BANAT v COMELEC

21 April 2009
Ponente: Justice Carpio, with the Supreme Court sitting en banc
SUMMAR: !A"A# et al$ %uestion C&M'('C)s allocation o* seats reser+e, *or part-.list representati+es un,er
Sections 11 an, 12 o* RA /901$ #he Supreme Court interprets the law an, *ormulates a whole new wa- o*
,etermining who gets the seats$ 1t sets asi,e C&M'('C)s original lineup 2as e3presse, in "!C Resolution "o$ 0/.405
an, clari6es that ma7or political parties cannot participate in part-.list elections an, that the allocation o* 208 o* the
seats in 9ouse o* Representati+es to Part-.(ist representati+es is a ceiling an, not man,ator-$
:AC#S:
- 10 Ma- 200/ 'lection inclu,e, elections *or part-.list representati+es
o C&M'('C counte, 1;,9;0,900 +otes cast *or 9< parties un,er the Part-.(ist S-stem
- Sec. 11 of RA 7941 2Part-.(ist S-stem Act5:
o Parties will =e ran>e, *rom highest to lowest num=er o* +otes garnere, ,uring elections
o parties with at least 28 o* the total +otes *or the part-.list s-stem are entitle, to 1 seat each
o #hose with more than 28 can ha+e a,,itional seats in proportion to their total num=er o* +otes
o 'ach part- shall =e entitle, to a ma3imum o* < seats
- Sec. 12 of RA 7941: 2*ormula prescri=e, in Allocation o* Part-.(ist Seats, Anne3 ?A@ o* C&M'('C
Resolution 2A0/ o* 2; June 19945
o C&M'('C will ran>, tall-, an, allocate part-.list representati+es accor,ing to percentage o* +otes
o=taine, against the total nationwi,e +otes cast
o A,,itional seats will =e allocate, in proportion to the percentage o* +otes o=taine, =- each group:
in relation to total nationwi,e +otes
A*ter ,e,ucting correspon,ing +otes o* those allotte, seats un,er 28 threshol, rule
- 9 Jul- 200/: C&M'('C, sitting as "!C 2"ational !oar, o* Can+assers5, promulgate, NBC Resolution No.
07-0$
o Resolution proclaime, 1< parties as winners
o 1n CIBAC v COMELEC an, Veterans v COMELEC: *ormula *or a,,itional seats with more than 28
+otes will =e ,etermine, onl- a*ter all part-.list =allots ha+e =een completel- can+asse,
- Pursuant to 0/.40, "!C promulgate, NBC Resolution No. 07-72, ,eclaring allocation o* a,,itional seats
accor,ing to Veterans *ormula 2:irst Part- Rule5
o !U9A has the most num=er o* +otes 21,1/A,/0/, which is /$28 o* the total +otes *or the part-.list
s-stem5
#here*ore, !U9A is the ?6rst part-@ accor,ing to Veterans an, CIBAC.
Bith /$28 +otes, it is entitle, to 2 a,,itional seats accor,ing to Veterans *ormula *or
allocating a,,itional seats *or the 6rst part-
o &ther parties entitle, to a,,itional seats *ollow a ,iCerent *ormula, =ase, on num=er o* a,,itional
seats allocate, to 6rst part-
!a-an Muna, C1!AC, DA!R1'(A, an, AP'C entitle, to 1 a,,itional seat each
- 2/ June 2002: !A"A# petitions to Proclaim the :ull "um=er o* Part-.(ist Representati+es Pro+i,e, =- the
Constitution 2,oc>ete, as NBC No. 07-041 =e*ore the "!C5 *or the *ollowing relie*s:
o #hat *ull num=er 22085 o* Part-.(ist representati+es shall =e proclaime,
o Paragraph 2=5, Section 11 an, Section 12 o* RA /901 shoul, =e harmoniEe, with Section 0, Article F1
o* the Constitution: Section 12 o* RA /901 shoul, onl- =e applica=le to the 6rst part-.list
representati+e seats to =e allotte, on the =asis o* their initial ran>ing
o <.seat limit prescri=e, =- RA /901 =e applie,
o All part-.list groups shall initiall- =e gi+en seats correspon,ing to e+er- 28 +ote recei+e, an, an-
a,,itional seats will =e allocate, in accor,ance with Section 12 o* RA /901 2in relation to total
nationwi,e +otes cast a*ter ,e,ucting correspon,ing +otes allotte, seats un,er 28 threshol, rule
o &R alternati+el-, ,eclare Section 11 o* RA /901 unconstitutional an, that Section 12 o* RA /901
shoul, =e the proce,ure to =e *ollowe,
- < Aug 200/ "!C promulgate, NBC Resolution No. 07-!! , sa-ing through "!C (egal Droup 9ea,, Att-$
Alio,en G$ Galaig: BANAT"s #etition is $oot %n& %c%&e$ic than>s to the *act that on 10 Ma- 200/, the
total num=er o* seats o* each winning part- was ,etermine, to =e pursuant to the ,ecision o* Veterans v
COMELEC
- BANAT 'le& #etition *or certiorari an, man,amus %ss%ilin( NBC Resolution No. 07-!! ruling 2"&# a
motion *or reconsi,eration5
- 9 Jul- 200/, B%)%n Mun%* A+ono* %n& A Te%c,e- %s.e& COMELEC 2acting as "!C5 to -econsi&e-
&ecision to use Veterans fo-$ul% state, in "!C Resolution "o$ 0/.40
o Veterans *ormula +iolates the Constitution A"G RA /901
o C&M'('C ,enie, reconsi,eration
- 9 Jul- 200/, C&M'('C proclaime, three more part-.list organiEations entitle, to one guarantee, seat un,er
the Part-.(ist S-stem an, a total o* 1; part-.list organiEations were proclaime, as o* 19 Ma- 200A
PR'S'"# CAS' :AC#S:
- !A"A# =rought the C$ issues =e*ore the Supreme Court:
o 1s the 208 allocation *or part-.list representati+es man,ator- or a ceilingH
o 1s Section 11 2=5)s <.seat limit constitutionalH
o 1s Section 11 2=5)s 28 threshol, to %uali*- *or one seat constitutionalH
o 9ow will the part-.list representati+es =e allocate,H
- !a-an Muna, A #eacher, an, A=ono raise, the C$ issues:
o C&M'('C committe, a gra+e a=use o* ,iscretion in promulgating "!C Resolution "o$ 0/.40 to
implement :irst.Part- Rule in allocating seats
o Fiolates constitutional principle o* proportional representation
o :irst Part- Rule +iolates RA /901
o Fiolates the ?:our 1n+iola=le Parameters@ o* the Philippine part-.list s-stem as pro+i,e, *or in
Veterans
o 1* C&M'('C ,i,n)t commit a gra+e a=use o* ,iscretion since it was 7ust *ollowing the Veterans ruling,
this Petition is still 7usticia=le, since the issues are constitutional an, o* transcen,ental importance
1SSU'S:
- 1s the 208 allocation *or part-.list representati+es man,ator- or a ceilingH
- 1s Section 11 2=5)s <.seat limit constitutionalH
- 1s Section 11 2=5)s 28 threshol, to %uali*- *or 1 seat constitutionalH
- 9ow will the part-.list representati+es =e allocate,H
- Goes the Constitution prohi=it ma7or political parties *rom participating in part-.list electionsH Can the- =e
=arre, *rom participating thereH
SC Ruling:
- Petitions ha+e partial merit$
o Petition is partiall- grante,$
Resolutions o* "!C "o$ 0/.001 2P(5 an, "!C "o$ 0/.40 are set asi,e
28 threshol, in ,istri=uting a,,itional part-.list seats is unconstitutional, =ut it)s
constitutional *or ,etermining who gets guarantee, seats
Allocation o* a,,itional seats will =e in accor,ance with the proce,ure outline, in the te3t
2#a=le <I it in+ol+es 6,,l- math stuC5
Ma7or parties are ,isallowe, *rom participating in part-.list elections
- 4 inviol%+le #%-%$ete-s of /,ili##ine-st)le #%-t)-list elections st%te& in Veterans 0
1. 201 %lloc%tion0 com=ine, num=er o* all part-.list congressmen shall not e3cee, 208 o* the total 9ouse
o* Representati+es mem=ership
2. 21 t,-es,ol&0 onl- parties with a minimum o* 28 total +ali, +otes cast *or the part-.list s-stem are
%uali6e, to ha+e seat
3. 2-se%t li$it0 each part- shall onl- ha+e a ma3imum o* < seatsI 1 ?%uali*-ing@ seat an, 2 a,,itional seats
4. /-o#o-tion%l -e#-esent%tion0 a,,itional seats will =e compute, ?in proportion to their total num=er o*
+otes@
- T,e Veterans fo-$ul% ,%s $%t,e$%tic%l 3%4s in te-$s of 5#-o#o-tion%l -e#-esent%tion*6 which is
wh- the Court is compelle, to re+isit it
o Sec$ ; o* Article F1 o* the Constitution:
215 9ouse o* Representati+es will not ha+e more than 2;0 mem=ers unless otherwise 63e, =-
law, electe,J
:rom legislati+e ,istricts in accor,ance with respecti+e populations
:rom those electe, through part-.list s-stem o* registere, national, regional, an,
sectoral parties or organiEations
225 Part-.list representati+es will constitute 208 o* total num=er o* representati+es
o Veterans fo-$ul% to &ete-$ine nu$+e- fo- se%ts %v%il%+le to #%-t)-list -e#-esent%tives &oes
not &evi%te f-o$ t,e Constitution, which computes num=er o* seats *or part-.list representati+es
*rom the num=er o* legislati+e ,istricts
#here are ;; seats a+aila=le to part-.list representati+es
o Constitution: MA""'R o* allocating seats to part-.list reps is le*t to the wis,om o* the legislature
Feterans:
:irst Part- Rule
Justice Men,oEa)s ,issent: alternati+el-, use Derman-)s "ieme-er *ormula
RA /901: paragraphs 2a5 an, 2=5 o* Sections 11 an, 12
- Petitioners an, inter+enors ha+e a pro=lem with the Veterans *ormula =ecause it interprets the clause, ?in
proportion to their total num=er o* +otes@ to =e in proportion to the +otes o* the 6rst part-, which is contrar-
to RA /901
- SC -ules t,%t t,e 21 t,-es,ol& %s foun& in Section 11 is unconstitution%l ONL7 in co$#utin( t,e
%lloc%tion of %&&ition%l se%ts
o 1t ma>es it mathematicall- impossi=le to achie+e the ma3imum num=er o* a+aila=le part- list seats
when the num=er e3cee,s ;0
o 1t *rustrates the attainment o* the permissi+e ceiling that 208 o* the 9ouse o* Representati+es
mem=ers will =e part-.list representati+es
- /-oce&u-e to +e o+se-ve& fo- %lloc%tion of #%-t)-list -e#-esent%tive se%ts un&e- Sec. 11
o 1n computing *or a,,itional seats, guarantee, seats won)t =e inclu,e,, since the-), alrea,- =een
allocate,I *ractional seats are ,isregar,e,
o Veterans *ormula is set asi,eI a "'B :&RMU(A is e3presse, *or a,,itional seatsI allocation o*
a,,itional seats is not limite, to 28.ers: 2e3presse, in #A!(' < in the te3t5
"ote: this in+ol+es math stuC, so let)s 7ust s>ip it an, sa- that the- >eep on ,oing it until all o*
the a+aila=le seats *or part-.listers are occupie,
o A*ter all o* the computing is ,one, all ;; seats are 6lle,, an, there are <4 winning part-.list
organiEations, an, there was a ma3imum num=er o* < seats *or each part-
- &n the participation o* ma7or political partiesJ
o :ramers o* the Constitution inten,e, political parties to participate in part-.list elections through
their sectoral wings an, can organiEe or aCiliate with their chosen sector or sectors
o RA /901 also inten,e, ma7or political parties to participate in part-.list elections$ To e8clu&e $%9o-
#olitic%l #%-ties 4oul& +e %(%inst t,e Constitution %n& RA 7941
o Sec$ 9 o* RA /901 oCers %uali6cations *or part-.list nominees
Sectoral part-KorgKcoalition nominee must =e a mem=er o* the sector
"atural.=orn Philippine citiEen, registere, +oter, resi,ent o* the Philippines *or at least 1 -ear,
a=le to rea, an, write, at least 2; -ears ol,, an, a =ona 6,e mem=er o* the part- he see>s to
represent *or at least 90 ,a-s =e*ore the ,a- o* election
outh sector nominees must not =e more than <0 on the ,a- o* the election
- RA 7941"s 2-se%t c%# is v%li&: it #-events %n) #%-t) f-o$ &o$in%tin( t,e #%-t)-list elections
- 201 %lloc%tion is % ceilin(: neit,e- RA 7941 no- t,e Constitution $%n&%tes t,%t %ll ;; se%ts +e
'lle&
- !U# the Supreme Court has ,eci,e, that the -ulin( in Veterans +e continue& 2A./ +ote5
o <is%llo4e& $%9o- #olitic%l #%-ties f-o$ #%-tici#%tin( in #%-t)-list elections, whether ,irectl-
or in,irectl-
- Separate opinion that allowe, *or A./ +ote wasn)t inclu,e, in the online te3t, =ut the ,iscussion on the
Veterans *ormula was in the notes$
BERNAS=
- RA /901 is the implementing statute *or Art$ F1 Sec$ ;
- #otal composition o* 9ouse o* Representati+es: not more than 2;0 mem=ers, unless otherwise pro+i,e, =-
law
- Classi6cation *or mem=ers:
o Gistrict representati+es L represent one congressional ,istrict each
o Part-.list representati+es L electe, throught part-.list s-stem
o Sectoral representati+es L e3iste, onl- until 199A
- Part-.list s-stem:
o registere,, national, regional, an, sectoral parties or organiEations su=mit a list o* can,i,ates
arrange, in or,er o* priorit-
o ,uring congressional elections, the parties are +ote, *or an, the num=er o* seats each part- will get
will ,epen, on the num=er o* +otes garnere, nationwi,e
o ,etails *or operation o* part-.list s-stem will =e pro+i,e, =- law
- Reason *or intro,uction o* part- list s-stem:
o 9ope*ull-, so that s-stem will ,emocratiEe political power =- encouraging growth o* a multi.part-
s-stem
- &rganiEations that can participate in the part- list s-stem:
o Must represent the marginaliEe, an, un,errepresente, in Sec$ ; o* RA /901
o Political parties who wish to participate must compl-
o Religious sector can)t =e represente,
o Must not =e ,is%uali6e, un,er Sec$ 4 o* RA /901
o Must not =e a =o,- assiste, =- the go+ernment
o "ominees must compl- with re%uirements o* law
o "ominee must =e a=le to contri=ute to *ormulation an, enactment o* legislation that will =ene6t the
nation 2!a-ani + C&M'('C5
- Sec$ 4 o* RA /901
o A*ter ,ue notice an, hearing, C&M'('C can remo+e or cancel the registration o* an- part- on the C
groun,s:
1t)s a religious sect
1t a,+ocates +iolence or unlaw*ul means to see> its goal
1t)s a *oreign part-
1t)s recei+ing support *rom a *oreign go+ernment, whether ,irectl- or in,irectl-, through a
thir, part-
1t +iolates or *ails to compl- with laws relating to elections
1t ,eclares untruth*ul statements in its petition
1t ,i,n)t e3ist *or at least 1 -ear
1t ,i,n)t participate in the last 2 elections or ,oesn)t get at least 28 o* the +otes cast in the
last 2 elections *or the constituenc- in which it has registere,$
- Congress was +este, with the =roa, power to ,e6ne an, prescri=e the mechanics o* the part-.list s-stem
- 208 allocation *or part- list representati+es ,oesn)t ha+e to =e 6lle,$ Congress wante, to ensure that onl-
those parties with a suCicient num=er o* constituents are represente,
- Religious lea,ers can =e electe, as sectoral representati+es
- (egislati+e ,istricts 2an, cities5 will compromise territor- with at least 2;0,000 people 2at least 1
representati+e each5, to support concept o* e%ualit- or representation, an, each pro+ince is entitle, to one
representati+e, regar,less o* population
- Derr-man,ering is not allowe,, an, i* a can,i,ate who recei+e, the highest num=er o* +otes is ,is%uali6e,,
the can,i,ate with the secon, highest num=er o* +otes ,oesn)t automaticall- assume the oCice