&i'rants &a! fa in either of t9o 6;7 cate'oriesF the fa&i !*-ase$ preferences an$ the e&p o!&ent*-ase$ preferences. (artic# ar ! interestin' is the ast &entione$ cate'or!, the e&p o!&ent*-ase$ preferences. These i&&i'rants are conferre$ the stat#s as s#ch on the -asis of their occ#pationa s=i s an$ the e&p o!&ent $e&an$s in the host co#ntr!. To this c ass -e on's the professiona s, investors, &ana'ers an$ e"ec#tives, s=i e$ 9or=ers, hea th 9or=ers, professors an$ researchers. Man! 4i ipino citi3ens fa #n$er this cate'or!, an$ &ost of the& opt for i&&i'rant stat#s so e ! for the p#rpose of sec#rin' per&anent e&p o!&ent in the U.S., an$ inten$ to ret#rn to the (hi ippines after their p#rpose is acco&p ishe$. The $iaspora of 4i ipinos in forei'n an$s starte$ in the 9a=e of the - #$'eonin' econo&ic crisis in the 0@Gs an$ its res# tin' ac#te shorta'e of e&p o!&ent opport#nities. This pheno&enon has contin#e$ to the present $a! as the stea$i ! risin' cost of ivin' an$ inter&ittent econo&ic crises D 9or $9i$e in their effects D 9ei'he$ &ost heavi ! on the or$inar! 4i ipino. He $oes not have &#ch choiceF eave or starve. The #re of the prover-ia 'reener past#res in forei'n an$s is certain ! a potent incentive for an e"o$#s. In &ost cases, the $ecision to &i'rate is -orne o#t of the $ire necessities of ife rather than a conscio#s $esire to a-an$on the an$ of -irth. Most i&&i'rants an$ per&anent

resi$ents re&ain -o#n$ ver! stron' ! -! inti&ate ties of fi ia , racia , c# t#ra an$ socia re ationships 9ith the (hi ippines. The! trave -ac= perio$ica ! to -e 9ith their frien$s an$ ove$ ones< so&e even o9n, &aintain an$ &ana'e their properties here< an$, the! contin#e to sho9 =een interest in, an$ =eep the&se ves a-reast 9ith, po itica an$ socia $eve op&ents in the co#ntr! thro#'h the &ass &e$ia. The! &a=e si'nificant contri-#tions to the nation, thro#'h their re'# ar $o ar re&ittances that have tre&en$o#s ! shore$ #p o#r sa''in' nationa econo&!. In the face of these rea ities, I a& convince$ &ore than ever that act#a an$ ph!sica resi$ence a-roa$ sho# $ not a#to&atica ! -e e:#ate$ 9ith a-an$on&ent of (hi ippine $o&ici e. The circ#&stances en#&erate$ in the i&&e$iate ! prece$in' para'raph are va i$ in$icia of ani&#s &anen$i 6intent to re&ain7 an$ ani&#s reverten$i 6intent to ret#rn7, 9hich sho# $ not si&p ! -e -r#she$ asi$e in $eter&inin' 9hether the ri'ht to vote sho# $ -e $enie$ the i&&i'rants an$ per&anent resi$ents. In$ee$, there is no rh!&e nor reason to #n$# ! &ar'ina i3e this c ass of 4i ipinos. It is si'nificant to stress, ho9ever, that Sec. 5, par. 6$7, of the A-sentee 2otin' La9 in fact $is:#a ifies i&&i'rants an$ per&anent resi$ents fro& votin' as a 'enera r# e. This is precise ! in reco'nition of the fact that their stat#s as s#ch &a! in$ee$ -e a -a$'e of their intent to a-an$on their (hi ippine $o&ici e an$ sett e per&anent ! in their host co#ntr!. B#t at the sa&e ti&e, the e'is at#re provi$e$ for a &echanis& in the a9 for ascertainin' rea intentF an i&&i'rant or per&anent resi$ent 9ho 9ishes to e"ercise his ri'ht of s#ffra'e is re:#ire$ as a con$ition sine :#a non to e"ec#te an affi$avit $ec arin' that he sha res#&e act#a , ph!sica an$ per&anent resi$ence in the (hi ippines not ater than three 6?7 !ears fro& his re'istration #n$er the a9< an$ that he has not app ie$ for citi3enship in another co#ntr!. The a9 in effect $ra9s a $istinction -et9een t9o 6;7 c asses of i&&i'rants or per&anent resi$ents D those 9ho have reno#nce$ their o $ $o&ici e in the (hi ippines, an$ those 9ho sti consi$er the (hi ippines as their $o&ici e of ori'in. The e"ec#tion of the affi$avit is an affir&ation on the part of the i&&i'rant or per&anent resi$ent that his sta! a-roa$ sho# $ not -e constr#e$ as a re in:#ish&ent of his o $ $o&ici e. I a& not #na9are of the possi-i it! that the i&&i'rant or per&anent resi$ent &a! rene'e on his #n$erta=in' in the affi$avit to res#&e act#a , ph!sica an$ per&anent resi$ence in the (hi ippines. B#t the a9 contains proper an$ a$e:#ate safe'#ar$s a'ainst the &is#se or a-#se of this privi e'e, i.e., his na&e 9i -e p#r'e$ fro& the Nationa Re'istr! of A-sentee 2oters an$ he 9i -e per&anent ! $is:#a ifie$ fro& votin' in a-sentia. As a c osin' o-servation, I 9ish to e&phasi3e that the a-so #te $is:#a ification of 4i ipino i&&i'rants an$ per&anent resi$ents, 9itho#t $istinction, fro& participatin' in the (hi ippine e ectora process 9o# $ invaria- ! res# t, as in the past, in a &assive $isenfranchise&ent of :#a ifie$ voters. It 9o# $ -e se f*$efeatin' in the e"tre&e if the

A-sentee 2otin' La9 9o# $ fo#n$er on the roc= -! reason of an #n$# ! restrictive an$ $eci$e$ ! #nrea istic interpretation 'iven -! the &inorit! on the resi$enc! re:#ire&ent in the Constit#tion. I vote to s#stain the constit#tiona it! of Sec. 5, par. 6$7, of RA ./0., an$ on the other han$, to $ec are #nconstit#tiona Sec. /0.5 of the sa&e a9 insofar as it a#thori3es COMELEC to proc ai& the 9innin' can$i$ates for (resi$ent an$ 2ice*(resi$ent it -ein' c ear ! vio ative of Sec. >, Art. 2II, of the Constit#tion, as 9e as Secs. /8./, /. an$ ;5 of RA ./0. insofar as the! s#-,ect COMELEC i&p e&entin' r# es an$ re'# ations to revie9 an$ approva -! the +oint Con'ressiona Oversi'ht Co&&ittee for -ein' i=e9ise vio ative of Sec. /, Art. IH*A of the Constit#tion. CcAHEI 2ITUB, +.F In$ee$, the &an$ate of the Constit#tion is e"p icit D one &#st -e a resi$ent in or$er to vote in the co#ntr!Gs e ections. / B#t, e:#a ! co&pe in' is its other provision that $irects Con'ress to a$opt a s!ste& that 9o# $ a o9 a-sentee votin' -! :#a ifie$ 4i ipinos a-roa$. ; The $e i-erations -! &e&-ers of the Constit#tiona Co&&ission on the s#-,ect are instr#ctive. ? 1MR. SUAREC. Ma! I ,#st -e reco'ni3e$ for a c arification. There are certain :#a ifications for the e"ercise of the ri'ht of s#ffra'e i=e havin' resi$e$ in the (hi ippines for at east one !ear an$ in the p ace 9here the! propose to vote for at east si" &onths prece$in' the e ections. Ahat is the effect of these &an$ator! re:#ire&ents on the &atter of the e"ercise of the ri'ht of s#ffra'e -! the a-sentee voters i=e 4i ipinos a-roa$K 1THE (RESI%ENT. Ao# $ Co&&issioner Monso$ care to ans9erK 1MR. MONSO%. I -e ieve the ans9er 9as a rea$! 'iven -! Co&&issioner Bernas, that the $o&ici e re:#ire&ents as 9e as the :#a ifications an$ $is:#a ifications 9o# $ -e the sa&e. 1THE (RESI%ENT. Are 9e eavin' it to the e'is at#re to $evise the s!ste&K 14R. BERNAS. I thin= there is a ver! e'iti&ate pro- e& raise$ there. 1THE (RESI%ENT. Yes. 1MR. BENBCON. I -e ieve Co&&issioner S#are3 is c arifie$. 14R. BERNAS. B#t I thin= it sho# $ -e f#rther c arifie$ 9ith re'ar$ to the resi$ence re:#ire&ent or the p ace 9here the! vote in practice, the #n$erstan$in' is that it is f e"i- e. 4or instance, one &i'ht -e a resi$ent of Na'a or $o&ici e$ therein, -#t he satisfies the re:#ire&ent of resi$ence in Mani a, so he is a- e to vote in Mani a. MR. TINBSON. Ma$a& (resi$ent, &a! I s#''est to the Co&&ittee to chan'e the 9or$ G4i ipinosG to )UALI4IE% 4ILI(INO 2OTERS. Instea$ of G2OTINB BY 4ILI(INOS ABROA%,G it sho# $ -e )UALI4IE% 4ILI(INO 2OTERS. If the

Co&&ittee 9ants )UALI4IE% 2OTERS LI2INB ABROA%, 9o# $ that not satisf! the re:#ire&entK 1THE (RESI%ENT. Ahat $oes Co&&issioner Monso$ sa!K 1MR. MONSO%. Ma$a& (resi$ent, I thin= I 9o# $ accept the phrase G)UALI4IE% 4ILI(INOS ABROA%G -eca#se G)UALI4IE%G 9o# $ ass#&e that he has the :#a ifications an$ none of the $is:#a ifications to vote. 1MR. TINBSON. That is ri'ht. So $oes the Co&&ittee acceptK 14R. BERNAS. G)UALI4IE% 4ILI(INOS ABROA%GK 1THE (RESI%ENT. %oes the Co&&ittee accept the a&en$&entK 1MR. REBALA%O. Ma$a& (resi$ent. 1THE (RESI%ENT. Co&&issioner Re'a a$o is reco'ni3e$. 1MR. REBALA%O. Ahen Co&&issioner Ben'3on as=e$ &e to rea$ &! propose$ a&en$&ent, I specifica ! state$ that the Nationa Asse&- ! sha prescri-e a s!ste& 9hich 9i ena- e :#a ifie$ citi3ens, te&porari ! a-sent fro& the (hi ippines, to vote. Accor$in' to Co&&issioner Monso$, the #se of the phrase 1a-sentee votin'1 a rea$! too= into acco#nt as its &eanin'. That is referrin' to :#a ifie$ 4i ipino citi3ens te&porari ! a-roa$. 1MR. MONSO%. Yes, 9e accepte$ that. I 9o# $ i=e to sa! that 9ith respect to re'istration 9e 9i eave it #p to the e'is ative asse&- !, for e"a&p e, to re:#ire 9here the re'istration is. If it is, sa!, &e&-ers of the $ip o&atic corps 9ho &a! -e contin#o#s ! a-roa$ for a on' ti&e, perhaps, there can -e a s!ste& of re'istration in the e&-assies. Ho9ever, 9e $o not i=e to pree&pt the e'is ative asse&- !. 1THE (RESI%ENT. +#st to c arif!, Co&&issioner Monso$Gs a&en$&ent is on ! to provi$e a s!ste&. 1MR. MONSO%. Yes. 1THE (RESI%ENT. The Co&&issioner is not statin' here that he 9ants ne9 :#a ifications for these a-sentee voters. 1MR. MONSO%. That is ri'ht. The! &#st have the :#a ifications an$ none of the $is:#a ifications. 1THE (RESI%ENT. It is ,#st to $evise a s!ste& -! 9hich the! can vote. 1MR. MONSO%. That is ri'ht, Ma$a& (resi$ent.1 6ita ics s#pp ie$7 In e ection cases, the Co#rt, &ore than once, has treate$ resi$ence an$ $o&ici e as -ein' s!non!&o#s ter&s. In Ro&#a $e3 vs. Re'iona Tria Co#rt of Tac o-an, > this Co#rt has sai$F 1The ter& Gresi$enceG as #se$ in the e ection a9 is s!non!&o#s 9ith G$o&ici e,G 9hich

i&ports not on ! an intention to resi$e in a fi"e$ p ace -#t a so persona presence in that p ace, co#p e$ 9ith con$#ct in$icative of s#ch intention. G%o&ici eG $enotes a fi"e$ per&anent resi$ence to 9hich 9hen a-sent for -#siness or p eas#re, or for i=e reasons, one inten$s to ret#rn. . . . Resi$ence th#s ac:#ire$, ho9ever, &a! -e ost -! a$optin' another choice of $o&ici e. In or$er, in t#rn, to ac:#ire a ne9 $o&ici e -! choice, there &#st conc#r 6/7 resi$ence or -o$i ! presence in the ne9 oca it!, 6;7 an intention to re&ain there, an$ 6?7 an intention to a-an$on the o $ $o&ici e. In other 9or$s, there &#st -asica ! -e ani&#s &anen$i co#p e$ 9ith ani&#s non reverten$i. The p#rpose to re&ain in or at the $o&ici e of choice &#st -e for an in$efinite perio$ of ti&e< the chan'e of resi$ence &#st -e vo #ntar!< an$ the resi$ence at the p ace chosen for the ne9 $o&ici e &#st -e act#a .1 The instant controvers! pri&ari ! revo ves on the iss#e of 9hether or not an i&&i'rant or a per&anent resi$ent in another co#ntr! sho# $ -e consi$ere$ to have ost his stat#s as a (hi ippine resi$ent an$ &#st th#s -e -arre$ fro& participatin' in the nationa e ections. It is 9e to reca that, in ac:#irin' a ne9 $o&ici e, there &#st -e a conc#rrence of ani&#s &anen$i an$ ani&#s non reverten$i. Intention is a 9a!s cr#cia . Th#s, the Co#rt, in Ro&#a $e3 vs. Re'iona Tria Co#rt of Tac o-an 5 an$ Ro&#a $e3*Marcos vs. Co&&ission on E ections 6COMELEC7, J has $e ve$ in $etai into the intention of the parties to $eter&ine the :#estion of $o&ici e. It is to -e conce$e$ that for :#ite so&eti&e no9, econo&ic crises have force$ &i ions of 4i ipinos to eave their ho&es to 9or= an$ ive in forei'n shores. To &ost, it has not -een a $ecision to #proot the&se ves, et a one co&p ete ! sever their ties, fro& the co#ntr! of -irth. It is not at a farfetche$ for e&i'ratin' co#ntr!&en, 9hen con$itions 9arrant, to 'et ri'ht -ac= ho&e. I a& not prepare$ to sa! that their i&&i'rant stat#s a-roa$ is necessari ! proof of an intention to $iscar$ an$ to a-an$on the $o&ici e of ori'in. Caasi vs. Co#rt of Appea s, 8 $is:#a if!in' a 1'reen car$ ho $er1 6an i&&i'rant of the Unite$ States7 fro& r#nnin' for a oca p#- ic office, 9as pre$icate$ on Section J0 of the O&ni-#s E ection Co$e of the (hi ippines. This a9 $isa o9s an! person 9ho is a per&anent resi$ent of, or an i&&i'rant to, a forei'n co#ntr! to r#n for an e ective p#- ic office, #n ess he sha have 19aive$ his stat#s as per&anent resi$ent or i&&i'rant of a forei'n co#ntr! in accor$ance 9ith the resi$ence re:#ire&ent provi$e$ for in the e ection a9s.1 No s#ch e"press $is:#a ification, ho9ever, e"ists for the e"ercise of the ri'ht to vote. The reason for the $is:#a ification 9ith respect to e ective officia s, I ta=e it, procee$s fro& an ass#&ption that 1resi$ent a iens of a forei'n co#ntr! are incapa- e of s#ch entire $evotion to the interest an$ 9e fare of their ho&e an$ for, 9ith one e!e on their p#- ic $#ties here, the! &#st =eep another e!e on their $#ties #n$er the a9s of the forei'n co#ntr! of their choice in or$er to preserve their stat#s as per&anent resi$ents thereof.1 0 The $an'er $oes not ho $ tr#e 9ith respect to i&&i'rants a-roa$ 9ho 9o# $ si&p ! -e $ischar'in' their ri'ht an$ $#t! to cast a vote for their can$i$ate of choice.

The a9 &#st have reco'ni3e$ that ani&#s &anen$i an$ ani&#s non reverten$i, -ein' processes of the &in$ an$ incapa- e of a $efinitive $eter&ination, co# $ on ! -e $iscerne$ fro& perceiva- e circ#&stances. So a so, Rep#- ic Act No. ./0. or the 1Overseas A-sentee 2otin' Act of ;@@?,1 $is:#a ifies an 1i&&i'rant or a per&anent resi$ent 9ho is reco'ni3e$ as s#ch in the host co#ntr!1 to vote #n$er the Act . on the pre&ise that s#ch a circ#&stance can -e a co'ent in$ication of the ho $erGs intention to a-an$on his o $ $o&ici e an$ esta- ish a ne9 one. B#t, in &#ch the sa&e vein, the a9 ac=no9 e$'es that the i&&i'rant or per&anent resi$ent &a! sti -e :#a ifie$ to vote, provi$e$ 1he e"ec#tes, #pon re'istration, an affi$avit prepare$ for the p#rpose -! the Co&&ission on E ections $ec arin' that he sha res#&e act#a ph!sica per&anent resi$ence in the (hi ippines not ater than three 6?7 !ears fro& approva of his re'istration #n$er 6the7 Act.1 The affi$avit sha a$$itiona ! confir& that he has not app ie$ for citi3enship in another co#ntr!.1 /@ I a& convince$ that these in$icators #se$ -! the e'is at#re are reasona- e 'a#'es to esta- ish the intention of the i&&i'rant not to a-an$on his (hi ippine $o&ici e. The fact that he has not re in:#ishe$ his (hi ippine citi3enship sho# $ he p re&ove an! in'erin' $o#-t on his preferre$ stat#s. After a , the ri'ht of s#ffra'e, no9 9i$e ! consi$ere$ to -e an innate ri'ht of ever! nationa , is a -asic an$ perhaps the &ost o#tstan$in' &ar= of citi3enship. Section > of the Act a o9s a :#a ifie$ 4i ipinos a-roa$ to vote for (resi$ent, 2ice* (resi$ent, Senators an$ part!* ist representatives. In re ation to this, Section /0.5 e&po9ers the Co&&ission on E ections to or$er the proc a&ation of 9innin' can$i$ates. // Since it is Con'ress 9hich has -een 'rante$ -! the Constit#tion /; the a#thorit! an$ $#t! to canvass the votes an$ proc ai& the 9innin' can$i$ates for presi$ent an$ vice*presi$ent, I echo the senti&ent of &! co ea'#es that the po9er 'iven to COMELEC -! Section /0.5 of R.A. ./0. sho# $ -e #n$erstoo$ to -e i&ite$ on ! to the proc a&ation of 9innin' can$i$ates for the positions of senators an$ part!* ist representatives. The e ection ret#rns for the positions of presi$ent an$ vice* presi$ent sho# $ then -e certifie$ -! the Boar$ of Canvassers to Con'ress an$ not to COMELEC as provi$e$ for in Section /0.> of the Act. /? R.A. ./0. creates a +oint Con'ressiona Oversi'ht Co&&ittee 6+COC7 co&pose$ of Senators an$ Me&-ers of the Ho#se of Representatives, e&po9ere$ to 1revie9, revise, a&en$ an$ approve the I&p e&entin' R# es an$ Re'# ations 6IRR7 pro&# 'ate$ -! the COMELEC,1 /> an$ to approve the votin' -! &ai in not &ore than three 6?7 co#ntries for the Ma! ;@@> e ections an$ in an! co#ntr! $eter&ine$ -! COMELEC. /5 The Co#rt here fin$s #nani&it! in ho $in' that Con'ress, -! vestin' itse f 9ith the aforesai$ po9ers, has 'one -e!on$ the scope of its constit#tiona a#thorit!. It is a prono#nce&ent that, in &! vie9, can har$ ! -e s#scepti- e to cha en'e. The Constit#tion or$ains that constit#tiona co&&issions s#ch as the COMELEC sha -e in$epen$ent. /J The COMELEC has the constit#tiona a#thorit! to 1enforce an$ a$&inister a a9s an$ re'# ations re ative to the con$#ct of an

e ection1 /8 an$ to pro&# 'ate its r# es of proce$#re. /0 The ro e therefore of the +COC &#st -e #n$erstoo$ as -ein' i&ite$ on ! to the &onitorin' an$ eva #ation of the i&p e&entation of the Act /. p#rs#ant to the po9er of Con'ress to con$#ct in:#iries in ai$ of e'is ation. ;@ In vie9 9hereof, I vote to #pho $ the constit#tiona it! of Rep#- ic Act No. ./0. a o9in' a-sentee votin' in the &anner e"presse$ therein, -#t that, as re'ar$s Sections /8./, /. an$ ;5, I share the #nani&o#s conc #sion reache$ -! &! co ea'#es $ec arin' portions thereof as -ein' #nconstit#tiona . %aECST (ANBANIBAN, +.F 1Constit#tions are $esi'ne$ to &eet not on ! the va'aries of conte&porar! events. The! sho# $ -e interprete$ to cover even f#t#re an$ #n=no9n circ#&stances. It is to the cre$it of its $rafters that a Constit#tion can 9ithstan$ the assa# ts of -i'ots an$ infi$e s, -#t at the sa&e ti&e -en$ 9ith the refreshin' 9in$s of chan'e necessitate$ -! #nfo $in' events.1 / The $e i-erations on this case have -een - esse$ 9ith e"tensive an$ e"ha#stive $isc#ssions -! the +#stices. The ponencia itse f as 9e as the separate, the conc#rrin' an$ the $issentin' opinions a- ! 9ritten -! &! estee&e$ co ea'#es scr#tini3e$ its &an! aspects an$ ra&ifications. Their thoro#'hness an$ scho arship he pe$ $isti the iss#es an$ ena- e$ the Co#rt to arrive at an infor&e$ ,#$'&ent. It is :#ite c ear that there is #nani&it! of opinion in $ec arin' #nconstit#tiona those portions of RA ./0. 6/7 'rantin' Con'ress oversi'ht po9ers over the Co&e ec I&p e&entin' R# es an$ Re'# ations 6IRR7< an$ 6;7 'ivin' Co&e ec a#thorit! to proc ai& presi$entia an$ vice*presi$entia 9inners D a po9er e"press ! o$'e$ in Con'ress -! the Constit#tion. O-vio#s !, ho9ever, there is $iversit! of opinion on the :#estion of 9hether 4i ipinos, 9ho have -eco&e per&anent forei'n resi$ents, &a! -e a o9e$ to vote after e"ec#tin' an affi$avit sho9in' an intent to resi$e in the (hi ippines 9ithin three !ears therefro&. I 9i no on'er -e a-or the penetratin' e'a pros an$ contras $isc#sse$ -! the ,#stices in connection 9ith this i&portant iss#e. Let &e ,#st a$$ one &ore point in favor of the constit#tiona it! of the afore&entione$ provision in Section 56$7 of RA ./0.. ; It is a point that is -orne, not of strict e'a ese, -#t of practica co&&on sense that even a! persons 9i #n$erstan$. ? The Infor&ation A'e has shr#n= the 9or $, ena- e$ 4i ipinos a-roa$ to =eep a-reast 9ith c#rrent events in o#r co#ntr!, an$ th#s e&po9ere$ the& to -e a- e to vote 9ise ! for o#r nationa ea$ers. )#a ifications of 2oters Let &e start &! e"p anation of &! position -! reca in' that o#r Constit#tion >

re:#ires voters to possess, on the $a! of the e ection, a &ini&#& of three :#a ities or attri-#tes re atin' to 6/7 citi3enship, 6;7 a'e an$ 6?7 resi$ence. In a$$ition, o#r f#n$a&enta a9 sa!s that the citi3en &#st 1not other9ise -e $is:#a ifie$ -! a91 fro& votin'. On the first, on ! those 9ho o9e a e'iance to a co#ntr! have the ri'ht to se ect its ea$ers an$ $eter&ine its $estin!. This is a 9or $9i$e pheno&enon. Th#s, on ! 4i ipinos &a! vote in the (hi ippines< a iens cannot. B! the sa&e to=en, on ! A&ericans &a! vote in A&erica, 5 an$ on ! In$ians &a! vote in In$ia. J The secon$ :#a ification, a'e, ass#res that on ! those 9ho have reache$ the nat#ra &enta &at#rit! are enfranchise$ to choose in$epen$ent ! an$ sensi- !. Hence, on ! those 9ho have reache$ /0, the a'e of &a,orit!, are a o9e$ to vote< on ! those capacitate$ -! the a9 to enter into -in$in' o- i'ations an$ contracts 8 are a o9e$ to e ect the persons 9ho 9o# $ &a=e an$ e"ec#te the a9. On the thir$, resi$ence of at east one !ear in the (hi ippines D of 9hich si" &onths &#st -e in the p ace 9here the -a ot is cast D is re:#ire$ of voters. In o#r case to$a!, this resi$ence re:#ire&ent is the cr#" or centerpoint. I respectf# ! s#-&it that to #n$erstan$ ho9 to interpret this :#a ification in re ation to the Overseas A-sentee 2otin' La9, it is necessar! to in:#ire into the reason for re:#irin' it as a con$ition for s#ffra'e. Ah! $oes the Constit#tion insist on resi$ence as a prere:#isite to votin'K E%cIAC Reason for Resi$ence Re:#ire&ent I -e ieve that, tra$itiona !, the a9 re:#ires resi$ence 0 -eca#se presence in a certain oca it! ena- es a person to =no9 the nee$s an$ the pro- e&s of that area. E:#a ! i&portant, it a so &a=es one -eco&e ac:#ainte$ 9ith the can$i$ates D their :#a ifications, s#ita-i it! for a partic# ar office an$ p atfor& of 'overn&ent. Th#s, the f#n$a&enta a9 re:#ires, not ,#st that there -e a &ini&#& of one*!ear resi$ence in the co#ntr!, -#t a so that si" &onths of that perio$ -e spent in the p ace 9here the -a ot is to -e cast. S#ch $etai e$ re:#ire&ent 9i hopef# ! 'ive the voters s#fficient =no9 e$'e a-o#t a specific to9n as to he p the& choose its oca officia s 9ise !, :#ite apart fro& #n$erstan$in' eno#'h of the entire co#ntr! so as to prepare to vote sa'acio#s ! for nationa ea$ers. The S#pre&e Co#rt ha$ occasions to $isc#ss this co&&on*sense reason for the resi$ence re:#ire&ent, in this 9iseF 1Ae stress that the resi$ence re:#ire&ent is roote$ in the $esire that officia s of $istricts or oca ities -e ac:#ainte$ not on ! 9ith the &etes an$ -o#n$s of their constit#encies -#t, &ore i&portant, 9ith the constit#ents the&se ves D their nee$s, $iffic# ties, aspirations, potentia s for 'ro9th an$ $eve op&ent, an$ a &atters vita to

their co&&on 9e fare. The re:#isite perio$ 9o# $ 'ive can$i$ates the opport#nit! to -e fa&i iar 9ith their $esire$ constit#encies, an$ i=e9ise for the e ectorate to eva #ate the for&erGs :#a ifications an$ fitness for the offices the! see=.1 . 1NTOhe p#rpose of the resi$enc! re:#ire&ent NisO to ens#re that the person e ecte$ is fa&i iar 9ith the nee$s an$ pro- e&s of his constit#enc!N.O1 /@ A tho#'h the fore'oin' $isc#ssions 9ere #se$ to ,#stif! the resi$ence re:#ire&ent vis*R*vis can$i$ates for e ective p#- ic offices, I -e ieve that their rationa e can easi ! an$ ana o'ica ! fit the nee$s of voters as 9e . The Essence of M! Opinion The $efinin' essence of &! position is thisF in the &i$st of the no9 avai a- e e*a'e co&&#nications faci ities, act#a presence in the (hi ippines is no on'er in$ispensa- e to &a=e $iscernin' 4i ipinos =no9 the pro- e&s of their co#ntr! an$ to $eci$e 9ho a&on' can$i$ates for nationa positions $eserve their &an$ate. In$ee$, the Infor&ation A'e has 'iven overseas 4i ipinos convenient &eans to infor& the&se ves of o#r co#ntr!Gs nee$s, as 9e as of the s#ita-i it! of can$i$ates for nationa offices. After a , &an! of the& ive a-roa$, not -eca#se the! 9ant to a-an$on their an$ of -irth, -#t -eca#se the! have -een constraine$ to $o so -! econo&ic, professiona , ive ihoo$ an$ other pressin' p#rs#its. Ine #cta- !, the! re&it their har$*earne$ &one! to he p their re atives here an$ their co#ntr! as a 9ho e. 2eri !, their eas! access to (hi ippine &ass &e$ia =eep the& constant ! a9are of happenin's in their native co#ntr!. Nationa $ai ies an$ other perio$ica s are so $ re'# ar ! in 4i ipino enc aves in forei'n shores. Severa oca an$ co&&#nit! p#- ications in these areas cater &ain ! to 4i ipino e"patriates, p#- ishin' ne9s an$ opinions not on ! a-o#t their a ien nei'h-orhoo$s, -#t a so :#ite e"tensive ! a-o#t their ho&e an$. // So, too, (hi ippine ne9s an$ &a'a3ine*t!pe -roa$casts are avai a- e to overseas 4i ipinos on a $ai ! -asis over ca- e te evision, 'ivin' the& the fee in' an$ the an$ inte ect#a stat#s of -ein' ho&e. Interactive T2 ta = sho9s are no9 ro#tine ! participate$ in via on' $istance phones an$ ce phone te"t &essa'es -! peop e ever!9here. Even &ore convenient ! avai a- e are the 9e-sites of &a,or $ai ies. Ahatever ne9s an$ vie9s the! print oca ! are instant ! accessi- e ever!9here on earth via the Internet. Tr# !, the e*a'e has opene$ 9in$o9s to the (hi ippines in a pervasive an$ thoro#'h &anner, s#ch that act#a presence in the co#ntr! is no on'er nee$e$ to &a=e an inte i'ent assess&ent of 9ho& to vote for as o#r nationa ea$ers. I &a=e this e&phasis on nationa officia s, -eca#se the A-sentee 2otin' La9 a o9s overseas votin' on ! for (resi$ent, 2ice (resi$ent, senators an$ part!* ist

representatives. /; This $istinction is i&portant, -eca#se the infor&ation avai a- e thro#'h 9e-sites an$ other &o$ern &e$ia o#t ets is a$$resse$ &ain ! to nationa concerns. To insist that on ! those 9ho can $e&onstrate act#a ph!sica resi$ence in the co#ntr! for one !ear D or on ! those 9ho co&p ie$ 9ith the &ore $iffic# t*to*#n$erstan$ concept of $o&ici e D 9o# $ -e entit e$ to vote 9o# $ -e to c in' a$a&ant ! an$ #nreasona- ! to a itera interpretation of the Constit#tion 9itho#t re'ar$ for its &ore i-eratin' spirit or rationa e. S#ch insistence 9o# $ res# t in ren$erin' in#ti e an! &eanin'f# effort to accor$ s#ffra'e to 4i ipinos a-roa$. /? S#ch proposition 9o# $ &a=e the constit#tiona interpretation anachrono#s in the face of the refreshin' an$ p# satin' rea ities of the 9or $. In &! vie9, it 9o# $ -e thoro#'h ! #nreasona- e to e"pect forei'n*-ase$ 4i ipinos to co&e -ac= here for one !ear ever! three !ears an$ a-an$on their ,o-s ,#st to -e a- e to co&p ! itera ! 9ith the resi$entia re:#ire&ent of s#ffra'e. On the other han$, the a$vances of science an$ techno o'! D especia ! in the fie $s of co&p#teri3ation, &iniat#ri3ation, $i'iti3ation, sate ite co&&#nications an$ fi-er optics D has so e"pan$e$ the capa-i ities of o#r -rothers an$ sisters a-roa$ as to ena- e the& to #n$erstan$ o#r nationa nee$s, 9itho#t havin' to sit -ac= an$ sta! here for one contin#o#s !ear. The! are no9 a- e to he p #s -ri$'e those nee$s, not on ! -! re&ittin' their har$*earne$ c#rrenc!, -#t a so -! assistin' oca ! -ase$ 4i ipinos to choose nationa ea$ers 9ho 9i steer the co#ntr! in the peri o#s ne9 paths of $eve op&ent an$ peace. cCTIaS Conc #sion In s#&, I respectf# ! s#-&it that ph!sica presence in the co#ntr! is no on'er in$ispensa- e to ar& 4i ipinos a-roa$ 9ith s#fficient infor&ation to ena- e the& to vote inte i'ent !. The a$vent of the Infor&ation A'e an$ the ' o-a i3ation of =no9 e$'e have e&po9ere$ the& to =no9 eno#'h a-o#t the (hi ippines to ena- e the& to choose o#r nationa officia s pr#$ent ! an$, in the process, to have a si'nificant voice in the 'overnance of the co#ntr! the! ove an$ cherish. I &aintain that the constit#tiona provision on voter resi$ence D i=e ever! other a9 D &#st -e interprete$ 1not -! the etter that =i eth -#t -! the spirit that 'iveth ife.1 As hera $e$ -! the :#otation fro& TaMa$a v. An'ara cite$ at the openin' of this Opinion, o#r Constit#tion sho# $ -e constr#e$ so it &a! 1-en$ 9ith the refreshin' 9in$s of chan'e necessitate$ -! #nfo $in' events.1 4ina !, &a! I stress that 9hen the reason for the a9 is acco&p ishe$, then the a9 itse f is f# fi e$. Since the a9 re:#irin' resi$ence is acco&p ishe$ -! the ' o-a i3ation of infor&ation, then the a9 itse f is f# fi e$. It is ti&e to e&po9er o#r overseas -rothers an$ sisters to participate &ore active ! in nation -#i $in' -! a o9in' the& to he p e ect o#r nationa ea$ers.

AHERE4ORE, I vote to #pho $ the constit#tiona it! of Section 5 6$7 of RA ./0.. I a so vote to $ec are as #nconstit#tiona portions of Section /0.5 thereof insofar as the! a#thori3e Co&e ec to proc ai& presi$entia an$ vice*presi$entia 9inners< an$ of Sections /8./, /. an$ ;5 insofar as the! s#-,ect to con'ressiona oversi'ht, revie9 an$ approva the i&p e&entation of votin' -! &ai an$ the I&p e&entin' R# es an$ Re'# ations of Co&e ec. CAR(IO, +.F conc#rrin' The case -efore this Co#rt is historic an$ &o&ento#s. Historic -eca#se the ri'ht of s#ffra'e, 9hich thro#'h the cent#ries painsta=in' ! evo ve$ into #niversa ri'ht, / stan$s at the crossroa$s in this co#ntr!. Sho# $ the ri'ht of s#ffra'e contin#e its &arch for9ar$ an$ reach overseas 4i ipinos, or sho# $ this Co#rt t#rn -ac= this historic &arch here at o#r 'atesK aIcCTA Mo&ento#s -eca#se the core iss#e is the enfranchise&ent or $isenfranchise&ent of so&e 8 &i ion overseas 4i ipinos. The ann#a contri-#tion of these overseas 4i ipinos to the nationa econo&!, in ter&s of har$*earne$ forei'n e"chan'e re&itte$ thro#'h the -an=in' s!ste&, e:#a s a &ost 5@ percent of the co#ntr!Gs nationa -#$'et. ; The tota re&ittances, recor$e$ an$ #nrecor$e$, of overseas 4i ipinos &a! even reach /0 percent of BN(, a &ost the sa&e percenta'e that a'ric# t#re at ;@ percent contri-#tes to the BN(. ? The nation has hai e$ the overseas 4i ipinos as the &o$ern*$a! heroes an$ saviors of the econo&!. Their - oo$, toi , tears an$ s9eat have proppe$ #p the (hi ippine peso thro#'h a the rec#rrin' financia crises that have -attere$ the nation. A tho#'h scattere$ in forei'n an$s across the ' o-e, these overseas 4i ipinos =eep a-reast 9ith $eve op&ents in the (hi ippines thro#'h the Internet, > ca- e an$ sate ite T2, an$ even te"tin'. In reco'nition of the i&&ense contri-#tion of overseas 4i ipinos to the nation, the fra&ers of the /.08 Constit#tion intro$#ce$ the a-sentee votin' s!ste&, nove in this co#ntr!, p#rpose ! to enfranchise the overseas 4i ipinos. Co&&issioner B as Op e, the for&er Minister of La-or 9ho starte$ $ep o!in' a-roa$ ar'e n#&-ers of 4i ipino 9or=ers, tri''ere$ the intro$#ction of the a-sentee votin' 9ith this $isco#rse $#rin' the $e i-erations of the Constit#tiona Co&&issionF MR. O(LEF . . . In a previo#s hearin' of the Co&&ittee on Constit#tiona Co&&issions an$ A'encies, the Chair&an of the Co&&ission on E ections, Ra&on 4e ipe, sai$ that there 9as no ins#pera- e o-stac e to &a=in' effective the ri'ht of s#ffra'e for 4i ipinos overseas. Those 9ho have a$here$ to their 4i ipino citi3enship not9ithstan$in' stron' te&ptations are e"pose$ to e&-race a &ore convenient forei'n citi3enship. An$ those 9ho on their o9n or #n$er press#re of econo&ic necessit! here, fin$ that the! have to $etach the&se ves fro& their fa&i ies to 9or= in other co#ntries 9ith $efinite ten#res

of e&p o!&ent. Man! of the& are on contract e&p o!&ent for one, t9o, or three !ears. The! have no intention of chan'in' their resi$ence on a per&anent -asis, -#t are technica ! $is:#a ifie$ fro& e"ercisin' the ri'ht of s#ffra'e to their co#ntries of $estination -! the resi$entia re:#ire&ent in Section / 9hich sa!sF S#ffra'e sha -e e"ercise$ -! a citi3ens of the (hi ippines not other9ise $is:#a ifie$ -! a9, 9ho are ei'hteen !ears of a'e or over, an$ 9ho sha have resi$e$ in the (hi ippines for at east one !ear an$ in the p ace 9herein the! propose to vote for at east si" &onths prece$in' the e ection. I, therefore, as= the Co&&ittee 9hether at the proper ti&e the! &i'ht entertain an a&en$&ent that 9i &a=e this e"ercise of the ri'ht to vote a-roa$ for 4i ipino citi3ens an effective, rather than &ere ! a no&ina ri'ht #n$er this propose$ Constit#tion. """ """ """ It 'ives &e scant co&fort thin=in' of a-o#t t9o &i ion 4i ipinos 9ho sho# $ en,o! the ri'ht of s#ffra'e, at east a s#-stantia se'&ent of these overseas 4i ipino co&&#nities. The Co&&ittee, of co#rse, is a9are that 9hen this Artic e of the Constit#tion e"p icit ! an$ #ne:#ivoca ! e"ten$s the ri'ht of effective s#ffra'e to 4i ipinos a-roa$, this 9i ca for a o'istica e"ercise of ' o-a proportions. In effect, this 9i re:#ire -#$'etar! an$ a$&inistrative co&&it&ents on the part of the (hi ippine 'overn&ent, &ain ! thro#'h the COMELEC an$ the Ministr! of 4orei'n Affairs, an$ perhaps, a &ore e"tensive e a-oration of this &echanis& that 9i -e p#t in p ace to &a=e effective the ri'ht to vote. Therefore, see=in' she ter in so&e 9ise ,#rispr#$ence of the past &a! not -e s#fficient to &eet the $e&an$s of the ri'ht of s#ffra'e for 4i ipinos a-roa$ that I have &entione$. B#t I 9ant to than= the Co&&ittee for sa!in' that an a&en$&ent to this effect &a! -e entertaine$ at the proper ti&e. 5 6E&phasis an$ ita ics s#pp ie$7 4ro& the start, the fra&ers of the Constit#tion =ne9 that the a-sentee votin' s!ste& for overseas 4i ipinos 9o# $ have to -e an e"ception to the $o#- e resi$enc! re:#ire&ent in Section /, Artic e 2 of the Constit#tion. This 9as the -asic pre&ise for intro$#cin' an e"press provision on a-sentee votin' in the Constit#tion. Un ess there is s#ch an e"ception in the Constit#tion itse f, overseas 4i ipinos co# $ never vote as a-sentee voters in vie9 of the $o#- e resi$enc! re:#ire&ent in Section /. Beca#se of this $o#- e resi$enc! re:#ire&ent, Con'ress co# $ not enfranchise thro#'h or$inar! e'is ation overseas 4i ipinos 9ho $o not co&p ! 9ith the $o#- e resi$enc! re:#ire&ent. Th#s, the fra&ers of the Constit#tion, -! an over9he &in' vote of ;0 in favor an$ on ! one a'ainst, approve$ Section ;, Artic e 2 of the Constit#tion, as fo o9sF SEC. ;. The Con'ress sha provi$e a s!ste& for sec#rin' the secrec! an$ sanctit! of the -a ot as 9e as a s!ste& for a-sentee votin' -! :#a ifie$ 4i ipinos a-roa$.

6Ita ics s#pp ie$7 After si"teen on' !ears of $e-ates, Con'ress fina ! enacte$ RA No. ./0. 6the Overseas A-sentee 2otin' Act of ;@@?7, precise ! to i&p e&ent the constit#tiona &an$ate to enfranchise overseas 4i ipinos. (etitioner no9 as=s the Co#rt to stri=e $o9n this a9 as #nconstit#tiona &ain ! -eca#se it enfranchises overseas 4i ipinos 9ho $o not co&p ! 9ith the $o#- e resi$enc! re:#ire&ent in Section /, Artic e 2 of the /.08 Constit#tion, as fo o9sF SEC. /. S#ffra'e &a! -e e"ercise$ -! a citi3ens of the (hi ippines not other9ise $is:#a ifie$ -! a9, 9ho are at east ei'hteen !ears of a'e, an$ 9ho sha have resi$e$ in the (hi ippines for at east one !ear an$ in the p ace 9herein the! propose to vote for at east si" &onths i&&e$iate ! prece$in' the e ection. No iterac!, propert!, or other s#-stantive re:#ire&ent sha -e i&pose$ on the e"ercise of s#ffra'e. 6Ita ics s#pp ie$7 Li=e the /.8? Constit#tion, Section /, Artic e 2 of the /.08 Constit#tion i&poses a $o#- e resi$enc! re:#ire&ent -efore a 4i ipino /0 !ears or over &a! e"ercise the ri'ht to vote, na&e !F 6/7 one !ear resi$ence in the (hi ippines< an$ 6;7 si" &onths resi$ence in the oca it! in the (hi ippines 9here he proposes to vote. The thresho $ iss#e is 9hether overseas 4i ipinos sho# $ co&p ! 9ith the $o#- e resi$enc! re:#ire&ent in Section / of Artic e 2 to vote #n$er the a-sentee votin' s!ste& in Section ; of the sa&e Artic e. State$ another 9a!, the iss#e is 9hether overseas 4i ipinos, &an! of 9ho& are not re'istere$ voters in the (hi ippines, sho# $ co&e ho&e t9ice to the (hi ippines ,#st so the! co# $ vote in a forei'n co#ntr! as a-sentee 4i ipino voters. The first ti&e the! sho# $ co&e ho&e is one !ear -efore the e ections to esta- ish resi$ence in the (hi ippines. The secon$ ti&e is si" &onths -efore the e ections to esta- ish resi$ence in the oca it! in the (hi ippines 9here the! propose to vote. %i$ the fra&ers of the /.08 Constit#tion inten$ to inf ict on overseas 4i ipinos s#ch a -#r$enso&e re:#ire&ent as an essentia feat#re of the a-sentee votin' s!ste& in Section ; of Artic e 2K To re:#ire a-sentee voters to co&p ! 9ith the $o#- e resi$enc! re:#ire&ent is to i&pose an i&practica an$ even an i&possi- e con$ition to the e"ercise of the constit#tiona ri'ht to vote. In the first p ace, the secon$ resi$enc! re:#ire&ent of esta- ishin' resi$ence in a oca it! in the (hi ippines 9here the voters propose to vote is i&possi- e to co&p ! since overseas 4i ipinos 9i o-vio#s ! not vote in an! oca it! in the (hi ippines. I&posin' the $o#- e resi$enc! re:#ire&ent &a=es the a-sentee votin' an e&pt! ri'ht of overseas 4i ipinos. Certain !, the 9ise fra&ers of the Constit#tion 9ere incapa- e of s#ch a-s#r$ sche&e. If the fra&ers of the Constit#tion $i$ not inten$ s#ch an a-s#r$ re:#ire&ent, sho# $ this Co#rt no9 i&pose s#ch a-s#r$it! on overseas 4i ipinosK Ho9 &an! overseas 4i ipinos 9o# $ co&p ! 9ith the $o#- e resi$enc! re:#ire&ent ,#st to vote in

(resi$entia an$ Senatoria e ectionsK Ho9 &#ch 9i overseas 4i ipinos spen$ ,#st to co&e ho&e t9ice 9ithin /; &onths ,#st so the! co# $ vote 9hen the! 'o -ac= a-roa$K ASHICc The concept of a-sentee votin' ne'ates a resi$enc! re:#ire&ent in the co#ntr! of citi3enship of the voter. B! $efinition, an a-sentee voter is a non*resi$ent voter. O-vio#s !, the $o#- e resi$enc! re:#ire&ent in Section / of Artic e 2 app ies on ! to resi$ent or non*a-sentee 4i ipino voters. To i&pose the $o#- e resi$enc! re:#ire&ent on a-sentee 4i ipino voters is an e're'io#s ano&a ! for it 9i re:#ire a-sentee 4i ipino voters to co&p ! 9ith the sa&e resi$enc! re:#ire&ent i&pose$ on resi$ent or non*a-sentee 4i ipino voters. If a-sentee 4i ipino voters are re:#ire$ to resi$e in the (hi ippines ,#st i=e resi$ent or non*a-sentee 4i ipino voters, 9h! create an a-sentee votin' s!ste& for overseas 4i ipinos in the first p aceK App !in' the $o#- e resi$enc! re:#ire&ent on a-sentee voters 9i ren$er the provision on a-sentee votin' in Section ; a s#rp #sa'e, a constit#tiona &an$ate $evoi$ of &eanin'. Even 9itho#t the a-sentee votin' provision in Section /, Con'ress can va i$ ! enact a a9 a o9in' resi$ent or non*a-sentee 4i ipino voters D those 9ho co&p ! 9ith the $o#- e resi$enc! re:#ire&ent D to vote a-roa$ in (hi ippine e&-assies or cons# ates. There is no constit#tiona prohi-ition on re'istere$ 4i ipino voters 9ho co&p ! 9ith the $o#- e resi$enc! re:#ire&ent to cast their -a ots at a (hi ippine e&-ass! or cons# ate a-roa$ 9here the! happen to -e on e ection $a!. If the a-sentee votin' s!ste& in Section ; 9ere for the -enefit on ! of resi$ent or non*a-sentee 4i ipinos, then there 9o# $ -e no nee$ to provi$e for it in the Constit#tion. The fra&ers of the /.08 Constit#tion specifica ! intro$#ce$ the a-sentee votin' provision in Section ; precise ! to enfranchise overseas 4i ipinos 9ho $o not co&p ! 9ith the $o#- e resi$enc! re:#ire&ent in Section /. Aitho#t the a-sentee votin' provision in Section ;, Con'ress co# $ not va i$ ! enact a a9 enfranchisin' overseas 4i ipinos 9ho $o not co&p ! 9ith the $o#- e resi$enc! re:#ire&ent. As s#ccinct ! e"p aine$ -! Co&&issioner Christian Monso$ $#rin' the $e i-erations in the Constit#tiona Co&&issionF MR. MONSO%F . . . The reason 9e 9ant a-sentee votin' to -e in the Constit#tion as a &an$ate to the e'is at#re is that there co# $ -e inconsistenc! on the resi$ence r# e if it is ,#st a :#estion of e'is ation -! Con'ress. So, -! a o9in' it an$ sa!in' that this is possi- e, then e'is ation can ta=e care of the rest. J Evi$ent !, the fra&ers of the Constit#tion inten$e$ the a-sentee votin' provision as an e"ception to the $o#- e resi$enc! re:#ire&ent. The :#estion of ho9 a 4i ipino, 9ho has -eco&e a per&anent resi$ent or i&&i'rant in a forei'n co#ntr!, &a! reac:#ire his $o&ici e or resi$ence in the (hi ippines is a &atter for or$inar! e'is ation. The reac:#isition of the (hi ippine $o&ici e or resi$ence that a 4i ipino ha$ ost is 9ithin the po9er of Con'ress to e'is ate. The

Constit#tion $oes not $efine 9hat $o&ici e or resi$ence &eans. There is a so no constit#tiona prohi-ition a'ainst the enact&ent of e'is ation prescri-in' the reac:#isition of $o&ici e or resi$ence in the (hi ippines, ,#st as there is no constit#tiona prohi-ition a'ainst the enact&ent of e'is ation prescri-in' the reac:#isition of (hi ippine citi3enship. Th#s, RA No. 0/8/ 8 a o9s a for&er nat#ra *-orn 4i ipino 9ho -eca&e a forei'ner to reac:#ire (hi ippine citi3enship -! fi in' a si&p ifie$ a$&inistrative petition an$ ta=in' an oath of a e'iance to the (hi ippines. Section 56$7 of RA No. ./0., 9hich prescri-es the reac:#isition of resi$ence -! a 4i ipino thro#'h the e"ec#tion of an affi$avit statin' he is res#&in' resi$ence in the (hi ippines, is si&i ar ! 9e 9ithin the po9er of Con'ress to enact an$ is th#s constit#tiona . Ahi e the a-sentee votin' s!ste& is ne9 in this co#ntr!, it is 9e esta- ishe$ in other co#ntries. In the Unite$ States, a U.S. citi3ens /0 !ears or over 9ho resi$e o#tsi$e the Unite$ States $#rin' an e ection are e i'i- e to vote as a-sentee voters. 0 The tren$ in the Unite$ States is to a o9 1no*e"c#se1 a-sentee votin', . that is, a :#a ifie$ or re'istere$ voter &a! avai of a-sentee votin' for an! reason. A-sentee votin' is #n$erstoo$ in other ,#ris$ictions as votin' -! a :#a ifie$ or re'istere$ voter 9itho#t an! resi$enc! re:#ire&ent. In the present case, petitioner 9ants a $o#- e resi$enc! re:#ire&ent i&pose$ on a-sentee 4i ipino voters. The ri'ht of s#ffra'e is the cornerstone of a representative 'overn&ent i=e that esta- ishe$ in the /.08 Constit#tion. A representative 'overn&ent is e'iti&ate 9hen those represente$ e ect their representatives in 'overn&ent. The consent of the 'overne$ is 9hat sta&ps e'iti&ac! on those 9ho 'overn. This consent is e"presse$ thro#'h the ri'ht of s#ffra'e. It is a precio#s ri'ht for 9hich &an! have fo#'ht an$ $ie$ so that others &a! free ! e"ercise it. A 'overn&ent that $enies s#ch ri'ht on f i&s! or &eanin' ess 'ro#n$s $oes so at its peri . The Internationa Covenant on Civi an$ (o itica Ri'hts, to 9hich the (hi ippines is a si'nator!, re:#ires the (hi ippines to respect the peop eGs ri'ht of s#ffra'e 19itho#t #nreasona- e restrictions.1 Th#s, Artic e ;5 of the Covenant provi$esF Artic e ;5. Ever! citi3en sha have the ri'ht an$ the opport#nit!, 9itho#t an! of the $istinctions &entione$ in Artic e ; an$ 9itho#t #nreasona- e restrictions< 6a7 To ta=e part in the con$#ct of p#- ic affairs, $irect ! or thro#'h free ! chosen representatives< 6-7 To vote an$ to -e e ecte$ at 'en#ine perio$ic e ections 9hich sha -e -! #niversa an$ e:#a s#ffra'e an$ sha -e he $ -! secret -a ot, '#aranteein' the free e"pression of the 9i of the e ectors< """ """ """. 6E&phasis an$ ita ics s#pp ie$7 The (hi ippines is $#t! -o#n$ #n$er internationa a9 to co&p ! in 'oo$ faith 9ith its

treat! o- i'ations #n$er the Covenant. To re:#ire overseas 4i ipinos to ret#rn to the (hi ippines t9ice 9ithin /; &onths so the! &a! vote a-roa$ as a-sentee voters is p ain ! an #nreasona- e restriction o#t a9e$ -! the Covenant. Ahen the fra&ers of the Constit#tion intro$#ce$ a-sentee votin' in Section ; of Artic e 2, the! 9ere a9are of the co#ntr!Gs o- i'ations #n$er the Covenant. In their $isc#ssions on the $eath pena t!, h#&an ri'hts an$ the Bi of Ri'hts, the fra&ers of the Constit#tion often referre$ to the co#ntr!Gs o- i'ations #n$er the Covenant. /@ It is inconceiva- e that the fra&ers inten$e$ overseas 4i ipinos to co&p ! 9ith the $o#- e resi$enc! re:#ire&ent, an #nreasona- e restriction that 9o# $ patent ! vio ate Artic e ;5 of the Covenant an$ practica ! ne'ate the overseas 4i ipinosG ri'ht of s#ffra'e. There are so&e >@ co#ntries in the 9or $, inc #$in' o#r Asean nei'h-ors In$onesia an$ Thai an$, 9hich 'rant their overseas citi3ens the ri'ht to vote 9hi e resi$in' a-roa$. // The ine"ora- e $irection of histor! is to -esto9 on ever! person the ri'ht to vote 9herever he &a! -e in this ' o-a vi a'e. Mo$ern techno o'! an$ te eco&&#nications are &a=in' this happen even no9. /; Those 9ho insist on the $o#- e resi$enc! re:#ire&ent as an essentia con$ition for a-sentee votin' -! overseas 4i ipinos are t#rnin' -ac= in vain the c oc= of histor!. The fra&ers of the Constit#tion e"press ! &an$ate$ Con'ress to enact an a-sentee votin' a9 to enfranchise overseas 4i ipinos. Con'ress has enacte$ s#ch a a9 after a on' an$ $iffic# t str#'' e -! overseas 4i ipinos 9ho patient ! 9aite$ for /J !ears for the enact&ent of the a9. That str#'' e is no9 part of the 9or $ histor! of the evo #tion of the ri'ht of s#ffra'e as a #niversa ri'ht. No frivo o#s, a-s#r$ or i&practica con$itions sho# $ stan$ in the 9a! of enfranchisin' overseas 4i ipinos 9hose contri-#tion to the nationa econo&! is i&&eas#ra- e. Li=e the fra&ers of the /.08 Constit#tion an$ the &e&-ers of Con'ress, I vote to enfranchise o#r 8 &i ion overseas 4i ipinos. This is an e"p icit constit#tiona &an$ate that the Co#rt, i=e Con'ress, &#st honor an$ respect. I therefore conc#r entire ! 9ith the ponencia of +#stice Ma. A icia A#stria*Martine3. HaSEcA CAR(IO*MORALES, +.F conc#rrin' In the assa# t a'ainst the va i$it! of certain provisions of the ne9 ! enacte$ Rep#- ic Act No. ./0. or The Overseas A-sentee 2otin' Act of ;@@?, the pivota iss#e centers on the constit#tiona it! of the 'rant, #n$er Section 56$7 of the a9, of votin' ri'hts to 4i ipino i&&i'rants or per&anent resi$ents in forei'n co#ntries, con$itione$ on their e"ec#tion of an affi$avit $ec arin' that the! sha res#&e act#a ph!sica per&anent resi$ence in the (hi ippines 9ithin three !ears fro& the approva of their re'istration as a-sentee voters. The controvers! arises -eca#se the Constit#tion prescri-es, a&on' other re:#ire&ents for the e"ercise of s#ffra'e, that a 4i ipino citi3en &#st have resi$e$ in the (hi ippines for at east one !ear an$ in the p ace 9here he is to vote for at east si" &onths

i&&e$iate ! prece$in' the e ection. / Resi$ence for p#rposes of ascertainin' the ri'ht to vote an$ -e vote$ for in p#- ic office has -een ,#rispr#$entia ! interprete$ to &ean $o&ici e 9hich is an in$ivi$#a Gs per&anent ho&e or the p ace to 9hich, 9henever a-sent for -#siness or p eas#re, one inten$s to ret#rn, the $o&ici e of a person -ein' $epen$ent on facts an$ circ#&stances $isc osin' intent. ; Ahi e there is no :#estion that 4i ipinos 9ho are te&porari ! a-roa$ for vario#s reasons are sti :#a ifie$ to vote for the! sti retain their $o&ici e in the (hi ippines, i&&i'rants are 'enera ! $ee&e$ to -e per&anent sett ers of the co#ntr! 9here the! are s#ch, ? there-! 'ivin' rise to the conc #sion that the! have re ocate$ their $o&ici e e se9here. Rep#- ic Act No. ./0. 9as passe$ -! &an$ate of the Constit#tion that 1The Con'ress sha provi$e a s!ste& for sec#rin' the secrec! an$ sanctit! of the -a ot as 9e as a s!ste& for a-sentee votin' -! :#a ifie$ 4i ipinos a-roa$1 > -#t this $i$ not e"e&pt the &echanics for a-sentee votin' fro& the reach of the -asic re:#ire&ents i&pose$ -! the Constit#tion on s#ffra'e. It is c ear fro& the $e i-erations of the &e&-ers of the Constit#tiona Co&&ission that their intent 9as to i&it a-sentee votin' to 4i ipinos a-roa$ 9ho have a the :#a ifications an$ none of the $is:#a ifications of a voter, inc #$in' the resi$enc! re:#ire&ent. A 4i ipino 9ho is or has a rea$! -eco&e an i&&i'rant or per&anent resi$ent in another co#ntr! can, I a& convince$, -! a &ere s9orn #n$erta=in' to ret#rn to the (hi ippines for the p#rpose of esta- ishin' per&anent resi$ence here 9ithin the stat#tori ! fi"e$ three*!ear perio$, -e a o9e$ -! a9 to vote in (hi ippine e ections 9itho#t trans'ressin' the r# es ai$ $o9n -! the Constit#tion on s#ffra'e. 4or a 4i ipino i&&i'rant or per&anent resi$ent of a forei'n co#ntr! #n:#estiona- ! has the (hi ippines as his $o&ici e of ori'in, that 9hich he ac:#ires at -irth an$ is the $o&ici e of his parents or of the person or persons #pon 9ho& he 9as e'a ! $epen$ent at the ti&e of his -irth. 5 A $o&ici e, once ac:#ire$, 9hether -! ori'in or choice, contin#es #nti a ne9 $o&ici e is act#a ! ac:#ire$. J An$ to ac:#ire a ne9 $o&ici e -! choice, the fo o9in' &#st conc#rF 6/7 resi$ence or -o$i ! presence in the ne9 oca it!< 6;7 an intention to re&ain there 6ani&#s &anen$i7< an$ 6?7 an intention to a-an$on the o $ $o&ici e 6ani&#s non reverten$i7. 8 It is &! vie9 that the affi$avit e"ec#te$ in accor$ance 9ith Section 56$7 of R.A. ./0. -! a 4i ipino i&&i'rant or per&anent resi$ent of another co#ntr! e"pressin' his intent to res#&e ph!sica per&anent resi$ence in the (hi ippines is an e o:#ent proof of his intention not to a-an$on his $o&ici e of ori'in in the (hi ippines. It is a state&ent #n$er oath of 9hat a 4i ipino see=s to $o for the f#t#re of his &e&-ership in a po itica co&&#nit!. Ah! sho# $ this affi$avit -e $iscre$ite$ on the &ere spec# ation that the i&&i'rant &i'ht not f# fi his #n$erta=in' to ret#rn to the (hi ippines for 'oo$K If 4i ipinos 9ho are te&porari ! resi$in' in forei'n co#ntries

are accor$e$ f# faith an$ cre$it as to their $o&ici iar! ties no &atter ho9 in$efinite their a-sence fro& the (hi ippines, 9hat &ore in the case of 4i ipino i&&i'rants 9ho have for&a ! $ec are$ their intent to sett e in their ho&e an$K Ahi e he &a! have sta!e$ on a &ore or ess per&anent -asis in the host co#ntr! 9hich conferre$ on hi& the stat#s of an i&&i'rant an$ &a! -e ani&ate$ 9ith a the $esire to re&ain there, #nti an$ #n ess a 4i ipino i&&i'rant ha$ cate'orica ! e"presse$ -! 9or$s or -! $ee$s his intent to no on'er ret#rn to his $o&ici e of ori'in, no conc #sion can -e reache$ as to a chan'e in $o&ici e fro& one of ori'in to one of choice, hence, the o $ $o&ici e s#-sists. 4or at the core of ever! 4i ipino i&&i'rantGs -ein' is the fact of his (hi ippine citi3enship. He is, after a , sti a 4i ipino. ACHEaI The ac:#isition of a ne9 $o&ici e &#st -e co&p ete ! perfecte$ -! a conc#rrence of the fact#& of re&ova to a ne9 oca it!, the ani&#s to re&ain there, an$ a-an$on&ent of an$ intent not to ret#rn to the for&er $o&ici e, for if there is a p#rpose to ret#rn, 9hether secret or open, no oss or chan'e of $o&ici e 9i res# t. 0 T9o t!pes of 4i ipino i&&i'rants &#st then -e $istin'#ishe$. The first, a 4i ipino 9ho has opte$ not to e"ec#te the re:#ire$ affi$avit #n$er Section 56$7 of R.A. ./0., is c ear ! $is:#a ifie$ to e"ercise s#ffra'e for he has &anifeste$ the ani&#s non reverten$i 9ith respect to his $o&ici e in the (hi ippines, there-! effect#atin' his ac:#isition of a ne9 $o&ici e. The secon$, a 4i ipino 9ho $ec ares his 9ish to -e re#nite$ 9ith his ho&e an$ has, 9itho#t $o#-t, sho9n that his resi$ence of ori'in re&aine$ #nchan'e$ an$ so he is entit e$ to vote #n$er the Overseas A-sentee 2otin' La9. Therefore, #nti that opport#nit! to e"ec#te the affi$avit has -een tota ! fore'one -! a 4i ipino i&&i'rant, in the a-sence of an! conc #sive evi$ence of his ac:#isition of a ne9 $o&ici e, the 4i ipino i&&i'rantGs $o&ici e of ori'in is intact, his presence a-roa$ an$ his $esire to re&ain therein not9ithstan$in'. I, therefore, vote in favor of the constit#tiona it! of Section 56$7 of R.A. ./0.. I vote to $ec are as #nconstit#tiona parts of Section /0.5 of the s#-,ect a9 insofar as the! a#thori3e COMELEC to proc ai& presi$entia an$ vice*presi$entia 9inners< an$ of Sections /8./, /. an$ ;5 insofar as the! are s#-,ect to con'ressiona oversi'ht, revie9 an$ approva the i&p e&entation of votin' -! &ai an$ the I&p e&entin' R# es an$ Re'# ations of COMELEC. ACCUNA, +.F conc#rrin' I conc#r 9ith the ponencia, -#t 9ish to state an a$$itiona -asis to s#stain Section 5 6$7 of Rep#- ic Act No. ./0., 9hich provi$esF Sec. 5. %is:#a ifications. D The fo o9in' sha -e $is:#a ifie$ fro& votin' #n$er this ActF """ """ """

$7 An i&&i'rant or a per&anent resi$ent 9ho is reco'ni3e$ as s#ch in the host co#ntr!, #n ess heIshe e"ec#tes, #pon re'istration, an affi$avit prepare$ for the p#rpose -! the Co&&ission $ec arin' that heIshe sha res#&e act#a ph!sica per&anent resi$ence in the (hi ippines not ater than three 6?7 !ears fro& approva of hisIher re'istration #n$er this Act. S#ch affi$avit sha a so state that heIshe has not app ie$ for citi3enship in another co#ntr!. 4ai #re to ret#rn sha -e ca#se for the re&ova of the na&e of the i&&i'rant or per&anent resi$ent fro& the Nationa Re'istr! of A-sentee 2oters an$ hisIher per&anent $is:#a ification to vote in a-sentia. (etitioner conten$s that 4i ipinos 9ho esta- ish per&anent resi$ence a-roa$ have there-! a-an$one$ their (hi ippine $o&ici e of ori'in an$ rep ace$ it 9ith a $o&ici e of choice in a forei'n co#ntr!. This &a! in$ee$ -e tr#e, -#t 9ith the e"ec#tion of the affi$avit provi$e$ for #n$er Section 5 6$7 afore&entione$, the affiant e"press ! states an a-an$on&ent of sai$ $o&ici e of choice. The e'a effect of this e"pression is to revive the $o&ici e of ori'in. 4or #n i=e a $o&ici e of choice, 9hich re:#ires -oth intention an$ ph!sica presence to -e esta- ishe$ or &aintaine$, the $o&ici e of ori'in can -e revive$ -! an intention proper ! e"presse$. Th#s, the a-an$on&ent of the present $o&ici e of choice, -! the e"ec#tion of the affi$avit, operates to revive the $o&ici e of ori'in to rep ace it, -eca#se of the princip e that no person can -e 9itho#t a $o&ici e at an! ti&e. SIcCT% The &o&ent a forei'n $o&ici e is a-an$one$, the native $o&ici e is reac:#ire$. / Ahen a person a-an$ons his $o&ici e of choice, his $o&ici e of ori'in i&&e$iate ! reverts an$ re&ains #nti a ne9 $o&ici e of choice is esta- ishe$. ; On the a-an$on&ent of a $o&ici e of choice, the $o&ici e of ori'in i&&e$iate ! reverts, 9itho#t re'ar$ to an! $efinite intent to ret#rn to s#ch ori'ina $o&ici e, provi$e$ there is a $efinite intent fina ! to a-an$on the ac:#ire$ $o&ici e of choice. ? Thro#'h the e"ec#tion of the affi$avit, the affiant $oes the operative act that &a=es sai$ affiant once &ore a (hi ippine $o&ici iar!. The re:#ire&ent of res#&in' act#a ph!sica presence 9ithin three 6?7 !ears is on ! a test of s#ch intention, -#t is not nee$e$ to effect the chan'e or reversion of $o&ici e. If the affiant $oes not res#&e the resi$ence ph!sica ! 9ithin sai$ perio$, then the intent e"presse$ in the affi$avit is $efective an$ the a9 9i $ee& it inoperative, there-! a o9in' re&ova of affiantGs na&e fro& the Nationa Re'istr! of A-sentee 2oters.

PUNO, J.* co cu!!" # $ % %"&&' (" #

Aith a $#e respect, I 9o# $ i=e to offer &! h#&- e vie9s on the constit#tiona iss#es presente$ -! the petitioner, vi3F A. %oes Section 56$7 of Rep. Act No. ./0. a o9in' the re'istration of voters 9ho are i&&i'rants or per&anent resi$ents in other co#ntries -! their &ere act of e"ec#tin' an affi$avit e"pressin' their intention to ret#rn to the (hi ippines, vio ate the resi$enc! re:#ire&ent in Section / of Artic e I2 of the Constit#tionK B. %oes Section /0.5 of the sa&e a9 e&po9erin' the COMELEC to proc ai& the 9innin' can$i$ates for nationa offices an$ part!* ist representatives inc #$in' the (resi$ent an$ the 2ice*(resi$ent vio ate the constit#tiona &an$ate #n$er Section >, Artic e 2II of the Constit#tion that the 9innin' can$i$ates for (resi$ent an$ 2ice* (resi$ent sha -e proc ai&e$ as 9inners -! Con'ressK C. Ma! Con'ress, thro#'h the +oint Con'ressiona Oversi'ht Co&&ittee create$ in Section ;5 of Rep. Act No. ./0., e"ercise the po9er to revie9, revise, a&en$, an$ approve the I&p e&entin' R# es an$ Re'# ations that the Co&&ission on E ections sha pro&# 'ate 9itho#t vio atin' the in$epen$ence of the COMELEC #n$er Section /, Artic e IH*A of the Constit#tionK To start off, et &e stress the si'nificance of the case at -ar. Rep. Act No. ./0., / other9ise =no9n as 1The Overseas A-sentee 2otin' Act of ;@@?1 is a historic atte&pt to trans ate to rea it! a on' a9aite$ $rea&F the enfranchise&ent of &i ions of overseas 4i ipinos. Un$o#-te$ !, the efforts of Con'ress to 'ive f esh to Section ;, Artic e 2 of the /.08 Constit#tion &an$atin' it to $evise 1a s!ste& for a-sentee votin' for :#a ifie$ 4i ipinos a-roa$,1 $eserves the hi'hest co&&en$ation. Ho9ever, Rep. Act No. ./0. poses far reachin' constit#tiona iss#es that &erit &ore than an invocation of a-stract e'a princip es or a si&p istic constr#ction of the Constit#tion. 4or one, the petition affects the va #e of the ri'ht of s#ffra'e, a ri'ht that is the cornerstone of o#r $e&ocratic 'overn&ent. It is the responsi-i it! of this Co#rt to stri=e a -a ance -et9een the nee$ to e"pan$ the ri'ht of s#ffra'e in favor of those 9ho cannot e"ercise it an$ the nee$ to prevent the $i #tion of the ri'ht of s#ffra'e of those a rea$! e"ercisin' it. 4or another, the petition co&pe s this Co#rt to $efine the e"tent an$ the i&its of Con'ressG oversi'ht po9ers or e'is ative veto over 1s#-or$inate e'is ations1 or the r# es an$ re'# ations pro&# 'ate$ -! a$&inistrative a'encies of 'overn&ent. Un$o#-te$ !, this oversi'ht po9er is in$ispensa- e for Con'ress to $ischar'e its -roa$ po9er to e'is ate. Th#s, it a'ain -ehooves this Co#rt to $ra9 the precise para&eters of the oversi'ht po9er so#'ht to -e e"ercise$ -! Con'ress to preserve the $e icate -a ance of po9ers a ocate$ to the $ifferent -ranches of o#r 'overn&ent in the Constit#tion. AcSHC% (rescin$in' fro& these pre&ises, et &e $isc#ss the iss#es in seriati&.

A. %oes section 5 6$7 of Rep. Act No. ./0. vio ate Section /, Artic e 2 of the /.08 Constit#tionK (etitioner s#-&its that Section 5, par. 6$7 of Rep. Act No. ./0. is #nconstit#tiona for it a o9s i&&i'rants or per&anent resi$ents of forei'n co#ntries to vote for (resi$ent, 2ice*(resi$ent, Senators, an$ part!* ist representatives -! &ere e"ec#tion of an affi$avit statin' thatF 6a7 he sha res#&e act#a , ph!sica , per&anent resi$ence in the (hi ippines not ater than three 6?7 !ears fro& approva of his re'istration< an$ 6-7 that he has not app ie$ for citi3enship in another co#ntr!, vi3F Sec. 5. %is:#a ifications. D The fo o9in' sha -e $is:#a ifie$ fro& votin' #n$er this Act. """ """ """ 6$7 An i&&i'rant or a per&anent resi$ent 9ho is reco'ni3e$ as s#ch in the host co#ntr!, #n ess heIshe e"ec#tes, #pon re'istration, an affi$avit prepare$ for the p#rpose -! the Co&&ission $ec arin' that heIshe sha res#&e act#a ph!sica per&anent resi$ence in the (hi ippines not ater than three 6?7 !ears fro& approva of hisIher re'istration #n$er this Act. S#ch affi$avit sha a so state that heIshe has not app ie$ for citi3enship in another co#ntr!. 4ai #re to ret#rn sha -e ca#se for the re&ova of the na&e of the i&&i'rant or per&anent resi$ent front the Nationa Re'istr! of A-sentee 2oters an$ hisIher per&anent $is:#a ification to vote in a-sentia. 6ita ics o#rs7 (etitioner a so conten$s that section ;, Artic e 2 of the /.08 Constit#tion ; i&its the a#thorit! of Con'ress to provi$e a s!ste& for a-sentee votin' to those 4i ipinos 9ho are te&porari ! a-sent in the (hi ippines -#t other9ise satisf! the re:#ire&ents #n$er Section / thereof, inc #$in' the one !ear resi$ence in the (hi ippines an$ si" &onths resi$ence in the p ace 9here the! propose to vote. ? Citin' o#r r# in' in Caasi v. Co#rt of Appea s, > the petitioner avers that a 4i ipino 9ho is an ac=no9 e$'e$ i&&i'rant or per&anent resi$ent of a forei'n co#ntr! $oes not possess the necessar! resi$ence re:#ire&ents as he is $ee&e$ to have a rea$! a-an$one$ his $o&ici e in the (hi ippines. He a e'es that the cha en'e$ provision a&en$s or a ters the resi$ence re:#ire&ents -! 'rantin' 1con$itiona 1 resi$ence :#a ification to an i&&i'rant or per&anent resi$ent or thro#'h the e"ec#tion of an affi$avit. 5 The &a,orit!, thr# o#r estee&e$ co ea'#e, Ma$a& +#stice Martine3, r# es that Section ;, Artic e 2 of the /.08 Constit#tion &an$atin' Con'ress to $evise a s!ste& for overseas a-sentee votin' operates as an e"ception to the resi$ence re:#ire&ents as the &e&-ers of the Constit#tiona Co&&ission &anifeste$ a c ear intent 1to enfranchise as &#ch as possi- e a 4i ipino citi3ens a-roa$ 9ho have not a-an$one$ their $o&ici e of ori'in,1 vi3F J

B! the $octrine of necessar! i&p ication in stat#tor! constr#ction, 9hich &a! -e app ie$ in constr#in' constit#tiona provisions, the strate'ic ocation of Section ; in$icates that the Constit#tiona Co&&ission provi$e$ for an e"ception to the act#a resi$enc! re:#ire&ent of Section / 9ith respect to :#a ifie$ 4i ipinos a-roa$. The sa&e Co&&ission has in effect $ec are$ that :#a ifie$ 4i ipinos 9ho are not in the (hi ippines &a! -e a o9e$ to vote even tho#'h the! $o not satisf! resi$enc! re:#ire&ent in Section /, Artic e 2 of the Constit#tion. 8 6ita ics o#rs7 The &a,orit! f#rther ho $s that if act#a ph!sica resi$ence in the (hi ippines is re:#ire$, 1there is no sense for the fra&ers of the Constit#tion to &an$ate Con'ress to esta- ish a s!ste& for a-sentee votin'.1 0 The &a,orit! affir&s o#r r# in' in Caasi v. Co#rt of Appea s . that an i&&i'rant or per&anent resi$ent of a forei'n co#ntr! is $ee&e$ to have re in:#ishe$ his resi$ence in his co#ntr! of ori'in. Ho9ever, it r# es that this pres#&ption is overt#rne$ -! the e"ec#tion of the affi$avit re:#ire$ #n$er the cha en'e$ provision of Rep. Act No. ./0.. A e'e$ !, the affi$avit is an e"p icit e"pression that an i&&i'rant or per&anent resi$ent has not re in:#ishe$ his $o&ici e in the (hi ippines, to 9itF Contrar! to the c ai& of petitioner, the e"ec#tion of the affi$avit itse f is not the ena- in' or enfranchisin' act. The affi$avit re:#ire$ in Section 56$7 is not on ! proof of the intention of the i&&i'rant or per&anent resi$ent to 'o -ac= an$ res#&e resi$ence in the (hi ippines, -#t &ore si'nificant !, it serves as an e"p icit e"pression that he ha$ not in fact a-an$one$ his $o&ici e of ori'in. Th#s, it is not correct to sa! that the e"ec#tion of the affi$avit #n$er Section 56$7 vio ates the Constit#tion that proscri-es 1provisiona re'istration or a pro&ise -! a voter to perfor& a con$ition to -e :#a ifie$ to vote in a po itica e"ercise.1 To repeat, the affi$avit is re:#ire$ of i&&i'rants an$ per&anent resi$ents a-roa$ -eca#se -! their stat#s in their host co#ntries, the! are pres#&e$ to have re in:#ishe$ their intent to ret#rn to this co#ntr!< th#s, 9itho#t the affi$avit, the pres#&ption of a-an$on&ent of (hi ippine $o&ici e sha re&ain. /@ 6ita ics o#rs7 The &a,orit! f#rther r# es that 1the act of the i&&i'rant or per&anent resi$ent in e"ec#tin' an affi$avit p#rs#ant to Section 56$7 &a! -e consi$ere$ as an e"press 9aiver of his stat#s as an i&&i'rant or per&anent resi$ent.1 Th#s, the &a,orit! conc #$es that Section 56$7 of Rep. Act No. ./0. is not #nconstit#tiona . Aith a $#e respect, I $isa'ree 9ith the &a,orit!. B#t -efore $isc#ssin' the reasons for &! $issent, et &e p#t the iss#e in its proper historica perspective. S#ffra'e is an attri-#te of citi3enship // an$ is anci ar! to the princip e of rep#- icanis& enshrine$ in Section /, Artic e II of the /.08 Constit#tion. /; The ri'ht of s#ffra'e, ho9ever, is not a-so #te. No po itica s!ste& in the 9ho e 9or $ has itera ! practice$ 1#niversa 1 s#ffra'e, even a&on' its citi3ens. /? The scar et histor! of the ri'ht of s#ffra'e sho9s that restrictions have a 9a!s -een i&pose$ on its

e"ercise.

E%CcaS

In En' an$, for instance, s#ffra'e ori'inate$ as a po itica privi e'e 'rante$ to an$ o9ners -! the &onarchs. /> The 'rant arose fro& the theor! that in the for&ation of the state, the peop e a'ree$ to s#rren$er to the Ein' a po itica soverei'nt!. In ret#rn, the Ein' e"ten$e$ s#ffra'e to the freeho $ers as a veste$ ri'ht. The ori'in an$ character of s#ffra'e in En' an$ is chronic e$ -! Chief +#stice Ho t in Ash-! v. Ahite, et a ., /5 vi3F The e ection of =ni'hts -e on's to the freeho $ers of the co#nties, an$ it is an ori'ina ri'ht veste$ in an$ insepara- e fro& the freeho $, an$ can -e no &ore severe$ fro& the freeho $ than the freeho $ itse f can -e ta=en a9a!. Before the stat#te of 0 Hen. J, ch. 8, an! &an that ha$ a freeho $, tho#'h never so s&a , ha$ a ri'ht of votin'< -#t -! that stat#te the ri'ht of e ection is confine$ to s#ch persons as have an$s or tene&ents to the !ear ! va #e of fort! shi in's at east, -eca#se, as the stat#te sa!s, of the t#&# ts an$ $isor$ers 9hich happene$ at e ections -! the e"cessive an$ o#tra'eo#s n#&-er of e ectors< -#t sti the ri'ht of e ection is an ori'ina inci$ent to an$ insepara- e fro& freeho $. As for citi3ens an$ -#r'esses, the! $epen$ on the sa&e ri'hts as the =ni'hts of shires $iffer on ! as to the ten#re< -#t the ri'ht an$ &anner of their e ection is on the sa&e fo#n$ation. /J The econo&ic theor! of s#ffra'e is a so evi$ent in the ear ! histor! of the Unite$ States. The /808 U.S. Constit#tion, as ori'ina ! a$opte$, $i$ not e"press ! provi$e the ri'ht to vote. /8 The States 9ere eft to $eter&ine 9ho sho# $ have the ri'ht to vote in nationa as 9e as oca e ections. Most States restricte$ the ri'ht of s#ffra'e to 9hite &a es over t9ent!*one !ears of a'e 9ith a certain a&o#nt of propert!. /0 Other States a so re:#ire$ re i'io#s, /. iterac!, an$ &ora :#a ifications. ;@ So&e e'a scho ars, ho9ever, conten$ that the ri'ht of s#ffra'e is pres#&e$ fro& the provision of the Constit#tion '#aranteein' each state a 1rep#- ican for& of 'overn&ent.1 ;/ 2eerin' a9a! fro& the econo&ic theor! of s#ffra'e preva ent in En' an$, these scho ars ar'#e that in for&in' the state, the peop e $i$ not 'ive #p a their soverei'n po9ers -#t &ere ! $e e'ate$ the e"ercise of these po9ers to so&e chosen representatives. The ri'ht of s#ffra'e is one of these $e e'ate$ po9ers, vi3F The peop e, in their ori'ina soverei'n character are the fo#ntainhea$ of 'overn&enta a#thorit!, an$ a the po9ers necessar! to -e e"ercise$ in the contin#e$ a$&inistration of a representative 'overn&ent ori'inate$ an$ are $e e'ate$ -! e"ertion of their soverei'n 9i . These propositions, fo#n$e$ on necessit!, an$ i #strate$ -! on' contin#e$ practice, have -eco&e the receive$ $octrines of the A&erican peop e . . . The peop e, in c othin' a citi3en 9ith the e ective franchise for the p#rpose of sec#rin' a consistent an$ perpet#a a$&inistration of the 'overn&ent the! or$ain, char'e hi& 9ith the perfor&ance of a $#t! in the nat#re of a p#- ic tr#st, an$ in that respect constit#te hi& a representative of the 9ho e peop e. This $#t! re:#ires that the privi e'e th#s -esto9e$ sho# $ -e e"ercise$, not e"c #sive ! for the -enefit of the

citi3en or c ass of citi3ens professin' it, -#t in 'oo$ faith an$ 9ith an inte i'ent 3ea for the 'enera -enefit an$ 9e fare of the State . . . ;; As a privi e'e $e e'ate$ -! the peop e, a citi3en ac:#ires no in$efeasi- e ri'ht to the contin#o#s e"ercise or en,o!&ent of the ri'ht of s#ffra'e. 1The peop e of the State, in the e"ercise of their soverei'n po9er, &a! $is:#a if!, s#spen$ or entire ! 9ith$ra9 it fro& an! citi3en or c ass of the&, provi$in' a 9a!s that representation of the peop e, the essentia characteristics of a rep#- ican 'overn&ent, -e not $isre'ar$e$ or a-an$one$.1 ;? 4o o9in' the shift in its theoretica -asis, the ri'ht of s#ffra'e 9as e"ten$e$ to -roa$er c asses of citi3ens. In /08@, the 4ifteenth A&en$&ent 9as enacte$ prohi-itin' the fe$era 'overn&ent an$ the states fro& $iscri&inatin' on the -asis of 1race, co or or previo#s con$itions of servit#$e.1 In /.;@, the Nineteenth A&en$&ent 9as ratifie$ provi$in' that the ri'ht of citi3ens to vote 1sha not -e $enie$ or a-ri$'e$ -! the Unite$ States or -! an! State on acco#nt of se".1 In /.J>, the T9ent!*fo#rth A&en$&ent 9as a$opte$ provi$in' that the ri'ht of an! citi3en to vote for (resi$ent, 2ice*(resi$ent or &e&-ers of Con'ress 1sha not -e $enie$ or a-ri$'e$ -! the Unite$ States or an! State, -! reason of fai #re to pa! an! po ta" or other ta".1 In /.8/, the T9ent!*si"th A&en$&ent 9as passe$ provi$in' that the ri'ht of an! citi3en ei'hteen !ears or o $er to vote 1sha not -e $enie$ or a-ri$'e$ -! the Unite$ States or -! an! State on acco#nt of a'e.1 In o#r ,#ris$iction, the ri'ht of s#ffra'e has evo ve$ fro& a &ere stat#tor! ri'ht to a constit#tiona ri'ht. O#r first e ection a9 9as Act No. /50;, 9hich too= effect on +an#ar! /5, /.@8. Ae ha$ no e ections $#rin' the Spanish occ#pation of the co#ntr!. Li=e its forei'n co#nterparts, the :#a ifications for the e"ercise of the ri'ht of s#ffra'e set in Section /> of Act No. /50; 9ere e itist an$ 'en$er*-iase$. The ri'ht of s#ffra'e 9as i&ite$ to &a e citi3ens t9ent!*three !ears of a'e or over 9ith e'a resi$ence for a perio$ of si" &onths i&&e$iate ! prece$in' the e ection in the &#nicipa it! in 9hich the! e"ercise the ri'ht of s#ffra'e. Ao&en 9ere not a o9e$ to vote for the! 9ere re'ar$e$ as &ere e"tensions of the persona it! of their h#s-an$s or fathers, an$ that the! 9ere not fit to participate in the affairs of 'overn&ent. ;> B#t even then, not a &a e citi3ens 9ere $ee&e$ to possess si'nificant interests in e ection an$ the a-i it! to &a=e inte i'ent choices. Th#s, on ! those fa in' #n$er an! of the fo o9in' three c asses 9ere a o9e$ to voteF 6a7 those 9ho, prior to the A#'#st /?, /0.0, he $ office of &#nicipa captain, 'overna$orci o, a ca $e, ie#tenant, ca-e3a $e -aran'a!, or &e&-er of an! a!#nta&iento< 6-7 those 9ho o9n rea propert! 9ith the va #e of five h#n$re$ pesos or 9ho ann#a ! pa! thirt! pesos or &ore of the esta- ishe$ ta"es< or 6c7 those 9ho spea=, rea$ an$ 9rite En' ish or Spanish. B#t apart fro& possessin' the necessar! :#a ifications, a voter &#st not s#ffer fro& an! $is:#a ification. Ae e a-orate$ the reasons for settin' $is:#a ifications for the e"ercise of the ri'ht of s#ffra'e in (eop e v. Corra , ;5 vi3F

The &o$ern conception of s#ffra'e is that votin' is a f#nction of 'overn&ent. The ri'ht to vote is not a nat#ra ri'ht -#t it is a ri'ht create$ -! a9. S#ffra'e is a privi e'e 'rante$ -! the State to s#ch persons or c asses as are &ost i=e ! to e"ercise it for the p#- ic 'oo$. In the ear ! sta'es of the evo #tion of the representative s!ste& of 'overn&ent, the e"ercise of the ri'ht of s#ffra'e 9as i&ite$ to a s&a portion of the inha-itants. B#t 9ith the sprea$ of $e&ocratic i$eas, the en,o!&ent of the franchise in the &o$ern states has co&e to e&-race the &ass of the a$# t &a e pop# ation. 4or reasons of p#- ic po ic!, certain c asses of persons are e"c #$e$ fro& the franchise. A&on' the 'enera ! e"c #$e$ c asses are &inors, i$iots, pa#pers, an$ convicts. The ri'ht of the State to $eprive persons of the ri'ht of s#ffra'e -! reason of their havin' -een convicte$ of cri&e, is -e!on$ :#estion. 1The &anifest p#rpose of s#ch restrictions #pon this ri'ht is to preserve the p#rit! of e ections. The pres#&ption is that one ren$ere$ infa&o#s -! conviction of fe on!, or other -ase offenses in$icative of &ora t#rpit#$e, is #nfit to e"ercise the privi e'e of s#ffra'e or to ho $ office. The e"c #sion &#st for this reason -e a$,#$'e$ a &ere $is:#a ification, i&pose$ for protection an$ not for p#nish&ent, the 9ithho $in' of a privi e'e an$ not the $enia of a persona ri'ht.1 ;J On Nove&-er ., /.??, the (hi ippine Le'is at#re enacte$ Act No. >/;; e"ten$in' the ri'ht of s#ffra'e to 4i ipino 9o&en startin' +an#ar! /, /.?5. Ho9ever, -efore the! co# $ e"ercise their ne9 ri'ht, the /.?5 Constit#tion 9as a$opte$, once a'ain, i&itin' the ri'ht of s#ffra'e to &a e citi3ens, vi3F S#ffra'e &a! -e e"ercise$ -! &a e citi3ens of the (hi ippines not other9ise $is:#a ifie$ -! a9, 9ho are t9ent!*one !ears of a'e or over an$ are a- e to rea$ an$ 9rite, an$ 9ho sha have resi$e$ in the (hi ippines for one !ear an$ in the &#nicipa it! 9herein the! propose to vote for at east si" &onths prece$in' the e ection. The Nationa Asse&- ! sha e"ten$ the ri'ht of s#ffra'e to 9o&en, if in a p e-iscite 9hich sha -e he $ for that p#rpose 9ithin t9o !ears after the a$option of this Constit#tion, not ess than three h#n$re$ tho#san$ 9o&en possessin' the necessar! :#a ifications sha vote affir&ative ! on the :#estion. %#rin' the $e i-erations of the Constit#tiona Convention, it 9as conce$e$ that 4i ipino 9o&en 9ere capa- e of e"ercisin' the ri'ht of s#ffra'e. Their ri'ht, ho9ever, 9as oppose$ on the fo o9in' 'ro#n$sF 6/7 there 9as no pop# ar $e&an$ for s#ffra'e -! 4i ipino 9o&en the&se ves< 6;7 9o&an s#ffra'e 9o# $ on ! $isr#pt fa&i ! #nit!< an$ 6?7 it 9o# $ p #n'e 9o&en into the :#a'&ire of po itics, $ra''in' the& fro& the pe$esta of honor in 9hich the! ha$ theretofore -een p ace$. ;8 Th#s, in its report to the (resi$ent of the Convention on Septe&-er ;>, /.?>, the Co&&ittee on S#ffra'e sai$F The co&&ittee refrains fro& statin' in this report the reasons on 9hich it -ases its $ecision to 9ith$ra9 the ri'ht of s#ffra'e fro& the 9o&en an$ 9i &ere ! sa! that

the principa i$ea in the &in$s of the &e&-ers not in favor of e"ten$in' s#ffra'e to 9o&en 9as that the s9eet 9o&an iness of the (hi ippine 9o&en sho# $ -e pro,ecte$ fro& po itica strife an$ passion in or$er that s9eet ho&e &a! not ose an! of its s9eetness. ;0 The proponents of 9o&an s#ffra'e in rep ! ar'#e$ that it 9o# $ -e #nfair to $eprive 4i ipino 9o&en of the ri'ht of s#ffra'e a rea$! 'rante$ to the& -! the e'is at#re 9itho#t 'ivin' the& the chance to prove 9hether the! $eserve$ it or not. The! a so s#-&itte$ that the ri'ht 9o# $ &a=e the& &ore intereste$ in the &ana'e&ent of the affairs of 'overn&ent an$ that 1it 9as necessar! as a &atter of ,#stice to e"ten$ the frontiers of o#r $e&ocrac! to o#r 9o&en 9ho ha$ a-ore$ har$ si$e -! si$e 9ith o#r &en for the pro'ress an$ $eve op&ent of the co#ntr!.1 ;. In a ast $itch atte&pt to save the ca#se of 9o&an s#ffra'e, 9o&en ea$ers $istri-#te$ a petition to in$ivi$#a $e e'ates that rea$sF Ae, the #n$ersi'ne$, $# ! e ecte$ representatives of 9o&en 9ho -e ieve in the ,#stice an$ 9is$o& of the enfranchise&ent of the 4i ipino 9o&en, protest &ost so e&n ! a'ainst 9o&en -ein' $eprive$ of the vote in the Constit#tion of the Co&&on9ea th an$ a'ainst an! chan'e in the e"istent La9, No. >//;, passe$ -! the Ninth (hi ippine Le'is at#re on Nove&-er ninth, /.??, an$ si'ne$ -! Bovernor*Benera 4ran= M#rph! on %ece&-er seventh, /.?>. Ae ca the attention of the Constit#tiona Asse&- ! an$ the Le'is at#re to the p ea for i-ert! &a$e -efore the Con'ress an$ the (resi$ent of Unite$ States for thirt!* seven !ears -! the 4i ipinos< a p ea -ase$ on the fact that 9e are a i-ert!* ovin' peop e e:#ippe$ an$ capa- e of se f*'overn&ent. S#ch 'overn&ent cannot e"ist 1ha f* s ave an$ ha f*free.1 The 9o&en of this Christian an$, serene in the =no9 e$'e that in peace or 9ar the! have never fai e$ their &en or their co#ntr!, in this cr#cia ho#r of the rea i3ation of the sacrifice an$ $evotion of the !ears, insist #pon their po itica reco'nition an$ their share in the tri#&ph of the ca#se of i-ert!. It is not a &atter of p e-iscite nor specific n#&-ers. It is a ri'ht earne$, $eserve$ an$ therefore c ai&e$. It is not a &atter of se". In a $e&ocratic 'overn&ent a :#a ifie$ citi3ens, &en an$ 9o&en a i=e, can an$ sho# $ &a=e their va #a- e contri-#tion in $eci$in' 9hat their co&&#nit! 9i #n$erta=e to $o thro#'h its 'overn&ent, -! 9hat &eans, an$ thro#'h 9hat officia s. Un$er the a9 9o&en s#ffer pena ties, are s#&&one$ -efore the co#rts -! a9 D a9s the! have ha$ no voice in &a=in' D an$ pa! ta"es. 1Ta"ation 9itho#t representation is t!rann!1 an$ &ore so in /.?> than in /88J. So confi$ent of the #na tera- e ri'hteo#sness of this ca#se, to !o#, 'ent e&en of the Constit#tiona Asse&- !, 9e appea for ,#stice -e ievin' an$ =no9in' that o#r ca#se is a ,#st one, an$ that o#r ri'hts have -een 9on thr# !ears of sacrifice, $evotion an$ service to o#r co&&on ca#se D the ca#se of &en an$ 9o&en a i=e D the 9e fare

an$ pro'ress of o#r native an$ D the (hi ippines. ?@ In the en$, a co&pro&ise 9as reache$ i&itin' the ri'ht of s#ffra'e to &a e citi3ens an$ eavin' the iss#e of 9o&en s#ffra'e for the 9o&en to $eci$e. In the p e-iscite he $ on Apri ?@, /.?8, &ore than three h#n$re$ tho#san$ 9o&en vote$ for 9o&an s#ffra'e. Thenceforth, 4i ipino 9o&en 9ere a o9e$ to vote, th#s, pavin' the 9a! for 9o&en participation in the 'overn&ent. To -roa$en the &ass -ase of voters, the /.?5 Constit#tion o9ere$ the a'e re:#ire&ent fro& ;? !ears to ;/ !ears. The iterac! re:#ire&ent 9as a so re a"e$. It is to -e note$ that fro& the openin' $a!s of the Convention, there 9as a preva ent senti&ent a&on' the $e e'ates to -ar i iterates fro& e"ercisin' the ri'ht of s#ffra'e. It 9as propose$ that on ! those 9ho can rea$ an$ 9rite En' ish, Spanish, or other oca $ia ects sho# $ -e a o9e$ to vote. This proposa 9as $efeate$ for the $rafters fe t that 9hi e the a-i it! to rea$ an$ 9rite 9as necessar!, ?/ the specification of an! an'#a'e or $ia ect 9o# $ -e $iscri&inator! a'ainst the Moha&&e$ansF It is $iscri&inator! a'ainst a respecta- e &inorit! of the pop# ation of the (hi ippines. It 9o# $ serve to $iscri&inate a'ainst the Moha&&e$an pop# ation of the (hi ippines for 9hich I a& one of the h#&- e representatives. It is the opinion of this Convention, I thin=, to e&ancipate, to enfranchise o#r -ac=9ar$ e e&ents, especia ! the Moha&&e$an pop# ation. An$ !o# 9o# $ i=e to c#rtai that ri'ht an$ that privi e'e -! insertin' a provision that on ! those 9ho can rea$ an$ 9rite either En' ish, Spanish, or an! of the oca $ia ects sha -e a o9e$ to vote. This a&en$&ent 9o# $ prec #$e the Moha&&e$ans -eca#se their Ara-ic 9ritin' is not inc #$e$ #n$er oca $ia ects. Beca#se 9hen !o# sa!, oca $ia ects, !o# refer to the $ia ect an$ not to the s!ste& of 9ritin'. The s!ste& of 9ritin' is either Ara-ic or Ro&an. In vie9 of this fact, Mr. (resi$ent, I hope that !o# 9i -e i-era an$ to erant eno#'h to re,ect this propose$ a&en$&ent -eca#se it is #nnecessar! an$ -eca#se it is $iscri&inator!. ?; 4#rther&ore, the /.?5 Constit#tion re&ove$ the propert! :#a ifications #n$er Act No. /50;. Ae e"p aine$ the reason for this re&ova in Ma:#era v. Borra, ?? vi3F . . . propert! :#a ifications are inconsistent 9ith the nat#re an$ essence of the rep#- ican s!ste& or$aine$ in o#r constit#tion an$ the princip e of socia ,#stice #n$er !in' the sa&e, for sai$ po itica s!ste& is pre&ise$ #pon the tenet that soverei'nt! resi$es in the peop e an$ a 'overn&ent a#thorit! e&anates fro& the&, an$ this, in t#rn, i&p ies necessari ! that the ri'ht to vote an$ to -e vote$ for sha not -e $epen$ent #pon the 9ea th of the in$ivi$#a concerne$, 9hereas socia ,#stice pres#pposes e:#a opport#nit! for a , rich an$ poor a i=e, an$ that, accor$in' !, no person sha -! reason of povert!, -e $enie$ the chance to -e e ecte$ to the p#- ic office. . . ?> In s#&, the /.?5 Constit#tion 'ave a constit#tiona stat#s to the ri'ht of s#ffra'e. Th#s, s#ffra'e is not an!&ore a privi e'e 'rante$ -! the e'is at#re, -#t a ri'ht

'rante$ -! the soverei'n peop e to a $efinite portion of the pop# ation possessin' certain :#a ifications. To -e s#re, the ri'ht of s#ffra'e 9as sti s#-,ect to re'# ation -! the e'is at#re -#t on ! in accor$ance 9ith the ter&s of the Constit#tion. S%HETI The &arch to9ar$s i-era i3ation of the ri'ht of s#ffra'e contin#e$ 9ith the /.8? Constit#tion. The iterac! re:#ire&ent 9as re&ove$ 9hi e the a'e -ar 9as f#rther o9ere$ fro& ;/ !ears to /0 !ears. Th#s, Section /, Artic e 2I of the /.8? Constit#tion rea$sF Section /. S#ffra'e sha -e e"ercise$ -! citi3ens of the (hi ippines not other9ise $is:#a ifie$ -! a9, 9ho are ei'hteen !ears of a'e or over, an$ 9ho sha have resi$e$ in the (hi ippines for at east one !ear an$ in the p ace 9herein the! propose to vote for at east si" &onths prece$in' the e ection. No iterac!, propert! or other s#-stantive re:#ire&ent sha -e i&pose$ on the e"ercise of s#ffra'e. The Nationa Asse&- ! sha provi$e a s!ste& for the p#rpose of sec#rin' the secrec! an$ sanctit! of the vote. 6ita ics o#rs7 The rationa e for these chan'es 9as e"presse$ in the E"p anator! Note of Reso #tion No. @? of the Co&&ittee on S#ffra'e an$ E ectora Refor&s, vi3F In =eepin' 9ith the tren$ for the -roa$enin' of the e ectora -ase a rea$! -e'#n 9ith the o9erin' of the votin' a'e to /0 an$ in =eepin' 9ith the co&&itteeGs $esire to contin#e the a ienation an$ e"c #sion of &i ions of citi3ens fro& the po itica s!ste& an$ fro& participation in the po itica ife in the co#ntr!, the re:#ire&ent of iterac! for votin' has -een e i&inate$. It is note$ that there are ver! fe9 co#ntries eft in the 9or $ 9here iterac! re&ains a con$ition for votin'. There is no So#theast Asian co#ntr! that i&poses this re:#ire&ent. The Unite$ States S#pre&e Co#rt on ! a fe9 &onths a'o $ec are$ #nconstit#tiona an! state a9 that 9o# $ contin#e to i&pose this re:#ire&ent for votin'. A tho#'h there 9ere &ore reso #tions s#-&itte$ proposin' the increase of e$#cationa re:#ire&ents for votin' than those a$vocatin' the e i&ination of the iterac! re:#ire&ent, the co&&ittee fe t that favorin' the e i&ination of the re:#ire&ent 9o# $ -e &ore in =eepin' 9ith its o-,ective an$ that of the Constit#tiona Convention enco#ra'in' pop# ar participation an$ e:#a i3in' the privi e'es an$ ri'hts of the peop e. . . Accor$in' to the B#rea# of Cens#s an$ Statistics, the pro,ection for the pop# ation of the (hi ippines over /0 !ears o $ for /.8@ is /8,J5.,@@@. Of this, /;,?0>,@@@ are consi$ere$ iterates. Ho9ever, the sa&e B#rea# a$&itte$ that there is no rea scientific iterac! test in co#ntin' iterates. A that is $one is to as= each &e&-er of the pop# ation the :#estion 9hether he is a- e to rea$ an$ 9rite an$ to ta=e his ans9er at its face va #e. These circ#&stances p #s the 9e *=no9n practice in a e ections in 9hich po itica

ea$ers spen$ their ti&e in the -arrios sho9in' the prospective voters to 9rite the na&e of the can$i$ates instea$ of e"p ainin' the po itica iss#es to the&, stren'thene$ the conviction of the co&&ittee that present iterac! re:#ire&ent is &ore of a ,o=e, an$ 9orse, a $eterrent to inte i'ent $isc#ssions of the iss#es. 4ina !, the co&&ittee too= note of the convincin' ar'#&ent that the re:#ire&ent to rea$ an$ 9rite 9as 9ritten into o#r constit#tion at a ti&e 9hen the on ! &e$i#& of infor&ation 9as the printe$ 9or$ an$ even the p#- ic &eetin's 9ere not as ar'e an$ s#ccessf# -eca#se of the a-sence of a&p if!in' e:#ip&ent. It is a fact that to$a! the vast &a,orit! of the pop# ation earn a-o#t nationa &atters &#ch &ore fro& the a#$io*vis#a &e$ia, na&e !, ra$io an$ te evision, an$ p#- ic &eetin's have -eco&e &#ch &ore effective since the a$vent of a&p if!in' e:#ip&ent. In a$$ition, the /.8? Constit#tion provi$e$ that no propert! or other s#-stantive re:#ire&ent sha -e i&pose$ on the e"ercise of s#ffra'e. The /.08 Constit#tion f#rther i-era i3e$ the ri'ht of s#ffra'e. 4or the first ti&e, it re:#ire$ Con'ress to provi$e a s!ste& for a-sentee votin' -! :#a ifie$ 4i ipinos a-roa$ an$ to $esi'n a proce$#re for the $isa- e$ an$ the i iterates to vote 9itho#t assistance fro& other persons. Be that as it &a!, fo#r :#a ifications e"istin' since the /.?5 Constit#tion 9ere retaine$F 6/7 4i ipino citi3enship< 6;7 a'e< 6?7 one !ear resi$ence in the (hi ippines< an$ 6>7 si" &onths resi$ence in the p ace 9here the voter proposes to vote. The 9is$o& of these fo#r :#a ifications has not -een :#estione$ at an! 'iven ti&e in the histor! of o#r s#ffra'e. It is eas! to see the reason. S#ffra'e is a po itica ri'ht appertainin' to citi3enship. Each in$ivi$#a :#a ifie$ to vote is a partic e of pop# ar soverei'nt!, hence, the ri'ht of s#ffra'e cannot -e e"ten$e$ to non* citi3ens. As an attri-#te of citi3enship, s#ffra'e is reserve$ e"c #sive ! to 4i ipinos 9hose a e'iance to the co#ntr! is #n$ivi$e$. ?5 It is a so conce$e$ that the ri'ht of s#ffra'e can -e e"ercise$ on ! -! persons of a certain a'e. No-o$! co# $ $o#-t the reason for preventin' &inors fro& ta=in' part in the po itica e"ercise. 2otin' is an act of choice an$ invo ves prescience. It re:#ires not on ! a fa&i iarit! of po itica rea ities -#t a so the &at#rit! to &a=e reasone$ choices o#t of these rea ities. ?J B#t citi3enship an$ a'e re:#ire&ents are not eno#'h. 4or the vote to -e &ore &eanin'f# as an e"pression of soverei'nt!, the voter &#st possess &ore than a passin' ac:#aintance 9ith the pro- e&s an$ prospects of the co#ntr!. Th#s, resi$ence is i&pose$ as a :#a ification 1to e"c #$e a stran'er an$ a ne9co&er, #nac:#ainte$ 9ith the con$itions an$ nee$s of the co&&#nit! an$ not i$entifie$ 9ith the atter.1 ?8 The resi$ence re:#ire&ent is a so necessar! for a$&inistrative p#rposes s#ch as the preparation of acc#rate ist of voters. ?0 I no9 co&e to the case at -ar. The first iss#e is 9hether Section 56$7 of Rep. Act No. ./0. e"ten$in' the ri'ht of s#ffra'e to 4i ipinos 9ho are 1i&&i'rants1 or 1per&anent resi$ents1 of forei'n co#ntries is #nconstit#tiona . To reso ve this iss#e, the fo o9in'

nee$ to -e a$$resse$F 6/7 9hether Section ;, Artic e 2 of the Constit#tion $ispenses 9ith the resi$ence re:#ire&ents prescri-e$ in Section / thereof< 6;7 9hether an 1i&&i'rant1 or a 1per&anent resi$ent1 satisfies the resi$ence re:#ire&ents< 6?7 9hether the e"ec#tion of an affi$avit is s#fficient proof of non*a-an$on&ent of resi$ence in the (hi ippines< an$ 6>7 9hether the s!ste& provi$e$ in Section 56$7 of Rep. Act No. ./0. 9i $i #te the ri'ht of s#ffra'e of other 4i ipino voters 9ho possess the f# resi$ence :#a ifications #n$er Section /, Artic e 2I of the Constit#tion. TAIca% 6/7 Ahether Section ; of Artic e 2 $ispenses 9ith the resi$ence re:#ire&ents prescri-e$ in Section / of the sa&e Artic e. Section /, Artic e 2 of the /.08 Constit#tion prescri-es t9o resi$ence :#a ificationsF 6a7 one !ear resi$ence in the (hi ippines< an$ 6;7 si" &onths resi$ence in the oca it! 9here the voter proposes to vote. In its or$inar! conception, resi$ence connotes the act#a re ationship of an in$ivi$#a to a specific p ace. To -e a resi$ent, ph!sica presence of a person in a 'iven area, co&&#nit! or co#ntr! is re:#ire$. ?. Even -efore the a$option of the /.?5 Constit#tion, ,#rispr#$ence has e:#ate$ the first resi$ence re:#ire&ent 6one !ear resi$ence in the (hi ippines7 9ith $o&ici e or e'a resi$ence. >@ %o&ici e in t#rn has -een $efine$ as an in$ivi$#a Gs per&anent ho&e or 1the p ace to 9hich, 9henever a-sent for -#siness or for p eas#re, one inten$s to ret#rn, an$ $epen$s on facts an$ circ#&stances in the sense that the! $isc ose intent.1 >/ The $o&ici e of a person is $eter&ine$ -! the conc#rrence of the fo o9in' e e&entsF 6/7 the fact of resi$in' or ph!sica presence in a fi"e$ p ace< an$ 6;7 ani&#s &anen$i, or the intention of ret#rnin' there per&anent !. >; The &ere a-sence of an in$ivi$#a fro& his per&anent resi$ence 9itho#t the intention to a-an$on it $oes not res# t in a oss or chan'e of $o&ici e. >? The secon$ resi$ence re:#ire&ent 6si" &onths resi$ence in the p ace the voter proposes to vote7 refers to either the voterGs $o&ici e or to his te&porar! resi$ence. >> A voter 9ho is $o&ici e$ in a partic# ar oca it! -#t has resi$e$ for si" &onths in another oca it! &a! re'ister an$ vote in either oca it!, -#t not in -oth. To -e s#re, a person f# fi in' the first resi$ence re:#ire&ent a so f# fi s the secon$ so on' as the voter re'isters in his esta- ishe$ $o&ici e. The secon$ resi$ence re:#ire&ent is re evant for t9o p#rposesF 6/7 the $eter&ination of the p ace 9here the voter 9i re'ister, an$ 6;7 the $eter&ination of the p ace 9here the voter 9i vote. It o#'ht to -e note$ that as a 'enera r# e, a person sho# $ re'ister an$ vote in the p ace 9here he has esta- ishe$ his $o&ici e or the p ace 9here he has resi$e$ for si" &onths. The intent of the &e&-ers of the Constit#tiona Co&&ission to app ! the resi$ence re:#ire&ents to a-sentee voters is evi$ent fro& its $e i-erations. The! precise ! #se$ the phrase 1)UALI4IE% 4ILI(INOS ABROA%1 to stress that the a-sentee voter &#st have a the :#a ifications in Section /, Artic e 2I of the Constit#tion, vi3F

MR. SUAREC. Ma! I ,#st -e reco'ni3e$ for a c arification. There are certain :#a ifications for the e"ercise of the ri'ht of s#ffra'e i=e havin' resi$e$ in the (hi ippines for at east one !ear an$ in the p ace 9here the! propose to vote for at east si" &onths prece$in' the e ections. Ahat is the effect of these &an$ator! re:#ire&ents on the &atter of the e"ercise of the ri'ht of s#ffra'e -! the a-sentee voters i=e 4i ipinos a-roa$K THE (RESI%ENT. Ao# $ Co&&issioner Monso$ care to ans9erK MR. MONSO%. I -e ieve the ans9er 9as a rea$! 'iven -! Co&&issioner Bernas, that the $o&ici e re:#ire&ents as 9e as the :#a ifications an$ $is:#a ifications 9o# $ -e the sa&e. THE (RESI%ENT. Are 9e eavin' it to the e'is at#re to $evise the s!ste&K 4R. BERNAS. I thin= there is a ver! e'iti&ate pro- e& raise$ there. THE (RESI%ENT. Yes. MR. BENBCON. I -e ieve Co&&issioner S#are3 is c arifie$. 4R. BERNAS. B#t I thin= it sho# $ -e f#rther c arifie$ 9ith re'ar$ to the resi$ence re:#ire&ent or the p ace 9here the! vote in practice< the #n$erstan$in' is that it is f e"i- e. 4or instance, one &i'ht -e a resi$ent of Na'a or $o&ici e$ therein, -#t he satisfies the re:#ire&ent of resi$ence in Mani a, so he is a- e to vote in Mani a. MR. TINBSON. Ma$a& (resi$ent, &a! I s#''est to the Co&&ittee to chan'e the 9or$ 14i ipinos1 to )UALI4IE% 4ILI(INO 2OTERS. Instea$ of 12OTINB BY 4ILI(INOS ABROA%,1 it sho# $ -e )UALI4IE% 4ILI(INO 2OTERS. If the Co&&ittee 9ants )UALI4IE% 2OTERS LI2INB ABROA%, 9o# $ that not satisf! the re:#ire&entK THE (RESI%ENT. Ahat $oes Co&&issioner Monso$ sa!K MR. MONSO%. Ma$a& (resi$ent, I thin= I 9o# $ accept the phrase 1)UALI4IE% 4ILI(INOS ABROA%1 -eca#se 1)UALI4IE%1 9o# $ ass#&e that he has the :#a ifications an$ none of the $is:#a ifications to vote. MR. TINBSON. That is ri'ht. So $oes the Co&&ittee acceptK 4R. BERNAS. 1)UALI4IE% 4ILI(INOS ABROA%1K THE (RESI%ENT. %oes the Co&&ittee accept the a&en$&entK MR. REBALA%O. Ma$a& (resi$ent. THE (RESI%ENT. Co&&issioner Re'a a$o is reco'ni3e$. MR. REBALA%O. Ahen Co&&issioner Ben'3on as=e$ &e to rea$ &! propose$ a&en$&ent, I specifica ! state$ that the Nationa Asse&- ! sha prescri-e a s!ste& 9hich 9i ena- e :#a ifie$ citi3ens, te&porari ! a-sent fro& the (hi ippines, to vote. Accor$in' to Co&&issioner Monso$, the #se of the phrase 1a-sentee votin'1 a rea$!

too= into acco#nt as its &eanin'. That is referrin' to :#a ifie$ 4i ipino citi3ens te&porari ! a-roa$. MR. MONSO%. Yes, 9e accepte$ that. I 9o# $ i=e to sa! that 9ith respect to re'istration 9e 9i eave it #p to the e'is ative asse&- !, for e"a&p e, to re:#ire 9here the re'istration is. If it is, sa!, &e&-ers of the $ip o&atic corps 9ho &a! -e contin#o#s ! a-roa$ for a on' ti&e, perhaps, there can -e a s!ste& of re'istration in the e&-assies. Ho9ever, 9e $o not i=e to pree&pt the e'is ative asse&- !. THE (RESI%ENT. +#st to c arif!, Co&&issioner Monso$Gs a&en$&ent is on ! to provi$e a s!ste&. MR. MONSO%. Yes. THE (RESI%ENT. The Co&&issioner is not statin' here that he 9ants ne9 :#a ifications for these a-sentee voters. MR. MONSO%. That is ri'ht. The! &#st have the :#a ifications an$ none of the $is:#a ifications. THE (RESI%ENT. It is ,#st to $evise a s!ste& -! 9hich the! can vote. MR. MONSO%. That is ri'ht, Ma$a& (resi$ent. >5 In the co#rse of the $e i-erations, 4r. Bernas perceive$ a pro- e& that &a! arise fro& the &eanin' of the secon$ resi$ence re:#ire&ent on the p ace of re'istration an$ votin'. As note$, a :#a ifie$ voter nor&a ! re'isters an$ votes in the p ace 9here he is $o&ici e$ or has resi$e$ for si" &onths. 4r. Bernas feare$ that the secon$ resi$ence re:#ire&ent &a! pose a constit#tiona o-stac e to a-sentee votin' 1#n ess the vote of the person 9ho is a-sent is a vote 9hich 9i -e consi$ere$ as cast in the p ace of his $o&ici e,1 vi3F MR. O(LE. Aith respect to Section /, it is not c ear 9hether the ri'ht of s#ffra'e, 9hich here has a resi$entia restriction, is not $enie$ to citi3ens te&porari ! resi$in' or 9or=in' a-roa$. Base$ on the statistics of the 'overn&ent a'encies, there o#'ht to -e a-o#t t9o &i ion s#ch 4i ipinos at this ti&e. Co&&issioner Bernas ha$ ear ier pointe$ o#t that these provisions are rea ! ifte$ fro& the t9o previo#s Constit#tions of /.?5 an$ /.8?, 9ith the e"ception of the ast para'raph. The! co# $ not therefore have foreseen at that ti&e the pheno&enon no9 $escri-e$ as the 4i ipino a-or force e"p osion overseas. Accor$in' to 'overn&ent $ata, there are no9 a-o#t J@@,@@@ contract 9or=ers an$ e&p o!ees, an$ a tho#'h the &a,or portions of these e"patriate co&&#nities of 9or=ers are fo#n$ in the Mi$$ e East, the! are scattere$ in /88 co#ntries in the 9or $. In previo#s hearin's of the Co&&ittee on Constit#tiona Co&&issions an$ A'encies, the Chair&an of the Co&&ission on E ections, Ra&on 4e ipe, sai$ that there 9as no ins#pera- e o-stac e to &a=in' effective the ri'ht of s#ffra'e for 4i ipinos overseas. Those 9ho have a$here$ to their 4i ipino citi3enship not9ithstan$in' stron'

te&ptations are e"pose$ to e&-race a &ore convenient forei'n citi3enship. An$ those 9ho on their o9n or #n$er press#re of econo&ic necessit! here, fin$ that the! have $etache$ the&se ves fro& their fa&i ies to 9or= in other co#ntries 9ith $efinite ten#res of e&p o!&ent. Man! of the& are on contract e&p o!&ent for one, t9o, or three !ears. The! have no intention of chan'in' their resi$ence on a per&anent -asis, -#t are technica ! $is:#a ifie$ fro& e"ercisin' the ri'ht of s#ffra'e in their co#ntries of $estination -! resi$entia re:#ire&ent in Section / . . . """ """ """ I, therefore, as= the Co&&ittee 9hether at the proper ti&e, the! &i'ht entertain an a&en$&ent that 9i &a=e this e"ercise of the ri'ht to vote a-roa$ for 4i ipino citi3ens an effective, rather than &ere ! a no&ina ri'ht #n$er this propose$ Constit#tion. 4R. BERNAS. Certain !, the Co&&ittee 9i consi$er that. B#t &ore than ,#st sa!in' that, I 9o# $ i=e to &a=e a co&&ent on the &eanin' of 1resi$ence1 in the Constit#tion -eca#se I thin= it is a concept that has -een $isc#sse$ in vario#s $ecisions of the S#pre&e Co#rt, partic# ar ! in the case of 4a!pon vs. )#irino, a /.5> case 9hich $ea t precise ! 9ith the &eanin' of 1resi$ence1 in the E ection La9. . . """ """ """ In other 9or$s, 1resi$ence1 in this provision refers to t9o resi$ence :#a ificationsF 1resi$ence1 in the (hi ippines an$ 1resi$ence1 in the p ace 9here he 9i vote. As far as the resi$ence in the (hi ippines is concerne$, the 9or$ 1resi$ence1 &eans $o&ici e, -#t as far as resi$ence 9here he 9i act#a ! cast his -a ot is concerne$, the &eanin' see&s to -e $ifferent. He co# $ have a $o&ici e so&e9here e se an$ !et he is a o9e$ to vote there. So that there &a! -e serio#s constit#tiona o-stac es to a-sentee votin', #n ess the vote of the person 9ho is a-sent is a vote 9hich 9i -e consi$ere$ as cast in the p ace of his $o&ici e. >J 6ita ics s#pp ie$7 4o o9in' the o-servation of 4ather Bernas an$ to o-viate the constit#tiona pro- e&, the &e&-ers of the Constit#tiona Co&&ission then $isc#sse$ the s!ste& of re'istration of :#a ifie$ 4i ipinos a-roa$ 9ho 9i -e a o9e$ to vote. It 9as a'ree$ that their re'istration a-roa$ 9o# $ -e consi$ere$ as re'istration in a partic# ar oca it! in the (hi ippines 9here he is $o&ici e$, an$ the vote cast a-roa$ 9o# $ -e consi$ere$ cast in that partic# ar oca it!, to 9itF MR. REBALA%O. I ,#st 9ant to &a=e a note on the state&ent of Co&&issioner S#are3 that this envisions 4i ipinos resi$in' a-roa$. The #n$erstan$in' in the a&en$&ent is that the 4i ipino is te&porari ! a-roa$. He &a! or &a! not -e act#a ! resi$in' a-roa$< he &a! ,#st -e there on a -#siness trip. It ,#st so happens that the $a! -efore the e ections he has to f ! to the Unite$ States, so that he co# $ not cast his vote. He is te&porari ! a-roa$ -#t not resi$in' there. He sta!s in a hote for t9o $a!s an$ co&es -ac=. This is not i&ite$ on ! to 4i ipinos te&porari ! resi$in' a-roa$. B#t

as on' as he is te&porari ! a-roa$ on the $ate of the e ections, then he can fa 9ithin the prescription of Con'ress in that sit#ation. MR. SUAREC. I than= the Co&&issioner for his f#rther c arification. (recise !, 9e nee$ this c arification on recor$. MR. MONSO%. Ma$a& (resi$ent, to c arif! 9hat 9e &ean -! 1te&porari ! a-roa$,1 it nee$ not -e on ver! short trips. One can -e a-roa$ on a treat! tra$ers visa. Therefore, 9hen 9e ta = a-o#t re'istration, it is possi- e that his resi$ence is in An'e es an$ he 9o# $ -e a- e to vote for the can$i$ates in An'e es, -#t Con'ress or the Asse&- ! &a! provi$e the proce$#re for re'istration, i=e istin' oneGs na&e, in a re'istr! ist in the e&-ass! a-roa$. That is sti possi- e #n$er this s!ste&. 4R. BERNAS. Ma$a& (resi$ent, ,#st one c arification if Co&&issioner Monso$ a'rees 9ith this. S#ppose 9e have a sit#ation of a chi $ of a $ip o&atic officer 9ho reaches the votin' a'e 9hi e ivin' a-roa$ an$ he has never re'istere$ here. Ahere 9i he re'isterK Ai he -e a re'istere$ voter of a certain oca it! in the (hi ippinesK MR. MONSO%. Yes, it is possi- e that the s!ste& 9i ena- e that chi $ to co&p ! 9ith the re'istration re:#ire&ents in an e&-ass! in the Unite$ States an$ his na&e is then entere$ in the officia re'istration -oo= in An'e es Cit!, for instance. 4R. BERNAS. In other 9or$s, he is not a re'istere$ voter of Los An'e es, -#t a re'istere$ voter of a oca it! here. MR. MONSO%. That is ri'ht. He $oes not have to co&e ho&e to the (hi ippines to co&p ! 9ith the re'istration proce$#re here. 4R. BERNAS. So, he $oes not have to co&e ho&e. >8 6ita ics o#rs7 It is cr!sta c ear fro& the fore'oin' $e i-erations, that the &a,orit! erre$ in r# in' that Section ; of Artic e 2 of the Constit#tion $ispense$ 9ith the resi$ence re:#ire&ents provi$e$ #n$er Section / of the sa&e Artic e. 6;7 Ahether an 1i&&i'rant1 or a 1per&anent resi$ent1 of a forei'n co#ntr! has ost his $o&ici e in the (hi ippines. The ne"t :#estion is 9hether an 1i&&i'rant1 or a 1per&anent resi$ent1 of a forei'n co#ntr! has a-an$one$ his $o&ici e in the (hi ippines. I respectf# ! s#-&it that he has. There are three c asses of $o&ici e, na&e !F $o&ici e of ori'in, $o&ici e of choice, an$ $o&ici e -! operation of a9. At an! 'iven point, a person can on ! have one $o&ici e. %o&ici e of ori'in is ac:#ire$ -! ever! person at -irth an$ contin#es #nti rep ace$ -! the ac:#isition of another $o&ici e. More specifica !, it is the $o&ici e of the chi $Gs parents or of the persons #pon 9ho& the chi $ is e'a ! $epen$ent at -irth. A tho#'h

a so referre$ to as $o&ici e of -irth, $o&ici e of ori'in is act#a ! the $o&ici e of oneGs parents at the ti&e of -irth an$ &a! not necessari ! -e the act#a p ace of oneGs -irth. >0 %o&ici e of choice is a $o&ici e chosen -! a person to rep ace his or her for&er $o&ici e. An a$# t &a! chan'e $o&ici e at 9i . The choice invo ves an e"ercise of free 9i an$ pres#&es e'a capacit! to &a=e a choice. Ahi e intention is a principa feat#re on $o&ici e of choice, a &ere intention 9itho#t the fact of act#a presence in the oca it! cannot -rin' a-o#t the ac:#isition of a ne9 $o&ici e. %o&ici e of choice 'enera ! consists of a -o$i ! presence in a partic# ar oca it! an$ a conc#rrent intent to re&ain there per&anent ! or at east in$efinite !. >. %o&ici e -! operation of a9 is a $o&ici e that the a9 attri-#tes to a person in$epen$ent of a personGs resi$ence or intention. It app ies to infants, inco&petents, an$ other persons #n$er $isa-i ities that prevent the& fro& ac:#irin' a $o&ici e of choice. 5@ In Ro&#a $e3*Marcos v. COMELEC, 5/ 9e r# e$ that $o&ici e of ori'in is not easi ! ost. To s#ccessf# ! effect a chan'e of $o&ici e, one &#st $e&onstrate an act#a re&ova or an act#a chan'e of $o&ici e< a -ona fi$e intention of a-an$onin' the for&er p ace of resi$ence an$ esta- ishin' a ne9 one< an$ acts 9hich correspon$ 9ith p#rpose. 5; This chan'e of $o&ici e is effecte$ -! a 4i ipino 9ho -eco&es an 1i&&i'rant1 or a 1per&anent resi$ent1 of a forei'n co#ntr!. Th#s, 9e he $ in Caasi v. Co#rt of Appea s, 5? vi3F Mi'#e Gs app ication for i&&i'rant stat#s an$ per&anent resi$ence in the U.S. an$ his possession of a 'reen car$ attestin' to s#ch stat#s are conc #sive proof that he is a per&anent resi$ent of the U.S. $espite his occasiona visits to the (hi ippines. The 9aiver of s#ch i&&i'rant stat#s sho# $ -e as in$#-ita- e as his app ication for it. A-sent c ear evi$ence that he &a$e an irrevoca- e 9aiver of that stat#s or that he s#rren$ere$ his 'reen car$ to the appropriate U.S. a#thorities -efore he ran for &a!or . . . 5> The $octrine in Caasi is -! no &eans ne9. O#r e ection a9s have contin#o#s ! re'ar$e$ 1i&&i'rants1 or 1per&anent resi$ents1 of a forei'n co#ntr! to have ost their $o&ici es in the (hi ippines an$ hence are not :#a ifie$ to r#n for p#- ic office. 55 There is no reason not to app ! the Caasi r# in' in $isp#tes invo vin' the :#a ification of voters. In essence, -oth cases concern f# fi &ent of the resi$ence re:#ire&ents. Section 56$7 of Rep. Act No. ./0. itse f reinforces the app ica-i it! of the Caasi $octrine. As o-serve$ -! the &a,orit!, Rep. Act No. ./0. $is:#a ifies an i&&i'rant or a per&anent resi$ent 9ho is reco'ni3e$ as s#ch in another co#ntr! 1-eca#se i&&i'ration or per&anent resi$ence in another co#ntr! i&p ies ren#nciation of oneGs resi$ence in his co#ntr! of ori'in.1 5J Ae no9 s i$e to the e'a si'nificance of the affi$avit to -e e"ec#te$ -! 1i&&i'rants1 or 1per&anent resi$ents1 to re&ove the& fro& the c ass of $is:#a ifie$ voters. EaIS%C

?. Ahether the e"ec#tion -! an i&&i'rant or a per&anent resi$ent of the affi$avit #n$er Section 56$7 of Rep. Act No. ./0. is s#fficient proof of non*a-an$on&ent of resi$ence in the (hi ippines. A'ain, 9ith $#e respect, I s#-&it that the &a,orit! r# in' on the nat#re of the affi$avit to -e e"ec#te$ -! an 1i&&i'rant1 or a 1per&anent resi$ent1 is inconsistent. On one han$, it theori3es that the act 1serves as an e"p icit e"pression that he ha$ not in fact a-an$one$ his $o&ici e of ori'in.1 58 This conce$es that 9hi e an 1i&&i'rant1 or a 1per&anent resi$ent1 has ac:#ire$ a ne9 $o&ici e in a forei'n co#ntr! -! virt#e of his stat#s as s#ch, Rep. Act No. ./0. 9o# $ consi$er hi& not to have a-an$one$ his $o&ici e in the (hi ippines. On the other han$, the &a,orit! a so theori3es that the affi$avit constit#tes an 1e"press 9aiver of his stat#s as an i&&i'rant or per&anent resi$ent,1 an$ #pon f# fi &ent of the re:#ire&ents of re'istration, 1he &a! sti -e consi$ere$ as a G:#a ifie$ citi3en of the (hi ippines a-roa$G for p#rposes of e"ercisin' his ri'ht of s#ffra'e.1 50 This pres#pposes that the 1i&&i'rant1 or 1per&anent resi$ent1 a-an$one$ his $o&ici e in the (hi ippines, -#t see=s to reac:#ire this $o&ici e -! the e"ec#tion of the affi$avit. The first theor! is #ntena- e. Its inevita- e res# t 9o# $ -e the esta- ish&ent of t9o $o&ici es, i.e., $o&ici e in the (hi ippines an$ $o&ici e in a forei'n co#ntr! 9here he is consi$ere$ an 1i&&i'rant1 or a 1per&anent resi$ent.1 This r# in' 9i contravene the princip e in private internationa a9 that a person can -e $o&ici e$ on ! in one p ace at a 'iven ti&e. 5. The secon$ theor! is e:#a ! #ntena- e. A person 9ho has a-an$one$ his $o&ici e of ori'in -! esta- ishin' a $o&ici e of choice cannot ,#st revert -ac= to his $o&ici e of ori'in. J@ He &#st satisf! the sa&e re:#isites for ac:#irin' a ne9 $o&ici e, i.e., an act#a re&ova or an act#a chan'e of $o&ici e< a -ona fi$e intention of a-an$onin' the for&er p ace of resi$ence an$ esta- ishin' a ne9 one< an$ acts 9hich correspon$ 9ith the p#rpose. An e"istin' $o&ici e cannot -e ost -! a-an$on&ent a one, even if there is an intent to ac:#ire a ne9 one< the e"istin' $o&ici e contin#es #nti a ne9 one is in fact 'aine$. To a-an$on $o&ici e, a person &#st choose a ne9 $o&ici e, act#a ! resi$e in the p ace chosen, an$ inten$ that it -e the principa an$ per&anent resi$ence. That is, there can -e no chan'e of $o&ici e 9itho#t the conc#rrence of act an$ intent. J/ The $octrine esta- ishe$ in En' an$ that the $o&ici e of ori'in is revive$ #pon the a-an$on&ent of a $o&ici e of choice has on' -een re,ecte$ in the Unite$ States. J; Even in En' an$, 1the &o-i it! of &o$ern societ! has fostere$ -oth criticis& of the r# e an$ reco&&en$ation for its chan'e.1 J? Th#s, the prevai in' vie9 at present is that if a $o&ici e of choice is a-an$one$ 9itho#t ac:#irin' a ne9 $o&ici e of choice, 1the $o&ici NeO of ori'in is not there-! revive$, -#t the ast $o&ici NeO of choice contin#es to -e the $o&ici NeO.1 J> In his Separate Opinion, o#r estee&e$ co ea'#e, Mr. +#stice A3c#na, opines that the

e"ec#tion of the affi$avit is the operative act that revives the $o&ici e of ori'in, an$ 1the re:#ire&ent of res#&in' act#a ph!sica presence 9ithin three 6?7 !ears is on ! a test of s#ch intention.1 He f#rther opines that 1if the affiant $oes not res#&e the resi$ence ph!sica ! 9ithin sai$ perio$, then the intent e"presse$ in the affi$avit is $efective an$ the a9 9i $ee& it inoperative.1 Aith $#e respect, I s#-&it that the affi$avit &ere ! proves the intent to ret#rn -#t not the other re:#isites for reac:#irin' the $o&ici e of ori'in. Intent, 9hich is not co#p e$ 9ith act#a ph!sica transfer, is not s#fficient either to a-an$on the for&er $o&ici e or to esta- ish a ne9 $o&ici e. J5 Th#s, the vie9 that $o&ici e co# $ -e esta- ishe$ as soon as the o $ is a-an$one$ even tho#'h the person has not !et arrive$ at the ne9 $o&ici e, has not -een accepte$. In his atest 9or= on the s#-,ect, Sco es, an ac=no9 e$'e$ e"pert in Conf ict of La9s state$ as fo o9sF The e e&ent of ph!sica presence is essentia to confir& the re:#isite attit#$e of &in$ conte&p ate$ -! the concept of $o&ici e. As a conse:#ence, a person 9ho is to ac:#ire a $o&ici e of choice at a p ace &#st act#a ! -e present at that p ace $#rin' the ti&e in 9hich the intention to &a=e it his ho&e e"ists. 4or &ost peop e, intention is confir&e$ -! the ph!sica presence of consi$era- e $#ration oo=in' to9ar$ an in$efinite perio$ of ti&e. Ho9ever, in i'ht of the f#nction that $o&ici e serves, i.e., to i$entif! a sett e$ re ationship 9ith a p ace for a partic# ar e'a p#rpose, it is so&eti&es necessar! to &a=e a $eter&ination 9hen the ph!sica presence has -een ver! -rief. Conse:#ent !, no partic# ar en'th of ti&e is necessar! in or$er to satisf! the re:#ire&ent of ph!sica presence if that sta! at a p ace verifies the intention to &a=e it a ho&e. """ """ """ In the case of the in$ivi$#a 9ho has c ear ! &anifeste$ an intention to chan'e a ne9 ho&e an$ center of socia activities, the :#estion so&eti&es arises 9h! that personGs $o&ici e sho# $ not chan'e as soon as the o $ is a-an$one$ even tho#'h the in$ivi$#a has not !et arrive$ at the ne9. A tho#'h this has so&eti&es -een s#''este$ as a possi-i it!, it is contrar! to the c ear 9ei'ht of a#thorit!, pro-a- ! -eca#se ph!sica presence is or$inari ! the principa confir&in' evi$ence of the intention of the person. JJ 6ita ics o#rs7 Bea e, another ac=no9 e$'e$ e"pert on the s#-,ect, shares the sa&e vie9, vi3F One or t9o a#thorities #n$er specia circ#&stances have he $ that a $o&ici NeO &i'ht -e ac:#ire$ in a certain p ace 9hi e the person is on his 9a! to9ar$ the p ace 9ith an intent to ive there an$ $#rin' his ,o#rne! to9ar$ that p ace, a tho#'h he ha$ not !et act#a ! reache$ that p ace. In t9o ta"ation cases in Massach#setts, 9here #pon the ta"in' $a! the person in :#estion 9as act#a ! on his ,o#rne! fro& a for&er resi$ence in the state to an inten$e$ secon$ resi$ence, 9hether in the sa&e state or in another state, he 9as he $ to -e ta"a- e in the secon$ resi$ence in the 'ro#n$ that #n$er those

pec# iar circ#&stances his $o&ici NeO 9o# $ shift at the &o&ent of a-an$onin' the first resi$ence. These, ho9ever, 9ere $isapprove$ an$ overr# e$. In one other case, a si&i ar inti&ation has -een &a$e. In Matter of Brant, it appeare$ that a $ece$ent ha$ eft a Unite$ States reservation in the State of Ne9 Yor= 9ith intention to 'o to the %istrict of Co #&-ia, an$ there esta- ish his resi$ence, -#t he ha$ $ie$ en ro#te. 4o9 er, S#rro'ate, inti&ate$ that he 9as a rea$! $o&ici e$ in the %istrict of Co #&-ia. It is not too &#ch to sa!, ho9ever, that there is a-so #te ! no 'oo$ a#thorit! for the opinion th#s e"presse$, an$ that is e'a ! i&possi- e for a &an to ac:#ire a $o&ici NeO -efore he is present at the p ace 9here the $o&ici NeO is esta- ishe$. J8 6ita ics o#rs7 Bea e a so states that 9ith the re,ection of the En' ish 1a#to&atic reversion1 $octrine, ph!sica presence is re:#ire$ -efore the person can reac:#ire his $o&ici e of ori'in, vi3F The $octrine in En' an$ is that the $o&ici NeO of ori'in revives #pon the a-an$on&ent of a $o&ici NeO of choice. . . Inspite of a fe9 En' ish cases to the contrar!, this has -eco&e thoro#'h ! esta- ishe$ as the $octrine of the En' ish co#rts, the co#rt -ein' especia ! e&phatic in cases 9here a person has eft his $o&ici NeO of choice 9itho#t intent to ret#rn an$ has starte$ to ret#rn to his $o&ici NeO of ori'in. Here, evi$ence &#st of co#rse -e intro$#ce$ to sho9 a $efinitive a-an$on&ent of $o&ici NeO of choice -! act#a ! eavin' the co#ntr! 9itho#t intent to ret#rn. The En' ish $octrine has -een approve$ in this co#ntr! in severa cases, in &ost of 9hich the approva 9as a &ere $ict#&, -#t in the Unite$ States, 'enera !, the opposite vie9 is he $, an$ #pon the a-an$on&ent of a $o&ici NeO of choice there is no chan'e of $o&ici NeO #nti a ne9 $o&ici NeO is o-taine$. . . On the other han$, a fe9 A&erican cases fo o9 the En' ish $ecision in so far as to $ec are that a $o&ici NeO of ori'in revives 9hen a person havin' a-an$one$ a $o&ici NeO of choice is on his 9a! to &a=e a ho&e at his $o&ici NeO of ori'in, -#t the -etter opinion in this co#ntr! $oes not a o9 the reac:#isition of the $o&ici NeO of ori'in #nti the fact of presence at the p ace of $o&ici NeO of ori'in e"ists, as 9e as the intent to ret#rn there. J0 6ita ics o#rs7 To stress, the -#r$en of esta- ishin' a chan'e in $o&ici e is #pon the part! 9ho asserts it. J. A personGs $ec arations as to 9hat he consi$ers his ho&e, resi$ence, or $o&ici e are 'enera ! a$&issi- e 1as evi$ence of his attit#$e of &in$.1 8@ Ho9ever, 9hatever the conte"t, 1their acc#rac! is s#spect -eca#se of their se f*servin' nat#re, partic# ar ! 9hen the! are &a$e to achieve so&e e'a o-,ective.1 8/ In the case at -ar, the -#r$en rests on an 1i&&i'rant1 or a 1per&anent resi$ent1 to prove that he has a-an$one$ his $o&ici e in the forei'n co#ntr! an$ reesta- ishe$ his $o&ici e in the (hi ippines. A se f*servin' affi$avit 9i not s#ffice, especia ! 9hen 9hat is at sta=e is a ver! i&portant privi e'e as the ri'ht of s#ffra'e. I respectf# ! s#-&it that 9hat &a=es the intent e"presse$ in the affi$avit effective an$ operative is

the f# fi &ent of the pro&ise to ret#rn to the (hi ippines. (h!sica presence is not a &ere test of intent -#t the 1principa confir&in' evi$ence of the intention of the person.1 8; Unti s#ch pro&ise is f# fi e$, he contin#es to -e a $o&ici iar! of another co#ntr!. Unti then, he $oes not possess the necessar! re:#isites an$ therefore, cannot -e consi$ere$ a :#a ifie$ voter. 6>7 Ahether co#ntin' the votes of i&&i'rants or per&anent resi$ents 9ho fai to ret#rn to the (hi ippines 9i $i #te the va i$ votes of o#r f# ! :#a ifie$ e ectors. The on ! conse:#ence i&pose$ -! Rep. Act No. ./0. to an 1i&&i'rant1 or a 1per&anent resi$ent1 9ho $oes not f# fi his pro&ise to ret#rn to the (hi ippines is the re&ova of his na&e fro& the Nationa Re'istr! of A-sentee 2oters an$ his per&anent $is:#a ification to vote in a-sentia. B#t his vote 9o# $ -e co#nte$ an$ accor$e$ the sa&e 9ei'ht as that cast -! -ona fi$e :#a ifie$ 4i ipino voters. I respectf# ! s#-&it that this sche&e $i&inishes the va #e of the ri'ht of s#ffra'e as it $i #tes the ri'ht of :#a ifie$ voters to the proportionate va #e of their votes. The one person, one vote princip e is sacrosanct in a rep#- ican for& of 'overn&ent. The cha en'e$ provision 9hich a o9s the va #e of the va i$ votes of :#a ifie$ voters to -e $i&inishe$ -! the inva i$ votes of $is:#a ifie$ voters vio ates the soverei'nt! of o#r peop e. The va i$ation -! the &a,orit! of this #nconstit#tiona provision &a! res# t in the ano&a ! 9here the hi'hest p#- ic officia s of o#r an$ 9i o9e their e ection to 1i&&i'rants1 or 1per&anent resi$ents1 9ho fai e$ to f# fi their pro&ise to ret#rn to o#r co#ntr! or 9ho rep#$iate$ their $o&ici e here. The &a,orit! $o9np a!s the effect of the cha en'e$ provision on those 9ho are a rea$! :#a ifie$ prior to the enact&ent of Rep. Act No. ./0.. It is opine$ that the re&ova of an 1i&&i'rant1 or a 1per&anent resi$ent1 fro& the ist of the Nationa Re'istr! of A-sentee 2oters an$ his per&anent $is:#a ification 19o# $ s#ffice to serve as $eterrence to non*co&p iance 9ith hisIher #n$erta=in' #n$er the affi$avit.1 The &a,orit! &isses the point. Aitho#t Section 56$7 of Rep. Act No. ./0., an 1i&&i'rant1 or a 1per&anent resi$ent1 has no ri'ht to vote. Th#s, even ass#&in' that he -eco&es :#a ifie$ after e"ec#tin' the affi$avit, he $oes not stan$ to ose an!thin' 9hen he is s#-se:#ent ! $is:#a ifie$ for his fai #re to co&p ! 9ith his #n$erta=in' #n$er the affi$avit. He 9i ,#st ret#rn to his ori'ina stat#s. B. Is Section /0.5 of Rep. Act No. ./0. in re ation to Section > of the sa&e Act in contravention of Section >, Artic e 2II of the Constit#tionK (etitioner conten$s that Section /0.5 in re ation to Section > of Rep. Act No. ./0. vio ates Section >, Artic e 2II of the /.08 Constit#tion 'ivin' Con'ress the po9er to canvass the votes an$ proc ai& the 9innin' can$i$ates for (resi$ent an$ 2ice* (resi$ent, vi3F """ """ """

The ret#rns of ever! e ection for (resi$ent an$ 2ice*(resi$ent, $# ! certifie$ -! the -oar$ of canvassers of each province or cit!, sha -e trans&itte$ to the Con'ress, $irecte$ to the (resi$ent of the Senate. Upon receipt of the certificates of canvass, the (resi$ent of the Senate sha , not ater than thirt! $a!s after the $a! of the e ection, open a certificates in the presence of the Senate an$ the Ho#se of Representatives in ,oint p#- ic session, an$ the Con'ress, #pon $eter&ination of the a#thenticit! an$ $#e e"ec#tion thereof in the &anner provi$e$ -! a9, canvass the votes. The person havin' the hi'hest n#&-er of votes sha -e proc ai&e$ e ecte$, -#t in case t9o or &ore sha have an e:#a an$ hi'hest n#&-er of votes, one of the& sha forth9ith -e chosen -! the vote of a &a,orit! of a the Me&-ers of -oth Con'ress, votin' separate !. The Con'ress sha pro&# 'ate its r# es for the canvassin' of the certificates. """ """ """ Section > of Rep. Act No. ./0. a o9s a :#a ifie$ 4i ipinos overseas to vote for (resi$ent, 2ice*(resi$ent, Senators an$ part!* ist representatives 9hi e Section /0.5 thereof e&po9ers the COMELEC to or$er the proc a&ation of 9innin' can$i$ates, vi3F SEC. /0. On*Site Co#ntin' an$ Canvassin'. D """ """ """ /0.5 The canvass of votes sha not ca#se the $e a! of the proc a&ation of a 9innin' can$i$ate if the o#tco&e of the e ection 9i not -e affecte$ -! the res# ts thereof. Not9ithstan$in' the fore'oin', the Co&&ission is e&po9ere$ to or$er the proc a&ation of 9innin' can$i$ates $espite the fact the sche$# e$ e ection has not ta=en p ace in a partic# ar co#ntr! or co#ntries, if the ho $in' of e ections therein has -een ren$ere$ i&possi- e -! events, factors an$ circ#&stances pec# iar to s#ch co#ntr! or co#ntries, in 9hich events, factors an$ circ#&stances are -e!on$ the contro or inf #ence of the Co&&ission. On its face, Section /0.5 of Rep. Act No. ./0. appears to -e rep#'nant to Section >, Artic e 2II of the /.08 Constit#tion. It 'ives the i&pression that Con'ress a-$icate$ to COMELEC its constit#tiona $#t! to canvass an$ proc ai& the 9innin' can$i$ates for (resi$ent an$ 2ice*(resi$ent. I a'ree 9ith the &a,orit! that the i&p#'ne$ provision sho# $ -e 'iven a reasona- e interpretation that 9o# $ save it fro& a constit#tiona infir&it!. To -e s#re, Con'ress co# $ have not a o9e$ the COMELEC to e"ercise a po9er e"c #sive ! -esto9e$ #pon it -! the Constit#tion. Th#s, Section /0.5 of Rep. Act No. ./0. e&po9erin' the COMELEC to proc ai& the 9innin' can$i$ates sho# $ -e constr#e$ as i&ite$ to the positions of Senators an$ part!* ist representatives. In i=e &anner, I a'ree 9ith the &a,orit! that Section /0.> of Rep. Act No. ./0. 9hich provi$esF

/0.>. . . . I&&e$iate ! #pon the co&p etion of the canvass, the chair&an of the Specia Boar$ of Canvassers sha trans&it via facsi&i e, e ectronic &ai , or an! other &eans of trans&ission e:#a ! safe an$ re ia- e the Certificates of Canvass an$ the State&ents of 2otes to the Co&&ission, . . . 6ita ics s#pp ie$7 sho# $ -e constr#e$ in har&on! 9ith Section >, Artic e 2II of the /.08 Constit#tion. Hence, 9ith respect to the position of the (resi$ent an$ the 2ice*(resi$ent, the Certificates of Canvass an$ the State&ents of 2otes &#st -e s#-&itte$ to Con'ress an$ $irecte$ to the Senate (resi$ent. IHcT%A C. %oes Con'ress, thro#'h the +oint Con'ressiona Oversi'ht Co&&ittee create$ in Section ;5 of Rep. Act No. ./0., have the po9er to revie9, revise, a&en$ an$ approve the I&p e&entin' R# es an$ Re'# ations that the Co&&ission on E ections sha pro&# 'ate 9itho#t vio atin' the in$epen$ence of the COMELEC #n$er Section /, Artic e IH*A of the Constit#tionK Both the Co&&ission on E ections 6COMELEC7 an$ the Office of the So icitor Benera 6OSB7 a'ree 9ith the petitioner that Sections /. an$ ;5 of Rep. Act No. ./0. are #nconstit#tiona on the 'ro#n$ that the! vio ate the in$epen$ence of the COMELEC. 8? The i&p#'ne$ provisions re:#ire the p#- ic respon$ent COMELEC to s#-&it its I&p e&entin' R# es an$ Re'# ations to the +oint Con'ressiona Oversi'ht Co&&ittee for revie9, revision, a&en$&ent, or approva , vi3F Sec. /.. A#thorit! of the Co&&ission to (ro&# 'ate R# es. D The Co&&ission sha iss#e the necessar! r# es an$ re'# ations to effective ! i&p e&ent the provisions of this Act 9ithin si"t! 6J@7 $a!s fro& effectivit! of this Act. The I&p e&entin' R# es an$ Re'# ations sha -e s#-&itte$ to the +oint Oversi'ht Co&&ittee create$ -! virt#e of this Act for prior approva . In the for&# ation of the r# es an$ re'# ations, the Co&&ission sha coor$inate 9ith the %epart&ent of 4orei'n Affairs, %epart&ent of La-or an$ E&p o!&ent, (hi ippine Overseas E&p o!&ent A$&inistration, Overseas Aor=ersG Ae fare A$&inistration an$ the Co&&ission on 4i ipino Overseas. Non*'overn&ent or'ani3ations an$ accre$ite$ 4i ipino or'ani3ations or associations a-roa$ sha -e cons# te$. """ """ """ Sec. ;5. +oint Con'ressiona Oversi'ht Co&&ittee. D A ,oint Con'ressiona Oversi'ht Co&&ittee is here-! create$, co&pose$ of the Chair&an of the Senate Co&&ittee on Constit#tiona A&en$&ents, Revision of Co$es an$ La9s, an$ seven 687 other Senators $esi'nate$ -! the Senate (resi$ent, an$ the Chair&an of the Ho#se Co&&ittee on S#ffra'e an$ E ectora Refor&s, an$ seven 687 other &e&-ers of the Ho#se of Representatives $esi'nate$ -! the Spea=er of the Ho#se of RepresentativesF (rovi$e$, That, of the seven 687 &e&-ers to -e $esi'nate$ -! each Ho#se of Con'ress, fo#r 6>7 sho# $ co&e fro& the &a,orit! an$ the re&ainin' three 6?7 fro&

the &inorit!. The +oint Con'ressiona Oversi'ht Co&&ittee sha have the po9er to &onitor an$ eva #ate the i&p e&entation of this Act. It sha revie9, revise, a&en$ an$ approve the I&p e&entin' R# es an$ Re'# ations pro&# 'ate$ -! the Co&&ission. 6ita ics s#pp ie$7 (#- ic respon$ents aver that as an in$epen$ent constit#tiona -o$!, the COMELEC is not #n$er the contro of the e"ec#tive or the e'is ative 8> in the perfor&ance of its constit#tiona f#nction to 1enforce an$ a$&inister a a9s an$ re'# ations re ative to the con$#ct of an e ection.1 85 (#- ic respon$ent COMELEC asserts that its ri'ht to for&# ate r# es an$ re'# ations f o9s fro& its po9er to enforce an$ a$&inister e ection a9s an$ re'# ations. 8J This po9er is e"c #sive an$ its e"ercise is not s#-,ect to the revie9, revision, or approva of Con'ress. 88 The So icitor Benera shares the sa&e vie9 that the ro e of the e'is at#re en$s 9ith the finishe$ tas= of e'is ation. 80 He opines that nothin' in Artic e 2I of the /.08 Constit#tion s#''ests that Con'ress is e&po9ere$ to enforce an$ a$&inister e ection a9s conc#rrent 9ith the COMELEC. 8. A on' the sa&e ines, p#- ic respon$ent COMELEC assai s Section /8./ of Rep. Act No. ./0. s#-,ectin' the i&p e&entation of votin' -! &ai to prior revie9 an$ approva of the +oint Oversi'ht Co&&ittee. It &aintains that the $eve op&ent of a s!ste& for votin' -! &ai invo ves the 1a$&inistration of e ection a9s1 an$ fa s s:#are ! 9ithin its e"c #sive f#nctions. 0@ Section /8./ of Rep. Act No. ./0. rea$sF Sec. /8. 2otin' -! &ai . D /8./. 4or the Ma!, ;@@> e ections, the Co&&ission sha a#thori3e votin' -! &ai in not &ore than three 6?7 co#ntries, s#-,ect to the approva of the Con'ressiona Oversi'ht Co&&ittee. 2otin' -! &ai &a! -e a o9e$ in co#ntries that satisf! the fo o9in' con$itionsF 6a7 Ahere the &ai in' s!ste& is fair ! 9e *$eve ope$ an$ sec#re to prevent occasion of fra#$< 6-7 Ahere there e"ists a technica ! esta- ishe$ i$entification s!ste& that 9o# $ prec #$e &# tip e or pro"! votin'< an$ 6c7 Ahere the s!ste& of reception an$ c#sto$! of &ai e$ -a ots in the e&-assies, cons# ates an$ other forei'n service esta- ish&ents concerne$ are a$e:#ate an$ 9e * sec#re$. Thereafter, votin' -! &ai in an! co#ntr! sha -e a o9e$ on ! #pon revie9 an$ approva of the +oint Oversi'ht Co&&ittee. 6ita ics s#pp ie$7 The &a,orit! s#stains the petitioner as it ho $s that 1N-O! vestin' itse f 9ith the po9ers to approve, revie9, a&en$ an$ revise the IRR for The Overseas 2otin' Act of ;@@?, Con'ress 9ent -e!on$ the scope of its constit#tiona a#thorit!. Con'ress tra&p e$

#pon the constit#tiona &an$ate of in$epen$ence of the COMELEC.1 I a'ree 9ith the &a,orit! -#t 9ish to a$$ &! h#&- e tho#'hts on this a i&portant constit#tiona iss#e D the e"tent of the e"ercise -! Con'ress of its oversi'ht po9ers in the i&p e&entation of Rep. Act No. ./0.. The reso #tion of the iss#e entai s a t9o* tiere$ $isc#ssion of the fo o9in'F 6/7 9hether Con'ress has oversi'ht f#nctions over constit#tiona -o$ies i=e the COMELEC< an$ 6;7 ass#&in' that it has, 9hether Con'ress e"cee$e$ the per&issi- e e"ercise of its oversi'ht f#nctions. Before procee$in', 9e &#st foc#s on the e"act p ace of the po9er of con'ressiona oversi'ht in o#r constit#tiona canvass. This 9i invo ve an e"position of t9o princip es -asic to o#r constit#tiona $e&ocrac!F separation of po9ers an$ chec=s an$ -a ances. Separation of po9ers an$ chec=s an$ -a ances The princip e of separation of po9ers prevents the concentration of e'is ative, e"ec#tive, an$ ,#$icia po9ers to a sin' e -ranch of 'overn&ent -! $eft ! a ocatin' their e"ercise to the three -ranches of 'overn&ent. This princip e $ates -ac= fro& the ti&e of Aristot e 0/ -#t the 1&o$ern1 concept o9es its ori'in in the seventeenth an$ ei'hteenth cent#r! 9ritin's of po itica phi osophers inc #$in' Loc=e an$ Montes:#ie#. Their 9ritin's 9ere &ain ! reactions to the r#ino#s str#'' e for po9er -! the &onarchs an$ the par ia&ents in Aestern E#rope. 0; In his Secon$ Treatise of Civi Bovern&ent, 0? +ohn Loc=e a$vocate$ the proper $ivision of the e'is ative, e"ec#tive an$ fe$erative po9ers of the co&&on9ea th. He $efine$ e'is ative po9er as 1that 9hich has a ri'ht to $irect ho9 the force of the co&&on9ea th sha -e e&p o!e$ for preservin' the co&&#nit! an$ the &e&-ers of it.1 0> He vie9e$ e"ec#tive po9er as invo vin' 1the e"ec#tion of the &#nicipa a9s of the societ! 9ithin its se f, Nan$O #pon a that are parts of it1 05 an$ fe$erative po9er as concerne$ 9ith 1the &ana'e&ent of the sec#rit! an$ interest of the p#- ic 9itho#t1 inc #$in' 1the po9er of 9ar an$ peace, ea'#es an$ a iances, an$ a the transactions, 9ith a persons an$ co&&#nities 9itho#t the co&&on9ea th.1 0J Loc=e e"post# ate$ that e"ec#tive po9ers sho# $ not -e p ace$ in one person or 'ro#p of persons e"ercisin' e'is ative po9er -eca#se 1it &a! -e too 'reat a te&ptation to h#&an frai t!, apt to 'rasp at po9er, for the sa&e persons, 9ho have the po9er to e"ec#te the&, 9here-! the! &a! e"e&pt the&se ves fro& o-e$ience to the a9s the! &a=e, an$ s#it the a9, -oth in its &a=in', an$ e"ec#tion, to their o9n private a$vanta'e, an$ there-! co&e to have a $istinct interest fro& the rest of the co&&#nit!, contrar! to the en$ of societ! an$ 'overn&ent.1 08 B#t 9hi e the e"ec#tive an$ the fe$erative are t9o $istinct po9ers, Loc=e conce$e$ that the! are intricate ! re ate$ an$ th#s &a! -e e"ercise$ -! the sa&e persons. 00 Loc=e &othere$ the &o$ern i$ea of $ivision of po9er -#t it 9as Montes:#ie# 9ho refine$ the concept. In his fa&e$ treatise, The Spirit of the La9s, 0. Montes:#ie#

a#thoritative ! ana !3e$ the nat#re of e"ec#tive, e'is ative an$ ,#$icia po9ers an$ 9ith a for&i$a- e foresi'ht co#nse e$ that an! co&-ination of these po9ers 9o# $ create a s!ste& 9ith an inherent ten$enc! to9ar$s t!rannica actions, th#sF In ever! 'overn&ent there are three sorts of po9erF the e'is ative< the e"ec#tive in respect to thin's $epen$ent on the a9 of nations< an$ the e"ec#tive in re'ar$ to &atters that $epen$ on the civi a9. B! virt#e of the e'is ative po9er, the prince or &a'istrate enacts te&porar! or perpet#a a9s, an$ a&en$s or a-ro'ates those that have -een a rea$! enacte$. B! the secon$, he &a=es peace or 9ar, sen$s or receives e&-assies, esta- ishes the p#- ic sec#rit!, an$ provi$es a'ainst invasions. B! the thir$, he p#nishes cri&ina s, or $eter&ines the $isp#tes that arise -et9een in$ivi$#a s. The atter 9e sha ca the ,#$iciar! po9er, an$ the other, si&p ! the e"ec#tive po9er of the state. The po itica i-ert! of the s#-,ect is a tran:#i it! of &in$ arisin' fro& the opinion each person has of his safet!. In or$er to have this i-ert!, it is re:#isite the 'overn&ent -e so constit#te$ as one &an nee$ not -e afrai$ of another. Ahen the e'is ative an$ e"ec#tive po9ers are #nite$ in the sa&e person, or in the sa&e -o$! of &a'istrates, there can -e no i-ert!< -eca#se apprehensions &a! arise, est the sa&e &onarch or senate sho# $ enact t!rannica a9s, to e"ec#te the& in a t!rannica &anner. A'ain, there is no i-ert!, if the ,#$iciar! po9er -e not separate$ fro& the e'is ative an$ the e"ec#tive. Aere it ,oine$ 9ith the e'is ative, the ife an$ i-ert! of the s#-,ect 9o# $ -e e"pose$ to ar-itrar! contro < for the ,#$'e 9o# $ -e then the e'is ator. Aere it ,oine$ to the e"ec#tive po9er, the ,#$'e &i'ht -ehave 9ith vio ence an$ oppression. There 9o# $ -e an en$ of ever!thin', 9ere the sa&e &an or the sa&e -o$!, 9hether of the no- es or of the peop e, to e"ercise those three po9ers, that of enactin' a9s, that of e"ec#tin' the p#- ic reso #tions, an$ that of tr!in' the ca#ses of in$ivi$#a s.1 .@ At the ti&e of the A&erican Revo #tion, the &ore inf #entia po itica ea$ers in the ne9 states s#-scri-e$ to Montes:#ie#Gs concept of separation of po9ers. ./ So&e constit#tions of the ear ! state 'overn&ents even referre$ to the princip e. B#t the concept espo#se$ at that partic# ar ti&e 9as a ot $ifferent. As then #n$erstoo$, separation of po9ers re:#ires a 9aterti'ht co&part&enta i3ation of the e"ec#tive, ,#$icia , an$ e'is ative f#nctions an$ per&its no sharin' of 'overn&ent po9ers -et9een an$ a&on' the three -ranches of 'overn&ent. The Massach#setts Constit#tion of /80@, for instance, provi$esF In the 'overn&ent of this co&&on9ea th, the e'is ative $epart&ent sha never e"ercise the e"ec#tive an$ ,#$icia po9ers, or either of the&< the e"ec#tive sha never e"ercise the e'is ative an$ ,#$icia po9ers, or either of the&< the ,#$icia sha never

e"ercise the e'is ative an$ e"ec#tive po9ers, or either of the&F to the en$ that it &a! -e a 'overn&ent of a9s an$ not of &en. .; The /808 U.S. Constit#tion $i$ not contain a si&i ar provision i=e that fo#n$ in the Massach#setts Constit#tion or an! princip e proc ai&in' the a$herence of the 4ra&ers to the princip e of separation of po9ers. B#t e'a scho ars are of the vie9 that the 4ra&ers essentia ! fo o9e$ Montes:#ie#Gs reco&&en$ation for the $ivision of po9ers, notin' that the U.S. Constit#tion vests 1a e'is ative po9ers1 in the Con'ress of the Unite$ States, .? the 1e"ec#tive po9er1 in the (resi$ent, .> an$ the 1,#$icia po9er1 in one S#pre&e Co#rt an$ in s#ch inferior co#rts as Con'ress &a! provi$e. .5 These e'a scho ars a so note that the U.S. Constit#tion a o9s the 1sharin'1 of the three 'reat po9ers -et9een an$ a&on' the three -ranches. The (resi$ent, for instance, shares in the e"ercise of e'is ative po9er thro#'h his veto po9er, an$ the co#rts thro#'h their po9er to &a=e r# es of ,#$icia proce$#re an$ especia ! thro#'h their ri'ht to interpret a9s an$ inva i$ate the& as #nconstit#tiona . Con'ress shares in the e"ercise of e"ec#tive po9er thro#'h its confir&ation of appoint&ents an$ assent to treaties, an$ in the ,#$icia po9er thro#'h its po9er to create inferior co#rts an$ re'# ate the n#&-er an$ pa! of ,#$'es. .J Th#s, the! post# ate that the 4ra&ers esta- ishe$ a 'overn&ent '#i$e$ not -! strict separation of po9ers -#t one of chec=s an$ -a ances to prevent the separate -ranches fro& 1r#nnin' 9i $1 an$ to avert $ea$ oc=s an$ -rea=$o9ns, vi3F The 4ra&ers e"pecte$ the -ranches to -att e each other to ac:#ire an$ $efen$ po9er. To prevent the s#pre&ac! of one -ranch over an! other in these -att es, po9ers 9ere &i"e$< each -ranch 9as 'rante$ i&portant po9er over the sa&e area of activit!. The British an$ Conference e"perience has e$ the 4ra&ers to avoi$ re'ar$in' controvers! -et9een the -ranches as a conf ict -et9een 'oo$ an$ evi or ri'ht or 9ron', re:#irin' $efinitive, instit#tiona ! per&anent reso #tion, Rather, the! vie9e$ s#ch conf ict as an e"pression of the a''ressive an$ perverse part of h#&an nat#re that $e&an$e$ o#t et -#t has to -e =ept fro& fin$in' astin' reso #tion so that i-ert! co# $ -e reserve$. .8 Even then, so&e e'a #&inaries 9ere of the vie9 that the concept of chec=s an$ -a ances is $ia&etrica ! oppose$ to the princip e of separation of po9ers. +a&es Ma$ison, ho9ever, e"p aine$ that Montes:#ie#Gs concept of separation of po9ers $i$ not re:#ire a strict $ivision of f#nctions a&on' the three -ranches of 'overn&ent. Ma$ison $efen$e$ the Constit#tion as havin' s#fficient $ivision of f#nctions a&on' the three -ranches of 'overn&ent to avoi$ the conso i$ation of po9er in an! one -ranch an$ a so stresse$ that a ri'i$ se're'ation of the three -ranches 9o# $ #n$er&ine the p#rpose of the separation $octrine. .0 He note$ that #n ess the three -ranches 1-e so far connecte$ an$ - en$e$ as to 'ive to each a constit#tiona contro over the others, the $e'ree of separation 9hich the &a"i& re:#ires as essentia to a

free 'overn&ent, can never in practice -e $# ! &aintaine$.1 .. Ma$isonGs vie9 has since then -een the accepte$ interpretation of the concept of separation of po9ers #n$er the Constit#tion. Th#s, in Yo#n'sto9n Sheet S T#-e Co. v. Sa9!er, /@@ the U.S. S#pre&e Co#rt he $ that 1NIOn $esi'nin' the str#ct#re of o#r Bovern&ent an$ $ivi$in' an$ a ocatin' the soverei'n po9er a&on' the three co*e:#a -ranches, the 4ra&ers of the Constit#tion so#'ht to provi$e a co&prehensive s!ste& -#t the separate po9ers 9ere not inten$e$ to operate 9ith a-so #te in$epen$ence.1 In B#c= e! v. 2a eo, /@/ the Co#rt r# e$ that the Constit#tion -! no &eans conte&p ates tota separation of each of these essentia -ranches of 'overn&ent an$ the fra&ers vie9e$ the princip e of separation of po9ers as a vita chec= a'ainst t!rann!. It i=e9ise 9arne$ that the 1her&etic sea in' off of the three -ranches of Bovern&ent fro& one another 9o# $ prec #$e the esta- ish&ent of a Nation capa- e of 'overnin' itse f effective !.1 /@; Th#s, in Ni"on v. A$&inistrator of Benera Services, /@? the Co#rt re,ecte$ the 1archaic vie9 of separation of po9ers as re:#irin' three airti'ht $epart&ents of 'overn&ent.1 In $eter&inin' 9hether an act $isr#pts the proper -a ance -et9een the coor$inate -ranches, the Co#rt s#''este$ that the proper in:#ir! sho# $ foc#s on the e"tent to 9hich it prevents the other -ranch fro& acco&p ishin' its constit#tiona ! assi'ne$ f#nctions. /@> In this ,#ris$iction, o#r a$herence to the princip e of separation po9ers 9as s#ccinct ! $isc#sse$ -! +#stice La#re in An'ara v. E ectora Co&&ission /@5 $eci$e$ in /.?J, ess than a !ear after the effectivit! of the /.?5 Constit#tion. +#stice La#re e&phasi3e$ that 1NTOhe separation of po9ers is a f#n$a&enta princip e in o#r s!ste& of 'overn&ent. It o-tains not thro#'h e"press provision -#t -! act#a $ivision in o#r Constit#tion.1 /@J Th#sF Each $epart&ent of the 'overn&ent has e"c #sive co'ni3ance of the &atters 9ithin its ,#ris$iction, an$ is s#pre&e 9ithin its o9n sphere. B#t it $oes not fo o9 fro& the fact that the three po9ers are to -e =ept separate an$ $istinct that the Constit#tion inten$e$ the& to -e a-so #te ! #nrestraine$ an$ in$epen$ent of each other. The Constit#tion has provi$e$ for an e a-orate s!ste& of chec=s an$ -a ances to sec#re coor$ination in the 9or=in's of the vario#s $epart&ents of the 'overn&ent. 4or e"a&p e, the Chief E"ec#tive #n$er o#r Constit#tion is so far &a$e a chec= on the e'is ative po9er that this assent is re:#ire$ in the enact&ent of a9s. This, ho9ever, is s#-,ect to the f#rther chec= that a -i &a! -eco&e a a9 not9ithstan$in' the ref#sa of the (resi$ent to approve it, -! a vote of t9o*thir$s or three*fo#rths, as the case &a! -e, of the Nationa Asse&- !. The (resi$ent has a so the ri'ht to convene the Asse&- ! in specia session 9henever he chooses. On the other han$, the Nationa Asse&- ! operates as a chec= on the E"ec#tive in the sense that its consent tho#'h its Co&&ission on Appoint&ents is necessar! in the appoint&ent of certain officers< an$ the conc#rrence of a &a,orit! of a its &e&-ers is essentia to the conc #sion of treaties. 4#rther&ore, in its po9er to $eter&ine 9hat co#rts other than the S#pre&e Co#rt sha -e esta- ishe$, to $efine their ,#ris$iction an$ to appropriate f#n$s for their s#pport, the Nationa Asse&- !

contro s the ,#$icia $epart&ent to a certain e"tent. The Asse&- ! a so e"ercises the ,#$icia po9er of tr!in' i&peach&ents. An$ the ,#$iciar! in t#rn, 9ith the S#pre&e Co#rt as the fina ar-iter, effective ! chec=s the other $epart&ents in the e"ercise of its po9er to $eter&ine the a9, an$ hence to $ec are e"ec#tive an$ e'is ative acts voi$ if vio ative of the Constit#tion. /@8 In ( anas v. Bi , /@0 +#stice La#re f#rther $isc#sse$ the intricate interp a! of the princip e of separation of po9ers an$ chec=s an$ -a ances, vi3F The c assica separation of 'overn&enta po9ers, 9hether vie9e$ in the i'ht of po itica phi osoph! of Aristot e, Loc=e or Montes:#ie#, or to the post# ations of Ma-ini, Ma$ison, or +efferson, is a re ative theor! of 'overn&ent. There is &ore tr#is& an$ act#a it! in inter$epen$ence than in in$epen$ence an$ separation of po9ers, for as o-serve$ -! +#stice Ho &es in a case of (hi ippine ori'in, 9e cannot a! $o9n 19ith &athe&atica precision an$ $ivi$e the -ranches in 9aterti'ht co&part&ents1 not on ! -eca#se 1the or$inances of the Constit#tion $o not esta- ish an$ $ivi$e fie $s of - ac= an$ 9hite1 -#t a so -eca#se 1even &ore specific to the& are fo#n$ to ter&inate in a pen#&-ra sha$in' 'ra$#a ! fro& one e"tre&e to the other.1 /@. It is no9 -e!on$ $e-ate that the princip e of separation of po9ers 6/7 a o9s the 1- en$in'1 of so&e of the e"ec#tive, e'is ative, or ,#$icia po9ers in one -o$!< 6;7 $oes not prevent one -ranch of 'overn&ent fro& in:#irin' into the affairs of the other -ranches to &aintain the -a ance of po9er< 6?7 -#t ens#res that there is no encroach&ent on &atters 9ithin the e"c #sive ,#ris$iction of the other -ranches. 4or its part, this Co#rt chec=s the e"ercise of po9er of the other -ranches of 'overn&ent thro#'h ,#$icia revie9. It is the fina ar-iter of $isp#tes invo vin' the proper a ocation an$ e"ercise of the $ifferent po9ers #n$er the Constit#tion. Th#sF The Constit#tion is a $efinition of the po9ers of 'overn&ent. Aho is to $eter&ine the nat#re, scope an$ e"tent of s#ch po9ersK The Constit#tion itse f has provi$e$ for the instr#&enta it! of the ,#$iciar! as the rationa 9a!. An$ 9hen the ,#$iciar! &e$iates to a ocate constit#tiona -o#n$aries, it $oes not assert an! s#periorit! over the other $epart&ents< it $oes not in rea it! n# if! or inva i$ate an act of the e'is at#re, -#t on ! asserts the so e&n an$ sacre$ o- i'ation assi'ne$ to it -! the Constit#tion to $eter&ine conf ictin' c ai&s of a#thorit! #n$er the Constit#tion an$ to esta- ish for the parties in an act#a controvers! the ri'hts 9hich that instr#&ent sec#res an$ '#arantees to the&. This is in tr#th a that is invo ve$ in 9hat is ter&e$ 1,#$icia s#pre&ac!1 9hich proper ! is the po9er of ,#$icia revie9 #n$er the Constit#tion. //@ The po9er of ,#$icia revie9 is, ho9ever, i&ite$ to 1act#a cases an$ controversies to -e e"ercise$ after f# opport#nit! of ar'#&ent -! the parties, an$ i&ite$ f#rther to the constit#tiona :#estion raise$ or the ver! is &ota presente$,1 for 1an! atte&pt at

a-straction co# $ on ! ea$ to $ia ectics an$ -arren e'a :#estions an$ to steri e conc #sions of 9is$o&, ,#stice or e"pe$ienc! of e'is ation.1 /// Co#rts are a so en,oine$ to accor$ the pres#&ption of constit#tiona it! to e'is ative enact&ents, 1not on ! -eca#se the e'is at#re is pres#&e$ to a-i$e -! the Constit#tion -#t a so -eca#se the ,#$iciar! in the $eter&ination of act#a cases an$ controversies &#st ref ect the 9is$o& an$ ,#stice of the peop e as e"presse$ thro#'h their representatives in the e"ec#tive an$ e'is ative $epart&ents of the 'overn&ent.1 //; The ro e of the ,#$iciar! in &appin' the &etes an$ -o#n$s of po9ers of the $ifferent -ranches of 'overn&ent 9as re$efine$ in the /.08 Constit#tion 9hich e"pan$e$ the ,#ris$iction of this Co#rt to inc #$e the $eter&ination of 1'rave a-#se of $iscretion a&o#ntin' to ac= or e"cess of ,#ris$iction on the part of an! -ranch or instr#&enta it! of the Bovern&ent.1 //? The e"pansion 9as &a$e -eca#se of the $issatisfaction 9ith the practice of this Co#rt in fre:#ent ! invo=in' the 1po itica :#estion1 //> $octrine $#rin' the perio$ of &artia a9 to $o$'e its $#t!. //5 Be that as it &a!, the e"pan$e$ po9er 1$efinite ! $oes not $o a9a! 9ith the po itica :#estion $octrine itse f.1 //J Th#s, in Marcos v. Man' ap#s, //8 the Co#rt he $F Un$er the Constit#tion, ,#$icia po9er inc #$es the $#t! to $eter&ine 9hether or not there has -een a 'rave a-#se of $iscretion a&o#ntin' to ac= or e"cess of ,#ris$iction on the part of an! -ranch or instr#&enta it! of the Bovern&ent. NArt. 2III, Sec. /.O Biven this 9or$in', 9e cannot a'ree 9ith the So icitor Benera that the iss#e constit#tes a po itica :#estion 9hich is -e!on$ the ,#ris$iction of the Co#rt to $eci$e. The present Constit#tion i&its resort to the po itica :#estion $octrine an$ -roa$ens the scope of ,#$icia in:#ir! into areas 9hich the Co#rt, #n$er previo#s constit#tions, 9o# $ have nor&a ! eft to the po itica $epart&ents to $eci$e. B#t nonethe ess there re&ain iss#es -e!on$ the Co#rtGs ,#ris$iction the $eter&ination of 9hich is e"c #sive ! for the (resi$ent, for Con'ress or for the peop e the&se ves thro#'h a p e-iscite or referen$#&. Ae cannot, for e"a&p e, :#estion the (resi$entGs reco'nition of a forei'n 'overn&ent, no &atter ho9 pre&at#re or i&provi$ent s#ch action &a! appear. Ae cannot set asi$e a presi$entia par$on tho#'h it &a! appear to #s that the -eneficiar! is tota ! #n$eservin' of the 'rant. Nor can 9e a&en$ the Constit#tion #n$er the '#ise of reso vin' a $isp#te -ro#'ht -efore #s -eca#se the po9er is reserve$ to the peop e. //0 Since then, the Co#rt has #se$ its e"pan$e$ po9er to chec= acts of the Ho#se of Representatives, //. the (resi$ent, /;@ an$ even of in$epen$ent -o$ies s#ch as the E ectora Tri-#na , /;/ the Co&&ission on E ections /;; an$ the Civi Service Co&&ission. /;? Con'ress chec=s the other -ranches of 'overn&ent pri&ari ! thro#'h its a9 &a=in' po9ers. Con'ress can create a$&inistrative a'encies, $efine their po9ers an$ $#ties,

fi" the ter&s of officers an$ their co&pensation. /;> It can a so create co#rts, $efine their ,#ris$iction an$ reor'ani3e the ,#$iciar! so on' as it $oes not #n$er&ine the sec#rit! of ten#re of its &e&-ers. /;5 The po9er of Con'ress $oes not en$ 9ith the finishe$ tas= of e'is ation. Conco&itant 9ith its principa po9er to e'is ate is the a#"i iar! po9er to ens#re that the a9s it enacts are faithf# ! e"ec#te$. As 9e stresse$ -! one scho ar, the e'is at#re 1fi"es the &ain ines of s#-stantive po ic! an$ is entit e$ to see that a$&inistrative po ic! is in har&on! 9ith it< it esta- ishes the vo #&e an$ p#rpose of p#- ic e"pen$it#res an$ ens#res their e'a it! an$ propriet!< it &#st -e satisfie$ that interna a$&inistrative contro s are operatin' to sec#re econo&! an$ efficienc!< an$ it infor&s itse f of the con$itions of a$&inistration of re&e$ia &eas#re.1 /;J Concept an$ -ases of con'ressiona oversi'ht Broa$ ! $efine$, the po9er of oversi'ht e&-races a activities #n$erta=en -! Con'ress to enhance its #n$erstan$in' of an$ inf #ence over the i&p e&entation of e'is ation it has enacte$. /;8 C ear !, oversi'ht concerns post*enact&ent &eas#res #n$erta=en -! Con'ressF 6a7 to &onitor -#rea#cratic co&p iance 9ith pro'ra& o-,ectives, 6-7 to $eter&ine 9hether a'encies are proper ! a$&inistere$, 6c7 to e i&inate e"ec#tive 9aste an$ $ishonest!, 6$7 to prevent e"ec#tive #s#rpation of e'is ative a#thorit!, an$ 6$7 to assess e"ec#tive confor&it! 9ith the con'ressiona perception of p#- ic interest. /;0 The po9er of oversi'ht has -een he $ to -e intrinsic in the 'rant of e'is ative po9er itse f an$ inte'ra to the chec=s an$ -a ances inherent in a $e&ocratic s!ste& of 'overn&ent. /;. A&on' the &ost :#ote$ ,#stifications for this po9er are the 9ritin's of +ohn St#art Mi an$ Aoo$ro9 Ai son. In his Consi$eration of Representative Bovern&ent, /?@ Mi 9rote that the $#t! of the e'is at#re is 1to 9atch an$ contro the 'overn&ent< to thro9 the i'ht of p#- icit! on its acts< to co&pe a f# e"position an$ ,#stification of a of the& 9hich an! one consi$ers o-,ectiona- e< an$ to cens#re the& if fo#n$ con$e&na- e.1 /?/ Ai son 9ent one step farther an$ opine$ that the e'is at#reGs infor&in' f#nction sho# $ -e preferre$ to its e'is ative f#nction. He e&phasi3e$ that 1NEOven &ore i&portant than e'is ation is the instr#ction an$ '#i$ance in po itica affairs 9hich the peop e &i'ht receive fro& a -o$! 9hich =ept a nationa concerns s#ff#se$ in a -roa$ $a! i'ht of $isc#ssion.1 /?; Over the !ears, Con'ress has invo=e$ its oversi'ht po9er 9ith increase$ fre:#enc! to chec= the perceive$ 1e"ponentia acc#&# ation of po9er1 -! the e"ec#tive -ranch. /?? B! the -e'innin' of the ;@th cent#r!, Con'ress has $e e'ate$ an enor&o#s a&o#nt of e'is ative a#thorit! to the e"ec#tive -ranch an$ the a$&inistrative a'encies. Con'ress, th#s, #ses its oversi'ht po9er to &a=e s#re that the a$&inistrative a'encies perfor& their f#nctions 9ithin the a#thorit! $e e'ate$ to the&. /?> The oversi'ht po9er has a so -een #se$ to ens#re the acco#nta-i it! of re'# ator! co&&issions i=e the Sec#rities an$ E"chan'e Co&&ission an$ the 4e$era Reserve

Boar$, often referre$ to as representin' a 1hea$ ess fo#rth -ranch of 'overn&ent.1 /?5 Un i=e other or$inar! a$&inistrative a'encies, these -o$ies are in$epen$ent fro& the e"ec#tive -ranch an$ are o#tsi$e the e"ec#tive $epart&ent in the $ischar'e of their f#nctions. /?J Cate'ories of con'ressiona oversi'ht f#nctions The acts $one -! Con'ress p#rporte$ ! in the e"ercise of its oversi'ht po9ers &a! -e $ivi$e$ into three cate'ories, na&e !F scr#tin!, investi'ation an$ s#pervision. /?8 a. Scr#tin! Con'ressiona scr#tin! i&p ies a esser intensit! an$ contin#it! of attention to a$&inistrative operations. /?0 Its pri&ar! p#rpose is to $eter&ine econo&! an$ efficienc! of the operation of 'overn&ent activities. In the e"ercise of e'is ative scr#tin!, Con'ress &a! re:#est infor&ation an$ report fro& the other -ranches of 'overn&ent. It can 'ive reco&&en$ations or pass reso #tions for consi$eration of the a'enc! invo ve$. %HETIS Le'is ative scr#tin! is -ase$ pri&ari ! on the po9er of appropriation of Con'ress. Un$er the Constit#tion, the 1po9er of the p#rse1 -e on's to Con'ress. /?. The (resi$ent &a! propose the -#$'et, -#t sti , Con'ress has the fina sa! on appropriations. Conse:#ent !, a$&inistrative officia s appear ever! !ear -efore the appropriation co&&ittees of Con'ress to report an$ s#-&it a -#$'et esti&ate an$ a pro'ra& of a$&inistration for the s#ccee$in' fisca !ear. %#rin' -#$'et hearin's, a$&inistrative officia s $efen$ their -#$'et proposa s. The po9er of appropriation carries 9ith it the po9er to specif! the pro,ect or activit! to -e f#n$e$. />@ Hence, the ho $in' of -#$'et hearin' has -een the #s#a &eans of revie9in' po ic! an$ of a#$itin' the #se of previo#s appropriation to ascertain 9hether the! have -een $is-#rse$ for p#rposes a#thori3e$ in an appropriation act. The consi$eration of the -#$'et is a so an opport#nit! for the a9&a=ers to e"press their confi$ence in the perfor&ance of a Ca-inet Secretar! or to &anifest their $is'#st or $isfavor of the contin#ance in office of a -#rea#crat. />/ Con'ress can even c#rtai the activities of the a$&inistrative a'encies -! $enia of f#n$s. />; In the Unite$ States, for instance, Con'ress -ro#'ht to en$ the e"istence of the Civi ian Conservation Corps, the Nationa Yo#th A$&inistration an$ the Nationa Reso#rces ( annin' Boar$, si&p ! -! $en!in' the& an! appropriation. />? B#t e'is ative scr#tin! $oes not en$ in -#$'et hearin's. Con'ress can as= the hea$s of $epart&ents to appear -efore an$ -e hear$ -! either Ho#se of Con'ress on an! &atter pertainin' to their $epart&ents. Section ;;, Artic e 2I of the /.08 Constit#tion provi$esF The hea$s of $epart&ents &a!, #pon their o9n initiative, 9ith the consent of the (resi$ent, or #pon the re:#est of either Ho#se, as the r# es of each Ho#se sha provi$e, appear -efore an$ -e hear$ -! s#ch Ho#se on an! &atter pertainin' to their

$epart&ents. Aritten :#estions sha -e s#-&itte$ to the (resi$ent of the Senate or the Spea=er of the Ho#se of Representatives at east three $a!s -efore their sche$# e$ appearance. Interpe ations sha not -e i&ite$ to 9ritten :#estions, -#t &a! cover &atters re ate$ thereto. Ahen the sec#rit! of the State or the p#- ic interest so re:#ires an$ the (resi$ent so states in 9ritin', the appearance sha -e con$#cte$ in e"ec#tive session. This provision ori'inate$ fro& the A$&inistrative Co$e />> an$ 9as ater e evate$ to the eve of a constit#tiona provision $#e to its 1'reat va #e in the 9or= of the e'is at#re.1 />5 In $raftin' the /.?5 Constit#tion, so&e $e e'ates oppose$ the provision ar'#in' that it is a feat#re of a par ia&entar! s!ste& an$ its a$option 9o# $ &a=e o#r 'overn&ent a 1h!-ri$ s!ste&.1 />J B#t &ain ! attac=e$ 9as the provision a#thori3in' the $epart&ent secretaries on their o9n initiative to appear -efore the e'is at#re, 9ith the ri'ht to -e hear$ on an! &atter pertainin' to their $epart&ents. It 9as pointe$ o#t that this 9o# $ 1'ive a chance to the $epart&ent secretaries to o--! for ite&s in the appropriation -i or for provisions of other -i s in 9hich the! ha$ specia interest, per&ittin' the& to -ear inf #ence an$ press#re #pon Me&-ers of the a9*&a=in' -o$!, in vio ation of the princip e of separation of po9ers #n$er !in' the Constit#tion.1 />8 %espite the o-,ections, the provision 9as a$opte$ to 1prevent the raisin' of an! :#estion 9ith respect to the constit#tiona it! of the practice1 an$ 1to &a=e open an$ p#- ic the re ations -et9een the e'is ative an$ the e"ec#tive $epart&ents.1 />0 As incorporate$ in the /.?5 Constit#tion, the provision rea$sF The hea$s of $epart&ents #pon their o9n initiative or #pon the re:#est of the Nationa Asse&- ! on an! &atter pertainin' to their $epart&ents #n ess the p#- ic interest sha re:#ire other9ise an$ the (resi$ent sha state so in 9ritin'. />. The 9ho e tenor of the provision 9as per&issiveF the $epart&ent hea$s co# $ appear -#t the e'is ative 9as not o- i'e$ to entertain the&< reciproca !, the e'is at#re co# $ re:#est their appearance -#t co# $ not o- i'e the& especia ! if the (resi$ent o-,ecte$. /5@ The r# e ra$ica ! chan'e$, ho9ever, 9ith the a$option of the /.8? Constit#tion, esta- ishin' a par ia&entar! s!ste& of 'overn&ent. In a par ia&entar! s!ste&, the a$&inistration is responsi- e to the (ar ia&ent an$ hence, the (ri&e Minister an$ the Ca-inet Me&-ers &a! -e 1re:#ire$ to appear an$ ans9er :#estions an$ interpe ations1 to 'ive an acco#nt of their ste9ar$ship $#rin' a 1:#estion ho#r,1 vi3F Sec. /; 6/7 There sha -e a :#estion ho#r at east once a &onth or as often as the R# es of the Batasan' (a&-ansa &a! provi$e, 9hich sha -e inc #$e$ in its a'en$a, $#rin' 9hich the (ri&e Minister, the %ep#t! (ri&e Minister or an! Minister &a! -e re:#ire$ to appear an$ ans9er :#estions an$ interpe ations -! Me&-ers of the Batasan' (a&-ansa. Aritten :#estions sha -e s#-&itte$ to the Spea=er at east three $a!s -efore a sche$# e$ :#estion ho#r. Interpe ations sha not -e i&ite$ to the 9ritten :#estions, -#t &a! cover &atters re ate$ thereto. The a'en$a sha specif! the

s#-,ects of the :#estion ho#r. Ahen the sec#rit! of the State so re:#ires an$ the (resi$ent so states in 9ritin', the :#estion ho#r sha -e con$#cte$ in e"ec#tive session. The 1:#estion ho#r1 9as retaine$ $espite the reversion to the presi$entia s!ste& in /.0/. %#rin' the $e i-erations of the /.08 Constit#tion, the report of the e'is ative Gco&&ittee ca e$ for the a$option of the 1:#estion ho#r1 or the fo o9in' reasonsF . . . Its p#rposes are to e icit concrete infor&ation fro& the a$&inistration, to re:#est its intervention, an$ 9hen necessar!, to e"pose a-#ses an$ see= re$ress. The proce$#re provi$es the opposition 9ith a &eans of $iscoverin' the 'overn&entGs 9ea= points an$ -eca#se of the p#- icit! it 'enerates, it has a sa #tar! inf #ence on the a$&inistration. On the 9ho e, -eca#se of the $etai e$ facts e icite$ $#rin' the interpe ation or in the 9ritten ans9ers, it 9i he p &e&-ers to #n$erstan$ the co&p icate$ s#-,ect &atter of -i s an$ stat#tor! &eas#res ai$ -efore the Asse&- !. It &a! -e a$$e$ that the pop# arit! of this proce$#re can -e attri-#te$ to the fact that in &a=in' #se of his ri'ht to as= :#estions, the &e&-er is a co&p ete ! free a'ent of the peop e. The on ! i&its on his actions are the r# es 'overnin' the a$&issi-i it! of :#estions concerne$ 9ith &atters of for& an$ not 9ith the &erits of the iss#e at han$. The fact that 9e a so i&pose a ti&e i&it &eans that the 'overn&ent is o- i'e$ to f#rnish the infor&ation as=e$ for an$ this o- i'ation is 9hat 'ives the proce$#re its rea stren'th. . . . /5/ This proposa 9as vi'oro#s ! oppose$ on the 'ro#n$ of separation of po9ers. CONCOM %e e'ate Christian Monso$ pointe$ o#t that the provision 9as historica ! inten$e$ to app ! to &e&-ers of the e'is at#re 9ho are in the e"ec#tive -ranch t!pica in a par ia&entar! for& of 'overn&ent. In fine, the 1:#estion ho#r1 9as con$#cte$ on a peer -asis. B#t since the $e e'ates $eci$e$ to a$opt a presi$entia for& of 'overn&ent, ca-inet &e&-ers are p#re ! a ter e'os of the (resi$ent an$ are no on'er &e&-ers of the e'is at#re. To re:#ire the& to appear -efore the e'is ators an$ acco#nt for their actions 1p#ts the& on #ne:#a ter&s 9ith the e'is ators1 an$ 19o# $ vio ate the separation of po9ers of the e"ec#tive an$ the e'is ative -ranches.1 /5; %e e'ate Monso$, ho9ever, reco'ni3e$ that a &echanis& sho# $ -e a$opte$ 9here Ca-inet &e&-ers &a! -e s#&&one$ an$ &a!, even on their o9n initiative, appear -efore the e'is at#re. This, he sai$, 9o# $ pro&ote coor$ination 9itho#t s#-or$inatin' one -o$! to another. He th#s s#''este$ that the ori'ina tenor of the provision in the /.?5 Constit#tion -e retaine$. /5? After &#ch $e i-eration, $e e'ate Monso$Gs s#''estion prevai e$. Th#s, the (resi$ent &a! or &a! not consent to the appearance of the hea$s of $epart&ents< an$ even if he $oes, he &a! re:#ire that the appearance -e in e"ec#tive session. Reciproca !, Con'ress &a! ref#se the initiative ta=en -! a $epart&ent secretar!. Li=e9ise, Con'ress e"ercises e'is ative scr#tin! thr# its po9er of confir&ation. Section /0, Artic e 2I of the /.08 Constit#tion provi$es for the or'ani3ation of a

Co&&ission on Appoint&ents consistin' of the (resi$ent of the Senate as e" officio Chair&an, t9e ve Senators an$ t9e ve &e&-ers of the Ho#se of Representatives, e ecte$ -! each Ho#se on the -asis of proportiona representation fro& the po itica parties or or'ani3ations re'istere$ #n$er the part!* ist s!ste&. Consent of the Co&&ission on Appoint&ents is nee$e$ for the no&inees of the (resi$ent for the fo o9in' positionsF 6a7 hea$s of e"ec#tive $epart&ents, 6-7 a&-assa$ors, other p#- ic &inisters an$ cons# s, 6c7 officers of the ar&e$ forces fro& the ran= of co one or nava captain, an$ 6$7 other officers 9hose appoint&ents are veste$ 9ith the (resi$ent #n$er the Constit#tion. /5> Thro#'h the po9er of confir&ation, Con'ress shares in the appointin' po9er of the e"ec#tive. Theoretica !, it is inten$e$ to essen po itica consi$erations in the appoint&ent of officia s in sensitive positions in the 'overn&ent. It a so provi$es Con'ress an opport#nit! to fin$ o#t 9hether the no&inee possesses the necessar! :#a ifications, inte'rit! an$ pro-it! re:#ire$ of a p#- ic servants. In the Unite$ States, apart fro& the appropriation an$ confir&ation po9ers of the U.S. Con'ress, e'is ative scr#tin! fin$s e"pression in the Le'is ative Reor'ani3ation Act of /.>J char'in' a Ho#se an$ Senate Stan$in' Co&&ittees 9ith contin#o#s vi'i ance over the e"ec#tion of an! an$ a a9s fa in' 9ithin their respective ,#ris$ictions 19ith a vie9 to $eter&inin' its econo&! an$ efficienc!.1 /55 (#rs#ant to this a9, each co&&ittee 9as a#thori3e$ to hire a certain n#&-er of staff e&p o!ees. A Senate co&&ittees 9ere i=e9ise 'iven the po9er to s#-poena 9itnesses an$ $oc#&ents. /5J -. Con'ressiona investi'ation Ahi e con'ressiona scr#tin! is re'ar$e$ as a passive process of oo=in' at the facts that are rea$i ! avai a- e, con'ressiona investi'ation invo ves a &ore intense $i''in' of facts. /58 The po9er of Con'ress to con$#ct investi'ation is reco'ni3e$ -! the /.08 Constit#tion #n$er Section ;/, Artic e 2I, vi3F The Senate or the Ho#se of Representatives or an! of its respective co&&ittee &a! con$#ct in:#iries in ai$ of e'is ation in accor$ance 9ith its $# ! p#- ishe$ r# es of proce$#re. The ri'hts of persons appearin' in or affecte$ -! s#ch in:#iries sha -e respecte$. B#t even in the a-sence of an e"press provision in the Constit#tion, con'ressiona investi'ation has -een he $ to -e an essentia an$ appropriate a#"i iar! to the e'is ative f#nction. In the Unite$ States, the ac= of a constit#tiona provision specifica ! a#thori3in' the con$#ct of e'is ative investi'ations $i$ not $eter its Con'resses fro& ho $in' investi'ation on s#specte$ corr#ption, &is&ana'e&ent, or inefficiencies of 'overn&ent officia s. E"ercise$ first in the fai e$ St. C air e"pe$ition in /8.;, the po9er to con$#ct investi'ation has since -een invo=e$ in the Teapot %o&e, Aater'ate, Iran*Contra, an$ Ahite9ater controversies. /50 S#-se:#ent !, in a

series of $ecisions, the Co#rt reco'ni3e$ 1the $an'er to effective an$ honest con$#ct of the Bovern&ent if the e'is ative po9er to pro-e corr#ption in the E"ec#tive -ranch 9ere #n$# ! #nha&pere$.1 /5. In East an$ v. Unite$ States Service&enGs 4#n$, /J@ the U.S. S#pre&e Co#rt r# e$ that the scope of the con'ressiona po9er of in:#ir! 1is penetratin' an$ far*reachin' as the potentia po9er to enact an$ appropriate #n$er the Constit#tion.1 /J/ It enco&passes ever!thin' that concerns the a$&inistration of e"istin' a9s as 9e as propose$ or possi- ! nee$e$ stat#tes. /J; In the e"ercise of this po9er, con'ressiona in:#iries can reach a so#rces of infor&ation an$ in the a-sence of co#ntervai in' constit#tiona privi e'e or se f*i&pose$ restrictions #pon its a#thorit!, Con'ress an$ its co&&ittees, have virt#a !, p enar! po9er to co&pe infor&ation nee$e$ to $ischar'e its e'is ative f#nctions fro& e"ec#tive a'encies, private persons an$ or'ani3ations. Aithin certain constraints, the infor&ation so o-taine$ &a! -e &a$e p#- ic. /J? In McBrain v. %a#'hert!, /J> it he $ that 1a e'is ative -o$! cannot e'is ate 9ise ! or effective ! in the a-sence of infor&ation respectin' the con$itions 9hich the e'is ation is inten$e$ to effect chan'e.1 /J5 B#t 9hi e the con'ressiona po9er of in:#ir! is -roa$, it is not #n i&ite$. No in:#ir! is an en$ in itse f< it &#st -e re ate$ to, an$ in f#rtherance of, a e'iti&ate tas= of Con'ress.1 /JJ Moreover, an investi'atin' co&&ittee has on ! the po9er to in:#ire into &atters 9ithin the scope of the a#thorit! $e e'ate$ to it -! its parent -o$!. /J8 B#t once its ,#ris$iction an$ a#thorit!, an$ the pertinence of the &atter #n$er in:#ir! to its area of a#thorit! are esta- ishe$, a co&&itteeGs investi'ative p#rvie9 is s#-stantia an$ 9i$e*ran'in'. /J0 A&erican ,#rispr#$ence #pho $in' the inherent po9er of Con'ress to con$#ct investi'ation has -een a$opte$ in o#r ,#ris$iction in Arna# t v. Na3areno, /J. $eci$e$ in /.5@, 9hen no provision !et e"iste$ 'rantin' Con'ress the po9er to con$#ct investi'ation. In the sai$ case, the Senate passe$ Reso #tion No. 0 creatin' a specia co&&ittee to investi'ate the B#enavista an$ the Ta&-o-on' Estates %ea 9herein the 'overn&ent 9as a e'e$ ! $efra#$e$ (5,@@@,@@@.@@. The specia co&&ittee e"a&ine$ vario#s 9itnesses, a&on' 9ho& 9as +ean L. Arna# t. %#e to the ref#sa of Arna# t to ans9er a :#estion 9hich he c ai&e$ to -e 1se f*incri&inator!,1 /8@ the Senate passe$ a reso #tion citin' Arna# t in conte&pt. The Senate co&&itte$ hi& to the c#sto$! of the Ser'eant*at*Ar&s an$ or$ere$ his i&prison&ent #nti he sha have ans9ere$ the :#estion. Arna# t fi e$ a petition -efore this Co#rt conten$in' that 6a7 the Senate has no po9er to p#nish hi& for conte&pt< 6-7 the infor&ation so#'ht to -e o-taine$ -! the Senate is i&&ateria an$ 9i not serve an! inten$e$ or p#rporte$ e'is ation< an$ 6c7 the ans9er re:#ire$ of hi& 9i incri&inate hi&. cSaA%C Upho $in' the po9er of the Senate to p#nish Arna# t for conte&pt, the Co#rt r# e$ as fo o9sF A tho#'h there is no provision in the Constit#tion e"press ! investin' either Ho#se of Con'ress 9ith po9er to &a=e investi'ations an$ e"act testi&on! to the en$ that it

&a! e"ercise its e'is ative f#nctions a$vise$ ! an$ effective !, s#ch po9er is so far inci$enta to the e'is ative f#nction as to -e i&p ie$. In other 9or$s, the po9er of in:#ir! D 9ith process to enforce it D is an essentia an$ appropriate a#"i iar! to the e'is ative f#nction. A e'is ative -o$! cannot e'is ate 9ise ! or effective ! in the a-sence of infor&ation respectin' the con$itions 9hich e'is ation is inten$e$ to affect or chan'e< an$ 9here the e'is ative -o$! $oes not itse f possess the re:#isite infor&ation D 9hich is not fre:#ent ! tr#e D reco#rse &#st -e ha$ to others 9ho $o possess it. E"perience has sho9n that &ere re:#ests for s#ch infor&ation are often #navai in', an$ a so that infor&ation 9hich is vo #nteere$ is not a 9a!s acc#rate or co&p ete< so so&e &eans of co&p# sion is essentia to o-tain 9hat is nee$e$. . . The fact that the Constit#tion e"press ! 'ives the Con'ress the po9er to p#nish its Me&-ers for $isor$er ! -ehavio#r, $oes not -! necessar! i&p ication e"c #$e the po9er to p#nish for conte&pt an! other person. /8/ The Co#rt f#rther r# e$ that the po9er of the Senate to p#nish a 9itness for conte&pt $oes not ter&inate #pon the a$,o#rn&ent of the session. /8; It he $ that the investi'ation 9as 9ithin the po9er of the Senate since the 1transaction invo ve$ a :#estiona- e an$ a e'e$ ! #nnecessar! an$ irre'# ar e"pen$it#re of no ess than (5,@@@,@@@.@@ of p#- ic f#n$s, of 9hich the Con'ress is the constit#tiona '#ar$ian.1 /8? The investi'ation 9as a so fo#n$ to -e 1in ai$ of e'is ation.1 As res# t of the !et #nfinishe$ investi'ation, the Co#rt note$ that the investi'atin' co&&ittee has reco&&en$e$, an$ the Senate has approve$ three -i s. /8> The Co#rt f#rther he $ that once an in:#ir! is a$&itte$ or esta- ishe$ to -e 9ithin the ,#ris$iction of a e'is ative -o$! to &a=e, the investi'atin' co&&ittee has the po9er to re:#ire a 9itness to ans9er an! :#estion pertinent to that in:#ir!, s#-,ect to his constit#tiona ri'ht a'ainst se f*incri&ination. The in:#ir! &#st -e &ateria or necessar! to the e"ercise of a po9er in it veste$ -! the Constit#tion. Hence, a 9itness can not -e coerce$ to ans9er a :#estion that o-vio#s ! has no re ation to the s#-,ect of the in:#ir!. B#t the Co#rt e"p aine$ that 1the &ateria it! of the :#estion &#st -e $eter&ine$ -! its $irect re ation to the s#-,ect of the in:#ir! an$ not -! its in$irect re ation to an! propose$ or possi- e e'is ation.1 The reason is that the necessit! or ac= of necessit! for e'is ative action an$ the for& an$ character of the action itse f are $eter&ine$ -! the s#& tota of the infor&ation to -e 'athere$ as a res# t of the investi'ation, an$ not -! a fraction of s#ch infor&ation e icite$ fro& a sin' e :#estion. /85 4ina !, the Co#rt r# e$ that the 'ro#n$ on 9hich Arna# t invo=e$ the ri'ht a'ainst se f*incri&ination 1is too sha=!, infir&, an$ s ipper! to affor$ hi& safet!.1 /8J It note$ that since Arna# t hi&se f sai$ that the transaction 9as e'a , an$ that he 'ave the (>>@,@@@.@@ to a representative of B#rt in co&p iance 9ith the atterGs ver-a instr#ction, there is therefore no -asis #pon 9hich to s#stain his c ai& that to revea the na&e of that person 9o# $ incri&inate hi&. /88 It he $ that it is not eno#'h for the 9itness to sa! that the ans9er 9i incri&inate hi& for he is not the so e ,#$'e of

his ia-i it!, th#sF . . . NTOhe $an'er of se f*incri&ination &#st appear reasona- e an$ rea to the co#rt, fro& a the circ#&stances an$ fro& the 9ho e case, as 9e as fro& his 'enera conception of the re ations of the 9itness . . . The fact that the testi&on! of the 9itness &a! ten$ to sho9 that he has vio ate$ the a9 is not s#fficient to entit e hi& to c ai& the protection of the constit#tiona provision a'ainst se f*incri&ination, #n ess he is at the sa&e ti&e ia- e to prosec#tion an$ p#nish&ent for s#ch vio ation. The 9itness cannot assert his privi e'e -! reason of so&e fancif# e"c#se, for protection a'ainst an i&a'inar! $an'er, or to sec#re i&&#nit! to a thir$ person. /80 As no9 containe$ in the /.08 Constit#tion, the po9er of Con'ress to investi'ate is circ#&scri-e$ -! three i&itations, na&e !F 6a7 it &#st -e in ai$ of its e'is ative f#nctions, 6-7 it &#st -e con$#cte$ in accor$ance 9ith $# ! p#- ishe$ r# es of proce$#re, an$ 6c7 the persons appearin' therein are affor$e$ their constit#tiona ri'hts. In Ben'3on, +r. v. Senate B #e Ri--on Co&&ittee, /8. this Co#rt he $ that the senate co&&ittee e"cee$e$ the per&issi- e e"ercise of e'is ative investi'ation. The case starte$ 9ith a speech -! Senator Enri e s#''estin' the nee$ to $eter&ine possi- e vio ation of a9 in the a e'e$ transfer of so&e properties of for&er A&-assa$or Ben,a&in 1Eo=o!1 Ro&#a $e3 to the Lopa Bro#p of Co&panies. The Senate B #e Ri--on Co&&ittee $eci$e$ to investi'ate the transaction p#rporte$ ! in ai$ of e'is ation. Ahen the B #e Ri--on Co&&ittee s#&&one$ the petitioners to appear, the! as=e$ this Co#rt for a restrainin' or$er on the 'ro#n$, a&on' others, that the investi'ation 9as not in ai$ of e'is ation an$ that their appearance -efore the investi'atin' -o$! co# $ pre,#$ice their case -efore the San$i'an-a!an. R# in' in favor of the petitioner, 9e he $ as fo o9sF 2eri !, the speech of Senator Enri e containe$ no s#''estion of conte&p ate$ e'is ation< he &ere ! ca e$ #pon the Senate to oo= into a possi- e vio ation of Sec. 5 of RA No. ?@/., other9ise =no9n as 1The Anti*Braft an$ Corr#pt (ractices Act.1 In other 9or$s, the p#rpose of the in:#ir! to -e con$#cte$ -! respon$ent B #e Ri--on Co&&ittee 9as to fin$ o#t 9hether or not the re atives of (resi$ent A:#ino, partic# ar !, Mr. Ricar$o Lopa, ha$ vio ate$ the a9 in connection 9ith the a e'e$ sa e of the ?J or ?. corporations -e on'in' to Ben,a&in 1Eo=o!1 Ro&#a $e3 to the Lopa Bro#p. There appears to -e, therefore, no inten$e$ e'is ation invo ve$. The con$#ct of e'is ative investi'ation is a so s#-,ect to the r# es of each Ho#se. In the Ho#se of Representatives, /0@ an in:#ir! &a! -e initiate$ or con$#cte$ -! a co&&ittee &ot# proprio on an! &atter 9ithin its ,#ris$iction #pon a &a,orit! vote of a its Me&-ers /0/ or #pon or$er of the Ho#se of Representatives /0; thro#'hF 6/7 the referra of a privi e'e speech containin' or conve!in' a re:#est or $e&an$ for the con$#ct of an in:#ir!, to the appropriate co&&ittee, #pon &otion of the

Ma,orit! Lea$er or his $ep#ties< or 6;7 the a$option of a reso #tion $irectin' a co&&ittee to con$#ct an in:#ir! reporte$ o#t -! the Co&&ittee on R# es after &a=in' a $eter&ination on the necessit! an$ propriet! of the con$#ct of an in:#ir! -! s#ch co&&itteeF (rovi$e$, That a reso #tions $irectin' an! co&&ittee to con$#ct an in:#ir! sha -e referre$ to the Co&&ittee on R# es< or 6?7 the referra -! the Co&&ittee on R# es to the appropriate co&&ittee, after &a=in' a $eter&ination on the necessit! an$ propriet! of the con$#ct of in:#ir! -! s#ch co&&ittee, of a petition fi e$ or infor&ation 'iven -! a Me&-er of the Ho#se re:#estin' s#ch in:#ir! an$ en$orse$ -! the Spea=erF (rovi$e$, That s#ch petition or infor&ation sha -e 'iven #n$er oath, statin' the facts #pon 9hich it is -ase$, an$ acco&panie$ -! s#pportin' affi$avits. /0? The co&&ittee to 9hich a privi e'e speech, reso #tion, petition or infor&ation re:#estin' an in:#ir! is referre$ &a! constit#te an$ appoint s#-*co&&ittees co&pose$ of at east one*thir$ 6/I?7 of the co&&ittee for the p#rpose of perfor&in' an! an$ a acts 9hich the co&&ittee as a 9ho e is a#thori3e$ to perfor&, e"cept to p#nish for conte&pt. In case a privi e'e speech is referre$ to t9o or &ore co&&ittees, a ,oint in:#ir! -! the sai$ co&&ittees sha -e con$#cte$. The in:#iries are to -e he $ in p#- ic e"cept 9hen the co&&ittee or s#-*co&&ittee $ee&s that the e"a&ination of a 9itness in a p#- ic hearin' &a! en$an'er nationa sec#rit!. In 9hich case, it sha con$#ct the hearin' in an e"ec#tive session. /0> The R# es f#rther provi$e that 1the fi in' or pen$enc! of a case -efore an! co#rt, tri-#na or :#asi*,#$icia or a$&inistrative -o$ies sha not stop or a-ate an! in:#ir! con$#cte$ to carr! o#t a specific e'is ative p#rpose.1 /05 In e"ercise of con'ressiona in:#ir!, the co&&ittee has the po9er 1to iss#e s#-poena an$ s#-poena $#ces tec#& to a 9itness in an! part of the co#ntr!, si'ne$ -! the chairperson or actin' chairperson an$ the Spea=er or actin' Spea=er.1 /0J 4#rther&ore, the co&&ittee &a!, -! a vote of t9o*thir$s 6;I?7 of a its &e&-ers constit#tin' a :#or#&, p#nish for conte&pt an! person 9hoF 6a7 ref#ses, after -ein' $# ! s#&&one$, to o-e! s#ch s#&&ons 9itho#t e'a e"c#se< 6-7 ref#ses to -e s9orn or p ace$ #n$er affir&ation< 6c7 ref#ses to ans9er an! re evant in:#ir!< 6$7 ref#ses to pro$#ce an! -oo=s, papers, $oc#&ents or recor$s that are re evant to the in:#ir! an$ are in hisIher possession< 6e7 acts in a $isrespectf# &anner to9ar$s an! &e&-er of the Co&&ittee or co&&its &is-ehavior in the presence of the co&&ittee< or 6f7 #n$# ! interferes in the con$#ct of procee$in's $#rin' &eetin's. /08 Neverthe ess, an! person ca e$ to -e a 9itness &a! -e represente$ -! a co#nse /00 an$ is entit e$ to a ri'hts inc #$in' the ri'ht a'ainst se f*incri&ination. /0. c. Le'is ative s#pervision The thir$ an$ &ost enco&passin' for& -! 9hich Con'ress e"ercises its oversi'ht

po9er is thr# e'is ative s#pervision. 1S#pervision1 connotes a contin#in' an$ infor&e$ a9areness on the part of a con'ressiona co&&ittee re'ar$in' e"ec#tive operations in a 'iven a$&inistrative area. /.@ Ahi e -oth con'ressiona scr#tin! an$ investi'ation invo ve in:#ir! into past e"ec#tive -ranch actions in or$er to inf #ence f#t#re e"ec#tive -ranch perfor&ance, con'ressiona s#pervision a o9s Con'ress to scr#tini3e the e"ercise of $e e'ate$ a9*&a=in' a#thorit!, an$ per&its Con'ress to retain part of that $e e'ate$ a#thorit!. Con'ress e"ercises s#pervision over the e"ec#tive a'encies thro#'h its veto po9er. It t!pica ! #ti i3es veto provisions 9hen 'rantin' the (resi$ent or an e"ec#tive a'enc! the po9er to pro&# 'ate re'# ations 9ith the force of a9. These provisions re:#ire the (resi$ent or an a'enc! to present the propose$ re'# ations to Con'ress, 9hich retains a 1ri'ht1 to approve or $isapprove an! re'# ation -efore it ta=es effect. S#ch e'is ative veto provisions #s#a ! provi$e that a propose$ re'# ation 9i -eco&e a a9 after the e"piration of a certain perio$ of ti&e, on ! if Con'ress $oes not affir&ative ! $isapprove of the re'# ation in the &eanti&e. Less fre:#ent !, the stat#te provi$es that a propose$ re'# ation 9i -eco&e a9 if Con'ress affir&ative ! approves it. /./ The e'is ative veto 9as $eve ope$ initia ! in response to the pro- e&s of reor'ani3in' the U.S. Bovern&ent str#ct#re $#rin' the Breat %epression in ear ! ;@th cent#r!. Ahen U.S. (resi$ent Hoover re:#este$ a#thorit! to reor'ani3e the 'overn&ent in /.;., he co#p e$ his re:#est 9ith a proposa for e'is ative revie9. He propose$ that the E"ec#tive 1sho# $ act #pon approva of a ,oint Co&&ittee of Con'ress or 9ith the reservation of po9er of revision -! Con'ress 9ithin so&e i&ite$ perio$ a$e:#ate for its consi$eration.1 /.; Con'ress fo o9e$ (resi$ent HooverGs s#''estion an$ a#thori3e$ reor'ani3ation s#-,ect to e'is ative revie9. /.? A tho#'h the reor'ani3ation a#thorit! reenacte$ in /.?? $i$ not contain a e'is ative veto provision, the provision ret#rne$ $#rin' the Rooseve t a$&inistration an$ has since -een rene9e$ severa ti&es. /.> Over the !ears, the provision 9as #se$ e"tensive !. 2ario#s A&erican (resi$ents s#-&itte$ to Con'ress so&e //5 Reor'ani3ation ( ans, ;? of 9hich 9ere $isapprove$ p#rs#ant to e'is ative veto provisions. /.5 %#rin' Aor $ Aar II, Con'ress an$ the (resi$ent app ie$ the e'is ative veto proce$#re to reso ve the $e e'ation pro- e& invo vin' nationa sec#rit! an$ forei'n affairs. The e'is ative veto offere$ the &eans -! 9hich Con'ress co# $ confer a$$itiona a#thorit! to the (resi$ent 9hi e preservin' its o9n constit#tiona ro e. %#rin' this perio$, Con'ress enacte$ over ?@ stat#tes conferrin' po9ers on the E"ec#tive 9ith e'is ative veto provisions. /.J After Aor $ Aar II, e'is ative veto provisions have -een inserte$ in a9s $e e'atin' a#thorit! in ne9 areas of 'overn&enta invo ve&ent inc #$in' the space pro'ra&, internationa a'ree&ents on n#c ear ener'!, tariff arran'e&ents, an$ a$,#st&ent of

fe$era pa! rates. /.8 It has a so fi'#re$ pro&inent ! in reso vin' a series of &a,or constit#tiona $isp#tes -et9een the (resi$ent an$ Con'ress over c ai&s of the (resi$ent to -roa$ i&po#n$&ent, 9ar an$ nationa e&er'enc! po9ers. /.0 Overa , ;.5 con'ressiona veto*t!pe proce$#res have -een inserte$ in /.J $ifferent stat#tes since /.?; 9hen the first veto provision 9as enacte$ into a9. /.. S#pporters of e'is ative veto stress that it is necessar! to &aintain the -a ance of po9er -et9een the e'is ative an$ the e"ec#tive -ranches of 'overn&ent as it offers a9&a=ers a 9a! to $e e'ate vast po9er to the e"ec#tive -ranch or to in$epen$ent a'encies 9hi e retainin' the option to cance partic# ar e"ercise of s#ch po9er 9itho#t havin' to pass ne9 e'is ation or to repea e"istin' a9. ;@@ The! conten$ that this arran'e&ent pro&otes $e&ocratic acco#nta-i it! as it provi$es e'is ative chec= on the activities of #ne ecte$ a$&inistrative a'encies. ;@/ One proponent th#s e"p ainsF It is too ate to $e-ate the &erits of this $e e'ation po ic!F the po ic! is too $eep ! e&-e$$e$ in o#r a9 an$ practice. It s#ffices to sa! that the co&p e"ities of &o$ern 'overn&ent have often e$ Con'ress D 9hether -! act#a or perceive$ necessit! D to e'is ate -! $ec arin' -roa$ po ic! 'oa s an$ 'enera stat#tor! stan$ar$s, eavin' the choice of po ic! options to the $iscretion of an e"ec#tive officer. Con'ress artic# ates e'is ative ai&s, -#t eaves their i&p e&entation to the ,#$'&ent of parties 9ho &a! or &a! not have participate$ in or a'ree$ 9ith the $eve op&ent of those ai&s. Conse:#ent !, a-sent safe'#ar$s, in &an! instances the reverse of o#r constit#tiona sche&e co# $ -e effecte$F Con'ress proposes, the E"ec#tive $isposes. One safe'#ar$, of co#rse, is the e'is ative po9er to enact ne9 e'is ation or to chan'e e"istin' a9. B#t 9itho#t so&e &eans of overseein' post enact&ent activities of the e"ec#tive -ranch, Con'ress 9o# $ -e #na- e to $eter&ine 9hether its po icies have -een i&p e&ente$ in accor$ance 9ith e'is ative intent an$ th#s 9hether e'is ative intervention is appropriate. ;@; Its opponents, ho9ever, critici3e the e'is ative veto as #n$#e encroach&ent #pon the e"ec#tive prero'atives. The! #r'e that an! post*enact&ent &eas#res #n$erta=en -! the e'is ative -ranch sho# $ -e i&ite$ to scr#tin! an$ investi'ation< an! &eas#re -e!on$ that 9o# $ #n$er&ine the separation of po9ers '#arantee$ -! the Constit#tion. ;@? The! conten$ that e'is ative veto constit#tes an i&per&issi- e evasion of the (resi$entGs veto a#thorit! an$ intr#sion into the po9ers veste$ in the e"ec#tive or ,#$icia -ranches of 'overn&ent. ;@> (roponents co#nter that e'is ative veto enhances separation of po9ers as it prevents the e"ec#tive -ranch an$ in$epen$ent a'encies fro& acc#&# atin' too &#ch po9er. ;@5 The! s#-&it that reportin' re:#ire&ents an$ con'ressiona co&&ittee investi'ations a o9 Con'ress to scr#tini3e on ! the e"ercise of $e e'ate$ a9*&a=in' a#thorit!. The! $o not a o9 Con'ress to revie9 e"ec#tive proposa s -efore the! ta=e effect an$ the! $o not affor$ the opport#nit! for on'oin' an$ -in$in' e"pressions of con'ressiona intent. ;@J In contrast, e'is ative veto per&its Con'ress to participate prospective ! in the approva

or $isapprova of 1s#-or$inate a91 or those enacte$ -! the e"ec#tive -ranch p#rs#ant to a $e e'ation of a#thorit! -! Con'ress. The! f#rther ar'#e that e'is ative veto 1is a necessar! response -! Con'ress to the accretion of po ic! contro -! forces o#tsi$e its cha&-ers.1 In an era of $e e'ate$ a#thorit!, the! point o#t that e'is ative veto 1is the &ost efficient &eans Con'ress has !et $evise$ to retain contro over the evo #tion an$ i&p e&entation of its po ic! as $ec are$ -! stat#te.1 ;@8 In I&&i'ration an$ Nat#ra i3ation Service v. Cha$ha, ;@0 the U.S. S#pre&e Co#rt reso ve$ the va i$it! of e'is ative veto provisions. The case arose fro& the or$er of the i&&i'ration ,#$'e s#spen$in' the $eportation of Cha$ha p#rs#ant to T ;>>6c76/7 of the I&&i'ration an$ Nationa it! Act. The Unite$ States Ho#se of Representatives passe$ a reso #tion vetoin' the s#spension p#rs#ant to T ;>>6c76;7 a#thori3in' either Ho#se of Con'ress, -! reso #tion, to inva i$ate the $ecision of the e"ec#tive -ranch to a o9 a partic# ar $eporta- e a ien to re&ain in the Unite$ States. The i&&i'ration ,#$'e reopene$ the $eportation procee$in's to i&p e&ent the Ho#se or$er an$ the a ien 9as or$ere$ $eporte$. The Boar$ of I&&i'ration Appea s $is&isse$ the a ienGs appea , ho $in' that it ha$ no po9er to $ec are #nconstit#tiona an act of Con'ress. The Unite$ States Co#rt of Appea s for Ninth Circ#it he $ that the Ho#se 9as 9itho#t constit#tiona a#thorit! to or$er the a ienGs $eportation an$ that T ;>>6c76;7 vio ate$ the constit#tiona $octrine on separation of po9ers. S%EITC On appea , the U.S. S#pre&e Co#rt $ec are$ T ;>>6c76;7 #nconstit#tiona . B#t the Co#rt shie$ a9a! fro& the iss#e of separation of po9ers an$ instea$ he $ that the provision vio ates the present&ent c a#se an$ -ica&era is&. It he $ that the one*ho#se veto 9as essentia ! e'is ative in p#rpose an$ effect. As s#ch, it is s#-,ect to the proce$#res set o#t in Artic e I of the Constit#tion re:#irin' the passa'e -! a &a,orit! of -oth Ho#ses an$ present&ent to the (resi$ent. Th#sF E"a&ination of the action ta=en here -! one Ho#se p#rs#ant to T ;>>6c76;7 revea s that it 9as essentia ! e'is ative in p#rpose an$ effect. In p#rportin' to e"ercise po9er $efine$ in Art I, T 0, c >, to 1esta- ish a #nifor& R# e of Nat#ra i3ation,1 the Ho#se too= action that ha$ the p#rpose an$ effect of a terin' the e'a ri'hts, $#ties, an$ re ations of persons, inc #$in' the Attorne! Benera , E"ec#tive Branch officia s an$ Cha$ha, a o#tsi$e the Le'is ative Branch. Section ;>>6c76;7 p#rports to a#thori3e one Ho#se Con'ress to re:#ire the Attorne! Benera to $eport an in$ivi$#a a ien 9hose $eportation other9ise 9o# $ -e cance e$ #n$er T ;>>. The one*Ho#se veto operate$ in these cases to overr# e the Attorne! Benera an$ &an$ate Cha$haGs $eportation< a-sent the Ho#se action, Cha$ha 9o# $ re&ain in the Unite$ States. Con'ress has acte$ an$ its action a tere$ Cha$haGs stat#s. The e'is ative character of the one*Ho#se veto in these cases is confir&e$ -! the character of the con'ressiona action it s#pp ants. Neither the Ho#se of Representatives nor the Senate conten$s that, a-sent the veto provision in T ;>>6c76;7, either of the&, or -oth of the& actin' to'ether, co# $ effective ! re:#ire the Attorne!

Benera , in e"ercise of e'is ative ! $e e'ate$ a#thorit!, ha$ $eter&ine$ the a ien sho# $ re&ain in the Unite$ States. Aitho#t the cha en'e$ provision in T ;>>6c76;7, this co# $ have -een achieve$, if at a , on ! -! e'is ation re:#irin' $eportation. Si&i ar !, a veto -! one Ho#se of Con'ress #n$er T ;>>6c76;7 cannot -e ,#stifie$ as an atte&pt at a&en$in' the stan$ar$s set o#t in T ;>>6a76/7, or as a repea of T ;>> as app ie$ to Cha$ha. A&en$&ent an$ repea of stat#tes, no ess than enact&ent, &#st confor& 9ith Art I. The nat#re of the $ecision i&p e&ente$ -! one*Ho#se veto in these cases f#rther &anifests its e'is ative character. After on' e"perience 9ith the c #&s!, ti&e* cons#&in' private -i proce$#re, Con'ress &a$e a $e i-erate choice to $e e'ate to the E"ec#tive Branch, an$ specifica ! to the Attorne! Benera , the a#thorit! to a o9 $eporta- e a iens to re&ain in this co#ntr! in certain specifie$ circ#&stances. It is not $isp#te$ that this choice to $e e'ate a#thorit! is precise ! the =in$ of $ecision that can -e i&p e&ente$ on ! in accor$ance 9ith the proce$#res set o#t in Art I. %isa'ree&ent 9ith the Attorne! Benera Gs $ecision on Cha$haGs $eportation D that is, Con'ressG $ecision to $eport Cha$ha D no ess than Con'ressG ori'ina choice to $e e'ate to the Attorne! Benera the a#thorit! to &a=e $ecision, invo ves $eter&inations of po ic! that Con'ress can i&p e&ent in on ! one 9a!< -ica&era passa'e fo o9e$ -! present&ent to the (resi$ent. Con'ress &#st a-i$e -! its $e e'ation of a#thorit! #nti that $e e'ation is e'is ative ! a tere$ or revo=e$. ;@. T9o 9ee=s after the Cha$ha $ecision, the Co#rt #phe $, in &e&oran$#& $ecision, t9o o9er co#rt $ecisions inva i$atin' the e'is ative veto provisions in the Nat#ra Bas (o ic! Act of /.80 ;/@ an$ the 4e$era Tra$e Co&&ission I&prove&ent Act of /.0@. ;// 4o o9in' this prece$ence, o9er co#rts inva i$ate$ stat#tes containin' e'is ative veto provisions a tho#'h so&e of these provisions re:#ire$ the approva of -oth Ho#ses of Con'ress an$ th#s &et the -ica&era is& re:#ire&ent of Artic e I. In$ee$, so&e of these veto provisions 9ere not even e"ercise$. ;/; Biven the concept an$ confi'#ration of the po9er of con'ressiona oversi'ht, the ne"t eve of in:#ir! is 9hether con'ress e"cee$e$ its per&issi- e e"ercise in the case at -ar. B#t -efore procee$in', a $isc#ssion of the nat#re an$ po9ers of the Co&&ission on E ections as provi$e$ in the /.08 Constit#tion is $ecisive to the iss#e. Con'ressiona Oversi'ht an$ COMELEC The Co&&ission on E ections 6COMELEC7 is a constit#tiona -o$! e"c #sive ! char'e$ 9ith the enforce&ent an$ a$&inistration of 1a a9s an$ re'# ations re ative to the con$#ct of an e ection, p e-iscite, initiative, referen$#&, an$ reca ,1 ;/? an$ is investe$ 9ith the po9er to $eci$e a :#estions affectin' e ections save those invo vin' the ri'ht to vote. ;/> Biven its i&portant ro e in preservin' the sanctit! of the ri'ht of s#ffra'e, ;/5 the COMELEC 9as p#rpose ! constit#te$ as a -o$! separate fro& the e"ec#tive,

e'is ative, an$ ,#$icia -ranches of 'overn&ent. ;/J Ori'ina !, the po9er to enforce o#r e ection a9s 9as veste$ 9ith the (resi$ent an$ e"ercise$ thro#'h the %epart&ent of the Interior. Accor$in' to %ean Sinco, ;/8 ho9ever, the vie9 # ti&ate ! e&er'e$ that an in$epen$ent -o$! co# $ -etter protect the ri'ht of s#ffra'e of o#r peop e. Hence, the enforce&ent of o#r e ection a9s, 9hi e an e"ec#tive po9er, 9as transferre$ to the COMELEC. The shift to a &o$ifie$ par ia&entar! s!ste& 9ith the a$option of the /.8? Constit#tion $i$ not a ter the character of COMELEC as an in$epen$ent -o$!. ;/0 In$ee$, a 1$efinite ten$enc! to enhance an$ invi'orate the ro e of the Co&&ission on E ections as the in$epen$ent constit#tiona -o$! char'e$ 9ith the safe'#ar$in' of free, peacef# an$ honest e ections1 has -een o-serve$. ;/. The /.8? Constit#tion -roa$ene$ the po9er of the COMELEC -! &a=in' it the so e ,#$'e of a e ection contests re atin' to the e ection, ret#rns an$ :#a ifications of &e&-ers of the nationa e'is at#re an$ e ective provincia an$ cit! officia s. ;;@ Th#s, the COMELEC 9as 'iven ,#$icia po9er asi$e fro& its tra$itiona a$&inistrative an$ e"ec#tive f#nctions. The tren$ to9ar$s stren'thenin' the COMELEC contin#e$ 9ith the /.08 Constit#tion. To$a!, the COMELEC enforces an$ a$&inisters a a9s an$ re'# ations re ative to the con$#ct of e ections, p e-iscites, initiatives, referen$a an$ reca s. E ection contests invo vin' re'iona , provincia an$ cit! e ective officia s are #n$er its e"c #sive ori'ina ,#ris$iction 9hi e a contests invo vin' e ective &#nicipa an$ -aran'a! officia s are #n$er its appe ate ,#ris$iction. ;;/ Severa safe'#ar$s have -een p#t in p ace to protect the in$epen$ence of the COMELEC fro& #n9arrante$ encroach&ent -! the other -ranches of 'overn&ent. Ahi e the (resi$ent appoints the Co&&issioners 9ith the conc#rrence of the Co&&ission on Appoint&ents, the Co&&issioners are not acco#nta- e to the (resi$ent in the $ischar'e of their f#nctions. The! have a fi"e$ ten#re an$ are re&ova- e on ! -! i&peach&ent. ;;; To ens#re that not a Co&&issioners are appointe$ -! the sa&e (resi$ent at an! one ti&e, a sta''ere$ s!ste& of appoint&ent 9as $evise$. Th#s, of the Co&&issioners first appointe$, three sha ho $ office for seven !ears, three for five !ears, an$ the ast three for three !ears. ;;? Reappoint&ent an$ te&porar! $esi'nation or appoint&ent is prohi-ite$. ;;> In case of vacanc!, the appointee sha on ! serve the #ne"pire$ ter& of the pre$ecessor. ;;5 The COMELEC is i=e9ise 'rante$ the po9er to pro&# 'ate its o9n r# es of proce$#re, ;;J an$ to appoint its o9n officia s an$ e&p o!ees in accor$ance 9ith Civi Service a9s. ;;8 The COMELEC e"ercises :#asi*,#$icia po9ers -#t it is not part of the ,#$iciar!. This Co#rt has no 'enera po9er of s#pervision over the Co&&ission on E ections e"cept those specifica ! 'rante$ -! the Constit#tion. ;;0 As s#ch, the R# es of Co#rt are not app ica- e to the Co&&ission on E ections. ;;. In a$$ition, the $ecisions of the COMELEC are revie9a- e on ! -! petition for certiorari on 'ro#n$s of 'rave a-#se of $iscretion, ;?@ vi3F

Conceive$ -! the charter as the effective instr#&ent to preserve the sanctit! of pop# ar s#ffra'e, en$o9e$ 9ith in$epen$ence an$ a the nee$e$ conco&itant po9ers, it is -#t proper that the Co#rt sho# $ accor$ the 'reatest &eas#re of pres#&ption of re'# arit! to its co#rse of action an$ choice of &eans in perfor&in' its $#ties, to the en$ that it &a! achieve its $esi'ne$ p ace in the $e&ocratic fa-ric of o#r 'overn&ent. I$ea !, its &e&-ers sho# $ -e free fro& a s#spicions of partisan inc inations, -#t the fact that act#a ! so&e of the& have ha$ stints in the arena of po itics sho# $ not, #n ess the contrar! is sho9n, serve as -asis for $en!in' to its act#ations the respect an$ consi$eration that the Constit#tion conte&p ates sho# $ -e accor$e$ to it, in the sa&e &anner that the S#pre&e Co#rt itse f 9hich fro& ti&e to ti&e &a! have &e&-ers $ra9n fro& the po itica ran=s or even fro& the &i itar! is at a ti&es $ee&e$ ins# ate$ fro& ever! $e'ree or for& of e"terna press#re an$ inf #ence as 9e as i&proper interna &otivations that co# $ arise fro& s#ch -ac='ro#n$ or orientation. Ae ho $, therefore, that #n$er the e"istin' constit#tiona an$ stat#tor! provisions, the certiorari ,#ris$iction of the Co#rt over or$ers, r# in's an$ $ecisions of the Co&e ec is not as -roa$ as it #se$ to -e an$ sho# $ -e confine$ to instances of 'rave a-#se of $iscretion a&o#ntin' to patent an$ s#-stantia $enia of $#e process. ;?/ The COMELEC is, ho9ever, s#-,ect to con'ressiona scr#tin! especia ! $#rin' -#$'et hearin's. B#t Con'ress cannot a-o ish the COMELEC as it can in case of other a'encies #n$er the e"ec#tive -ranch. The reason is o-vio#s. The COMELEC is not a &ere creat#re of the e'is at#re< it o9es its ori'in fro& the Constit#tion. 4#rther&ore, the sa ar! of the Chair&an an$ the Co&&issioners cannot -e $ecrease$ $#rin' their ten#re. ;?; En,o!in' fisca a#tono&!, the COMELEC has a 9i$er $iscretion in the $is-#rse&ent an$ a ocation of approve$ appropriations. To safe'#ar$ the COMELEC fro& #n$#e e'is ative interference, the /.08 Constit#tion provi$es that its approve$ ann#a appropriations are to -e a#to&atica ! an$ re'# ar ! re ease$. ;?? A so, Con'ress has no po9er to ca the co&&issioners of the COMELEC to a :#estion ho#r. The Constit#tion provi$es that the :#estion ho#r is i&ite$ to hea$s of $epart&ents #n$er the E"ec#tive -ranch, an$ the $e i-erations $#rin' the $raftin' of the /.08 Constit#tion c ear ! ref ect this senti&ent. Be that as it &a!, the COMELEC is &an$ate$ to 1s#-&it to the (resi$ent an$ the Con'ress a co&prehensive report on the con$#ct of each e ection, p e-iscite, initiative, referen$#& an$ reca .1 ;?> This provision a o9s Con'ress to revie9 an$ assess the effectivit! of e ection a9s an$ if necessar!, enact ne9 a9s or a&en$ e"istin' stat#tes. Be that as it &a!, I respectf# ! s#-&it that the e'is ative veto po9er or con'ressiona oversi'ht po9er over the a#thorit! of COMELEC to iss#e r# es an$ re'# ations in or$er to enforce e ection a9s is #nconstit#tiona . As afore$isc#sse$, the Constit#tion $ivi$e$ the po9ers of o#r 'overn&ent into three

cate'ories, e'is ative, e"ec#tive, an$ ,#$icia . A tho#'h not 1her&etica ! sea e$1 fro& one another, the po9ers of the three -ranches are f#nctiona ! i$entifia- e. In this respect, e'is ative po9er is 'enera ! e"ercise$ in the enact&ent of the a9< e"ec#tive po9er, in its e"ec#tion< an$ ,#$icia po9er, in its interpretation. In the a-sence of specific provision in the Constit#tion, it is f#n$a&enta #n$er the princip e of separation of po9ers that one -ranch cannot e"ercise or share the po9er of the other. In a$$ition, o#r Constit#tion create$ other offices asi$e fro& the e"ec#tive, the e'is ative an$ the ,#$iciar! an$ $efine$ their po9ers an$ prero'atives. A&on' these -o$ies especia ! create$ -! the Constit#tion itse f is the COMELEC. The COMELEC occ#pies a $istinct p ace in o#r sche&e of 'overn&ent. As the constit#tiona -o$! char'e$ 9ith the a$&inistration of o#r e ection a9s, it is en$o9e$ 9ith in$epen$ence in the e"ercise of so&e of its po9ers an$ the $ischar'e of its responsi-i ities. The po9er to pro&# 'ate r# es an$ re'# ations in or$er to a$&inister o#r e ection a9s -e on's to this cate'or! of po9ers as this has -een veste$ e"c #sive ! -! the /.08 Constit#tion to the COMELEC. It cannot -e trenche$ #pon -! Con'ress in the e"ercise of its oversi'ht po9ers. In Ba ar$o v. Ta-a&o, +r., ;?5 this Co#rt trace$ the ori'in of COMELECGs po9er to pro&# 'ate r# es an$ re'# ations. It 9as initia ! a stat#tor! 'rant. Both the /.?5 an$ the /.8? Constit#tions $i$ not e"p icit ! 'rant the COMELEC the po9er to pro&# 'ate r# es an$ re'# ations. The po9er 9as veste$ -! Con'ress to the COMELEC in the O&ni-#s E ection Co$e, ;?J vi3F Sec. 5;. (o9ers an$ f#nctions of the Co&&ission on E ections. D In a$$ition to the po9ers an$ f#nctions conferre$ #pon it -! the Constit#tion, the Co&&ission sha have the e"c #sive char'e of the enforce&ent an$ a$&inistration of a a9s re ative to the con$#ct of e ections for the p#rpose of ens#rin' free, or$er ! an$ honest e ections, an$ sha F """ """ """ 6c7 (ro&# 'ate r# es an$ re'# ations i&p e&entin' the provisions of this Co$e or other a9s 9hich the Co&&ission is re:#ire$ to enforce an$ a$&inister. """ """ """ This stat#tor! po9er 9as e evate$ to a constit#tiona stat#s 9ith the insertion of the 9or$ 1re'# ations1 in Section ;6/7 of Artic e IH*C of the /.08 Constit#tion, vi3F Ahi e #n$er the /.?5 Constit#tion it ha$ 1e"c #sive char'e of the enforce&ent an$ a$&inistration of a a9s re ative to the con$#ct of e ections,1 e"ercise$ 1a other f#nctions . . . conferre$ #pon it -! a91 an$ ha$ the po9er to $ep#ti3e a a9 enforce&ent a'encies an$ instr#&enta ities of the Bovern&ent for the p#rpose of ins#rin' free, or$er ! an$ honest e ections, an$ #n$er the /.8? Constit#tion it ha$,

inter a ia, the po9er to 6a7 1NEOnforce an$ a$&inister a a9s re ative to the con$#ct of e ections1 6-7 1N%Oep#ti3e, 9ith the consent or at the instance of the (ri&e Minister, a9 enforce&ent a'encies an$ instr#&enta ities of the Bovern&ent, inc #$in' the Ar&e$ 4orces of the (hi ippines, for the p#rpose of ens#rin' free, or$er !, an$ honest e ections,1 an$ 6c7 1N(Oerfor& s#ch other f#nctions as &a! -e provi$e$ -! a9,1 it 9as not e"press ! veste$ 9ith the po9er to pro&# 'ate re'# ations re ative to the con$#ct of an e ection. That po9er co# $ on ! ori'inate fro& a specia a9 enacte$ -! Con'ress< this is the necessar! i&p ication of the a-ove constit#tiona provision a#thori3in' the Co&&ission to 1N(Oerfor& s#ch other f#nctions as &a! -e provi$e$ -! a9.1 The present Constit#tion, ho9ever, i&p icit ! 'rants the Co&&ission the po9er to pro&# 'ate s#ch r# es an$ re'# ations. The pertinent portion of Section ; of Artic e IH*C thereof rea$s as fo o9sF 1SEC. ;. The Co&&ission on E ections sha e"ercise the fo o9in' po9ers an$ f#nctionsF 6/7 Enforce an$ a$&inister a a9s an$ re'# ations re ative to the con$#ct of an e ection, p e-iscite, initiative, referen$#&, an$ reca .1 6ita ics s#pp ie$7 """ """ """ The 9or$ re'# ations is not fo#n$ in either the /.?5 or /.8? Constit#tions. It is th#s c ear that its incorporation into the present Constit#tion too= into acco#nt the Co&&issionGs po9er #n$er the O&ni-#s E ection Co$e 6Batas (a&-ansa B '. 00/7, 9hich 9as a rea$! in force 9hen the sai$ Constit#tion 9as $rafte$ an$ ratifie$, toF """ """ """ 1(ro&# 'ate r# es an$ re'# ations i&p e&entin' the provisions of this Co$e or other a9s 9hich the Co&&ission is re:#ire$ to enforce an$ a$&inister. . . .1 Hence, the present Constit#tion #p'ra$e$ to a constit#tiona stat#s the aforesai$ stat#tor! a#thorit! to 'rant the Co&&ission -roa$er an$ &ore f e"i- e po9ers to effective ! perfor& its $#ties an$ to ins# ate it f#rther fro& e'is ative intr#sions. %o#-t ess, if its r# e*&a=in' po9er is &a$e to $epen$ on stat#tes, Con'ress &a! 9ith$ra9 the sa&e at an! ti&e. In$ee$, the present Constit#tion envisions a tr# ! in$epen$ent Co&&ission on E ections co&&itte$ to ens#re free, or$er !, honest, peacef# an$ cre$i- e e ections, an$ to serve as the '#ar$ian of the peop eGs sacre$ ri'ht of s#ffra'e D the citi3enr!Gs vita 9eapon in effectin' a peacef# chan'e of 'overn&ent an$ in achievin' an$ pro&otin' po itica sta-i it!. ;?8 The e evation of the COMELECGs po9er to pro&# 'ate r# es an$ re'# ations in the /.08 Constit#tion is s#ff#se$ 9ith si'nificance. Heretofore, it 9as Con'ress that 'rante$ COMELEC the po9er to pro&# 'ate r# es an$ re'# ations, an$ hence, Con'ress can 9ith$ra9 or restrict it -! the e"ercise of its veto or oversi'ht po9er.

Un$er the /.08 Constit#tion, the po9er to pro&# 'ate r# es an$ re'# ations has -een $irect ! 'rante$ -! the Constit#tion an$ no on'er -! Con'ress. Un$o#-te$ !, the po9er 9as 'rante$ to COMELEC to stren'then its in$epen$ence, hence, its e"ercise is -e!on$ invasion -! Con'ress. Un$er an! ens, Sections /. an$ ;5 of Rep. Act No. ./0. constit#te #n$#e restrictions on the constit#tiona po9er of the COMELEC to pro&# 'ate r# es an$ re'# ations for s#ch r# es are &a$e s#-,ect to the prior revie9 an$ approva of Con'ress. The i&p#'ne$ provisions can res# t in the $enia of this constit#tiona ! conferre$ po9er -eca#se Con'ress can veto the r# es an$ re'# ations the COMELEC has pro&# 'ate$. Th#s, I respectf# ! s#-&it that Sections /. an$ ;5 of Rep. Act No. ./0. 'rantin' Con'ress the po9er to revie9, revise, a&en$ an$ approve the i&p e&entin' r# es an$ re'# ations of the COMELEC, other9ise =no9n as s#-or$inate e'is ations in other co#ntries, are #nconstit#tiona . I no9 co&e to Section /8./ of Rep. Act No. ./0. 9hich provi$esF Sec. /8. 2otin' -! &ai . D /8./. 4or the Ma!, ;@@> e ections, the Co&&ission sha a#thori3e votin' -! &ai in not &ore than three 6?7 co#ntries, s#-,ect to the approva of the Con'ressiona Oversi'ht Co&&ittee. 2otin' -! &ai &a! -e a o9e$ in co#ntries that satisf! the fo o9in' con$itionsF 6$7 Ahere the &ai in' s!ste& is fair ! 9e *$eve ope$ an$ sec#re to prevent occasion of fra#$< 6e7 Ahere there e"ists a technica ! esta- ishe$ i$entification s!ste& that 9o# $ prec #$e &# tip e or pro"! votin'< an$ 6f7 Ahere the s!ste& of reception an$ c#sto$! of &ai e$ -a ots in the e&-assies, cons# ates an$ other forei'n service esta- ish&ents concerne$ are a$e:#ate an$ 9e * sec#re$. Thereafter, votin' -! &ai in an! co#ntr! sha -e a o9e$ on ! #pon revie9 an$ approva of the +oint Oversi'ht Co&&ittee. 6ita ics s#pp ie$7 4ro& the a9 itse f, it is c ear that Con'ress has a rea$! set the necessar! stan$ar$s to '#i$e the COMELEC in i$entif!in' the co#ntries 9here votin' -! &ai &a! -e a o9e$, vi3F 6/7 the co#ntries &#st have a &ai in' s!ste& 9hich is fair ! $eve ope$ an$ sec#re to prevent occasion of fra#$< 6;7 there e"ists a technica ! esta- ishe$ i$entification that 9o# $ prec #$e &# tip e or pro"! votin'< an$ 6?7 9here the s!ste& of reception an$ c#sto$! of &ai e$ -a ots in the e&-assies, cons# ates an$ other forei'n service esta- ish&ents concerne$ are a$e:#ate an$ 9e *sec#re$. Since the e'is ative stan$ar$s have -een $efine$, a that re&ains is their enforce&ent. O#r Constit#tion has specifica ! 'iven the COMELEC the po9er to enforce an$ a$&inister a a9s an$ re'# ations re ative to the con$#ct of an e ection. The po9er is e"c #sive an$ it o#'ht to -e se f*evi$ent that it cannot -e s#-,ect to

revie9 an$ revision or veto -! Con'ress in the e"ercise of its oversi'ht po9er. A'ain, the reason for the e"c #sivit! is to ins# ate COMELEC fro& the vir#s of partisan po itics. In the e"ercise of this e"c #sive po9er, the Co&&ission &#st -e accor$e$ consi$era- e atit#$e. Un ess the &eans an$ &etho$s a$opte$ -! COMELEC are c ear ! i e'a or constit#te 'rave a-#se of $iscretion, the! sho# $ not -e interfere$ 9ith. ;?0 Th#sF There are no rea$!*&a$e for&# as for so vin' p#- ic pro- e&s. Ti&e an$ e"perience are necessar! to evo ve patterns that 9i serve the en$s of 'oo$ 'overn&ent. In the &atter of the a$&inistration of the a9s re ative to the con$#ct of e ections, as 9e as in the appoint&ent of e ection inspectors, 9e &#st not -! an! e"cessive 3ea ta=e a9a! fro& the Co&&ission on E ections the initiative 9hich -! constit#tiona an$ e'a &an$ates proper ! -e on's to it. %#e re'ar$ to the in$epen$ent character of the Co&&ission, as or$aine$ in the Constit#tion, re:#ires that the po9er of this co#rt to revie9 the acts of that -o$! sho# $, as a 'enera proposition, -e #se$ sparin' !, -#t fir& ! in appropriate cases. Ae are not satisfie$ that the present s#it is one of s#ch cases. ;?. I ,oin the &a,orit! in ho $in' that Section /8./ of Rep. Act No. ./0. is #nconstit#tiona for it a o9s Con'ress to ne'ate the e"c #sive po9er of the COMELEC to a$&inister an$ enforce e ection a9s an$ re'# ations 'rante$ -! the Constit#tion itse f. This is not to &aintain that the I&p e&entin' R# es an$ Re'# ations pro&# 'ate$ -! the COMELEC, or the s!ste& it $evise$ to i&p e&ent votin' -! &ai cannot -e cha en'e$. If the! are i e'a or constit#te 'rave a-#se of $iscretion, the co#rts can stri=e the& $o9n in an appropriate case. This po9er is veste$ to the co#rts #n$er Section /, Artic e 2III of the Constit#tion $efinin' the scope of ,#$icia po9er, an$ &ore specifica ! #n$er Section 5, Artic e 2III e&po9erin' this Co#rt to revie9, revise, reverse, &o$if! or affir& on appea or certiorari, 1a cases in 9hich the constit#tiona it! or va i$it! of an! treat!, internationa or e"ec#tive a'ree&ent, a9, presi$entia $ecree, proc a&ation, or$er, instr#ction, or$inance, or re'# ation is in :#estion.1 A'ain, this po9er is e"c #sive an$ is not &eant to -e share$ -! an! other -ranch or a'enc! of the 'overn&ent. In s#&, it is &! h#&- e vie9 that in the case at -ar, Con'ress e"cee$e$ the per&issi- e e"ercise of its oversi'ht po9ers for the fo o9in' reasonsF 6/7 it restricts the COMELECGs constit#tiona 'rant of po9er to pro&# 'ate r# es an$ re'# ations< an$ 6;7 it inva$es COMELECGs e"c #sive constit#tiona $o&ain to enforce an$ a$&inister a a9s an$ re'# ations re ative to the con$#ct of an e ection, p e-iscite, initiative, referen$#&, an$ reca . I 9ish to stress, ho9ever, that 'rantin' the petition 9i not inva i$ate the entire Rep. Act No. ./0.. It $oes not a so &ean that a overseas 4i ipinos cannot vote. The a9 affects t9o c asses of overseas 4i ipinosF 6/7 those 9ho re&ain a $o&ici iar! of the

(hi ippines -#t 9ere a-sent at the ti&e of the e ections either -rief ! or for a on' ti&e< an$ 6;7 those 9ho are no9 consi$ere$ $o&ici e$ in forei'n co#ntries. To the first c ass of overseas 4i ipinos -e on' the contract 9or=ers, st#$ents, &e&-ers of the $ip o&atic corps an$ their fa&i ies, -#siness&en, an$ the i=e. To the secon$ c ass -e on' 4i ipinos 9ho are consi$ere$ i&&i'rants or per&anent resi$ents of forei'n co#ntries. The constit#tiona cha en'e in the case at -ar appertains on ! to the inc #sion of the secon$ cate'or! of overseas 4i ipinos in the covera'e of Rep. Act No. ./0.. Li=e9ise, the cha en'e on the e"ercise of Con'ressiona oversi'ht po9er over the COMELEC $oes not taint the core of the a9. It &ere ! affects the proce$#re in a$optin' the &echanis&s to i&p e&ent the a9. It cannot voi$ the 9ho e a9. IN 2IEA O4 THE 4OREBOINB, I $issent fro& the &a,orit!Gs r# in' #pho $in' the constit#tiona it! of Section 5 6$7 of Rep. Act No. ./0., 9hich a o9s an i&&i'rant or a per&anent resi$ent of a forei'n co#ntr! to vote for (resi$ent, 2ice*(resi$ent, Senators an$ (art!*List Representatives after e"ec#tin' the re:#ire$ affi$avit. I conc#r, ho9ever, 9ith the &a,orit!Gs r# in' #pho $in' the constit#tiona it! of Section /0.5 of Rep. Act No. ./0. 9ith respect to the a#thorit! 'iven to the COMELEC to proc ai& the 9innin' can$i$ates for Senators an$ (art!*List Representatives -#t not as to the po9er to canvass the votes an$ proc ai& the 9innin' can$i$ates for (resi$ent an$ 2ice*(resi$ent. I a so conc#r 9ith the &a,orit! 9ith respect to the #nconstit#tiona it! of Sections /8./, /. an$ ;5 of Rep. Act No. ./0. s#-,ectin' the i&p e&entation of votin' -! &ai , an$ the I&p e&entin' R# es an$ Re'# ations of Rep. Act No. ./0. to -e pro&# 'ate$ -! COMELEC, to prior revie9 an$ approva -! Con'ress. I so vote.

YNARES*SANTIABO, +.F conc#rrin' an$ $issentin' R.A. ./0., other9ise =no9n as the Overseas A-sentee 2otin' Act of ;@@?, has sp#rre$ :#ite a $e-ate a&on' vario#s sectors of (hi ippine societ!, -oth oca ! an$ a-roa$. Scho ar ! ar'#&ents on the fine e'a points of the iss#es presente$ -! this $isp#te$ a9 have -een presente$ -! si$es -oth for an$ a'ainst it, sa$$ e$, #nfort#nate !, 9ith a heav! $ose of -itter e&otion. The para&o#nt consi$eration in an! e'a $e-ate over this contentio#s piece of e'is ation is its constit#tiona va i$it!. Si'nificant !, the short artic e on s#ffra'e in the Constit#tion concentrates on 9ho &a! e"ercise the ri'ht to vote. / The Constit#tion #n$erscores three cate'ories on the :#a ifications re:#ire$ of voters D citi3enship, a'e an$ resi$ence. ; Con'ress is a#thori3e$ to i&it the n#&-er of citi3ens 9ho &a! e"ercise the ri'ht to vote -! prescri-in' reasona- e $is:#a ifications. It is e e&entar!, ho9ever, that Con'ress cannot e"pan$ the ri'ht of s#ffra'e -! inc #$in' those 9ho $o not possess the constit#tiona re:#ire&ents. To $o so 9o# $ $efeat the ver! p#rpose 9h! :#a ifications are sin' e$ o#t for constit#tiona attention. The soverei'n 9i has $eter&ine$ that on ! those 9ith the re:#isite citi3enship, a'e, an$ resi$ence &a! vote. Con'ress cannot 9ater $o9n or chan'e the constit#tiona re:#ire&ents. The controversia iss#e in this case revo ves aro#n$ the constit#tiona provision on a-sentee votin' 9hich statesF Sec. ;. The Con'ress sha provi$e a s!ste& for sec#rin' the secrec! an$ sanctit! of the -a ot as 9e as a s!ste& for a-sentee votin' -! :#a ifie$ 4i ipinos a-roa$. ? I a& constraine$ to $issent fro& the &a,orit! opinion -eca#se R.A. ./0. 'rants the ri'ht of s#ffra'e to a cate'or! of voters 9ho $o not possess the constit#tiona re:#ire&ent of resi$ence. These are &en an$ 9o&en 9ho are sti 4i ipino citi3ens -#t 9ho have vo #ntari ! an$ #na&-i'#o#s ! chosen act#a , ph!sica , an$ per&anent resi$ence in a forei'n co#ntr!. In other 9or$s, the :#estione$ a9 a o9s non* resi$ents to vote. As phrase$, Section 5 6$7 of R.A. ./0. 'rants to 4i ipinos 9ho are i&&i'rants or per&anent resi$ents of another co#ntr!, an$ 9ho are consi$ere$ as s#ch -! their host co#ntr!, the option to e"ercise their ri'ht of s#ffra'e. This 9o# $ -e acco&p ishe$ -! the &ere e"pe$ient ofF /. ;. Re'isterin' as voters. E"ec#tion of an affi$avit $ec arin' thatF

a. She sha res#&e act#a ph!sica per&anent resi$ence in the (hi ippines not ater than three 6?7 !ears fro& approva of her re'istration< -. She has not app ie$ for citi3enship in another co#ntr!. (roponents of R.A. ./0. are tr!in' to constr#e Section ; of Artic e 2 of the

Constit#tion as a proviso 9hich e"pan$s an$ en ar'es the scope of the prece$in' section. The! over oo= the fact that 9hi e Section ; provi$es a s!ste& for a-sentee votin', an! a-sentee 9ho votes &#st first &eet the :#a ifications fo#n$ in Section / of the sa&e artic e. As state$ -! the petitioner, > if the fra&ers of the Constit#tion inten$e$ to &a=e Section ; of Artic e 2 a proviso or e"ception to its first section, the! sho# $ have a$$e$ it to the atter. Section / 9o# $ have incorporate$ as its ast c a#se the fo o9in' provisoF (rovi$e$, the Con'ress sha provi$e a s!ste& for a-sentee votin' -! 4i ipino citi3ens 9ho are resi$in' a-roa$. The Constit#tion $oes not &a=e the a-sentee votin' provision a &ere proviso of the first section on resi$ence :#a ifications. To'ether 9ith the s!ste& 9hich sec#res the secrec! an$ sanctit! of the -a ot, the provision on a-sentee votin' is an entire ! $istinct an$ separate section 9hich a o9s on ! those :#a ifie$ #n$er Section / to ta=e a$vanta'e of the privi e'e #n$er Section ;. IST%AH The office of a proviso is to i&it the app ication of a section or provision or to :#a if! or restrain its 'enera it!. 5 Ho9ever, a proviso &a! a so en ar'e 9hat other9ise is a phrase of i&ite$ i&port ha$ there -een no proviso :#a if!in' it. J Since the provision on a-sentee votin' in R.A. ./0. neither i&its nor en ar'es a provision of 9hich it is a part, the phrase 1:#a ifie$ 4i ipinos a-roa$1 can -e interprete$ on ! to &ean that those 9ho are :#a ifie$ to vote #n$er the prece$in' section &a! -eco&e a-sentee voters. The! &#st possess on e ection $a! the constit#tiona re:#ire&ents as to citi3enship, a'e an$ resi$ence. (roponents of R.A. ./0. tr! to 'o aro#n$ the stat#teGs constit#tiona infir&it! -! 'ivin' the 9or$ 1resi$ent1 or 1resi$e$1 a a-ore$ an$ far*fetche$ &eanin'. The! #se the fancif# interpretation that i&&i'rants 9ho have &ove$ oc=, stoc=, an$ -arre to per&anent ! ive in another co#ntr! are sti $o&ici e$ in the (hi ippines. The tens, if not h#n$re$s of &i ions of overseas Chinese 9ho have &i'rate$ to other an$s &a! -e cite$ as e"a&p es. Even after ivin' in their co#ntries of choice for t9o or three 'enerations, the! &aintain their Chinese i$entities thro#'h c annishness an$ an'#a'e. The! ta=e pri$e in the s o9 e&er'ence of the o $ co#ntr! into a $e&ocratic an$ po9erf# econo&ic force in 9or $ affairs. B! no stretch of e'a fiction, ho9ever, can the! -e $ee&e$ resi$ents of &ain an$ China. The! have chosen to ive in a$opte$ ho&e an$s, have -eco&e inte'ra an$, &an! ti&es, ea$in' &e&-ers of their co&&#nities, an$ 9i -e -#rie$ there 9hen the ti&e co&es. Un ess the Chinese -asic a9 a o9s non*resi$ents to vote in China, the! cannot vote there. A si&i ar $iaspora ca#se$ -! econo&ic, pop# ation, an$ other press#res has e$ &i ions of 4i ipinos to &ove to other co#ntries. Consi$erin' the constit#tiona provision on 9ho &a! vote in (hi ippine e ections, a $istinction has to -e &a$e -et9een those te&porari ! ivin'

an$ 9or=in' a-roa$ an$ those 9ho have opte$ to per&anent ! resi$e there. This Co#rt &#st he9 to rea it!. It sho# $ not en'a'e in fancif# or straine$ interpretations to tr! to pass off as (hi ippine resi$ents the &ore than ;,@@@,@@@ i&&i'rants 9ho have chosen to per&anent ! resi$e in other co#ntries. On ! a constit#tiona a&en$&ent, not an enact&ent of Con'ress, can ift the conse:#ences of the $istinction. It is 9e *sett e$ that in e ection a9, the ter&s 1resi$ence1 an$ 1$o&ici e1 are #se$ interchan'ea- !. 8 Havin' in &in$ the &eanin' of these ter&s as the! are #n$erstoo$ in ,#rispr#$ence, 9e can c ose o#r e!es an$ easi ! conc #$e that the e"ercise of the ri'ht of s#ffra'e -! 4i ipinos 9ho are i&&i'rants an$ per&anent resi$ents a-roa$ is 9arrante$ an$ that the process provi$e$ for in R.A. ./0. is so#n$. Unfort#nate !, s#ch a conc #sion 9o# $ -e erroneo#s. 1%o&ici e1 $enotes a fi"e$ per&anent resi$ence to 9hich 9hen a-sent for -#siness or p eas#re, or for i=e reasons, one inten$s to ret#rn. 0 On the other han$, 9e have he $ that the resi$ence of a person &#st -e his persona , act#a or ph!sica ha-itation or his act#a resi$ence or a-o$e. It $oes not &ean fi"e$ per&anent resi$ence to 9hich 9hen a-sent, one has the intention of ret#rnin'. . This ast, of co#rse, refers to the ani&#s reverten$i 9hich is $eter&inative of $o&ici e. Ae &#st $efine another ter&F i&&i'rant. Accor$in' to Caasi v. CA, /@ an i&&i'rant is a person 9ho re&oves into a co#ntr! for the p#rpose of per&anent resi$ence. // This is 9h! it 9as he $ therein that, havin' ta=en #p s#ch per&anent resi$ence in a co#ntr! other than the (hi ippines, the i&&i'rant a-an$ons his $o&ici e an$ resi$ence in the (hi ippines. In its co&&on #sa'e 1i&&i'rant1 is one 9ho co&es to sett e in a co#ntr! 9hich is not oneGs o9n. 1I&&i'ration1 is entrance into a co#ntr! for the p#rpose of sett in' there. 1Mi'rate1 &eans to &ove fro& one p ace of a-o$e to another< to eave oneGs co#ntr! to sett e in another. /; There is a 9a!s the concept of per&anent &ove&ent inherent in the 9or$ 1i&&i'ration.1 4ro& as ear ! as /58; to the present, the &eanin' of 1sett e1 has -een to fi" or esta- ish per&anent ! oneGs a-o$e, resi$ence, etc. /? Ta=in' these $efinitions into acco#nt, 9e &#st no9 t#rn to the first too 9e have to ai$ #s in o#r :#est to #n$erstan$ this va'#e provision of o#r f#n$a&enta a9< the procee$in's an$ $e-ates of the /.0J Constit#tiona Co&&ission. It can -e seen fro& the recor$s thereof that on ! 4i ipino citi3ens te&porari ! resi$in' a-roa$ can avai of the option to vote as a-sentee voters. Aith a $#e respect, it is not acc#rate to conc #$e that the $e-ates, interpe ations, an$ opinions on a-sentee votin' e"presse$ in the recor$s of the Constit#tiona Co&&ission easi ! an$ #ne:#ivoca ! sho9 that Con'ress is e&po9ere$ to enact a a9 a o9in' i&&i'rants to contin#e to vote in (hi ippine e ections. M#ch ess is there an! roo& for interpretation that an i&&i'rant 9ho &a=es the faci e pro&ise to

ret#rn an$ per&anent ! resi$e in the (hi ippines not ater than three !ears fro& votin', &a! -e $ee&e$ a per&anent resi$ent or $o&ici e$ -oth in this co#ntr! an$ in the cit! or &#nicipa it! 9here he 9i vote. %#rin' the $e i-erations on the s#-,ect provision, Co&&issioner B as Op e ha$ this to sa!F In a previo#s hearin' of the Co&&ittee on Constit#tiona Co&&issions an$ A'encies, the Chair&an of the Co&&ission on E ections, Ra&on 4e ipe, sai$ that there 9as no ins#pera- e o-stac e to &a=in' effective the ri'ht of s#ffra'e for 4i ipinos overseas. Those 9ho have a$here$ to their 4i ipino citi3enship not9ithstan$in' stron' te&ptations are e"pose$ to e&-race a &ore convenient forei'n citi3enship. An$ those 9ho on their o9n or #n$er press#re of econo&ic necessit! here, fin$ that the! have to $etach the&se ves fro& their fa&i ies to 9or= in other co#ntries 9ith $efinite ten#res of e&p o!&ent. Man! of the& are on contract e&p o!&ent for one, t9o or three !ears. The! have no intention of chan'in' their resi$ence on a per&anent -asis, -#t are technica ! $is:#a ifie$ fro& e"ercisin' the ri'ht of s#ffra'e in their co#ntries of $estination -! the resi$entia re:#ire&ent in Section / . . . 6Ita ics s#pp ie$7 /> In response to an interpe ation -! Co&&issioner Op e, Co&&issioner +oa:#in Bernas, S.+., &a$e the fo o9in' re&ar=sF In other 9or$s, 1resi$enc!1 in this provision refers to t9o resi$ence :#a ificationsF 1resi$ence1 in the (hi ippines an$ 1resi$ence1 in the p ace 9here he 9i vote. As far as resi$ence in the (hi ippines is concerne$, the 9or$ 1resi$ence1 &eans $o&ici e, -#t as far as resi$ence in the p ace 9here he 9i act#a ! cast his -a ot is concerne$, the &eanin' see&s to -e $ifferent. He co# $ have $o&ici e so&e9here e se an$ !et he is a resi$ent of a p ace for si" &onths an$ he is a o9e$ to vote there. So that there &a! -e serio#s constit#tiona o-stac es to a-sentee votin', #n ess the vote of the person 9ho is a-sent is a vote 9hich 9i -e consi$ere$ as cast in the p ace of his $o&ici e. 6Ita ics s#pp ie$7 /5 Ahen Co&&issioner Christian Monso$ an$ severa others propose$ a&en$&ents, Co&&issioner Bernas &a$e a c arification as to 9ho& the ter& 14i ipinos1 referre$ to in the $raft provision on a-sentee votin', app iesF 4R. BERNASF In other 9or$s, these 4i ipinos &#st at east -e $o&ici e$ in the (hi ippines. MR. MONSO%F Yes. 4R. BERNASF That is 9h! 9e $o not #se the 9or$ 1ABROA%1 -eca#se the! &#st -e $o&ici e$ in the (hi ippines. /J Ahen the ter& 1a-sentee votin'1 9as intro$#ce$ into the provision, Co&&issioner 4 oren3 Re'a a$o &a$e s#re that the provisionGs inten$e$ &eanin' 9as not ostF MR. REBALA%OF Ahen Co&&issioner Ben'3on as=e$ &e to rea$ &! propose$

a&en$&ent, I specifica ! state$ that the Nationa Asse&- ! sha prescri-e a s!ste& 9hich 9i ena- e :#a ifie$ citi3ens, te&porari ! a-sent fro& the (hi ippines, to vote. Accor$in' to Co&&issioner Monso$, the #se of the phrase 1a-sentee votin'1 a rea$! too= that into acco#nt as its &eanin'. That is referrin' to :#a ifie$ 4i ipino citi3ens te&porari ! a-roa$. MR. MONSO%F Yes, 9e accepte$ that. I 9o# $ i=e to sa! that 9ith respect to re'istration 9e 9i eave it #p to the e'is ative asse&- !, for e"a&p e, to re:#ire 9here the re'istration is. If it is, sa!, &e&-ers of the $ip o&atic corps 9ho &a! -e contin#o#s ! a-roa$ for a on' ti&e, perhaps, there can -e a s!ste& of re'istration in the e&-assies. Ho9ever, 9e $o not i=e to pree&pt the e'is ative asse&- !. 6Ita ics s#pp ie$7 /8 U ti&ate !, the Co&&issionersG $e i-erations an$ $e-ates eft itt e $o#-t as to 9ho 9i -e a o9e$ to e"ercise the option to vote as an a-sentee voter. Ae can ' ean as &#ch fro& the fo o9in' e"chan'eF MR. REBALA%OF I ,#st 9ant to &a=e a note on the state&ent of Co&&issioner S#are3 that this envisions 4i ipinos resi$in' a-roa$. The #n$erstan$in' in the a&en$&ent is that the 4i ipino is te&porari ! a-roa$. He &a! not -e act#a ! resi$in' a-roa$< he &a! ,#st -e there on a -#siness trip. It ,#st so happens that the $a! -efore the e ections he has to f ! to the Unite$ States, so he co# $ not cast his vote. He is te&porari ! a-roa$, -#t not resi$in' there. He sta!s in a hote for t9o $a!s an$ co&es -ac=. This is not i&ite$ on ! to 4i ipinos te&porari ! resi$in' a-roa$. B#t as on' as he is te&porari ! a-roa$ on the $ate of the e ections, then he can fa 9ithin the prescription of Con'ress in that sit#ation. MR. SUARECF I than= the Co&&issioner for his f#rther c arification on recor$. MR. MONSO%F Ma$a& (resi$ent, to c arif! 9hat 9e &ean -! te&porari ! a-roa$ on a treat! tra$ers visa. Therefore, 9hen 9e ta = a-o#t re'istration, it is possi- e that his resi$ence is in An'e es an$ he 9o# $ -e a- e to vote for the can$i$ates in An'e es, -#t Con'ress or the Asse&- ! &a! provi$e the proce$#re for re'istration, i=e istin' oneGs na&e, in a re'istr! ist in the e&-ass! a-roa$. That is sti possi- e #n$er this s!ste&. 6Ita ics s#pp ie$7 /0 To &! &in$, the Constit#tiona Co&&ission envisione$ t9o $ifferent 'ro#ps of peop e as the -eneficiaries of this provisionF /. )#a ifie$ 4i ipinos te&porari ! resi$in' a-roa$ D citi3ens 9ho -e on' to this cate'or! resi$e a-roa$ for e"ten$e$ perio$s of ti&e 9itho#t inten$in' to &a=e their host co#ntries their per&anent resi$ence. This 9o# $ inc #$e Overseas 4i ipino Aor=ers 6O4AGs7 9ith fi"e$ perio$s of e&p o!&ent, st#$ents st#$!in' a-roa$, ho $ers of treat! tra$erGs visas, or sea&en a9a! fro& the (hi ippines for e"ten$e$ perio$s. The %epart&ent of 4orei'n Affairs has ta-# ate$ the &a,orit! of the 5,>00,/J8 4i ipinos ivin' a-roa$ as fa in' #n$er this cate'or!. /.

;. )#a ifie$ 4i ipinos te&porari ! a-roa$, -#t not resi$in' therein D this conte&p ates a sit#ation 9herein the te&porar! a-sence fro& the (hi ippines is not co#p e$ 9ith an! te&porar! resi$ence in a forei'n co#ntr! at a . This 9o# $ inc #$e 4i ipinos, 9ho ,#st so happen to -e a-sent fro& the (hi ippines for -rief perio$s of ti&e, -#t inc #$in' e ection $a! itse f, #s#a ! -eca#se the! have f o9n to forei'n co#ntries for short trips. It is s#-&itte$ that a va i$ an$ ver! rea $istinction e"ists -et9een either of these t9o 'ro#ps of 4i ipinos, on the one han$, an$ those 4i ipinos 9ho are per&anent resi$ents or i&&i'rants in their host co#ntries, on the other. The =e! $ifference ies in the chan'e of per&anent resi$ence or ac= thereof, for the fra&ers of o#r Constit#tion c ear ! inten$e$ that 4i ipinos 9ho ha$ ta=en #p per&anent resi$ence in their host co#ntries 9o# $ -e e"c #$e$ fro& the -enefits of a-sentee votin'. No other interpretation can -e s#pporte$ -! the recor$s at han$. It is c ear that the Constit#tiona Co&&ission $i$ not inten$ to &a=e a-sentee voters an e"ception to the 'enera r# e on resi$ence in the e"ercise of the ri'ht of s#ffra'e. Ae $o not a'ree 9ith the &a,orit!Gs -e ief that the position of Artic e 2, Section ; of the Constit#tion is in$icative of an intent to &a=e it appear to -e an e"ception to the resi$ence re:#ire&ent provi$e$ for in the section i&&e$iate ! prece$in' it. As ear ier state$, Section ; is not a proviso of Section /. The fo o9in' $isc#ssions are en i'htenin'F MR. SUARECF Ma! I ,#st -e reco'ni3e$ for a c arification. There are certain :#a ifications for the e"ercise of the ri'ht of s#ffra'e i=e havin' resi$e$ in the (hi ippines for at east one !ear an$ in the p ace 9here the! propose to vote for at east si" &onths prece$in' the e ection. Ahat is the effect of these &an$ator! re:#ire&ents on the &atter of the e"ercise on the ri'ht of s#ffra'e -! the a-sentee voters i=e 4i ipinos a-roa$K THE (RESI%ENTF Ao# $ Co&&issioner Monso$ care to ans9erK MR. MONSO%F I -e ieve the ans9er 9as a rea$! 'iven -! Co&&issioner Bernas, that the $o&ici e re:#ire&ents as 9e as the :#a ifications an$ $is:#a ifications 9o# $ -e the sa&e. """ """ """ THE (RESI%ENTF +#st to c arif!, Co&&issioner Monso$Gs a&en$&ent is on ! to provi$e a s!ste&. MR. MONSO%F Yes. THE (RESI%ENTF The Co&&issioner is not statin' here that he 9ants ne9 :#a ifications for these a-sentee voters. MR. MONSO%F That is ri'ht. The! &#st have the :#a ifications an$ none of the $is:#a ifications. ;@

It is patent fro& the fore'oin' e"cerpts that the Co&&issioners too= pains to ens#re that the reasonin' -ehin$ Artic e 2, Section ; of the Constit#tion 9o# $ not -e &is#n$erstoo$. The! never inten$e$ to accor$ a specia stat#s nor 'ive specia consi$eration to 4i ipinos 9ho have -eco&e per&anent resi$ents of their host co#ntries. These necessari ! inc #$e i&&i'rants. +#"taposin' these $efinitions fo#n$ in o#r ,#rispr#$ence 9ith the evi$ent intent of the fra&ers of o#r Constit#tion, it is p ain to see that Section 5 6$7 of R.A. ./0., in its c#rrent for& is #nconstit#tiona . It see=s to 'rant the -enefits of a-sentee votin' to those for 9ho& it 9as never inten$e$F 4i ipinos 9ho are per&anent resi$ents, necessari ! inc #$in' i&&i'rants, of co#ntries other than their o9n. ETaHC% The &a,orit! c ai&s that stri=in' $o9n Section 5 6$7 of R.A. ./0. 9o# $ $eprive 4i ipinos a-roa$ of a ver! i&portant choice. On the one han$, the! can 9aive their ri'ht to vote an$ contin#e to en,o! their stat#s as i&&i'rants or per&anent resi$ents of their host co#ntr!. On the other, the! can &anifest their intent to ret#rn to the (hi ippines in a s9orn state&ent 9ithin ? !ears fro& the approva of their re'istration as a-sentee voters. This is, of co#rse, a s#perf #o#s e"ercise. Ahat nee$s to -e $eci$e$K 1These i&&i'rants an$ per&anent resi$ent of their host co#ntries have a rea$! &a$e their choice. The! $eci$e$ to &ove on to 1'reener past#res1 rather than to cast their ot here 9ith their co#ntr!&en. The on' ines of app icants patient ! an$ &ee= ! 9aitin' for &onths or !ears to -e 'rante$ i&&i'rant visas -! forei'n e&-assies is stron' ! in$icative of their $eter&ination to per&anent ! resi$e a-roa$. Brante$, the! ha$ ver! 'oo$ reasons, even $o9nri'ht pressin' or #r'ent ones, to eave their ho&es for co $, far*off an$s. Ho9ever, the! &a$e their choices 9i in' ! an$, #n$o#-te$ !, 9ith f# =no9 e$'e that the! sacrifice so&e of their ri'hts an$ privi e'es as citi3ens an$ resi$ents of o#r rep#- ic. Ae =no9 a too 9e the sacrifices o#r overseas -rothers an$ sisters have en$#re$ to &a=e -etter ives for the&se ves an$ their fa&i ies, an$ if the! are happ! 9here the! are, then 9e are 'en#ine ! happ! for the&. The sincerit! of their concern for the &other an$, as 9e as the no-i it! of their senti&ents, have never -een in :#estion. Ho9ever, if the! fee the! have to &anifest s#ch concern for the 9e fare of their co#ntr! -! castin' their votes in o#r co#ntr!Gs e ections, then the! sho# $ $o 9hat the Constit#tion co&&an$s. The! sho# $ co&e ho&e. I a so ta=e iss#e 9ith the &a,orit!Gs c ai& that the threat of $isenfranchise&ent 9i -e a s#fficient $eterrent a'ainst the possi-i it! of an! a-sentee voter rene'in' on his pro&ise to ret#rn to the (hi ippines 9ithin ? !ears fro& re'istration as an a-sentee voter. Ho9ever, as I &entione$ a-ove, is it not conceiva- e that these i&&i'rants or per&anent resi$ents of their host co#ntries =ne9 f# ! 9e that the! 9o# $ never a'ain -e a- e to e"ercise the ri'ht of s#ffra'e 9hen the! so#'ht per&anent resi$ence a-roa$K If the! 9ere 9i in' to sacrifice the e"ercise of this ri'ht then, 9hat is to stop

the& fro& $oin' so in the f#t#reK Not &#ch, for if the! re'ister as a-sentee voters an$ participate in o#r e ectora process, the! have nothin' to ose. The! can $eci$e to ho $ tr#e to their oath an$ co&e ho&e to per&anent ! resi$e here 9ithin three !ears of their re'istration as a-sentee voters. A ternative !, the! can vote $#rin' the e ections an$ never set foot on (hi ippine soi ever a'ain. Ahat 9i the! ose -! e"ercisin' this secon$ optionK The! ris= osin' the ri'ht to vote in (hi ippine e ections< a ri'ht 9hich the! forfeite$ a on' ti&e a'o. It is #nfort#nate that R.A. ./0., in its present for&, is sa$$ e$ 9ith so &an! infir&ities. Sa$$er sti is the fact these pro- e&s co# $ have -een avoi$e$ at the $raftin' sta'e. Evi$ent !, these iss#es 9ere -ro#'ht to the attention of the Senate -! Senator +o=er Arro!o, as far -ac= as the perio$ for co&&ittee a&en$&ents. A tho#'h the e&inent SenatorGs re&ar=s 9ere ori'ina ! in response to the proposa to provi$e for voter re'istration -! &ai , his partin' 9or$s on the s#-,ect for his co ea'#es in the Senate capt#re the tr#e intent -ehin$ the Constit#tiona provision on a-sentee votin'. 4ort#nate !, the Recor$ of Senate has chronic e$ the& for posterit!, th#sF No9 &! concern here is this< that 9hi e 9e 9o# $ i=e a-sentee votin', 9e $o not 9ant the process to -e #se$ -! so&e enterprisin' peop e to a ter the vote. Ahat a& I tr!in' to sa!K A o#r co&patriots a-roa$, 9e , the! cannot -e -o#'ht. The! 9i vote honest !. The :#estion is, ,#st i=e here, after castin' their votes, 9i the res# ts -e honest an$ ref ective of the honest vote &a$e -! the a-sentee votersK That is rea ! the :#estion. """ """ """ In o#r over*ea'erness to fo o9 the Constit#tiona provision, 9e fin$ 'aps in the process. So I a'ree 9ith Senator An'ara 9hen I sa! that the re'istration &#st -e here, the! &#st first re'ister, an$ it is not rea ! that $iffic# t -eca#se the! co&e ho&e ever! no9 an$ then. These are 4i ipinos 9ho co&e ever! no9 an$ then. B#t for 4i ipinos, for instance, 9ho have ive$ ;@ !ears a-roa$, is that $iffic# t to fi'#re o#tK M#st 9e rea ! so icit an$ as= the& to vote 9hen the! have ive$ there a rea$! for ;@ !earsK Ae have $#a citi3enship. Ahi e 9e 'rant the& the $#a citi3enship, fine. B#t for a person 9ho has -een there for ;@ !ears an$ has not even co&e -ac= here, that is too &#ch. It is i=e that. Ho9 can 9e 'rant the ri'ht to vote to those 9ho $o not care to co&e ho&e an$ visitK Co&e ho&e an$ visit, then the! 'et the ri'ht to vote. B#t if the! $o not even visit an$ then the! 9i sa! the! 9i fi e their app ication to vote, havin' 'ro9n #p a these !ears in the Unite$ States, ho9 is thatK I &ean, these are the thin's that 9e have to consi$er -eca#se I, for one, cannot 'o a'ainst the Constit#tiona co&&an$ -eca#se that is 9hat the Constit#tion sa!s D 9e &#st provi$e for a-sentee votin'. So, the proposition that I have offere$ is that 9hen the! co&e ho&e, it is ver! eas!.

The! ,#st 'o #p to the e ection re'istrar< the! re'ister there. The! $o not even have to as= so &an! :#estions. B#t at east, the! are th#&-&ar=e$, their si'nat#res are there, then the $etai s are there. These are the thin's. Beca#se, Mr. (resi$ent, if so&e of o#r overseas -rothers co&&it e ection cri&es a-roa$, the! cannot -e prosec#te$ in the (hi ippines. Let #s face that. Ah!K Beca#se a the! have to $o is not co&e ho&e. Then 9e 9i have another Mar= +i&ene3, perhaps, I $o not =no9. B#t 9hen the! co&e here an$ re'ister, there is a certain attach&ent to #s, an$ it is not too $iffic# t. Loo= at o#r overseas 9or=ers, for instance, in the Mi$$ e East. Ever!$a!, 9e 'o to the airport an$ 9e see their 'ro#ps of overseas 9or=ers co&in' ho&e. So, a 9e are te in' the& isF 1A ri'ht, !o# 'o to !o#r respective to9ns. Ahen !o# 'o there, ,#st spen$ /5 &in#tes.1 Mr. (resi$ent, if these overseas 9or=ers or co&patriots of o#rs $o not 9ant to 'o there an$ spen$ /5 &in#tes, ho9 can 9e 'ive the& the ri'ht to voteK I &ean, there &#st a so -e so&e e"terna &anifestation on the part of o#r overseas frien$s that the! $o 9ant to vote. An$ the! $o so -eca#se the! ta=e ti&e, the! ta=e pains to re'ister. If the! $o not 9ant to ta=e ti&e an$ pains to re'ister, the! ,#st sa!F 1Oh, no. Ae 'ive !o# &one! there, so !o# -etter 'ive #s the -a ots.1 I &ean, it is not fair. Ahat 9e 9ant is to fashion a -i that 9o# $ a so sho9 that the overseas voter has so&e attach&ent to the (hi ippines. 6Ita ics s#pp ie$7. ;/ +#rispr#$ence has $eve ope$ the concepts of 1resi$ence1 an$ 1$o&ici e1 in sit#ations 9here the t9o are in $ifferent p aces -#t -oth are 9ithin the (hi ippines. ;; A !o#n' &an eaves his ho&eto9n to st#$! in the cit!. He sets #p a resi$ence for e$#cation p#rposes. Ahen he 'ets &arrie$ an$ raises a fa&i !, he &a! -#i $ his resi$ence in another p ace. His 9or= &a! ta=e hi& to $ifferent p aces an$ he esta- ishes a ne9 resi$ence each ti&e he an$ his fa&i ! &ove. He &a! have cast his vote in an! of the vario#s p aces 9here he has resi$e$. Ho9ever, in ater ife he $eci$es to r#n for p#- ic office in his ho&eto9n 9here he has not resi$e$ for fort! 6>@7 !ears. His ho&eto9n is sti $ee&e$ to -e his $o&ici e or per&anent resi$ence. The =e! e e&ent in $eter&inin' oneGs $o&ici e or per&anent resi$ence is the $ec are$ an$ prova- e or easi ! prove$ intent to &a=e it oneGs fi"e$ an$ per&anent p ace of a-o$e or ho&e. ;? 4or i&&i'rants, the &anifest intent is the 9i , ani&#s, vo ition, p an, an$ inten$&ent to esta- ish per&anent resi$ence in another co#ntr!. The process a &an 'oes thro#'h -efore he is 'iven i&&i'rant stat#s is so ar$#o#s an$ for&i$a- e that there can -e no $o#-t as to his ani&#s. The fact that he is eavin' the (hi ippines, 9ith a the e&otiona connotations of $epart#re, to sett e in another co#ntr! proves intent. 4ar fro& ret#rnin' to the (hi ippines, his &ore i=e ! an$ prova- e intent is a $esire to event#a ! 'et citi3enship papers in his a$opte$ co#ntr!. Converse !, the cases 9here 4i ipinos &a! have resi$e$ in forei'n co#ntries -#t

9hose $o&ici e 9as sti so&e9here in the (hi ippines c ear ! sho9 not on ! the intent to ret#rn ho&e, -#t the i=e ihoo$ or inevita- ! of havin' to co&e ho&e an$ not sta! per&anent ! in an! a$opte$ co#ntr!. The $ecisions in (hi ip B. Ro&#a $e3 v. Re'iona Tria Co#rt, et a . ;> an$ I&e $a Ro&#a $e3*Marcos v. Co&&ission on E ections, et a . ;5 i #strate the $istinction -et9een te&porar! resi$ence in a forei'n co#ntr! an$ $o&ici e in oneGs ho&e an$. CaESTA The petitioners in the Ro&#a $e3 cases never chose to -e resi$ents in the Unite$ States. The! 9ere force$ to f ee -eca#se of the po itica #pheava =no9n as E%SA /. (hi ip Ro&#a $e3 trie$ to ret#rn aro#n$ one !ear after his force$ f i'ht a-roa$. He ha$ a rea$! -oo=e$ a f i'ht -#t it 9as a-orte$ -eca#se he 9as not 9e co&e at that ti&e in the (hi ippines. On Septe&-er ;5, /../, he receive$ a etter fro& the U.S. I&&i'ration an$ Nat#ra i3ation Service that he &#st eave that co#ntr! on or -efore A#'#st ;?, /..; or -e $eporte$. The concepts of resi$ence, $o&ici e an$ ani&#s &anen$i co#p e$ 9ith ani&#s non reverten$i are $isc#sse$ in these cases, -#t there can -e no &ista=in' the facts of the cases as entire ! $ifferent fro& those of i&&i'rants. Mrs. Marcos an$ her fa&i ! 9ere a so force$ to f ee. Thro#'ho#t their resi$ence a-roa$, the! strove to ret#rn to the (hi ippines. The! fi e$ a case a'ainst the Secretar! of 4orei'n Affairs, the E"ec#tive Secretar! an$ other top officia s to co&pe the iss#ance of ne9 passports an$ per&ission to co&e ho&e. ;J The r# in's on $o&ici e an$ resi$ence in the a-ove an$ si&i ar cases cannot -e #se$ to ,#stif! the va i$it! of R.A. ./0.. The! $o not refer to i&&i'rants. I a so $isa'ree 9ith the &a,orit! vie9 that perhaps it is ti&e to reconsi$er the $octrine in Caasi v. Co#rt of Appea s ;8 an$ reverse it. It is so#n$ $octrine an$ sho# $ -e stren'thene$ instea$ of -ein' overt#rne$. I -e' to $iffer fro& the conc #sion in the &a,orit! opinion 9hich states that an a-sentee re&ains attache$ to his resi$ence in the (hi ippines -eca#se 1resi$ence1 is s!non!&o#s 9ith 1$o&ici e.1 1A-sentee1 has to -e :#a ifie$. It refers on ! to those peop e resi$in' a-roa$ 9hose intent to ret#rn ho&e an$ forsa=e the forei'n co#ntr! is c ear. It cannot refer to i&&i'rants. A &ere pro&ise to ret#rn ho&e 9ithin three !ears fro& votin' is no proof of intent to ret#rn to a per&anent resi$ence. The sanction for its enforce&ent is so fee- e that the pro&ise 9i -e an e&pt! one. As ear ier state$, an i&&i'rant 'ives #p &an! thin's, inc #$in' the ri'ht or opport#nit! of votin' in the (hi ippines, 9hen he &oves 9ith his fa&i ! a-roa$. A sanction of f#t#re $isenfranchise&ent 9o# $ not -other hi& in the east -it. In the &eanti&e, the i&&i'rant vote in c ose ! conteste$ cases &a! have e ecte$ the (resi$ent, a Senator or a Con'ress&an. Un:#a ifie$ voters 9i have s9#n' the e ections. In the sa&e 9a! that a co#nterfeit coin $rives a9a! or

res# ts in the hoar$in' of 'en#ine or 'oo$ coins, ;0 the votes of non*:#a ifie$ persons 9i not on ! 9ea=en or n# if! the va #e of the 'oo$ votes -#t &a! &a=e an e ection itse f sha& an$ &eanin' ess. The &a,orit! opinion cites the case of Ro&#a $e3*Marcos v. COMELEC ;. as an e"a&p e of an a-sentee a-roa$ 9hose per&anent resi$ence is her ho&eto9n in Le!te. Mrs. Marcos never chose to ive a-roa$. She 9as co&pe e$ -! over*po9erin' circ#&stances to f ee to Ha9aii. She an$ her fa&i ! sho9e$ c ear ! the intent to ret#rn ho&e. Her case 9o# $ -e the 9ea=est prece$ent for a o9in' i&&i'rants to vote in the (hi ippines. She 9as not an i&&i'rant. Aith a $#e respect, the ar'#&ent voice$ in Con'ress that the affi$avit*pro&ise to ret#rn ho&e 9ithin three !ears 'ives the i&&i'rant that choice 9itho#t Con'ress &a=in' the $ecision for hi& is $eceptive an$ #nso#n$. As ear ier state$, the i&&i'rant has a rea$! &a$e his choice to chan'e $o&ici e 9hen he &i'rate$ a-roa$. If he ater ret#rns to the (hi ippines, the choice is an entire ! ne9 one. It ass#&es force an$ effect on ! 9hen the i&&i'rant act#a ! co&es -ac= ho&e, tears #p his 'reen car$ an$ sets #p $o&ici e ane9 in the (hi ippines. Ho9ever, I a'ree 9ith the &a,orit! opinion that certain provisions of R.A. ./0. are #nconstit#tiona , to 9itF /. Section /8./ of R.A. ./0., insofar as it provi$es that votin' -! &ai sha -e s#-,ect to the revie9 an$ approva of the +oint Con'ressiona Oversi'ht Co&&ittee. ;. Section /0.5 of R.A. ./0., insofar as it e&po9ers COMELEC to or$er the proc a&ation of the 9innin' can$i$ates for (resi$ent an$ 2ice*(resi$ent 9here $e a!s in the canvass of overseas votes 9i not affect the res# ts of the e ection, consi$erin' that on ! Con'ress can proc ai& the 9innin' (resi$ent an$ 2ice*(resi$ent. ?@ ?. Sections /. an$ ;5 of R.A. ./0., insofar as the! provi$e that the I&p e&entin' R# es an$ Re'# ations to -e iss#e$ -! the COMELEC are s#-,ect to the revie9, revision, a&en$&ent an$ approva of the +oint Con'ressiona Oversi'ht Co&&ittee. I have $isc#sse$ at en'th the inva i$it! of the provision 9hich converts a $is:#a ifie$ i&&i'rant into a :#a ifie$ overseas voter -! the si&p e e"pe$ient of e"ec#tin' an affi$avit pro&isin' to ret#rn to the (hi ippines 9ithin three !ears fro& votin'. It is -e!on$ co&prehension ho9 a &ere pro&ise of a f#t#re act, 9hich is &ore i=e ! to -e vio ate$ than o-e!e$, transfor&s a $is:#a ification into a :#a ification. Ascertainin', after three !ears, 9ho co&p ie$ 9ith the pro&ise an$ 9ho vio ate$ it presents an a$&inistrative ni'ht&are. I s#-&it that the va i$ s!ste& is to a o9 overseas votin' on ! for those 4i ipinos 9ho have to ret#rn ho&e or &ost pro-a- ! ret#rn ho&e -eca#se of the nat#re of their 9or= a-roa$. In the $e-ates over specific provisions of R.A. ./0., 9e ten$ to over oo= that the entire a9 has -een h#rrie$ ! $rafte$ in a for& 9hich vio ates the principa &an$ate

of the Constit#tion on s#ffra'e. The soverei'n peop e have or$ere$ Con'ress to provi$e a s!ste& 9hich sec#res the sanctit! an$ secrec! of the -a ot. ?/ Instea$ of sec#rin' the sanctit! an$ secrec! of the -a ot, R.A. ./0. $oes the opposite. The #nconstit#tiona sections of the a9 have -een $isc#sse$ at en'th. The &a,orit! opinion ca s for a 1ho istic1 vie9 of the a9. Caref# o-servers of R.A. ./0. in$icate that s#ch a 1ho istic1 vie9 stren'thens the inva i$ an$ hi'h ! #nrea istic aspects of the entire stat#te. ?; It $oes not &a=e sense an$ it is hi'h ! i&pro-a- e that per&anent resi$ents a-roa$ 9i visit o#r e&-assies to e"ec#te affi$avits pro&isin' to ret#rn here si&p ! to e"ercise the ri'ht to vote in a-sentia in (hi ippine e ections. Ho9 9i o#r e&-assies an$ cons# ates in the one h#n$re$ sevent! ei'ht 6/807 co#ntries, is an$ nations, an$ cit! states in the %4A ist co&p ! 9ith their e ection $#ties 9ithin the i&possi- ! short perio$ provi$e$ -! the a9. ?? Ho9 9i the i$entities of &i ions of overseas 4i ipinos -e ascertaine$, the te&porar! separate$ fro& per&anent resi$ents, their passports -e e"a&ine$, an$ their affi$avits of pro&ise to ret#rn -e verifie$ an$ trans&itte$ to the tho#san$s of precincts 9here the sanctions on vio ate$ pro&ises have to -e enforce$. Ho9 can e&-assies an$ cons# ates p#- ici3e the re:#ire&ents for re'istration at east si" &onths -efore Octo-er ?/, ;@@? in the one h#n$re$ sevent! ei'ht 6/807 co#ntries, is an$ nations, an$ cit! states 9here overseas 4i ipinos are fo#n$K ?> Ho9 can the! con$#ct e"c #sion an$ inc #sion procee$in'sK %espite a *o#t efforts of COMELEC, it has not so ve$ the serio#s pro- e& of $a'$a' -a9as 9ithin the (hi ippines. Un$er the oose provisions of R.A. ./0., $a'$a' -a9as is enco#ra'e$ 9itho#t fear of $iscover!, correction, an$ p#nish&ent of '#i t! parties resi$in' a-roa$. A ne9 an$ entire ! efficient s!ste& for ferretin' o#t an$ p#nishin' e ection offenses &#st 'o 9ith the a9. On ! a fe9 o-vio#s offenses have to -e cite$. A&on' the& are pa$$e$ re'istration ists, accre$itation of #n:#a ifie$ voters, vote*-#!in' an$ vote* se in', -ri-er!, 9a'erin' on the res# ts of e ections, $o#- e re'istration an$ &# tip e votin' -! one person, appreciation of torn, $eface$, or inva i$ -a ots, so icitation of votes an$ #n a9f# e ectioneerin', ri''in' or ta&perin' 9ith the canvass an$ trans&ission of res# ts, an$ a on' ist of other vio ations of e ection a9s. As o-serve$ -! (rofessor Be in$a A. A:#ino, ?5 1to r#sh this e"peri&ent si&p ! to =eep #p 9ith the Ma! ;@@? e ections, 9ith so&e po itica ca c# ations of its a$vanta'es to certain can$i$ates 9o# $ -e creatin' a $isservice to the 4i ipino overseas co&&#nities 9hich the 2otin' Act has e&po9ere$ to -eco&e f# participants in the e ectora process.1 In c osin', I invite attention to the e"chan'e -et9een Senator +o=er Arro!o an$ Senator E$'ar$o An'ara on the Senate 4 oor, 9here Senator Arro!o as=e$F Aho

co# $ possi- ! ta=e a$vanta'e of the e"pe$itio#s han$ in' of Senate Bi No. ;/@>, 9hat 9e no9 =no9 as R.A. ./0.K Evi$ent !, the t9o senators a'ree$ that it 9as the a$&inistration that stoo$ to 'ain the &ost. ?J It is hope$ that this perceive$ -enefit 9as not the reason -ehin$ the hast! enact&ent of the a9 in its c#rrent, constit#tiona ! infir& state. Ho9ever, one cannot he p -#t 9on$er if the concerns an$ aspirations of &i ions of o#r -rothers an$ sisters a-roa$ 9ere tr# ! serve$ -! the passa'e of the Overseas A-sentee 2otin' Act of ;@@?. The entiret! of R.A. ./0. has to -e re*e"a&ine$. 4or p#rposes of this petition, ho9ever, I i&it &! opinion to the five sections of the a9 o#t ine$ a-ove. AHERE4ORE, I vie9 of the fore'oin', I %ISSENT fro& the &a,orit! opinion insofar as it #pho $s the constit#tiona it! of Section 5 6$7 of Rep#- ic Act No. ./0., an$ I vote that sai$ Section 56$7 -e $ec are$ UNCONSTITUTIONAL. Ho9ever, I CONCUR 9ith the &a,orit! opinion insofar as it $ec ares UNCONSTITUTIONAL the portion of Section /8./ 9hich e&po9ers the +oint Con'ressiona Oversi'ht Co&&ittee to revie9 an$ approve votin' -! &ai < an$ the portions of Sections /. an$ ;5 9hich e&po9er the +oint Con'ressiona Oversi'ht Co&&ittee to revie9, revise, a&en$ an$ approve the I&p e&entin' R# es an$ Re'# ations to -e pro&# 'ate$ -! the Co&&ission on E ections. I a so CONCUR 9ith the &a,orit! opinion that Section /0.5, insofar as it e&po9ers the Co&&ission on E ections to proc ai& the 9innin' can$i$ates for (resi$ent an$ 2ice*(resi$ent, is UNCONSTITUTIONAL. 4ootnotes /. (resi$ent B oria Macapa'a *Arro!o approve$ the a9 on /? 4e-r#ar! ;@@?. It 9as p#- ishe$ in the /J 4e-r#ar! ;@@? of To$a! an$ %ai ! Tri-#ne. ;. ?. (HILCONSA vs. Matha!, /;> (hi . 0.@ 6/.JJ7< /0 SCRA ?@@, ?@J. I$., citin' (HILCONSA vs. Bi&ene3, /;; (hi . 0.> 6/.J57.

>. Sani$a$ vs. COMELEC, L*>>J>@, /; Octo-er /.8J, 8? SCRA ???, ?50*?5. citin' (asc#a vs. Secretar! of (#- ic Aor=s, //@ (hi . ??/ 6/.J@7. 5. B.R. No. 0/?//, ?@ +#ne /.00, /J? SCRA ?8/, ?80. J. I$., p. ?80 cite$ in Tata$ vs. The Secretar! of the %epart&ent of Ener'!, ?>J (hi . ?;/, ?5. 6/..87. 8. ??0 (hi . 5>J, 58> 6/..87. 0. Separate Opinion of Eap#nan, +. in Cr#3 vs. Secretar! of Environ&ent an$ Nat#ra Reso#rces, B.R. No. /?5?05, J %ece&-er ;@@@, ?>8 SCRA /;0, ;5J. .. L#3 4ar&s vs. Secretar! of the %epart&ent of A'rarian Refor&, B.R. No. 0J00., > %ece&-er /..@, /.; SCRA 5/, 50*5.. /@. //. SeeF Bon3a es vs. COMELEC, B.R. No. ;80??, /0 Apri /.J., ;8 SCRA 0?5. Ei os-a!an, Inc. vs. B#in'ona, +r., ;?; SCRA //@ 6/..>7 an$ Basco vs. (hi .

A&#se&ents an$ Ba&in' Corporation, /.8 SCRA 5; 6/../7. /;. /?. />. B.R. No. 000?/, 0 Nove&-er /..@, /./ SCRA ;;.. (etition, p. 8. I$., p. ..

/5. (er Co&&ent an$ Me&oran$#& fi e$ -! Att!. +ose (. Ba -#ena, %irector I2, La9 %epart&ent, COMELEC. /J. /8. /0. /.. ;@. ;/. ;;. ;?. /.. SCRA J.;, 8/? 6/../7. Co&&ent, p. . citin' +oa:#in B. Bernas, To$a!, 5 4e-r#ar! ;@@?. ?/0 (hi . ?;. 6/..57< ;>0 SCRA ?@@. .J (hi . ;.> 6/.5>7. Co&&ent, pp. //*/;. Caasi Case, s#pra. Co&&ent, p. /?. Mani a (rince Hote vs. BSIS, ??5 (hi . 0;, /@/ 6/..87.

;>. L*>888/, // March /.80, 0; SCRA ?@, 55 citin' (eop e vs. 2era, J5 (hi . 5J, .5 6/.?87. ;5. Sa as vs. Hon. +arencio, /5@*B (hi . J8@, J.@ 6/.8;7 citin' Morfe vs. M#t#c, B.R. No. L*;@?08, ?/ +an#ar! /.J0, ;; SCRA >;>. ;J. 0; (hi . 88/, 885 6/.>.7. ;8. Separate opinion of 2it#', +. in Ro&#a $e3*Marcos vs. COMELEC, s#pra, p. ?08, citin' Marce ino vs. Cr#3, +r., L*>;>;0, /0 March /.0?, /;/ SCRA 5/. ;0. ;.. L#3 4ar&s vs. Secretar! of the %epart&ent of A'rarian Refor&, s#pra, p. 5J. ;. C.+.S. 585*588.

?@. / AOR%S AN% (HRASES ;J> citin' Savant vs. Merca$a , JJ So. .J/, .J;, /?J La. ;>0. ?/. ?;. ?/0 (hi . ?;. 6/..57< ;>0 SCRA ?@@. I$., pp. ?;?*?;>.

??. II RECOR% O4 THE CONSTITUTIONAL COMMISSION, pp. //*/; 6/. +# ! /.0J7. ?>. ?5. ?J. I$., p. ??. I$., pp. ?>*?5. I$., pp. ?5*?J.

?8. ?0. ?..

Marce ino vs. Cr#3, /;/ SCRA 5/, 5J. TRANSCRI(TS O4 SENATE (ROCEE%INBS 6/ Octo-er ;@@;7, pp. /@*/;. Transcripts of Senate (rocee$in's 6J A#'#st ;@@;7, pp. ?@*?/.

>@. />J SCRA >>J, >5> 6/.0J7 cite$ in Barcia vs. Corona, ?;/ SCRA ;/0 6/...7 an$ (a'pa ain Ha# ers, Inc. vs. Tra,ano, ?/@ SCRA ?5> 6/...7. >/. >;. Co&&ent, p. /5. B.R. No. /@>0>0, ;. +an#ar! /..?, ;/0 SCRA ;5?.

>?. SEC. ;. The Co&&ission on E ections sha e"ercise the fo o9in' po9ers an$ f#nctionsF 6/7 Enforce an$ a$&inister a a9s an$ re'# ations re ative to the con$#ct of an e ection, p e-iscite, initiative, referen$#&, an$ reca . """ >>. """ """ Naciona ista (art! vs. Ba#tista, 05 (hi . /@/, /@8 6/.>.7.

>5. S#&# on' vs. Co&&ission on E ections, 8? (hi . ;00, ;.>*;.5 6/.>/7, cite$ in Espino vs. Ca $ivar, /;. (hi . >5/, >8> 6/.J87. >J. Naciona ista (art! vs. %e 2era, 05 (hi . /;J, /;. 6/.>.7. >8. In Bre'o vs. COMELEC 6?>@ (hi . 5./, J@J N/..8O7, the Co#rt sai$F 1The COMELEC as an a$&inistrative a'enc! an$ a specia i3e$ constit#tiona -o$! char'e$ 9ith the enforce&ent an$ a$&inistration of a a9s an$ re'# ations re ative to the con$#ct of an e ection, p e-iscite, initiative, referen$#&, an$ reca , has &ore than eno#'h e"pertise in its fie $ that its fin$in's or conc #sions are 'enera ! respecte$ an$ even 'iven fina it!.1 >0. SEC. /8. 2otin' -! Mai . D /8./ . . . 2otin' -! &ai &a! -e a o9e$ in co#ntries that satisf! the fo o9in' con$itionsF a7 Ahere the &ai in' s!ste& is fair ! 9e *$eve ope$ an$ sec#re to prevent occasion for fra#$< -7 Ahere there e"ists a technica ! esta- ishe$ i$entification s!ste& that 9o# $ prec #$e &# tip e or pro"! votin'< an$, c7 Ahere the s!ste& of reception an$ c#sto$! of &ai e$ -a ots in the e&-assies, cons# ates an$ other forei'n service esta- ish&ents concerne$ are a$e:#ate an$ 9e *sec#re$. BELLOSILLO, +.F /. RA ./0., An Act (rovi$in' for a S!ste& of Overseas A-sentee 2otin' -! )#a ifie$ Citi3ens of the (hi ippines A-roa$, Appropriatin' 4#n$s Therefor, an$ for

Other (#rposes. ;. Ro&#a $e3 v. RTC*Br. 8, Tac o-an Cit!, B.R. No. /@>.J@, /> Septe&-er /..?, ;;J SCRA >@0. ?. >. 5. J. 8. /. %o&ino v. COMELEC, B.R. No. /?>@/5, /. +# ! /..., ?/@ SCRA 5>J, 5J0. I$., at p. 5J.. 0 U.S.C. T //@/6a76?/7. 0 U.S.C. T //@/6a76??7. 0 U.S.C. T //@/6a76/57. Section /, Artic e 2 of the /.08 Constit#tion provi$esF

2ITUB, +.F S#ffra'e &a! -e e"ercise$ -! a citi3ens of the (hi ippines not other9ise $is:#a ifie$ -! a9, 9ho are at east ei'hteen !ears of a'e, an$ 9ho sha have resi$e$ in the (hi ippines for at east one !ear an$ in the p ace 9herein the! propose to vote for at east si" &onths i&&e$iate ! prece$in' the e ection. No iterac!, propert!, or other s#-stantive re:#ire&ent sha -e i&pose$ on the e"ercise of s#ffra'e. ;. ?. >. 5. J. 8. 0. .. /@. //. """ Section ;, Artic e 2, of the /.08 Constit#tion. II Recor$ of the Constit#tiona Co&&ission, pp. ?>*?5. B.R. No. /@>.J@, /> Septe&-er /..?, ;;J SCRA >@0. S#pra. ?/0 (hi . ?;.. B.R. No. 000?/, 0 Nove&-er /..@, /./ SCRA ;;.. Caasi v. Co#rt of Appea s, s#pra, p. ;?J. Section 5 6$7, RA No. ./0.. I$. Section /0. On*Site Co#ntin' an$ Canvassin' D """ """

/0.5 The canvass of votes sha not ca#se $e a! of the proc a&ation of a 9innin' can$i$ate if the o#tco&e of the e ection 9i not -e affecte$ -! the res# ts thereof. Not9ithstan$in' the fore'oin', the Co&&ission is e&po9ere$ to or$er the proc a&ation of 9innin' can$i$ates $espite the fact that the sche$# e$ e ection has not ta=en p ace in a partic# ar co#ntr! or co#ntries, if the ho $in' of e ections therein has -een ren$ere$ i&possi- e -! events, factors an$ circ#&stances pec# iar to s#ch co#ntr! or co#ntries, an$ 9hich events, factors an$ circ#&stances are -e!on$ the contro or inf #ence of the Co&&ission.

/;.

Section >, Artic e 2II of the /.08 Constit#tion.

/?. Section /0.> . . . . I&&e$iate ! #pon the co&p etion of the canvass, the chair&an of the Specia Boar$ of Canvassers sha trans&it via facsi&i e, e ectronic &ai , or an! other &eans of trans&ission e:#a ! safe an$ re ia- e the Certificates of Canvass an$ the State&ents of 2otes to the Co&&ission. . . . . />. /5. /J. /8. /0. /.. """ Sections /. an$ ;5, R.A. ./0.. Section /8./, R.A. ./0.. Section /, Artic e IH*A of the /.08 Constit#tion. Section ; 6/7, Artic e IH*C of the /.08 Constit#tion. Section ?, Artic e IH*C of the /.08 Constit#tion. Section ;5, R.A. ./0.. """ """

The +oint Con'ressiona Oversi'ht Co&&ittee sha have the po9er to &onitor an$ eva #ate the i&p e&entation of this Act. . . . . ;@. /. ;. """ Section ;/, Artic e 2I of the /.08 Constit#tion. TaMa$a v. An'ara, ;8; SCRA /0, J>, Ma! ;, /..8, per (an'ani-an, +. T56$7 of RA ./0. statesF 1The fo o9in' sha -e $is:#a ifie$ fro& votin' #n$er this ActF """ """ $7 An i&&i'rant or a per&anent resi$ent 9ho is reco'ni3e$ as s#ch in the host co#ntr!, #n ess heIshe e"ec#tes, #pon re'istration, an affi$avit prepare$ for the p#rpose -! the Co&&ission $ec arin' that heIshe sha res#&e act#a ph!sica per&anent resi$ence in the (hi ippines not ater than three 6?7 !ears fro& approva of hisIher re'istration #n$er this Act. S#ch affi$avit sha a so state that heIshe has not app ie$ for citi3enship in another co#ntr!. 4ai #re to ret#rn sha -e ca#se for the re&ova of the na&e of the i&&i'rant or per&anent resi$ent fro& the Nationa Re'istr! of A-sentee 2oters an$ hisIher per&anent $is:#a ification to vote in a-sentia.1 ?. I have a 9a!s -e ieve$ that the Constit#tion sho# $, as &#ch as possi- e, -e interprete$ in the sense #n$erstoo$ -! or$inar! citi3ens. Th#s, in &! first opinion as a &e&-er of the Co#rt, I 9rote in &! %issent in Marcos v. Co&e ec, ;55 SCRA "i, "v, Octo-er ;5, /..5, the fo o9in'F 1The Constit#tion is the &ost -asic a9 of the an$. It enshrines the &ost cherishe$ aspirations an$ i$ea s of the pop# ation at ar'e. It is not a $oc#&ent (ANBANIBAN, +.F

reserve$ on ! for scho ar ! $is:#isitions -! the &ost e&inent e'a &in$s of the an$. The Constit#tion is not inten$e$ for a9!ers to :#i-- e over NorO to $efine e'a niceties an$ artic# ate n#ances a-o#t, in the ascertain&ent of its i&port. Its contents an$ 9or$s sho# $ -e interprete$ in the sense #n$erstoo$ -! the or$inar! &en an$ 9o&en 9ho p ace their ives on the ine in its $efense, an$ 9ho pin their hopes for a -etter ife on its f# fi &ent.1 See a so +.M. T#a3on S Co., Inc. v. Lan$ Ten#re A$&inistration, ?/ SCRA >/?, >;?, 4e-r#ar! /0, /.8@, per 4ernan$o, +., in 9hich the Co#rt $ec are$ that 1the Constit#tion is not pri&ari ! a a9!erGs $oc#&ent, it -ein' essentia for the r# e of a9 to o-tain that it sho# $ ever -e present in the peop eGs conscio#sness, its an'#a'e as &#ch as possi- e sho# $ -e #n$erstoo$ in the sense the! have in co&&on #se.1 >. T / of Art. 2 of the Constit#tion provi$esF 1SECTION /. S#ffra'e &a! -e e"ercise$ -! a citi3ens of the (hi ippines not other9ise $is:#a ifie$ -! a9, 9ho are at east ei'hteen !ears of a'e, an$ 9ho sha have resi$e$ in the (hi ippines for a east one !ear an$ in the p ace 9herein the! propose to vote for at east si" &onths i&&e$iate ! prece$in' the e ection. No iterac!, propert!, or other s#-stantive re:#ire&ent sha -e i&pose$ on the e"ercise of s#ffra'e.1 5. J. 8. httpFII-ens'#i$e.'po.'ovI?*5Iciti3enshipIresponsi-i ities.ht& httpFII999.eci.'ov.inIinfoeciIe ecUs!sIe ecs!sUfs.ht& The 4a&i ! Co$e of the (hi ippines as a&en$e$ -! RA J0@. statesF

1ART. ;?>. E&ancipation ta=es p ace -! the attain&ent of &a,orit!. Un ess other9ise provi$e$, &a,orit! co&&ences at the a'e of ei'hteen !ears. 1ART. ;?J. E&ancipation sha ter&inate parenta a#thorit! over the person an$ propert! of the chi $ 9ho sha then -e :#a ifie$ an$ responsi- e for a acts of civi ife, save the e"ceptions esta- ishe$ -! e"istin' a9s in specia cases.1 0. I 9i no on'er ta=e #p the :#estion of 9hether resi$ence sho# $ -e e:#ate$ 9ith $o&ici e, or the i&pact of this e:#ation, as these &atters are a rea$! a$e:#ate ! $isc#sse$ in the Opinions of &! co ea'#es. .. Tora!no Sr. v. Co&&ission on E ections, ??8 SCRA 58>, 508, A#'#st ., ;@@@, per (an'ani-an, +. /@. (ere3 v. Co&&ission on E ections, ?85 (hi . //@J, ///., Octo-er ;0, /..., per Men$o3a, +. See a so A:#ino v. Co&&ission on E ections, ;>0 SCRA >@@, Septe&-er /0, /..5. //. 4or instance, the 4i ipino Reporter, p#- ishe$ in the East Coast of the US, has s#ccessf# ! $one this service for over ?@ !ears no9.

/;.

The A-sentee 2otin' La9 6RA ./0.7 statesF

1SEC. >. Covera'e. D A citi3ens of the (hi ippines a-roa$, 9ho are not other9ise $is:#a ifie$ -! a9, at east ei'hteen 6/07 !ears of a'e on the $a! of e ections, &a! vote for presi$ent, vice*presi$ent, senators an$ part!* ist representatives.1 /?. Overseas votin' is &an$ate$ -! T; of Art. 2 of the Constit#tion as fo o9sF 1SEC. ;. The Con'ress sha provi$e a s!ste& for sec#rin' the secrec! an$ sanctit! of the -a ot as 9e as a s!ste& for a-sentee votin' -! :#a ifie$ 4i ipinos a-roa$.1 CAR(IO, +.F /. Artic e ;5, Internationa Covenant on Civi an$ (o itica Ri'hts. ;. In ;@@;, overseas 4i ipino 9or=ers officia ! re&itte$ USV8./8 -i ion to the (hi ippines 6999.-sp.'ov.phIstatisticsIspeiIta-//.ht&7. At (5? to USV/, this is e:#iva ent to (?0@ -i ion, a &ost 5@ percent of the ;@@; nationa -#$'et of (80@.0 -i ion 6RA No. ./J;7. ?. Rep. Loretta Ann (. Rosa es, E&po9erin' Seven Mi ion Mi'rant 4i ipinos for the Ne"t Mi enni#&, /@ Ma! /..., 999.phi so .n I4*Rosa es*&a!...ht&. >. 5. J. A the &a,or ne9spapers in the (hi ippines are poste$ $ai ! in the Internet. Recor$ of the Constit#tiona Co&&ission, 2o . II, pp. //*/; 6/. +# ! /.0J7. Recor$ of the Constit#tiona Co&&ission, 2o . II, p. ?? 6/. +# ! /.0J7.

8. An Act (rovi$in' for the Repatriation of 4i ipino Ao&en Aho Have Lost their (hi ippine Citi3enship -! Marria'e to A iens an$ of Nat#ra *Born 4i ipinos. 0. 4A)s on Unifor&e$ an$ Overseas Citi3ens A-sentee 2otin' Act, 999.fvap.'ovI:#est.ht& . .. A B#i$e to A-sentee 2otin' in Maine, 999.state.&e.#sIsosIcecIe ecIa-sentee@?.h&< A-sentee 2otin' in 4 ori$a, 999.-a!votes.or'Ia-sentee.ht&< 2otin' A-sentee in North %a=ota, 999.state.n$.#sIsecIvotin'Ua-sentee.ht&< No E"c#se A-sentee 2otin' in North Caro ina, 999.&s9e-@?.co.9a=e.nc.#sI-or$e ecIa-sentee.ht&. /@. Recor$ of the Constit#tiona Co&&ission, 2o . /, No. ?;, /8 +# ! /.0J< 2o . ;, No. >?, ?@ +# ! /.0J< 2o . ?, No. JJ, ;J A#'#st /.0J< 2o . ?, No. J8, ;8 A#'#st /.0J< 2o . >, No. J0, ;0 A#'#st /.0J< 2o . >, No. J., ;. A#'#st /.0J. //. (etition Letter of Overseas 4i ipinos to the (hi ippine Bovern&ent on the Ri'ht to 2ote, 999.phi so .n Iof9Ipetition.ht&. /;. In the ;@@> U.S. (resi$entia e ections, there 9i -e votin' thro#'h the Internet #n$er the initiative ca e$ SER2E 6Sec#re E ectronic Re'istration an$ 2otin'

E"peri&ent7. This 9i a o9 an e i'i- e U.S. citi3en to vote fro& an! Ain$o9s*-ase$ co&p#ter 9ith Internet access, an!9here in the 9or $. 999.serv#sa.'ovIp#- icIa:ca.asp". CAR(IO*MORALES, +.F /. ;. ?. >. 5. J. 8. 0. /. ;. ?. CONSTITUTION, Artic e 2, Section /. On' vs. Rep#- ic, /. SCRA .JJ N/.J8O. B ac=Gs La9 %ictionar!, 8th E$ition. CONSTITUTION, Artic e 2, Section ;. ;5 A& +#r ;$, %o&ici T /?. ;0 C.+.S. ?@. Ro&#a $e3 vs. RTC, Br. 8, Tac o-an Cit!, ;;J SCRA >@0 N/..?O. ;0 C.+.S. ?/. STORY, CON4LICT O4 LAAS, Secs. >8, >0. EENNAN, A TREATISE ON RESI%ENCE AN% %OMICILE, Sec. /./. Annot., 5 ALR ?@@ 6/.;@7.

ACCUNA, +.F

(UNO, +.F /. 1An Act (rovi$in' for A S!ste& of Overseas A-sentee 2otin' -! )#a ifie$ Citi3ens of the (hi ippines A-roa$, Appropriatin' 4#n$s Therefor, an$ for Other (#rposes.1 Rep. Act No. ./0. 9as si'ne$ into a9 -! (resi$ent B oria Macapa'a Arro!o on 4e-r#ar! /?, ;@@?, an$ 9as p#- ishe$ on 4e-r#ar! /J, ;@@? at %ai ! Tri-#ne an$ To$a!. ;. 1Sec. ;. The Con'ress sha provi$e a s!ste& for sec#rin' the secrec! an$ sanctit! of the -a ot as 9e as a s!ste& for a-sentee votin' -! :#a ifie$ 4i ipinos a-roa$. The Con'ress sha a so $esi'n a proce$#re for the $isa- e$ an$ the i iterates to vote 9itho#t the assistance of other persons. Unti then, the! sha -e a o9e$ to vote #n$er e"istin' a9s an$ s#ch r# es as the Co&&ission on E ections &a! pro&# 'ate to protect the secrec! of the -a ot.1 ?. Sec. /. S#ffra'e &a! -e e"ercise$ -! a citi3ens of the (hi ippines not other9ise $is:#a ifie$ -! a9, 9ho are at east ei'hteen !ears of a'e, an$ 9ho sha have resi$e$ in the (hi ippines for at east one !ear an$ in the p ace 9herein the! propose to vote for at east si" &onths i&&e$iate ! prece$in' the e ection. No iterac!, propert!, or other s#-stantive re:#ire&ent sha -e i&pose$ on the e"ercise of s#ffra'e.1

>. 5. J. 8. 0. .. /@.

/./ SCRA ;;. 6/..@7. (etition, pp. 8*.. %ecision, p. ;;. I$. I$. at ;J. S#pra note >. %ecision, p. ;J.

//. Bernas, The /.08 Constit#tion of the Rep#- ic of the (hi ippinesF A Co&&entar! 50; 6/..J7. /;. 1Soverei'nt! resi$es in the peop e an$ a 'overn&ent a#thorit! e&anates fro& the&.1 /?. Brent S Levinson, (rocess of Constit#tiona %e&ocrac!F Cases an$ Materia s /@5? 6/..;7. />. /5. .. /J. /8. /0. McCrar! on E ections /@ 6/0.87. ; L$. Ra!&on$, .?0 6/ S&ithGs Lea$in' Cases, p. >8;7, cite$ in McCrar!, i$. at I$. at /@. Lie-er&an, The Evo vin' Constit#tion 5J?. I$.

/.. The ast s#rviva of re i'io#s test appears in the Constit#tion of So#th Caro ina 6Artic e HIII7, in force fro& /880 to /8.@, i&itin' s#ffra'e 1to ever! free 9hite &an 9ho ac=no9 e$'es the -ein' of a Bo$, an$ -e ieves in a f#t#re state of re9ar$s an$ p#nish&ents.1 See McCrar! on E ections, s#pra note />, f.n. 8 at 5 6/0.87. ;@. ;/. ;;. ;?. I$. at ?. Lie-er&an, s#pra note /8. Unite$ States v. Cr#i=shan=, .; U.S. 5>;. I$.

;>. The e"c #sion of 9o&en ori'inate$ in the co&&on* a9 i$ea of the &er'er of a &arrie$ 9o&anGs e"istence in that of her h#s-an$, an$ her #nfitness -! nat#re for the occ#pation of civi ife. See Coo e! on Const. Li&itation at ?0. ;5. ;J. ;8. J; (hi . .>5 6/.?J7. I$. at .>0, citations o&itte$. I Ar#e'o, The 4ra&in' of the (hi ippine Constit#tion ;/8 6/.?J7.

;0. ;.. ?@. ?/. ?;. ??. ?>. ?5. ?J. ?8. ?0. ?.. >@. >/. >;. >?. >>. >5. >J. >8. >0. >.. 5@. 5/. 5;. 5?. 5>.

I$. at ;/J. I$. at ;/8. I$. at ;/0*;/.. I$. at ;;5. I$. at ;;5*;;J. /5 SCRA 8 6/.J57. I$. at .. La#re , (hi ippine La9 on E ections ; 6/.>@7. I$. at /J. Ba e'o v. 2era, 8? (hi . >5?, >5. 6/.>/7. S#pra note /? at /@JJ*/@J8. Ro&#a $e3*Marcos v. Co&&ission on E ections, ;>0 SCRA ?@@, ?;? 6/..57. See N#va v. B#ra!, 5; (hi . J>5 6/.;07. On' v. Rep#- ic, /. SCRA .JJ, .J. 6/.J87. S#pra note ?.. I$. at ?;5. II Bernas, Constit#tiona Ri'hts an$ %e&an$sF Notes an$ Cases, 550 6/../7. II Recor$s at ?>*?5. I$. at //*/;. II RECOR%S at ?5*?J. ;5 A& +#r ;$, %o&ici T // at /?. I$. at T /;. I$. at T /?. S#pra note ?.. I$. at ??/. S#pra note >. I$. at ;?8.

55. See for instance, Rep. Act No. 8/J@, Section >@ 6f7< B.(. B '. 5;, Sec. >< B.(. B '. 00/, Sec. J0. 5J. 58. %ecision, p. ;5. I$. at ;J.

50. 5.. J@. J/. J;.

I$. at ;0. I Restate&ent of La9 6Conf ict of La9s7 ;$, p. >8 6/.8/7. I Bea e, A Treatise on the Conf ict of La9s /0? 6/.?57. ;5 A& +#r ;$, Section /5 at /J. Sco es, et a ., Conf ict of La9s, ?r$ e$., p. ;J0 6;@@@7.

J?. I$. at ;J.. See Braveson, Refor& of the La9 of %o&ici e, 8@ L.). Rev. >.; 6/.5>7< At=in, The %o&ici e Act of /.8J, 8 N.C.U. L. Rev. ;0J 6/.887< Raffert!, %o&ici e, The Nee$ for Refor&, Man. L.+. ;@? 6/.887. J>. J5. JJ. J8. J0. J.. 8@. 8/. 8;. 8?. S#pra note 5. at 80. I$. at J;*J5. Sco es, et a ., s#pra note J; at ;>0*;>.. I Bea e, s#pra note J@ at /0;. I$. at /0?*/0>. S#pra note 5. at 0/. I$. at 0;. I$. Sco es, et a ., s#pra note J; at ;>.. Me&oran$#& of (#- ic Respon$ent COMELEC, p. 8.

8>. Citin' L#c&an v. %i&aporo, B.R. No. ?/550, Ma! ;., /.8@< Tic3on v. COMELEC, B.R. No. 5;>5/, March ?/, /.0/< (an'ar#n'an v. COMELEC, B.R. No. /@8>?5, %ece&-er //, /..;. 85. 8J. 88. 80. 8.. 0@. 0/. 0;. 0?. 0>. 05. /.08 Constit#tion, Artic e IH*C, Section ;. Citin' Ba ar$o v. Ta-a&o, +r., ;/0 SCRA ;5? 6/..?7. I-i$. OSB Me&oran$#&, p. /0. I$. at /8. Me&oran$#& of (#- ic Respon$ent COMELEC, p. 5. O'' S Ra!, Intro$#ction to A&erican Bovern&ent, /@th e$., p. ;0 6/.5/7. No9a=, et a ., Constit#tiona La9, ?r$ e$., p. /;/ 6/.0J7. +. Loc=e, Secon$ Treatise of Bovern&ent 6Machperson, e$. /.0@7. T />?, I$. at 85. T />5, I$. at 8J.

0J. 08.

T />J, I$. T />?, I$. at 85*8J.

00. T />0, I$. at 88. 1Tho#'h, as I sai$, the e"ec#tive an$ fe$erative po9ers of ever! co&&#nit! -e rea ! $istinct in the&se ves, !et the! are har$ ! to -e separate$, an$ p ace$ at the sa&e ti&e, in the han$s of $istinct personsF for -oth of the& re:#irin' the force of the societ! for their e"ercise, it is a &ost i&practica- e to p ace the force of the co&&on9ea th in $istinct, an$ not s#-or$inate han$s< or that the e"ec#tive an$ fe$erative po9er sho# $ -e p ace$ in persons, that &i'ht act separate !, 9here-! the force of the p#- ic 9o# $ -e #n$er $ifferent co&&an$sF 9hich 9o# $ -e apt so&e ti&e or other to ca#se $isor$er an$ r#in.1 0.. .@. ./. Montes:#ie#, The Spirit of the La9s 6trans. -! Tho&as N#'ent, /.>.7. I$. at /5/*/5;. No9a=, et a ., s#pra note 0;.

.;. Artic e HHH of the Constit#tion of the Co&&on9ea th of Massach#setts 6/80@7. See +affe, A$&inistrative La9F Cases an$ Materia s, p. ?/ 6/.8J7. .?. Artic e I, Section /. 1A e'is ative po9ers herein 'rante$ sha -e veste$ in a Con'ress of the Unite$ States, 9hich sha consist of a Senate an$ Ho#se of Representatives.1 .>. Artic e II, Section /. 1The e"ec#tive po9er sha -e veste$ in a (resi$ent of the Unite$ States of A&erica. . .1 .5. Artic e III, Sec. /. 1The ,#$icia po9er of the Unite$ States sha -e veste$ in one S#pre&e Co#rt, an$ in s#ch inferior Co#rts as the Con'ress &a! fro& to ti&e or$ain an$ esta- ish . . .1 .J. S#pra note 0/ at ;0*;.. .8. A. Sofaer, Aar, 4orei'n Affairs, an$ Constit#tiona (o9erF The Ori'ins J@ 6/.8J7. .0. +. Ma$ison, The 4e$era ist No. >8 at ?@;*?@? 6ne9 A&erican Li-rar! E$. /.J/7. ... +. Ma$ison, The 4e$era ist No. >0 at ?>? 6B. Ari'ht E$. /.J/7. /@@. ?>? US 58., J?5 6/.5;7. /@/. >;> US / 6/.8J7. /@;. I$. at /;/. /@?. >?? US >;5, >?? 6/.887. /@>. I$. /@5. J? (hi . /?. 6/.?J7.

/@J. I$. at /5J. /@8. I$. at /5J*/58. /@0. J8 (hi . J; 6/.?.7. /@.. I$. at 8?*8>. //@. An'ara v. E ectora Co&&ission, s#pra note ??. ///. I$. //;. I$. //?. /.08 Const., Artic e 2III, Sec. /. In Sinon v. Civi Service Co&&ission, ;/5 SCRA >/@ 6/..;7, the Co#rt $efine$ 'rave a-#se of $iscretion as 1s#ch capricio#s an$ 9hi&sica e"ercise of ,#$'&ent as is e:#iva ent to ac= of ,#ris$iction. The a-#se of $iscretion &#st -e patent an$ 'ross as to a&o#nt to an evasion of positive $#t! or a virt#a ref#sa to perfor& a $#t! en,oine$ -! a9, or to act at a in conte&p ation of a9, as 9here the po9er is e"ercise$ in an ar-itrar! an$ $espotic &anner -! reason of passion or hosti it!.1 //>. The accepte$ &eanin' of 1po itica :#estion1 is that 19here the &atter invo ve$ is eft to a $ecision -! the peop e actin' in their soverei'n capacit! or to the so e $eter&ination -! either or -oth the e'is ative or e"ec#tive -ranch of the 'overn&ent, it is -e!on$ ,#$icia co'ni3ance. Th#s it 9as that in s#its 9here the part! procee$e$ a'ainst 9as either the (resi$ent or Con'ress, or an! of its -ranches for that &atter, the co#rts ref#se$ to act.1 See A:#ino v. (once Enri e, 5. SCRA /0?, /.J 6/.8>7. //5. I RECOR%S at >?>. //J. I RECOR%S at >>?. (ertinent part of the $e i-eration of the $e e'ates of the Constit#tiona Co&&ission are hereto :#ote$, vi3F 4R. BERNAS. . . . On another point, is it the intention of Section / to $o a9a! 9ith the po itica :#estion $octrineK MR. CONCE(CION. No. 4R. BERNAS. It is not. MR. CONCE(CION. No -eca#se 9henever there is an a-#se of $iscretion, a&o#ntin' to ac= of ,#ris$iction. . . 4R. BERNAS. So, I a& satisfie$ 9ith the ans9er that it is not inten$e$ to $o a9a! 9ith the po itica :#estion $octrine. MR. CONCE(CION. No certain ! not. Ahen this provision 9as ori'ina ! $rafte$, it so#'ht to $efine 9hat is ,#$icia po9er. B#t the Bent e&an 9i notice it sa!s, 1,#$icia po9er inc #$es1 an$ the reason -ein' that the $efinition that 9e &i'ht &a=e &a! not cover a possi- e

areas. 4R. BERNAS. So it is not an atte&pt to so ve the pro- e&s arisin' fro& po itica :#estion $octrine. MR. CONCE(CION. It $efinite ! $oes not e i&inate the fact that tr# ! po itica :#estions are -e!on$ the pa e of ,#$icia po9er. //8. /88 SCRA JJ0 6/.0.7. //0. I$. at J.5*J.J. //.. Bon$oc v. (ine$a, ;@/ SCRA 8.; 6/../7. /;@. S#pra note ?.. /;/. Lerias v. HRET, ;@; SCRA 0@0 6/../7. /;;. Mo'#eis, +r. v. COMELEC, /@> SCRA 58J 6/.0/7. /;?. %ario v. Mison, /8J SCRA 0> 6/.0.7. /;>. Rivera, La9 of (#- ic A$&inistration /85 6/.5J7. /;5. /.08 Const., Art. 2III. 1Sec. ;. The Con'ress sha have the po9er to $efine, prescri-e, an$ apportion the ,#ris$iction of the vario#s co#rts -#t &a! not $eprive the S#pre&e Co#rt of its ,#ris$iction over cases in Section 5 thereof. No a9 sha -e passe$ reor'ani3in' the ,#$iciar! 9hen it #n$er&ines the sec#rit! of ten#re of its &e&-ers.1 /;J. Ahite, Intro$#ction to the St#$! of (#- ic A$&inistration 5.; 6/.>07. /;8. +avits S E ein, Con'ressiona Oversi'ht an$ The Le'is ative 2etoF A Constit#tiona Ana !sis, 5; NYU La9 Rev. >55, >J@ 6/.887. /;0. I$. at >J/. /;.. Hearin's of the S#-co&&ittee on R# es S Or'ani3ations of the Ho#se Co&&ittee on R# es, +#ne /5, /... WhttpFII999.ho#se.'ovIsearch.8c'iIs.8Xc'...ctionY /?@. Mi , Consi$erations on Representative %e&ocrac! 6/.>87. /?/. I$. /?;. Ai son, 1Co&&ittee or Ca-inet Bovern&entK,1 III Over an$ Month ! ;85 6/00>7, :#ote$ in Bross, The Le'is ative Str#'' eF A St#$! in Socia Co&-at /?8 6/.5?7. /?? +avits S E ein, s#pra note /;8 at >5.*>J@. /?>. I$. at >J@.

/?5. Stra#ss, The ( ace of A'encies in Bovern&entF Separation of (o9ers an$ the 4o#rth Branch, 0> Co #&-ia La9 Rev. 58?, 50? 6/.0>7. /?J. Martin, The Le'is ative 2eto an$ the Responsi- e E"ercise of Con'ressiona (o9er, J0 2a. L. Rev. ;5?, ;J> 6/.0;7. /?8. Bross, s#pra note /?;. /?0. I-i$. /?.. (hi ippine Constit#tion Association v. Enri:#e3, ;?5 SCRA 5@J 6/..>7. />@. I$. at 5;;. />/. Rivera, s#pra note /;> at /88*/80. />;. S#pra note 0/ at ?@>. />?. I-i$. />>. 1The Secretaries &a! -e ca e$, an$ sha -e entit e$ to -e hear$, -! either of the t9o Ho#ses of the Le'is at#re, for the p#rpose of reportin' on &atters pertainin' to their %epart&ents, #n ess the p#- ic interest sha re:#ire other9ise an$ the Bovernor*Benera sha so state in 9ritin'.1 See I Ar#e'o, s#pra note ;8 at >>0. />5. I$. />J. I$. at >>0*>>.. />8. I$. />0 I$. at >>.. />.. /.?5 Const., Art. 2I, Sec. /@. /5@. Bernas, s#pra note // at J0;. /5/. II RECOR% >J. /5;. I$. at /??. /5?. I$. /5>. /.08 Const., Art. 2II, Sec. /J. /55. Bross, s#pra note /?; at /?0. /5J. I$. /58. I$. /50. Investi'ative Oversi'htF An Intro$#ction to the La9, (ractice an$ (roce$#re of Con'ressiona In:#ir!, CRS Report for Con'ress, Apri 8, /..5 WhttpFII999.ho#se.'ovIsearch.8Ic'iIs.8UctionY ast accesse$ on Ma! ;>, ;@@?. /5.. Aat=ins v. Unite$ States, ?5> U.S. /80, /.>*/.5 6/.587.

/J@. >;/ U.S. >./ 6/.857. /J/. I$. at 5@>. /J;. S#pra note /5. at /08. /J?. S#pra note /50. /J>. ;8; U.S. /?5 6/.;87. /J5. I$. /JJ. Ei -o#rn v. Tho&son, /@? U.S. /J0, ;@> 6/00@7. /J8. Unite$ States v. R#&e !, ?>5 U.S. >/ 6/.5?7. /J0. Ai =inson v. Unite$ States, ?J5 U.S. >@0*>@. 6/.J/7. /J.. 08 (hi . ;. 6/.5@7. /8@. I$. at >;. The :#estion invo ve$ the i$entit! of the person to 9ho& Arna# t a e'e$ ! 'ave the a&o#nt of (>>@,@@@.@@. /8/. I$. at >5. /8;. I$. at J?. The Co#rt opine$F 1B! ref#sin' to ans9er the :#estion, the 9itness has o-str#cte$ the perfor&ance -! the Senate of its e'is ative f#nction, an$ the Senate has the po9er to re&ove the o-str#ction -! co&pe in' the 9itness to ans9er the :#estions thr# restraint of his i-ert! #nti he sha have ans9ere$ the&. That po9er s#-sists as on' as the Senate, 9hich is a contin#in' -o$!, persists in perfor&in' the partic# ar e'is ative f#nction invo ve$. To ho $ that it &a! p#nish the 9itness for conte&pt on ! $#rin' the session in 9hich the investi'ation 9as -e'#n, 9o# $ -e to reco'ni3e the ri'ht of the Senate to perfor& its f#nction -#t at the sa&e ti&e to $en! it an essentia an$ appropriate &eans for its perfor&ance. Asi$e fro& this, if 9e sho# $ ho $ that the po9er to p#nish for conte&pt ter&inates #pon the a$,o#rn&ent of the session, the Senate 9o# $ have to res#&e the investi'ation at the ne"t an$ s#ccee$in' sessions an$ repeat the conte&pt procee$in's a'ainst the 9itness #nti the investi'ation is co&p ete$ D an a-s#r$, #nnecessar!, an$ ve"atio#s proce$#re, 9hich sho# $ -e avoi$e$.1 /8?. I$. at >J*>8. One -i prohi-its the Secretar! of +#stice or an! other $epart&ent hea$ fro& $ischar'in' f#nctions an$ e"ercisin' po9ers other than those attache$ to his office, 9itho#t previo#s con'ressiona a#thori3ation. Another prohi-its -rothers an$ near re atives of an! (resi$ent of the (hi ippines fro& intervenin' $irect ! or in$irect ! an$ in 9hatever capacit! in transactions in 9hich the Bovern&ent is a part!, &ore partic# ar ! 9here the $ecision ies in the han$s of the e"ec#tive or a$&inistrative officers 9ho are appointees of the (resi$ent. 4ina !, one -i provi$es that p#rchases of the R#ra (ro'ress A$&inistration of -i' an$e$ estates at the price of (/@@,@@@.@@ or &ore, an$ oans '#arantee$ -! the Bovern&ent invo vin' (/@@,@@@.@@ or &ore, sha not -eco&e effective 9itho#t previo#s con'ressiona

confir&ation. /8>. I$. /85. I$. at >0. /8J. I$. at J>. /88. I$. at J5. /80. I$. at JJ. /8.. ;@? SCRA 8J8 6/../7. /0@. Ho#se R# es an$ (roce$#re Bovernin' In:#iries in Ai$ of Le'is ation, a$opte$ on A#'#st ;0, ;@@/. /0/. I$. at Section / 6a7. /0;. I$. at Section / 6-7. /0?. I$. at Section /6-./7 to 6-.>7. /0>. I$. at Section ?. /05. I$. at Section /. /0J. I$. at Section 8. /08. I$. at Section .. /00. I$. at Section J. /0.. I$. at Section 8. /.@. Bross, s#pra note /?; at /?8. /./. No9a=, et a ., s#pra note 0; at ;5J. /.;. (#- ic (apers of the (#- ic (apers of the (resi$ents, Her-ert Hoover, /.;., p. >?; 6/.8>7. /.?. Act of +#ne ?@, /.?;, T >@8, >8 Stat >/>. /.>. See >J; US ./., .J. 6/.0?7, 88 L E$ ;$ ?/8, ?5J. 6Ahite, +., $issentin'7. /.5. I$. /.J. I$. /.8. I$. at .8@< I$. at ?58. /.0. I$.< I$. /... 4ro& /.?; to /.?., five stat#tes 9ere effecte$< fro& /.>@*/.>., nineteen 6/.7 stat#tes< -et9een /.5@*/.5., thirt!*fo#r 6?>7 stat#tes< fro& /.J@*/.J., fort!*nine 6>.7< an$ fro& /.8@*/.85, at east one h#n$re$ si"t!*three 6/J?7 s#ch provisions 9ere inc #$e$ in ei'ht!*nine 60.7 a9s. See A-o#re3=, The Con'ressiona 2etoF A

Conte&porar! Response to E"ec#tive Encroach&ent on Le'is ative (rero'atives, 5; In$ L Rev ?;?, ?;> 6/.887. ;@@. Tri-e, I A&erican Constit#tiona La9 />; 6;@@@7. ;@/. I$. ;@;. +avits an$ E ein, s#pra note /;8 at >J@. ;@?. Br#ff S Be horn, Con'ressiona Contro of A$&inistrative Re'# ationF A St#$! of Le'is ative 2etoes, .@ Harv L Rev /?J., /?8? 6/.887. ;@>. I$. See a so Ste9art, Constit#tiona it! of Le'is ative 2eto, /? Harv L +. Le'is 5.? 6/.8J7. ;@5. A-o#re3=, s#pra note /.. at ?;8. ;@J. +avits S E ein, s#pra note /;8 at >J/*>J;. ;@8. I$. ;@0. >J; US ./. 6/.0?7, 88 L E$ ;$ ?/8. ;@.. I$. at .5;*.55. ;/@. Cons#&er Ener'! v. 4e$era Ener'! Re'# ation Co&&ission, J8? 4.;$ >;5 6%.C.Cir. /.0;7, affir&e$ s#- no&., (rocess Bas Cons#&ers Bro#p v. Cons#&ers Ener'! Co#nci of A&erica, >J? U.S. /;/J, /@? S.Ct. ?55J, 88 L.E$.;$ />@; 6/.0?7, rehearin' $enie$ >J? U.S. /;5@, /@> S.Ct. >@, 88 L.E$.;$ />58 6/.0?7. ;//. Cons#&ers Union of the Unite$ States, Inc. v. 4e$era Tra$e Co&&ission, J./ 4.;$ 585 6%.C.Cir. /.0;7, affir&e$ s#- no&., (rocess Bas Cons#&ers Bro#p v. Cons#&ers Ener'! Co#nci of A&erica, >J? U.S. /;/J, /@? S.Ct. ?55J, 88 L.E$.;$ />@;. ;/;. E:#a Opport#nit! Co&&ission v. A state Ins#rance Co&pan!, 58 4.S#pp. /;;>, /@> S.Ct. ?>.., 0; L.E$.;$ 0/@ 6/.0>7, case re&an$e$ 8>@ 4.;$ .JJ 65th Cir. /.0>7, E:#a Opport#nit! Co&&ission v. The Hernan$o Ban=, Inc., 8;> 4.;$ //00 65th Cir. /.0>7. ;/?. /.08 Constit#tion, Artic e IH*C, Sec. ; 6/7. ;/>. I$. at Sec. ; 6?7. ;/5. S#&# on' v. COMELEC, 8? (hi . ;00, ;.> 6/.>/7. ;/J. Naciona ista (art! v. Ba#tista, 05 (hi . /@/, /@J*/@8 6/.>.7. ;/8. (hi ippine (o itica La9 ?0?*?0J 6/.J;7. ;/0. /.8? Constit#tion, Artic e HII*C. ;/.. Arat#c v. COMELEC, 00 SCRA ;5/, ;8@ 6/.8.7. ;;@. /.8? Const., Art. HII*C, Sec. ;.

;;/. /.08 Const., Art. IH*C, Sec. ;. ;;;. I$. at Art. HI*A, Sec. ;. ;;?. I$. at Art. IH*C, Sec. / 6;7. ;;>. I-i$. ;;5. I-i$. ;;J. /.08 Const., Art. IH*A, Sec. J. ;;8. I$. at Art. IH, Sec. 0. ;;0. Naciona ista (art! v. %e 2era, 05 (hi . /;J 6/.>.7. ;;.. I$. at /?@. ;?@. /.08 Const., Art. IH*A, Sec. 8. ;?/. Arat#c v. COMELEC, 00 SCRA ;5/, ;8/*;8; 6/.8.7. ;?;. /.08 Const., Art. IH, Sec. ?. ;??. I$. at Art. IH, Sec. 5. ;?>. I$. at Art. IH*C, Sec. ; 6.7. ;?5. ;/0 SCRA ;5? 6/..?7. ;?J. B.(. B '. 00/, Section 5; 6c7. ;?8. Ba ar$o v. Ta-a&o, +r., s#pra note ;?5 at ;J?*;J>. ;?0. Mar#ho& v. COMELEC, >8? SCRA ??/ 6;@@@7. ;?.. S#&# on' v. COMELEC, 8? (hi . ;00, ;.J 6/.>/7. YNARES*SANTIABO, +.F /. Constit#tion, Art. 2, Secs. / an$ ;. In a$$ition to :#a ifications, Artic e 2 a so ca s for a s!ste& 9hich ins#res the secrec! an$ sanctit! of the -a ot. ;. Constit#tion, Art. 2, Sec. / provi$esF 1S#ffra'e &a! -e e"ercise$ -! a citi3ens of the (hi ippines not other9ise $is:#a ifie$ -! a9, 9ho are at east ei'hteen !ears of a'e, an$ 9ho sha have resi$e$ in the (hi ippines for at east one !ear an$ in the p ace 9herein the! propose to vote for at east si" &onths i&&e$iate ! prece$in' the e ection. No iterac!, propert!, or other s#-stantive re:#ire&ent sha -e i&pose$ on the e"ercise of s#ffra'e.1 ?. >. Constit#tion, Art 2, Sec. ;, first para'raph. Me&oran$#& for (etitioner, p. J.

5. U.S. v. Sto. NiMo, /? (hi . />/ 6/.@.7< Arenas v. Cit! of San Car os, B.R. No. L*?>@;>, 5 Apri /.80, 0; SCRA ?/0.

J. U.S. v. Sto. NiMo, s#pra< Co&&issioner of Interna Reven#e v. 4i ipinas Co&pania $e Se'#ros, /@8 (hi . /@55 6/.J@7. 8. Ro&#a $e3*Marcos v. COMELEC, B.R. No. //..8J, /0 Septe&-er /..5, ;>0 SCRA ?@@. 0. Ro&#a $e3 v. Re'iona Tria Co#rt, B.R. No. /@>.J@, /> Septe&-er /..?, ;;J SCRA >@0, cite$ in (apan$a!an v. COMELEC, B.R. No. />8.@., /J Apri ;@@;. .. Barit#a v. Co#rt of Appea s, B.R. No. /@@8>0, ? 4e-r#ar! /..8, ;J8 SCRA ??/. /@. //. /;. /?. B.R. No. 000?/, 0 Nove&-er /..@, /./ SCRA ;;.. Citin' ? C.+.S. T 8J. O"for$ Universa %ictionar!, 2o . I, pp. .J/ an$ /;>.. I$., at p. /055, 2o . II.

/>. II RECOR% O4 THE CONSTITUTIONAL COMMISSIONF (ROCEE%INBS AN% %EBATES, p. //. /5. /J. /8. /0. I$. I$., at ?>. I$., at ?5. I$.< Ita ics s#pp ie$.

/.. Esti&ate$ N#&-er of Overseas 4i ipino Aor=ers 6O4AS7 an$ Overseas 4i ipinos, Me&oran$#& for the (etitioner, Anne" 1B1. ;@. II RECOR% O4 THE CONSTITUTIONAL COMMISSIONF (ROCEE%INBS AN% %EBATES, pp. ?>*?5. ;/. S. No. ;/@> on Secon$ Rea$in', Octo-er ., ;@@;, Recor$s of the Senate, pp. .@*.;. ;;. 4a!pon v. )#irino, .J (hi . ;.> 6/.5>7< N#va v. B#ra!, 5; (hi . J>5 6/.;07< Eoh v. Co#rt of Appea s, B.R. No. L*>@>;0, /8 %ece&-er /.85, 8@ SCRA ?@5< Cara-a o v. Rep#- ic, //> (hi . ../ 6/.J;7< 4# e v. Co#rt of Appea s, B.R. Nos. L* >@5@; S >;J8@, ;. Nove&-er /.8J, 8> SCRA /... ;?. ;>. ;5. I$. S#pra, note 0. S#pra, note 8.

;J. Marcos, et a . v. Hon. Ra# Man' ap#s, et a ., B.R. No. 00;//, /5 Septe&-er /.0., /88 SCRA JJ0. ;8. S#pra, note /@.

;0. ;.. ?@. ?/.

Bresha&s La9, Ae-sterGs Seventh Ne9 Co e'iate %ictionar!, p. ?J8. S#pra. Constit#tion, Art. 2II, Sec. > 6>7. Constit#tion, Art. 2, Sec. ;.

?;. Be in$a A. A:#ino, (rofessor of (o itica Science an$ Asian St#$ies at the Universit! of Ha9aii an$ %irector of its Center for (hi ippine St#$ies has p#- ishe$ her o-servations in the (hi ippine In:#irer, +#ne 0, ;@@? iss#e, pa'e 1A*.1. ??. ?>. ?5. ?J. Me&oran$#& for (etitioner, Anne" 1B1. I$. S#pra, note ?;. S#pra, note ;/.