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Facts:May11,1998,thefirstelectionforpartylistrepresentationwasheldsimultaneouslywiththenationalelections.
Atotalofonehundredtwentythree(123)parties,organizationsandcoalitionsparticipated.OnJune26,1998,the
COMELECenbancproclaimedthirteen(13)partylistrepresentativesfromtwelve(12)partiesandorganizations,which
hadobtainedatleasttwopercentofthetotalnumberofvotescastforthepartylistsystem.Twooftheproclaimed
representativesbelongedtoPetitionerAPEC,whichobtained5.5percentofthevotes.
OnJuly6,1998,PAGASA(People'sProgressiveAllianceforPeaceandGoodGovernmentTowardsAlleviationof
PovertyandSocialAdvancement)filedwiththeCOMELECa"PetitiontoProclaim[the]FullNumberofPartyList
RepresentativesprovidedbytheConstitution."Itallegedthatthefillingupofthetwentypercentmembershipofparty
listrepresentativesintheHouseofRepresentatives,asprovidedundertheConstitution,wasmandatory.Itfurther
claimedthattheliteralapplicationofthetwopercentvoterequirementandthethreeseatlimitunderRA7941would
defeatthisconstitutionalprovision,foronly25nomineeswouldbedeclaredwinners,shortofthe52partylist
representativeswhoshouldactuallysitintheHouse.
Thereafter,nineotherpartylistorganizationsfiledtheirrespectiveMotionsforIntervention,seekingthesamerelief
asthatsoughtbyPAGASAonsubstantiallythesamegrounds.Likewise,PAGASA'sPetitionwasjoinedbyother
partylistorganizationsinaManifestationtheyfiledonAugust28,1998.TheseorganizationswereCOCOFED,Senior
Citizens,AKAP,AKSYON,PINATUBO,NUPA,PRP,AMIN,PCCI,AMMAKATIPUNAN,OCWUNIFIL,KAMPIL,
MAHARLIKA,AFW,WomenPower,Inc.,AngLakasOCW,FEJODAP,CUP,VeteransCare,BantayBayan,4L,
AWATU,PMP,ATUCP,ALUandBIGAS.
OnOctober15,1998,theCOMELECSecondDivisionpromulgatedthepresentassailedResolutiongrantingPAG
ASA'sPetition.Italsoorderedtheproclamationofherein38respondentswho,inadditiontothe14alreadysitting,
wouldthustotal52partylistrepresentatives.Itheldthat"atalltimes,thetotalnumberofcongressionalseatsmustbe
filledupbyeighty(80%)percentdistrictrepresentativesandtwenty(20%)percentpartylistrepresentatives."In
allocatingthe52seats,itdisregardedthetwopercentvoterequirementprescribedunderSection11(b)ofRA7941.
Instead,itidentifiedthree"elementsofthepartylistsystem,"whichshouldsupposedlydetermine"howthe52seats
shouldbefilledup.

Issue:Howtodeterminethewinnersofthesubjectpartylistelectioncanbesettledbyaddressingthefollowing
issues:
1.IsthetwentypercentallocationforpartylistrepresentativesmentionedinSection5(2),ArticleVIofthe
Constitution,mandatoryorisitmerelyaceiling?Inotherwords,shouldthetwentypercentallocationforpartylist
solonsbefilledupcompletelyandallthetime?
2.ArethetwopercentthresholdrequirementandthethreeseatlimitprovidedinSection11(b)ofRA7941
constitutional?
3.IftheanswertoIssue2isintheaffirmative,howshouldtheadditionalseatsofaqualifiedpartybe
determined?

Held:WHEREFORE,thePetitionsareherebypartiallyGRANTED.TheassailedResolutionsoftheCOMELECare
SETASIDEandNULLIFIED.Theproclamationsofthefourteen(14)sittingpartylistrepresentativestwoforAPEC
andoneeachfortheremainingtwelve(12)qualifiedpartiesareAFFIRMED.Nopronouncementastocosts.SO
ORDERED.

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Ratio:Insum,weholdthattheCOMELECgravelyabuseditsdiscretioninrulingthatthethirtyeight(38)herein
respondentparties,organizationsandcoalitionsareeachentitledtoapartylistseat,becauseitglaringlyviolatedtwo
requirementsofRA7941:thetwopercentthresholdandproportionalrepresentation.

blg22ac48c026a4)

Ca4221(/digests/category/ca

Indisregarding,rejectingandcircumventingthesestatutoryprovisions,theCOMELECeffectivelyarrogatedunto
itselfwhattheConstitutionexpresslyandwhollyvestedinthelegislature:thepowerandthediscretiontodefinethe
mechanicsfortheenforcementofthesystem.Thewisdomandtheproprietyoftheseimpositions,absentanyclear
transgressionoftheConstitutionorgraveabuseofdiscretionamountingtolackorexcessofjurisdiction,arebeyond
judicialreview.

4221)

TheCOMELEC,whichistaskedmerelytoenforceandadministerelectionrelatedlaws,cannotsimplydisregardan
actofCongressexercisedwithintheboundsofitsauthority.Asamereimplementingbody,itcannotjudgethe
wisdom,proprietyorrationalityofsuchact.Itsrecourseistodraftanamendmenttothelawfindlobbyforits
approvalandenactmentbythelegislature.

InviewofthepartylistsystemelementsperCOMELEC
First,"thesystemwasconceivedtoenablethemarginalizedsectorsofthePhilippinesocietytoberepresentedin
theHouseofRepresentatives."Second,"thesystemshouldrepresentthebroadestsectorsofthePhilippinesociety."
Third,"itshouldencourage[the]multipartysystem."(Boldfaceintheoriginal.)Consideringtheseelements,but
ignoringthetwopercentthresholdrequirementofRA7941,itconcludedthat"thepartylistgroupsrankedNos.1to
51...shouldhaveatleastonerepresentative."

Inviewoftowhomshouldtheseatsbegiven
Inthesuits,maderespondentstogetherwiththeCOMELECwerethe38parties,organizationsandcoalitionsthat
hadbeendeclaredbythepollbodyaslikewiseentitledtopartylistseatsintheHouseofRepresentatives.Collectively,
petitionerssoughttheproclamationofadditionalrepresentativesfromeachoftheirpartiesandorganizations,all
ofwhichhadobtainedatleasttwopercentofthetotalvotescastforthepartylistsystem.
OnJanuary12,1999,thisCourtissuedaStatusQuoOrderdirectingtheCOMELEC"toCEASEandDESIST
fromconstitutingitselfasaNationalBoardofCanvasserson13January1999oronanyotherdateandproclaimingas
winnersthenomineesoftheparties,organizationsandcoalitionsenumeratedinthedispositiveportionsatits15
October1998Resolutionorits7January1999Resolution,untilfurtherordersfromthisCourt."

Inviewofthe20%beingmandatory
TheCOMELECcannotbefaultedforthe"incompleteness,"forultimatelythevotersthemselvesaretheoneswho,
intheexerciseoftheirrightofsuffrage,determinewhoandhowmanyshouldrepresentthem.
Onthecontentionthatastrictapplicationofthetwopercentthresholdmayresultina"mathematicalimpossibility,"
sufficeittosaythattheprerogativetodeterminewhethertoadjustorchangethispercentagerequirementrestsin
Congress.Ourtasknow,asshouldhavebeentheCOMELEC's,isnottofindfaultinthewisdomofthelawthrough
highlyunlikelyscenariosofclinicalextremes,buttocraftaninnovativemathematicalformulathatcan,asfaras
practicable,implementitwithinthecontextoftheactualelectionprocess.

Inviewofthe2%threshold
Inimposingatwopercentthreshold,Congresswantedtoensurethatonlythoseparties,organizationsand
coalitionshavingasufficientnumberofconstituentsdeservingofrepresentationareactuallyrepresentedinCongress.

Inviewofthe2.5%voteequivalent
"MR.MONSOD....Weareamenabletomodificationsintheminimumpercentageofvotes.Ourproposalisthat
anybodywhohastwoandahalfpercentofthevotesgetsaseat.Thereareabout20millionwhocasttheirvotesinthe
lastelections.Twoandahalfpercentwouldmean500,000votes.Anybodywhohasaconstituencyof500,000votes
nationwidedeservesaseatintheAssembly.Ifwebringthatdowntotwopercent,wearetalkingabout400,000votes.
Theaveragevoteperfamilyisthree.So,herewearetalkingabout134,000families.Webelievethattherearemany
sectorswhowillbeabletogetseatsintheAssemblybecausemanyofthemhavemembershipsofover10,000.In
effect,thatistheoperationalimplicationofourproposal.
Thus,evenlegislativedistrictsareapportionedaccordingto"thenumberoftheirrespectiveinhabitants,andonthe
basisofauniformandprogressiveratio"toensuremeaningfullocalrepresentation.

InviewoftheThreeSeatPerPartylimit
Animportantconsiderationinadoptingthepartylistsystemistopromoteandencourageamultipartysystemof
representation.Again,wequoteCommissionerMonsod:
"MR.MONSOD:butwealsowantedtoavoidtheproblemsofmechanicsandoperationintheimplementationofa

conceptthathasveryseriousshortcomingsofclassificationandofdoubleortriplevotes.Weareforopeningupthe
system,andwewouldlikeverymuchforthesectorstobethere.Thatiswhyoneofthewaystodothatistoputa
ceilingonthenumberofrepresentativesfromanysinglepartythatcansitwithinthe50allocatedunderthepartylist
system.Thisway,wewillopenitupandenablesectoralgroups,ormayberegionalgroups,toearntheirseatsamong
thefifty...."

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Emano

Inviewofthemethodofallocatingadditionalseats
Havingdeterminedthatthetwentypercentseatallocationismerelyaceiling,andhavingupheldthe
constitutionalityofthetwopercentvotethresholdandthethreeseatlimitimposedunderRA7941,wenowproceedto
themethodofdetermininghowmanypartylistseatsthequalifiedparties,organizationsandcoalitionsareentitledto.

(/digests/category/emano)
EnrolledBillDoctrine
(/digests/category/enrolledbill
doctrine)
Epldt(/digests/category/epldt)

InviewoftheNiemeyerFormula
Underthisformula,thenumberofadditionalseatstowhichaqualifiedpartywouldbeentitledisdeterminedby
multiplyingtheremainingnumberofseatstobeallocatedbythetotalnumberofvotesobtainedbythatpartyand
dividingtheproductbythetotalnumberofvotesgarneredbyallthequalifiedparties.Theintegerportionoftheresulting
productwillbethenumberofadditionalseatsthatthepartyconcernedisentitledto.
TheNiemeyerformula,whilenodoubtsuitableforGermany,findsnoapplicationinthePhilippinesetting,because
ofourthreeseatlimitandthenonmandatorycharacterofthetwentypercentallocation.True,bothourCongressand
theBundestaghavethresholdrequirementstwopercentforusandfiveforthem.

OnehalfoftheGermanParliamentisfilledupbypartylistmembers.Moreimportant,therearenoseat
limitations,becauseGermanlawdiscouragestheproliferationofsmallparties.Incontrast,RA7941,asalready
mentioned,imposesathreeseatlimittoencouragethepromotionofthemultipartysystem.

ErapEstrada
(/digests/category/erapestrada)
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(/digests/category/estrada)
Expulsion
(/digests/category/expulsion)
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(/digests/category/facial
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autonomy)
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(/digests/category/freedoislands)
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(/digests/category/gregorio
honasan)

InviewofthelegalandlogicalformulaforthePhilippines
StepOne.Rankalltheparticipatingparties,organizationsandcoalitionsfromthehighesttothelowestbasedon
thenumberofvotestheyeachreceived.Thentheratioforeachpartyiscomputedbydividingitsvotesbythetotal
votescastforallthepartiesparticipatinginthesystem.Allpartieswithatleasttwopercentofthetotalvotesare
guaranteedoneseateach.Onlythesepartiesshallbeconsideredinthecomputationofadditionalseats.Theparty
receivingthehighestnumberofvotesshallthenceforthbereferredtoasthe"first"party.
StepTwo.Thenextstepistodeterminethenumberofseatsthefirstpartyisentitledto,inordertobeableto
computethatfortheotherparties.Sincethedistributionisbasedonproportionalrepresentation,thenumberofseatsto
beallottedtotheotherpartiescannotpossiblyexceedthattowhichthefirstpartyisentitledbyvirtueofitsobtaining
themostnumberofvotes.
TheCourthaspreviouslyruledinGuingonaJr.v.Gonzalesthatafractionalmembershipcannotbeconvertedintoa
wholemembershipofonewhenitwould,ineffectdepriveanotherparty'sfractionalmembership.Itwouldbea
violationoftheconstitutionalmandateofproportionalrepresentation.Wesaidfurtherthat"nopartycanclaimmorethan
whatitisentitledto..."

Inviewoftheformulafordeterminingadditionalseatsforthefirstparty
Theonlybasisgivenbythelawisthatapartyreceivingatleasttwopercentofthetotalvotesshallbeentitledto
oneseat.Proportionally,ifthefirstpartyweretoreceivetwicethenumberofvotesofthesecondparty,itshouldbe
entitledtotwicethelatter'snumberofseatsandsoon.
Weadoptedthissixpercentbenchmark,becausethefirstpartyisnotalwaysentitledtothemaximumnumberof
additionalseats.Likewise,itwouldpreventtheallotmentofmorethanthetotalnumberofavailableseats,suchasin
anextremecasewherein18ormorepartiestieforthehighestrankandarethusentitledtothreeseatseach.Insuch
scenario,thenumberofseatstowhichallthepartiesareentitledmayexceedthemaximumnumberofpartylistseats
reservedintheHouseofRepresentatives.
However,ifthefirstpartyreceivedasignificantlyhigheramountofvotessay,twentypercenttograntitthe
samenumberofseatsasthesecondpartywouldviolatethestatutorymandateofproportionalrepresentation,sincea
partygettingonlysixpercentofthevoteswillhaveanequalnumberofrepresentativesastheoneobtainingtwenty
percent.Thepropersolution,therefore,istograntthefirstpartyatotalofthreeseatsandthepartyreceivingsix
percent,additionalseatsinproportiontothoseofthefirstparty.

Inviewoftheformulaforadditionalseatsofotherqualifiedparties
StepThree:Thenextstepistosolveforthenumberofadditionalseatsthattheotherqualifiedpartiesareentitled
to,basedonproportionalrepresentation.

Inviewofthe2%thresholdrationale
Therationaleforthe2%thresholdcanthusbesynthesizedasfollows:
1.Toavoidasituationwherethecandidatewilljustusethepartylistsystemasafallbackposition
2.Todiscouragenuisancecandidatesorparties,whoarenotreadyandwhosechancesareverylow,from
participatingintheelections
3.Toavoidthereserveseatsystembyopeningupthesystem
4.Toencouragethemarginalizedsectorstoorganize,workhard,andearntheirseatswithinthesystem

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5.Toenablesectoralrepresentativestorisetothesamemajestyasthatoftheelectedrepresentativesinthe
legislativebody,ratherthanowingtosomedegreetheirseatsinthelegislativebodyeithertoanoutrightconstitutional
giftortoanappointmentbythePresidentofthePhilippines

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6.ifnothresholdisimposed,thiswillactuallyproliferatepoliticalpartygroupsandthosewhohavenotreallybeen
givenbythepeoplesufficientbasisforthemtorepresenttheirconstituentsand,inturn,theywillbeabletogettothe
Parliamentthroughthebackdoorunderthenameofthepartylistsystem16and
7.Toensurethatonlythosewithamoreorlesssubstantialfollowingcanberepresented.

TheframersoftheConstitutionknewthatthesectoralgroupssufferfrommajordisadvantagesinthecompetitive
electionarena.Theysoughttoremedythisinequalitythroughanoutrightconstitutionalgiftofreserveseatsforthefirst
threetermsofthesectoralrepresentativesandnofurther.Thereafter,theyhavetoearntheirseatsthroughparticipation
inthepartylistsystem.

Inviewofthe3seatlimitrationale

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Therationaleforthe3seatlimitistodistributepartylistrepresentationtoasmanypartygroupsaspossible.
AccordingtoSenatorTolentino,ifonepartywillbeallowedtodominate,thentheideaofgivingasmuchaspossibleto
themarginalizedgroupsmaybedefeated.Thepurposeistoallowasmanyaspossibleofthemarginalizedgroupsthat
wouldbeentitledtorepresentationtohaveaseatinCongress,andtohaveenoughseatsleftforthosewhoareway
belowthelist.
ThepartylistsystemofproportionalrepresentationisbasedontheNiemeyerformula,embodiedinArt.6(2)ofthe
GermanFederalElectoralLaw,whichprovidesthat,indeterminingthenumberofseatsapartyisentitledtohaveinthe
Bundestag,seatsshouldbemultipliedbythenumberofvotesobtainedbyeachpartyandthentheproductshouldbe
dividedbythesumtotalofthesecondvotesobtainedbyallthepartiesthathavepolledatleast5percentofthevotes.
First,eachpartyreceivesoneseatforeachwholenumberresultingfromthecalculation.Theremainingseatsarethen
allocatedinthedescendingsequenceofthedecimalfractions.TheNiemeyerformulawasadoptedinR.A.No.7941,
11.
Indeed,thegoalshouldbetofillallseatsallowedforpartylistrepresentatives,whichatpresentare52.The
provisionthusfixesaratioof80percentdistrictrepresentativesto20percentpartylistrepresentatives.Ifinfactall
seatsreservedforpartylistrepresentativesarenotfilled,thatisduetothefactthatthelawlimitsparties,
organizations,andcoalitionstothree(3)seatseach.Tomaintainthisratio,theentirenumberofseatsforthepartylist
system,afterdeductingthenumberofseatsinitiallydistributedtothe2percenters,mustbeallocatedtothem.
Iseenolegalorlogicalbasisforthemajority'sfixationwithdesignatingthehighestrankingparticipantasa"first"
party.Thisprocedure,asadmittedbythemajority,assumesthattheseatstobeallocatedtothequalifiedparties
dependontheseatsofthesocalledfirstparty.
Inessence,themajority"formula"amountssimplytothefollowingprescription:(1)followthe"1seatforevery2%"
ruleinallocatingseatstothefirstrankingpartyonlyand(2)withrespecttotherestofthe2percenters,giveeachparty
one(1)seat,unlessthefirstrankingpartygetsatleastsixpercent,inwhichcaseall2percenterswithatleastonehalf
ofthevotesofthefirstrankingpartyshouldgetanextraseat..
Theschemeadoptedbythemajoritywillpreventall2percenters,whicharenotthefirstrankingparty,from
obtainingthemaximumnumberofseats.Thisissobecause,withtheirvotesbeingproportionedagainstthevotesof
thefirstrankingparty,therewillneverbeaninstancewheretheadditionalseatsofthesepartieswillbeequivalentto2.
Again,thisiscontrarytoR.A.No.7941,11whichcontemplatesthepossibilityofmorethanone(1)partyobtaining
themaximumnumberofseatsallowedbylaw.

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