Professional Documents
Culture Documents
brought to the Supreme Court on certiorari by the aggrieved party within thirty days from
receipt of a copy thereof." In Garces vs. Court of Appeals (259 SCRA 99 [1996]) and Filipinas
Engineering and Machine Shop vs. Ferrer (135 SCRA 25 [1985]), we found occasion to
interpret the foregoing provision in this wise: " . . . . What is contemplated by the term 'final
orders, rulings and decisions' of the COMELEC reviewable by certiorari by the Supreme Court
as provided by law are those rendered in actions or proceedings before the COMELEC and
taken cognizance of by the said body in the exercise of its adjudicatory or quasi-judicial
powers." In Filipinas, we have likewise affirmed that the powers vested by
the Constitution and the law on the Commission on Elections may either be classified as
those pertaining to its adjudicatory or quasi-judicial functions, or those which are inherently
administrative and sometimes ministerial in character.
2. ID.; ID.; ID.; RESOLUTION THEREOF WHICH PROVIDES FOR RULES AND REGULATIONS
GOVERNING CONDUCT OF PLEBISCITE, NOT DEEMED AS A "FINAL ORDER" REVIEWABLE
BY CERTIORARI BY THE SUPREME COURT. We agree with the Solicitor General that " . . . .
[t]he issuance of [COMELEC] Resolution No. 2987 is thus a ministerial duty of the COMELEC
that is enjoined by law and is part and parcel of its administrative functions. It involves no
exercise of discretionary authority on the part of respondent COMELEC; let alone an exercise
of its adjudicatory or quasi-judicial power to hear and resolve controversies defining the
rights and duties of party-litigants, relative to the conduct of elections of public officers and
the enforcement of the election laws." (Citation omitted.) Briefly, COMELEC Resolution No.
2987 which provides for the rules and regulations governing the conduct of the required
plebiscite, was not issued pursuant to the COMELEC's quasi-judicial functions but merely as
an incident of its inherent administrative functions over the conduct of plebiscites, thus, the
said resolution may not be deemed as a "final order" reviewable bycertiorari by this Court.
Any question pertaining to the validity of said resolution may be well taken in an ordinary
civil action before the trial courts.
3. ID.; ID.; ID.; CASES OF ZALDIVAR (23 SCRA 533 (1968), LUISON (101 PHIL. 1218 (1957),
MACUD (23 SCRA 224 (1968), NOT APPLICABLE IN CASE AT BAR. Even the cases cited by
the public respondent in support of its contention that the power to review or reverse
COMELEC Resolution No. 2987 solely belongs to this Court are simply not in
point. Zaldivar vs. Estenzo speaks of the power of the COMELEC to enforce and administer
all laws relative to the conduct of elections to the exclusion of the judiciary. In the present
case, petitioners are not contesting the exclusive authority of the COMELEC to enforce and
administer election laws. Luison vs. Garciarefers to this Court's power to review
"administrative decisions," particularly referring to a COMELEC resolution declaring a certain
certificate of candidacy null and void, based on Article X, Section 2 of the 1935 Constitution.
In Macud vs. COMELEC, we reiterated that when a board of canvassers rejects an election
return on the ground that it is spurious or has been tampered with, the aggrieved party may
elevate the matter to the COMELEC for appropriate relief, and if the COMELEC sustains the
action of the board, the aggrieved party may appeal to this Court. In both Luison and Macud,
the assailed COMELEC resolutions fall within the purview of "final orders, rulings and
decisions" of the COMELEC reviewable by certiorari by this Court. DCASEc
||| (Salva v. Makalintal, G.R. No. 132603, [September 18, 2000], 394 PHIL 855-868)
[G.R. Nos. L-68379-81. September 22, 1986.]
EVELIO B. JAVIER, petitioner, vs. THE COMMISSION ON ELECTIONS,
and ARTURO F. PACIFICADOR, respondents.
Raul S. Roco and Lorna Patajo-Kapunan for petitioner.
SYLLABUS
1. REMEDIAL LAW; DISMISSAL OF ACTION; ISSUES BECAME MOOT AND ACADEMIC; NOT A
CASE OF. The abolition of the Batasang Pambansa and the disappearance of the office in
dispute between the petitioner and the private respondent both of whom have gone their
separate ways could be a convenient justification for dismissing this case. But there are
larger issues involved that must be resolved now, once and for all, not only to dispel the
legal ambiguities here raised. The more important purpose is to manifest in the clearest
possible terms that this Court will not disregard and in effect condone wrong on the
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simplistic and tolerant pretext that the case has become moot and academic. The Supreme
Court is not only the highest arbiter of legal questions but also the conscience of the
government. The citizen comes to us in quest of law but we must also give him justice. The
two are not always the same. There are times when we cannot grant the latter because the
issue has been settled and decision is no longer possible according to the law. But there are
also times when although the dispute has disappeared, as in this case, it nevertheless cries
out to be resolved. Justice demands that we act then, not only for the vindication of the
outraged right, though gone, but also for the guidance of and as a restraint upon the future.
2. CONSTITUTIONAL LAW; COMMISSION ON ELECTIONS; GIVEN FULL AUTHORITY TO HEAR
AND DECIDE CASES FROM BEGINNING TO END AND ALL MATTERS RELATED THERETO. We
believe that in making the Commission on Elections the sole judge of all contests involving
the election, returns and qualifications of the members of the Batasang Pambansa and
elective provincial and city officials, the Constitution intended to give it full authority to hear
and decide these cases from beginning to end and on all matters related thereto, including
those arising before the proclamation of the winners.
3. ID.; ID.; "CONTEST"; SHOULD NOT BE GIVEN A RESTRICTIVE MEANING. The word
"contests" should not be given a restrictive meaning; on the contrary, it should receive the
widest possible scope conformably to the rule that the words used in the Constitution should
be interpreted liberally. As employed in the 1973 Constitution, the term should be
understood as referring to any matter involving the title or claims as title to an elective
office, made before or after proclamation of the winner, whether or not the contestant is
claiming the office in dispute. Needless to stress, the term should be given a consistent
meaning and understood in the same sense under both Section 2(2) and Section 3 of Article
XII-C of the Constitution.
4. ID.; ID.; PHRASE "ELECTION RETURNS AND QUALIFICATION," DEFINED IN THE SAME SENSE
UNDER SEC. 2(2) AND SEC. 3, ART. XII-C, CONSTITUTION. The phrase "election, returns
and qualifications" should be interpreted in its totality as referring to all matters affecting
the validity of the contestee's title. But if it is necessary to specify, we can say that
"election" referred to the conduct of the polls, including the listing of voters, the holding of
the electoral campaign, and the casting and counting of the votes; "returns" to the canvass
of the returns and the proclamation of the winners, including questions concerning the
composition of the board of canvassers and the authenticity of the election returns; and
"qualifications" to matters that could be raised in a quo warranto proceeding against the
proclaimed winner, such as his delivery or ineligibility or the inadequacy of his certificate of
candidacy.
5. ID.; ID.; ISSUED ON ELECTION, RETURNS AND QUALIFICATIONS; TO BE HEARD AND
DECIDED ONLY BY SITTING EN BAND INSOFAR AS THEY APPLIED TO MEMBERS OF B.P. All
these came under the exclusive jurisdiction of the Commission on Elections insofar as they
applied to the members of the defunct Batasang Pambansa and, under Article XII-C, Section
3, of the 1973 Constitution, could be heard and decided by it only en banc.
6. ID.; ID.; ID.; CASES INVOLVING MEMBERS OF B.P. TO BE HEARD AND DECIDED BY
SITTING EN BANC; PURPOSE. As correctly observed by the petitioner, the purpose of
Section 3 in requiring that cases involving members of the Batasang Pambansa be heard
and decided by the Commission en banc was to insure the most careful consideration of
such cases. Obviously, that objective could not be achieved if the Commission could act en
banc only after the proclamation had been made, for it might then be too late already. We
are all-too-familiar with the grab-the-proclamation-and-delay-the-protest strategy of many
unscrupulous candidates which has resulted in the frustration of the popular will and the
virtual defeat of the real winners in the election. The respondent's theory would make this
gambit possible for the pre-proclamation proceedings, being summary in nature, could be
hastily decided by only three members in division, without the cause and deliberation that
would have otherwise been observed by the Commission en banc. After that, the delay. The
Commission en banc might then no longer be able to rectify in time the proclamation
summarily and not very judiciously made by the division. While in the end the protestant
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might be sustained, he might find himself with only a Phyrric victory because the term of his
office would have already expired.
7. ID.; BILL OF RIGHTS; DUE PROCESS GUARANTY; VIOLATED IN CASE AT BAR. Another
matter deserving the highest consideration of this Court but accorded cavalier attention by
the respondent Commission on Elections is due process of law, that ancient guaranty of
justice and fair play which is the hallmark of the free society. Commissioner Opinion ignored
it. Asked to inhibit himself on the ground that he was formerly a law partner of the private
respondent, he obstinately insisted on participating in the case, denying he was biased.
8. ID.; ID.; COLD NEUTRALITY OF AN IMPARTIAL JUDGE; INDISPENSABLE IMPERATIVE OF DUE
PROCESS. This Court has repeatedly and consistently demanded "the cold neutrality of an
impartial judge" as the indispensable imperative of due process. To bolster that requirement
we have held that the judge must not only be impartial but must also appear to be impartial
as an added assurance to the parties that his decision will be just. The litigants are entitled
to no less than that. They should be sure that when their rights are violated they can go to a
judge who shall give them justice. They must trust the judge, otherwise they will not go to
him at all. They must believe in his sense of fairness, otherwise they will not seek his
judgment. Without such confidence, there would be no point in invoking his action for the
justice they expect.
9. ID.; ID.; DUE PROCESS; INTENDED TO INSURE COMPLIANCE WITH RUDIMENTS OF FAIR
PLAY. Due process is intended to insure that confidence by requiring compliance with what
Justice Frankfurter calls the rudiments of fair play. Fair play calls for equal justice. There
cannot be equal justice where a suitor approaches a court already committed to the other
party and with a judgment already made and waiting only to be formalized after the litigants
shall have undergone the charade of a formal hearing. Judicial (and also extra-judicial
proceedings are not orchestrated plays in which the parties are supposed to make the
motions and reach the denouement according to a prepared script. There is no writer to
foreordain the ending. The judge will reach his conclusions only after all the evidence is in
and all the arguments are filed, on the basis of the established facts and the pertinent law.
10. ID.; ID.; ID.; DEMANDS THAT THE JUDGE INHIBIT HIMSELF OUT OF A SENSE OF
DELICADEZA. The relationship of the judge with one of the parties may color the facts and
distort the law to the prejudice of a just decision. Where this is probable or even only
possible, due possible, due process demands that the judge inhibit himself, if only out of a
sense of delicadeza. For like Caesar's wife, he must be above suspicion. Commissioner
Opinion, being a lawyer, should have recognized his duty and abided by this well-known rule
of judicial conduct. For refusing to do so, he divested the Second Division of the necessary
vote for the questioned decision, assuming it could act, and rendered the proceedings null
and void.
FELICIANO, J., concurring:
1. CONSTITUTIONAL LAW; COMMISSION ON ELECTIONS; MUST DECIDE ALL ELECTION
CONTESTS INVOLVING MEMBERS OF THE BATASAN PAMBANSA SITTING EN BANC. Although
this petition has become moot and academic, the decision, dated 23 July 1984, of the
Second Division of the Commission on Elections which had proclaimed Arturo F. Pacificador
as the duly elected Assemblyman of the province of Antique must be set aside or, more
accurately, must be disregarded as bereft of any effect in law. J. Feliciano reaches this result
on the same single, precisely drawn, ground relied upon by Melencio-Herrera, J., that all
election contests involving members of the former Batasan Pambansa must be decided by
the Commission on Elections en banc under Sections 2 and 3 of Article XII-C of the 1973
Constitution. These Sections do not distinguish between "pre-proclamation" and "post-
proclamation" contests nor between "cases" and "contests."
MELENCIO-HERRERA, J., concurring:
1. CONSTITUTIONAL LAW; COMMISSION ON ELECTIONS; HAS JURISDICTION OVER CONTESTS
INVOLVING MEMBERS OF THE BATASAN PAMBANSA. I concur in the result. The questioned
Decision of the Second Division of the COMELEC, dated July 23, 1984, proclaiming private
respondent, Arturo F. Pacificador, as the duly elected Assemblyman of the province of
Antique, should be set aside for the legal reason that all election contests, without
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appellate jurisdiction. Simply put, the COMELEC has the authority to issue the extraordinary
writs of certiorari, prohibition, and mandamus only in aid of its appellate jurisdiction."
Consequently, both the Supreme Court and Comelec have concurrent jurisdiction to issue
writs ofcertiorari, prohibition, and mandamus over decisions of trial courts of general
jurisdiction (regional trial courts) in election cases involving elective municipal officials. The
Court that takes jurisdiction first shall exercise exclusive jurisdiction over the case. Ergo, this
Court has jurisdiction over the present petition of certiorari as a special civil action expressly
conferred on it and provided for in the Constitution.
2. ID.; ID.; ELECTION; EXPLAINED; A DEFEATED CANDIDATE CANNOT BE DEEMED ELECTED
TO THE OFFICE. In this jurisdiction, an election means "the choice or selection of
candidates to public office by popular vote" through the use of the ballot, and the elected
officials of which are determined through the will of the electorate. "An election is the
embodiment of the popular will, the expression of the sovereign power of the people."
"Specifically, the term 'election,' in the context of the Constitution, may refer to the conduct
of the polls, including the listing of voters, the holding of the electoral campaign, and the
casting and counting of votes." The winner is the candidate who has obtained a majority or
plurality of valid votes cast in the election. "Sound policy dictates that public elective offices
are filled by those who receive the highest number of votes cast in the election for that
office. For, in all republican forms of government the basic idea is that no one can be
declared elected and no measure can be declared carried unless he or it receives a majority
or plurality of the legal votes cast in the election." In case of protest, a revision or recount of
the ballots cast for the candidates decides the election protest case. The candidate receiving
the highest number or plurality of votes shall be proclaimed the winner. Even if the
candidate receiving the majority votes is ineligible or disqualified, the candidate receiving
the next highest number of votes or the second placer, can not be declared elected. "The
wreath of victory cannot be transferred from the disqualified winner to the repudiated loser
because the law then as now only authorizes a declaration of election in favor of the person
who has obtained a plurality of votes and does not entitle a candidate receiving the next
highest number of votes to be declared elected." In other words, "a defeated candidate
cannot be deemed elected to the office."
3. ID.; ID.; ELECTION; ELECTIONS ARE WON ON THE BASIS OF THE MAJORITY OR PLURALITY
OF VOTES CAST AND RECEIVED BY THE CANDIDATES. The annulment of an election on the
ground of fraud, irregularities and violations of election laws may be raised as an incident to
an election contest. Such grounds for annulment of an election may be invoked in an
election protest case. However, an election must not be nullified and the voters
disenfranchised whenever it is possible to determine a winner on the basis of valid votes
cast, and discard the illegally cast ballots. In this case, the petitioner admittedly received
17,007 valid votes more than the protestee, and therefore the nullification of the election
would not lie. The power to nullify an election must be exercised with the greatest care with
a view not to disenfranchise the voters, and only under circumstances that clearly call for
such drastic remedial measure. As heretofore stated, in this jurisdiction, elections are won
on the basis of a majority or plurality of votes cast and received by the candidates. "The
right to hold an elective office is rooted on electoral mandate, not perceived entitlement to
the office."
4. ID.; ID.; FAILURE OF ELECTIONS; INSTANCES WHERE A FAILURE OF ELECTIONS MAY BE
DECLARED. In a petition to annul an election under Section 6, Batas Pambansa Blg. 881,
two conditions must be averred in order to support a sufficient cause of action. These are:
(1) the illegality must affect more than 50% of the votescast and (2) the good votes can be
distinguished from the bad ones. It is only when these two conditions are established that
the annulment of the election can be justified because the remaining votes do not constitute
a valid constituency. We have held that: "To declare a failure of election, two (2) conditions
must occur: first, no voting has taken place in the precincts concerned on the date fixed by
law or, even if there were voting, the election nevertheless resulted in a failure to elect; and,
second, the votes not cast would affect the result of the election." Neither of these
conditions was present in the case at bar. More recently, we clarified that, "Under the
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pertinent codal provision of the Omnibus Election Code, there are only three (3) instances
where a failure of elections may be declared, namely: (a) the election in any polling place
has not been held on the date fixed on account of force majeure, violence, terrorism, fraud,
or other analogous causes; (b) the election in any polling place had been suspended before
the hour fixed by law for the closing of the voting on account of force majeure, violence,
terrorism, fraud, or other analogous causes; or (c) after the voting and during the
preparation and transmission of the election returns or in the custody or canvass thereof,
such election results in a failure to elect on account of force majeure, violence, terrorism,
fraud, or other analogous causes."
5. ID.; ID.; PROCLAIMING A MAYORIAL CANDIDATE WINNER IN THE ELECTION ON THE BASIS
OF PERCEPTION OF THE VOICE OF THE PEOPLE, EVEN WITHOUT A MAJORITY OR PLURALITY
VOTES CAST IN HIS FAVOR IS VOID. We find that the trial court committed a grave abuse
of discretion amounting to lack or excess of jurisdiction in rendering its decision proclaiming
respondent Serapio the duly elected mayor of Valenzuela, Metro Manila, on the basis of its
perception of the voice of the people of Valenzuela, even without a majority or plurality
votes cast in his favor. In fact, without a single vote in his favor as the trial court discarded
all the votes. Thus, the decision is not supported by the highest number of valid votes cast
in his favor. This violated the right to due process of law of petitioner who was not heard on
the issue of failure of election, an issue that was not raised by the protestant. "A decision is
void for lack of due process if, as a result, a party is deprived of the opportunity of being
heard." The trial court can not decide the election protest case outside the issues raised. If it
does, as in this case, the trial court is ousted of its jurisdiction. Likewise, it is a basic
principle that a decision with absolutely nothing to support it is void. "A void decision may
be assailed or impugned at any time either directly or collaterally, by means of a petition
filed in the same case or by means of a separate action, or by resisting such decision in any
action or proceeding where it is invoked." Here, the trial court indulged in speculations on its
view of the voice of the people, and decided the case disregarding the evidence, but on its
own intuition,ipse dixit. How was this voice communicated to the trial court? Certainly not by
competent evidence adduced before the court as it should be, but by extra-sensory
perception. This is invalid in law. Contrary to its own finding that petitioner obtained 83,600
valid votes against 66,602 valid votes for the respondent as second placer, or a plurality of
17,007 votes, the trial court declared the second placer as the winner. This is a blatant
abuse of judicial discretion by any account. It is a raw exercise of judicial function in an
arbitrary or despotic manner, amounting to evasion of the positive duty to act in accord with
law. HSCATc
The Supreme Court ruled that the Comelec did not commit any act constituting grave abuse
of discretion in dismissing petitioner Kilosbayan's letter-complaint against herein
respondents, the former having failed to prove its cause against the latter. The Comelec is
the "public prosecutor with the exclusive authority to conduct the preliminary investigation
and the prosecution of election offenses punishable under the Omnibus Election Code before
the competent court. This constitutional and statutory mandate for the Comelec to
investigate and prosecute cases of violation of election laws translates, in effect, to the
exclusive power to conduct preliminary investigations in cases involving election offenses for
the twin purpose of filing an information in court and helping the Judge determine, in the
course of preliminary inquiry, whether or not a warrant of arrest should be issued.
SYLLABUS
1. POLITICAL LAW; COMMISSION ON ELECTIONS; PROSECUTORIAL POWER THEREOF;
CONSTRUED. Section 2(7) of Article IX-C of the 1987 Constitution provides that the
Comelec shall exercise the power to "investigate and where appropriate, prosecute cases of
violations of election laws including acts or omission constituting election frauds, offenses
and malpractices." Discerning the rationale for this grant of prosecutorial powers to the
Comelec, we already had occasion to rule, thus: "The grant to the COMELEC of the power,
among others, to enforce and administer all laws relative to the conduct of election and the
concomitant authority to investigate and prosecute election offenses is not without
compelling reason. The evident constitutional intendment in bestowing this power to the
COMELEC is to insure the free, orderly and honest conduct of elections, failure of which
would result in the frustration of the true will of the people and make a mere idle ceremony
of the sacred right and duty of every qualified citizen to vote." This constitutional grant of
prosecutorial power in the Comelec finds statutory expression under Section 265 of Batas
Pambansa Blg. 881, otherwise known as the Omnibus Election Code, to wit. "SEC. 265.
Prosecution. The Commission shall, through its duly authorized legal officers, have the
exclusive power to conduct preliminary investigation of all election offenses punishable
under this Code, and to prosecute the same. The Commission may avail of the assistance of
other prosecuting arms of the government: Provided, however, That in the event that the
Commission fails to act on any complaint within four months from his filing, the complainant
may file the complaint with the office of the fiscal or with the Ministry of Justice for proper
investigation and prosecution, if warranted." Insofar as the prosecution of election offenses
is concerned, therefore, the Comelec is the "public prosecutor with the exclusive authority to
conduct the preliminary investigation and the prosecution of election offenses punishable
under the [Omnibus Election] Code before the competent court." This constitutional and
statutory mandate for the Comelec to investigate and prosecute cases of violation of
election laws translates, in effect, to the exclusive power to conduct preliminary
investigations in cases involving election offenses for the twin purpose of filing an
information in court and helping the Judge determine, in the course of preliminary inquiry,
whether or not a warrant of arrest should be issued.
2. ID.; ID.; ELECTION OFFENSES; PRELIMINARY INVESTIGATION, REQUIRED; CASE AT BAR.
The Comelec, whenever any election offense charge is filed before it, must have first, before
dismissing the same or filing the corresponding information, conducted the preliminary
investigation proper of the case. At this initial stage of criminal prosecution, the primordial
task of the Comelec is the determination of probable cause, i.e., whether or not there is
reason to believe that the accused is guilty of the offense charged and, therefore, whether
or not he should be subjected to the expense, rigors and embarrassment of trial or as the
Comelec Rules of Procedure phrase it, whether or not "there is reasonable ground to believe
that a crime has been committed." The determination of probable cause in any criminal
prosecution, is made indispensable by the Bill of Rights which enshrines every citizen's right
to due process, the presumption that he is presumed innocent, and the inadmissibility
against him of any damaging evidence obtained in violation of his right against self-
incrimination. As Justice Reynato S. Puno has pointed out, probable cause is neither an
"opaque concept in our jurisdiction" or a "high level legal abstraction to be the subject of
warring thoughts." It constitutes those "facts and circumstances which would lead a
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reasonably discreet and prudent man to believe that an offense has been committed" by the
person sought to be judicially indicted. In determining probable cause, however, the public
prosecutor must have been apprised by the complainant of his evidence in support of his
accusatory allegations. In other words, determining probable cause is an intellectual activity
premised on the prior physical presentation or submission of documentary or testimonial
proofs either confirming, negating or qualifying the allegations in the complaint.
3. ID.; ID.; ID.; ID.; BASIS OF PROBABLE CAUSE; NOT ESTABLISHED IN CASE AT BAR.
Indeed probable cause need not be based on clear and convincing evidence of guilt, neither
on evidence establishing guilt beyond reasonable doubt and definitely, not on evidence
establishing absolute certainty of guilt, but it certainly demands more than "bare suspicion"
and can never be "left to presupposition, conjecture, or even convincing logic." The efforts of
petitioner Kilosbayan, thus, in order to successfully lead to the judicial indictment of
respondents, should have gone beyond a largely declamatory condemnation of respondents
and diligently focused on its two-fold obligation of not only substantiating its charges against
respondents but also proffering before the Comelec substantial evidence of respondents'
utilization, through conspiratorial, cooperative and/or interrelated acts, of Seventy Million
Pesos from the CDF for electioneering activities in violation of the pertinent provisions on
election offenses as enumerated in the Omnibus Election Code. In the dispensation of this
obligation, however, petitioner Kilosbayan utterly failed. The encompassing narration of the
pertinent facts and circumstances of this case in the early part of this ponencia indubitably
shows the complacency, at the least, and the gross and deliberate negligence, at the most,
of petitioner Kilosbayan in presenting sufficient evidence in support of its letter-complaint.
4. ID., ID.; ID.; ID.; COMPLAINANT HAS THE BURDEN AND THE RESPONSIBILITY TO FOLLOW
THROUGH THE ACCUSATION AND PROVE THE COMPLAINT. The task of the Comelec as
investigator and prosecutor, acting upon any election offense complaint, is not the physical
searching and gathering of proof in support of a complaint for an alleged commission of an
election offense. A complainant, who in effect accuses another person of having committed
an act constituting an election offense, has the burden, as it is his responsibility, to follow
through his accusation and prove his complaint. If the complainant fails to proffer the
necessary evidence to show probable cause, notwithstanding the lack of denial or any
evidence in controversion, of the accusation, the complaint must be dismissed, since any
person accused of a crime is presumed innocent and does not at all have to make a
response or reaction to the charges against him. The Comelec, in acting upon an election
offense complaint in the course of preliminary investigation, initially facilitates the
confrontation process between the complainant and the respondents by requiring the
submission of and interfacing, their respective evidences. Ultimately, the Comelec passes
upon the contending parties' respective submissions and proofs and weighs the fact and
circumstances established therefrom. Contrary to the asseveration of petitioner Kilosbayan,
the preliminary investigation is not an occasion for the Comelec to, as a duty, spoonfeed the
complainant with evidence needed to prove its case. EHCaDS
5. ID.; ID.; ID.; ID.; PROBABLE CAUSE CAN NOT BE BASED UPON HEARSAY EVIDENCE; CASE
AT BAR. Cash allocations appear to be evidence of perhaps, a thousand hypothetical,
though, possible scenarios. But they are evidence of only one fact: that a certain amount of
public money was made available to PHYSDFI (Philippine Youth Health and Sports
Development Foundation, Inc.) as it is rightfully entitled thereto as an accredited non-
governmental organization at around the same time that the synchronized elections of 1992
were to be held. But this one fact is certainly no justification to indict herein respondents for
the election offenses imputed to them. There is no proof that respondents conspired to have
PHYSDFI accredited as a non-government organization in order to avail itself of public funds
to spend for electioneering purposes. In order for there to be reasonable ground to believe
that a conspiracy exists among (1) the government officials who set up the mechanism for
accrediting NGOs to implement the projects under the CDF and to qualify the latter to
receive CDF allocations; (2) the incorporators and officers of the PHYSDFI; and (3) the SHO
(Sulo Hotel Operation) implicated by Teodoro Benigno in his newspaper articles in alleged
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electioneering activities during the May 11, 1992 elections, there must be a semblance of
evidence linking them to each other. There is none, however, except for the hearsay
evidence consisting of the aforementioned newspaper articles. Suffice it to say that although
only a low quantum and quality of evidence is needed to support a finding of probable
cause, the same cannot be justified upon hearsay evidence that is never given any
evidentiary or probative value in this jurisdiction. aTcIAS
||| (Kilosbayan, Inc. v. COMELEC, G.R. No. 128054, [October 16, 1997])
proprio the candidate's CoC, notwithstanding the absence of any petition initiating a quasi-
judicial proceeding for the resolution of the same. Thus, the Court stated: 17 cITCAa
Even without a petition under either Section 12 or Section 78 of
the Omnibus Election Code, or under Section 40 of the Local Government
Code, the COMELEC is under a legal duty to cancel the certificate of
candidacy of anyone suffering from the accessory penalty of
perpetual special disqualification to run for public office by virtue of
a final judgment of conviction. The final judgment of conviction is notice
to the COMELEC of the disqualification of the convict from running for public
office. The law itself bars the convict from running for public office, and the
disqualification is part of the final judgment of conviction. The final judgment
of the court is addressed not only to the Executive branch, but also to other
government agencies tasked to implement the final judgment under the law.
Whether or not the COMELEC is expressly mentioned in the judgment to
implement the disqualification, it is assumed that the portion of the final
judgment on disqualification to run for elective public office is addressed to
the COMELEC because under the Constitution the COMELEC is duty bound to
"[e]nforce and administer all laws and regulations relative to the conduct of
an election." The disqualification of a convict to run for public office
under the Revised Penal Code, as affirmed by final judgment of a
competent court, is part of the enforcement and administration of
"all laws" relating to the conduct of elections. ATCEIc
To allow the COMELEC to wait for a person to file a petition to cancel the
certificate of candidacy of one suffering from perpetual special
disqualification will result in the anomaly that these cases so grotesquely
exemplify. Despite a prior perpetual special disqualification, Jalosjos was
elected and served twice as mayor. The COMELEC will be grossly remiss
in its constitutional duty to "enforce and administer all laws"
relating to the conduct of elections if it does not motu
propriobar from running for public office those suffering from
perpetual special disqualification by virtue of a final judgment.
(Emphasis and underscoring supplied)
In Aratea v. COMELEC (Aratea), 18 the Court similarly pronounced that the disqualification of
a convict to run for public office, as affirmed by final judgment of a competent
court, is part of the enforcement and administration of all laws relating to the conduct of
elections. 19
Applying these principles to the case at bar, it is clear that the COMELEC En Banc did not
exercise its quasi-judicial functions when it issued Resolution No. 9613 as it did not assume
jurisdiction over any pending petition or resolve any election case before it or any of its
divisions. Rather, it merely performed its duty to enforce and administer election
laws in cancelling petitioner's CoC on the basis of his perpetual absolute
disqualification, the fact of which had already been established by his final
conviction. In this regard, the COMELEC En Banc was exercising its administrative
functions, dispensing with the need for a motion for reconsideration of a division ruling
under Section 3, Article IX-C of the Constitution, the same being required only in quasi-
judicial proceedings. HcSCED
Lest it be misunderstood, while the denial of due course to and/or cancellation of one's CoC
generally necessitates the exercise of the COMELEC's quasi-judicial functions commenced
through a petition based on either Sections 12 20 or 78 21 of the OEC, or Section 40 22 of
the LGC, when the grounds therefor are rendered conclusive on account of final and
executory judgments as when a candidate's disqualification to run for public office is
based on a final conviction such exercise falls within the COMELEC's administrative
functions, as in this case.
In this light, there is also no violation of procedural due process since the COMELEC En
Banc would be acting in a purely administrative manner. Administrative power is concerned
Election Law Cases
with the work of applying policies and enforcing orders as determined by proper
governmental organs. 23 As petitioner's disqualification to run for public office had already
been settled in a previous case and now stands beyond dispute, it is incumbent upon the
COMELEC En Banc to cancel his CoC as a matter of course, else it be remiss in fulfilling its
duty to enforce and administer all laws and regulations relative to the conduct of an
election.
Equally compelling is the fact that the denial of petitioner's Petition for Inclusion as a
registered voter in Zamboanga City had already attained finality by virtue of the RTC's Order
dated October 31, 2012. In this accord, petitioner's non-compliance with the voter
registration requirement under Section 39 (a) of the LGC 24 is already beyond question and
likewise provides a sufficient ground for the cancellation of his CoC altogether.
B.Petitioner's right to run for
elective office.
It is petitioner's submission that Article 30 of the RPC was partially amended by Section 40
(a) of the LGC and thus, claims that his perpetual absolute disqualification had already been
removed. ScAHTI
The argument is untenable.
Well-established is the rule that every new statute should be construed in connection with
those already existing in relation to the same subject matter and all should be made to
harmonize and stand together, if they can be done by any fair and reasonable
interpretation. 25
On the one hand, Section 40 (a) of the LGC, applicable as it is to local elective candidates,
provides:
SEC. 40.Disqualifications. The following persons are disqualified from
running for any elective local position:
(a)Those sentenced by final judgment for an offense involving moral
turpitude or for an offense punishable by one (1) year or more of
imprisonment, within two (2) years after serving
sentence; (Emphasis and underscoring supplied)
And on the other hand, Article 30 of the RPC reads:
ART. 30.Effects of the penalties of perpetual or temporary absolute
disqualification. The penalties of perpetual or temporary absolute
disqualification for public office shall produce the following effects: ADaSET
1.The deprivation of the public offices and employments which the offender
may have held, even if conferred by popular election.
2.The deprivation of the right to vote in any election for any
popular office or to be elected to such office.
3.The disqualification for the offices or public employments and for the
exercise of any of the rights mentioned.
In case of temporary disqualification, such disqualification as is comprised in
paragraphs 2 and 3 of this Article shall last during the term of the sentence.
4.The loss of all rights to retirement pay or other pension for any office
formerly held. (Emphasis and underscoring supplied)
Keeping with the above-mentioned statutory construction principle, the Court observes that
the conflict between these provisions of law may be properly reconciled. In particular, while
Section 40 (a) of the LGC allows a prior convict to run for local elective office after the lapse
of two (2) years from the time he serves his sentence, the said provision should not be
deemed to cover cases wherein the law 26 imposes a penalty, either as principal
or accessory, 27 which has the effect of disqualifying the convict to run for
elective office. An example of this would be Article 41 of the RPC, which imposes the
penalty of perpetual 28 absolute 29disqualification as an accessory to the principal
penalties of reclusion perpetua and reclusion temporal:
ART. 41.Reclusion perpetua and reclusion temporal. Their accessory
penalties. The penalties of reclusion perpetua and reclusion
temporal shall carry with them that of civil interdiction for life or during the
Election Law Cases
period of the sentence as the case may be, and that of perpetual
absolute disqualification which the offender shall suffer even though
pardoned as to the principal penalty, unless the same shall have been
expressly remitted in the pardon. (Emphasis and underscoring
supplied) IDTHcA
In this relation, Article 30 of the RPC, as earlier cited, provides that the penalty of perpetual
absolute disqualification has the effect of depriving the convicted felon of the privilege to
run for elective office. To note, this penalty, as well as other penalties of similar import, is
based on the presumptive rule that one who is rendered infamous by conviction of a
felony, or other base offense indicative of moral turpitude, is unfit to hold public
office, 30 as the same partakes of a privilege which the State grants only to such classes of
persons which are most likely to exercise it for the common good. 31
Pertinently, it is observed that the import of Article 41 in relation to Article 30 of the RPC is
more direct and specific in nature insofar as it deprives the candidate to run for elective
office due to his conviction as compared to Section 40 (a) of the LGC which broadly
speaks of offenses involving moral turpitude and those punishable by one (1) year or more
of imprisonment without any consideration of certain disqualifying effects to one's right to
suffrage. Accordingly, Section 40 (a) of the LGCshould be considered as a law of general
application and therefore, must yield to the more definitive RPC provisions in line with the
principle of lex specialis derogat generali general legislation must give way to
special legislation on the same subject, and generally is so interpreted as to
embrace only cases in which the special provisions are not applicable. In other
words, where two statutes are of equal theoretical application to a particular case, the one
specially designed therefor should prevail. 32 HIaTDS
In the present case, petitioner was sentenced to suffer the principal penalties of reclusion
perpetua and reclusion temporal which, pursuant to Article 41 of the RPC, carried with it the
accessory penalty of perpetual absolute disqualification and in turn, pursuant to Article 30 of
the RPC, disqualified him to run for elective office. As discussed, Section 40 (a) of
the LGC would not apply to cases wherein a penal provision such as Article 41 in this case
directly and specifically prohibits the convict from running for elective office. Hence,
despite the lapse of two (2) years from petitioner's service of his commuted prison term, he
remains bound to suffer the accessory penalty of perpetual absolute disqualification which
consequently, disqualifies him to run as mayor for Zamboanga City.
Notably, Article 41 of the RPC expressly states that one who is previously convicted of a
crime punishable by reclusion perpetua or reclusion temporal continues to suffer the
accessory penalty of perpetual absolute disqualification even though pardoned as to the
principal penalty, unless the said accessory penalty shall have been expressly
remitted in the pardon. 33 In this case, the same accessory penalty had not been
expressly remitted in the Order of Commutation or by any subsequent pardon and as such,
petitioner's disqualification to run for elective office is deemed to subsist.
Further, it is well to note that the use of the word "perpetual" in the aforementioned
accessory penalty connotes a lifetime restriction and in this respect, does not depend on the
length of the prison term which is imposed as its principal penalty. Instructive on this point is
the Court's ruling in Lacuna v. Abes, 34 where the Court explained the meaning of the term
"perpetual" as applied to the penalty of disqualification to run for public office: CASIEa
The accessory penalty of temporary absolute disqualification disqualifies the
convict for public office and for the right to vote, such disqualification to last
only during the term of the sentence (Article 27, paragraph 3, & Article 30,
Revised Penal Code) that, in the case of Abes, would have expired on 13
October 1961.
But this does not hold true with respect to the other accessory penalty of
perpetual special disqualification for the exercise of the right of
suffrage. This accessory penalty deprives the convict of the right to vote or
to be elected to or hold public office perpetually, as distinguished from
Election Law Cases
On January 25, 2001, AKBAYAN-Youth, together with other youth movements sought the
extension of the registration of voters for the May 2001 elections. The voters registration has
already ended on December 27, 2000. AKBAYAN-Youth asks that persons aged 18-21 be
allowed a special 2-day registration. The Commission on Elections (COMELEC) denied the
petition. AKBAYAN-Youth the sued COMELEC for alleged grave abuse of discretion for denying
the petition. AKBAYAN-Youth alleged that there are about 4 million youth who were not able
to register and are now disenfranchised. COMELEC invoked Section 8 of Republic Act 8189
which provides that no registration shall be conducted 120 days before the regular election.
AKBAYAN-Youth however counters that under Section 28 of Republic Act 8436, the COMELEC
in the exercise of its residual and stand-by powers, can reset the periods of pre-election acts
including voters registration if the original period is not observed.
ISSUE: Whether or not the COMELEC exercised grave abuse of discretion when it denied the
extension of the voters registration.
HELD: No. The COMELEC was well within its right to do so pursuant to the clear provisions of
Section 8, RA 8189 which provides that no voters registration shall be conducted within 120
days before the regular election. The right of suffrage is not absolute. It is regulated by
measures like voters registration which is not a mere statutory requirement. The State, in
the exercise of its inherent police power, may then enact laws to safeguard and regulate the
act of voters registration for the ultimate purpose of conducting honest, orderly and
peaceful election, to the incidental yet generally important end, that even pre-election
Election Law Cases
activities could be performed by the duly constituted authorities in a realistic and orderly
manner one which is not indifferent and so far removed from the pressing order of the day
and the prevalent circumstances of the times. RA 8189 prevails over RA 8436 in that RA
8189s provision is explicit as to the prohibition. Suffice it to say that it is a pre-election act
that cannot be reset.
Further, even if what is asked is a mere two-day special registration, COMELEC has shown in
its pleadings that if it is allowed, it will substantially create a setback in the other pre-
election matters because the additional voters from the special two day registration will
have to be screened, entered into the book of voters, have to be inspected again, verified,
sealed, then entered into the computerized voters list; and then they will have to reprint the
voters information sheet for the update and distribute it by that time, the May 14, 2001
elections would have been overshot because of the lengthy processes after the special
registration. In short, it will cost more inconvenience than good. Further still, the allegation
that youth voters are disenfranchised is not sufficient. Nowhere in AKBAYAN-Youths pleading
was attached any actual complaint from an individual youth voter about any inconvenience
arising from the fact that the voters registration has ended on December 27, 2001. Also,
AKBAYAN-Youth et al admitted in their pleading that they are asking an extension because
they failed to register on time for some reasons, which is not appealing to the court. The law
aids the vigilant and not those who slumber on their rights.
the Constitution only on citizens who are qualified to vote and are not otherwise disqualified
by law. The Court, therefore, upheld the assailed Order of the Commission on Elections.
SYLLABUS
1. POLITICAL LAW; ELECTIONS; COMELEC; FACTUAL FINDINGS THEREOF BASED ON ITS OWN
ASSESSMENTS AND DULY SUPPORTED BY EVIDENCE ARE CONCLUSIVE UPON SUPREME
COURT IN ABSENCE OF SUBSTANTIATED ATTACK ON VALIDITY OF THE SAME. It must be
noted that under the Omnibus Election Code, there should be at least one precinct per
barangay. In designating election precincts, the COMELEC usually refers to them by number.
Nevertheless, the determination of whether a certain election precinct actually exists or not
and whether the voters registered in said precinct are real voters is a factual matter. On
such issue, it is a time-honored precept that factual findings of the COMELEC based on its
own assessments and duly supported by evidence, are conclusive upon this Court, more so,
in the absence of a substantiated attack on the validity of the same.
2. ID.; ID.; ID.; ID.; CASE AT BAR. Upon review of the records, the Court finds that the
COMELEC had exerted efforts to investigate the facts and verified that there were no public
or private buildings in the said place, hence its conclusion that there were no inhabitants. If
there were no inhabitants, a fortiori, there can be no registered voters, or the registered
voters may have left the place. It is not impossible for a certain barangay not to actually
have inhabitants considering that people migrate. A barangay may officially exist on record
and the fact that nobody resides in the place does not result in its automatic cessation as a
unit of local government. Under the Local Government Code of 1991, the abolition of a local
government unit (LGU) may be done by Congress in the case of a province, city,
municipality, or any other political subdivision. In the case of a barangay, except in
Metropolitan Manila area and in cultural communities, it may be done by the Sangguniang
Panlalawiganor Sangguniang Panglungsod concerned subject to the mandatory requirement
of a plebiscite conducted for the purpose in the political units affected.
3. ID.; ID.; ID.; ORDER THEREOF DECLARING A PRECINCT AS NON-EXISTENT SHALL STAND IN
ABSENCE OF ANY FINDING OF GRAVE ABUSE OF DISCRETION. The findings of the
administrative agency cannot be reversed on appeal or certiorari particularly when no
significant facts and circumstances are shown to have been overlooked or disregarded which
when considered would have substantially affected the outcome of the case. The COMELEC
has broad powers to ascertain the true results of an election by means available to it. The
assailed order having been issued pursuant to COMELEC's administrative powers and in the
absence of any finding of grave abuse of discretion in declaring a precinct as non-existent,
said order shall stand.
4. CONSTITUTIONAL LAW; SUFFRAGE; RIGHT OF SUFFRAGE; NOT TAMPERED WHEN A LIST OF
FICTITIOUS VOTERS IS EXCLUDED FROM ELECTORAL EXERCISE. Judicial interference is
unnecessary and uncalled for. No voter is disenfranchised because no such voter exist. The
sacred right of suffrage guaranteed by theConstitution is not tampered when a list of
fictitious voters is excluded from an electoral exercise. Suffrage is conferred by
the Constitution only on citizens who are qualified to vote and are not otherwise disqualified
by law. On the contrary, such exclusion of non-existent voters all the more protects the
validity and credibility of the electoral process as well as the right of suffrage because the
"electoral will" would not be rendered nugatory by the inclusion of some ghost votes.
Election laws should give effect to, rather than frustrate the will of the people.
||| (Sarangani v. COMELEC, G.R. No. 135927, [June 26, 2000], 389 PHIL 719-730)
[G.R. No. 147589. November 20, 2003.]
ANG BAGONG BAYANI, OFW, et al., petitioners, vs. COMMISSION ON
ELECTIONS, et al., respondents.
[G.R. No. 147613. November 20, 2003.]
BAYAN MUNA, petitioner, vs. COMMISSION ON ELECTIONS, respondent.
Allene M. Anigan and Rodrigo E. Marias for APEC.
Froilan M. Bacungan for Buhay, Cocofed & ABA.
Anna Caridad Sazon-Dupaya and Homobono A. Adaza for the True Marcos Loyalist.
Joventino V. Diamante for AMIN.
Election Law Cases
lawmaking duties." Be it remembered that on 26 June 2001, the Court in the present
consolidated cases had already rendered its Decision, which has become final and
executory. The instant proceedings are conducted for the purpose merely of passing upon
the COMELEC's compliance with the 8-point guideline issued in the said Decision. The relief
prayed for by BAYAN MUNA to declare Section 11 of RA 7941 unconstitutional is
completely alien to these incidental proceedings. To take up this alleged unconstitutionality
now would mean a reopening of the 26 June 2001 Decision which, to repeat, has already
become final and executory. Obviously, a discussion of that issue cannot be done at this
point.
2.ID.; ID.; SPECIAL CIVIL ACTIONS; TO OUST MEMBERS OF THE HOUSE OF REPRESENTATIVES
WHO HAVE ALREADY TAKEN THEIR OATHS AND HAVE BEGUN TO DISCHARGE THE
FUNCTIONS OF THEIR OFFICES IS A CONTENTIOUS MATTER AND PARTAKES OF THE NATURE
OF QUO WARRANTO, CERTIORARI AND/OR MANDAMUS. The same observation can be
made of any attempt to unseat the concerned additional nominees by means of a mere
motion in these proceedings. To oust members of the House of Representatives who have
already taken their oaths and have begun to discharge the functions of their offices is a
contentious matter and partakes of the nature of quo warranto, certiorari and/or mandamus.
Clearly, these extraordinary writs may be issued only in special civil actions for which the
Rules of Court prescribe specific requirements, like the verification of
an independent petition with specific allegations showing lack or excess of jurisdiction or
grave abuse of discretion filed in the proper court or quasi judicial agency by
the proper party; and subject to certain formalities like a sworn certificate of non-forum
shopping and so on. Also, these documents must be filed within the prescribed period of
time. IHDCcT
3.ID.; ID.; THE PRESENT ISSUES ARE CONTENTIOUS THAT CANNOT BE RULED UPON UNLESS
THE APPROPRIATE ACTIONS ARE FILED IN THE APPRORIATE FORUM BY THE APPRORIATE TIME
AND ALLEGING THE APPRORIATE JURISDICTIONAL FACTS. True, in Codilla v. Comelec, this
Court ousted an incumbent member of Congress and caused the seating of the
overwhelming winner during the election. However, that Decision was issued only after
an independent petition for mandamus and quo warranto was filed by the proper party, and
only after proper proceedings had been held thereon. In any event, in Guerrero v. Comelec,
this Court declared that "once a winning candidate has been proclaimed, taken his oath, and
assumed office as a member of the House of Representatives, the COMELEC's jurisdiction
over election contests relating to his election, returns and qualification ends, and the HRET's
own jurisdiction begins." Thus, if this Court were to give due course to BAYAN MUNA's
prayer, it will have to rule on the propriety of assuming jurisdiction over the controversy in
the present proceedings; equally important, it will also have to determine which of these two
rulings (Codilla or Guerrero), if any, applies. These are contentious issues that are alien to
the present proceedings; they constitute questions that cannot be ruled upon unless the
appropriate petitions are filed in the appropriate forum by the appropriate party at the
appropriate time and alleging the appropriate jurisdictional facts.
4.POLITICAL LAW; ELECTION LAW; PARTY-LIST LAW; UNLESS AMENDED BY SUBSEQUENT LAW
APPROVED BY CONGRESS OR BY A NEW RULING OF THE COURT IN APPRORIATE
PROCEEDINGS, THE FORMULA SET BY THE COURT IN VETERANS FEDERATION PARTY VS. THE
COMMISSION ON ELECTIONS CANNOT BE DISREGARDED, FOR THEY ENSURE THAT THE
NUMBER OF SEATS ALLOCATED TO THE WINNING PARTIES CONFORM TO THE PRINCIPLE OF
PROPORTIONATE REPRESENTATION MANDATED BY LAW. I respectfully submit that these
Motions of BUHAY have no merit. First, the so-called COMELEC formula has long been
expressly rejected by this Court inVeterans Federation Party v. COMELEC. The correct
formulas for computing the proportionate allocation of seats to party-list winners have been
decided in Veteransafter long deliberation and study; these formulas apply to all party-list
elections conducted under the present law. Unless amended by a subsequent law approved
by Congress or by a new ruling of this Court in appropriate proceedings, these formulas
cannot be disregarded, for they ensure that the number of seats allocated to the winning
Election Law Cases
This case partially abandoned the rulings in Ang Bagong Bayani vs COMELEC andBANAT vs
COMELEC.
Atong Paglaum, Inc. and 51 other parties were disqualified by the Commission on Elections
in the May 2013 party-list elections for various reasons but primarily for not being qualified
as representatives for marginalized or underrepresented sectors.
Atong Paglaum et al then filed a petition for certiorari against COMELEC alleging grave
abuse of discretion on the part of COMELEC in disqualifying them.
ISSUE: Whether or not the COMELEC committed grave abuse of discretion in disqualifying
the said party-lists.
HELD: No. The COMELEC merely followed the guidelines set in the cases of Ang Bagong
Bayani and BANAT. However, the Supreme Court remanded the cases back to the COMELEC
as the Supreme Court now provides for new guidelines which abandoned some principles
established in the two aforestated cases. The newguidelines are as follows:
I. Parameters. In qualifying party-lists, the COMELEC must use the following parameters:
1. Three different groups may participate in the party-list system: (1) national parties
or organizations, (2) regional parties or organizations, and (3) sectoral parties
ororganizations.
3. Political parties can participate in party-list elections provided they register under the
party-list system and do not field candidates in legislative district elections. A political party,
whether major or not, that fields candidates in legislative district elections can participate in
party-list elections only through its sectoral wing that can separately register under the
party-list system. The sectoral wing is by itself an independent sectoral party, and is linked
to a political party through a coalition.
that lack well-defined political constituencies include professionals, the elderly, women,
and the youth.
6. National, regional, and sectoral parties or organizations shall not be disqualified if some of
their nominees are disqualified, provided that they have at least one nominee who remains
qualified.
II. In the BANAT case, major political parties are disallowed, as has always been the practice,
from participating in the party-list elections. But, since theres really no constitutional
prohibition nor a statutory prohibition, major political parties can now participate in the
party-list system provided that they do so through their bona fide sectoral wing (see
parameter 3 above).
Allowing major political parties to participate, albeit indirectly, in the party-list elections
will encourage them to work assiduously in extending their constituencies to the
marginalized and underrepresented and to those who lack well-defined political
constituencies.
Ultimately, the Supreme Court gave weight to the deliberations of the Constitutional
Commission when they were drafting the party-list system provision of the Constitution. The
Commissioners deliberated that it was their intention to include all parties into the party-list
elections in order to develop a political system which is pluralistic and multiparty. (In
the BANAT case, Justice Puno emphasized that the will of the people should defeat the intent
of the framers; and that the intent of the people, in ratifying the 1987 Constitution, is that
the party-list system should be reserved for the marginalized sectors.)
III. The Supreme Court also emphasized that the party-list system is NOT RESERVED for the
marginalized and underrepresented or for parties who lack well-defined political
constituencies. It is also for national or regional parties. It is also for small ideology-based
and cause-oriented parties who lack well-defined political constituencies. The common
denominator however is that all of them cannot, they do not have the machinery unlike
major political parties, to field or sponsor candidates in the legislative districts but they can
acquire the needed votes in a national election system like the party-list system of elections.
If the party-list system is only reserved for marginalized representation, then the system
itself unduly excludes other cause-oriented groups from running for a seat in the lower
house.
Election Law Cases
13. ID.; ID.; TERM RESIDENCE REFERS TO "ACTUAL RESIDENCE." The term residence may
mean one thing in civil law (or under the Civil Code) and quite another thing in political law.
What stands clear is that insofar as the Civil Code is concerned affecting the rights and
obligations of husband and wife the term residence should only be interpreted to mean
"actual residence." The inescapable conclusion derived from this unambiguous civil law
delineation therefore, is that when petitioner married the former President in 1954, she kept
her domicile of origin and merely gained a new home, not a domicilium necessarium.
14. STATUTORY CONSTRUCTION; STATUTE REQUIRING RENDITION OF JUDGMENT WITHIN
SPECIFIED TIME, MERELY DIRECTORY. It is a settled doctrine that a statute requiring
rendition of judgment within a specified time is generally construed to be merely directory,
"so that non-compliance with them does not invalidate the judgment on the theory that if
the statute had intended such result it would have clearly indicated it." The difference
between a mandatory and a directory provision is often made on grounds of necessity.
15. CONSTITUTIONAL LAW; COMELEC; JURISDICTION TO DECIDE PENDING DISQUALIFICATION
CASE NOT LOST BY HOLDING OF ELECTIONS. With the enactment of Sections 6 and 7
of R.A. 6646 in relation to Section 78 of B.P. 881, it is evident that the respondent
Election Law Cases
Commission does not lose jurisdiction to hear and decide a pending disqualification case
under Section 78 of B.P. 881 even after the elections.
16. ID.; LEGISLATURE; HOUSE OF REPRESENTATIVES ELECTORAL TRIBUNAL (HRET); SOLE
JUDGE OF ALL CONTESTS RELATING TO ELECTIONS, RETURNS AND QUALIFICATIONS OF
MEMBERS OF CONGRESS; CANDIDATE MUST HAVE BEEN PROCLAIMED. As to the House of
Representatives Electoral Tribunal's supposed assumption of jurisdiction over the issue of
petitioner's qualifications after the May 8, 1995 elections, suffice it to say that HRET's
jurisdiction as the sole judge of all contests relating to the elections, returns and
qualifications of members of Congress begins only after a candidate has become a member
of the House of Representatives. Petitioner not being a member of the House of
Representatives, it is obvious that the HRET at this point has no jurisdiction over the
question.
||| (Romualdez-Marcos v. COMELEC, G.R. No. 119976, [September 18, 1995], 318 PHIL 329-
466)
[G.R. No. 201716. January 8, 2013.]
MAYOR ABELARDO ABUNDO, SR., petitioner, vs. COMMISSION ON
ELECTIONS and ERNESTO R. VEGA, respondents.
DECISION
VELASCO, JR., J p:
The Case
In this Petition for Certiorari under Rule 65, petitioner Abelardo Abundo, Sr. (Abundo) assails
and seeks to nullify (1) the February 8, 2012 Resolution 1 of the Second Division,
Commission on Elections (COMELEC), in EAC (AE) No. A-25-2010 and (2) the May 10, 2012
Resolution 2 of the COMELEC en banc affirming that division's disposition. The assailed
issuances, in turn, affirmed the Decision of the Regional Trial Court (RTC) of Virac,
Catanduanes, Branch 43, dated August 9, 2010, in Election Case No. 55 declaring Abundo as
ineligible, under the three-term limit rule, to run in the 2010 elections for the position of, and
necessarily to sit as, Mayor of Viga, Catanduanes.
The antecedent facts are undisputed.
For four (4) successive regular elections, namely, the 2001, 2004, 2007 and 2010 national
and local elections, Abundo vied for the position of municipal mayor of Viga, Catanduanes. In
both the 2001 and 2007 runs, he emerged and was proclaimed as the winning mayoralty
candidate and accordingly served the corresponding terms as mayor. In the 2004 electoral
derby, however, the Viga municipal board of canvassers initially proclaimed as winner one
Jose Torres (Torres), who, in due time, performed the functions of the office of mayor. Abundo
protested Torres' election and proclamation. Abundo was eventually declared the winner of
the 2004 mayoralty electoral contest, paving the way for his assumption of office starting
May 9, 2006 until the end of the 2004-2007 term on June 30, 2007, or for a period of a little
over one year and one month.
Then came the May 10, 2010 elections where Abundo and Torres again opposed each other.
When Abundo filed his certificate of candidacy 3 for the mayoralty seat relative to this
electoral contest, Torres lost no time in seeking the former's disqualification to run, the
corresponding petition, 4 docketed as SPA Case No. 10-128 (DC), predicated on the three-
consecutive term limit rule. On June 16, 2010, the COMELEC First Division issued a
Resolution 5 finding for Abundo, who in the meantime bested Torres by 219 votes 6 and was
accordingly proclaimed 2010 mayor-elect of Viga, Catanduanes.
Meanwhile, on May 21, 2010, or before the COMELEC could resolve the adverted
disqualification case Torres initiated against Abundo, herein private respondent Ernesto R.
Vega (Vega) commenced a quo warranto 7 action before the RTC-Br. 43 in Virac,
Catanduanes, docketed as Election Case No. 55, to unseat Abundo on essentially the same
grounds Torres raised in his petition to disqualify.
The Ruling of the Regional Trial Court
By Decision 8 of August 9, 2010 in Election Case No. 55, the RTC declared Abundo ineligible
to serve as municipal mayor, disposing as follows:
Election Law Cases
5.On July 2, 2012, Sheriff Q. Tador, Jr. received the Writ of Execution and served the same at
the office of Mayor Abundo on the same day via substituted service.
6.On July 3, 2012, the Court issued a TRO 20 enjoining the enforcement of the assailed
COMELEC Resolutions.
7.On July 4, 2012, Vega received the Court's July 3, 2012 Resolution 21 and a copy of the
TRO. On the same day, Vice-Mayor Emeterio M. Tarin and First Councilor Cesar O. Cervantes
of Viga, Catanduanes took their oaths of office 22 as mayor and vice-mayor of Viga,
Catanduanes, respectively.
8.On July 5, 2012, Vega received a copy of Abundo's Seventh (7th) Most Extremely Urgent
Manifestation and Motion 23 dated June 28, 2012 praying for the issuance of a TRO
and/or status quo ante Order. On the same day, Vice-Mayor Emeterio M. Tarin and First
Councilor Cesar O. Cervantes who had taken their oaths of office the day before
assumed the posts of mayor and vice-mayor of Viga, Catanduanes. 24
9.On July 6, 2012, Vega interposed a Motion (To Admit Attached Manifestation) 25 and
Manifestation with Leave to Admit 26 dated July 5, 2012 stating that the TRO thus issued by
the Court has become functus officio owing to the execution of the RTC's Decision in Election
Case No. 55.
10.On July 10, 2012, Vega filed his Comment/Opposition with Leave to the Petitioner's Prayer
for the Issuance of a Status Quo Ante Order 27 reiterating the argument that since Vice-
Mayor Emeterio M. Tarin and First Councilor Cesar O. Cervantes already assumed the posts
of Mayor and Vice-Mayor of Viga, Catanduanes, then a Status Quo Ante Order would serve
no purpose.
11.On July 12, 2012, Abundo filed his Most Urgent Manifestation and Motion to Convert the
July 3, 2012 TRO into a Status Quo Ante Order (In View of the Unreasonable and
Inappropriate Progression of Events). 28
It is upon the foregoing backdrop of events that Abundo was dislodged from his post as
incumbent mayor of Viga, Catanduanes. To be sure, the speed which characterized Abundo's
ouster despite the supervening issuance by the Court of a TRO on July 3, 2012 is not lost on
the Court. While it is not clear whether Vice-Mayor Tarin and First Councilor Cervantes knew
of or put on notice about the TRO either before they took their oaths of office on July 4, 2012
or before assuming the posts of mayor and vice-mayor on July 5, 2012, the confluence of
events following the issuance of the assailed COMELEC en banc irresistibly tends to show
that the TRO issued as it were to maintain the status quo, thus averting the premature
ouster of Abundo pending this Court's resolution of his appeal appears to have been
trivialized.
On September 11, 2012, Vega filed his Comment on Abundo's petition, followed not long
after by public respondent COMELEC's Consolidated Comment. 29
The Issues
Abundo raises the following grounds for the allowance of the petition:
6.1The Commission En Banc committed grave abuse of discretion
amounting to lack or excess of jurisdiction when it declared the
arguments in Abundo's motion for reconsideration as mere rehash
and reiterations of the claims he raised prior to the promulgation of
the Resolution.
6.2The Commission En Banc committed grave abuse of discretion
amounting to lack or excess of jurisdiction when it declared that
Abundo has consecutively served for three terms despite the fact
that he only served the remaining one year and one month of the
second term as a result of an election protest. 30
First Issue:
Arguments in Motion for
Reconsideration Not Mere Reiteration
The COMELEC en banc denied Abundo's motion for reconsideration on the basis that his
arguments in said motion are mere reiterations of what he already brought up in his appeal
Brief before the COMELEC Second Division. In this petition, petitioner claims otherwise.
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As is clearly provided in Sec. 8, Art. X of the Constitution as well as in Sec. 43 (b) of the LGC,
voluntary renunciation of the office by the incumbent elective local official for any length of
time shall NOT, in determining service for three consecutive terms, be considered an
interruption in the continuity of service for the full term for which the elective official
concerned was elected. In Aldovino, Jr., however, the Court stated the observation that the
law "does not textually state that voluntary renunciation is the only actual interruption of
service that does not affect 'continuity of service for a full term' for purposes of the three-
term limit rule." 32
As stressed in Socrates v. Commission on Elections, 33 the principle behind the three-term
limit rule covers only consecutive terms and that what the Constitutionprohibits is
a consecutive fourth term. Put a bit differently, an elective local official cannot, following
his third consecutive term, seek immediate reelection for a fourth term, 34 albeit he is
allowed to seek a fresh term for the same position after the election where he could have
sought his fourth term but prevented to do so by reason of the prohibition.
There has, in fine, to be a break or interruption in the successive terms of the official after
his or her third term. An interruption usually occurs when the official does not seek a fourth
term, immediately following the third. Of course, the basic law is unequivocal that
a "voluntary renunciation of the office for any length of time shall NOT be considered an
interruption in the continuity of service for the full term for which the elective official
concerned was elected." This qualification was made as a deterrent against an elective local
official intending to skirt the three-term limit rule by merely resigning before his or her third
term ends. This is a voluntary interruption as distinguished from involuntary interruption
which may be brought about by certain events or causes.
While appearing to be seemingly simple, the three-term limit rule has engendered a host of
disputes resulting from the varying interpretations applied on local officials who were
elected and served for three terms or more, but whose terms or service was punctuated by
what they view as involuntary interruptions, thus entitling them to a, but what their
opponents perceive as a proscribed, fourth term. Involuntary interruption is claimed to result
from any of these events or causes: succession or assumption of office by operation of law,
preventive suspension, declaration of the defeated candidate as the winner in an election
contest, declaration of the proclaimed candidate as the losing party in an election contest,
proclamation of a non-candidate as the winner in a recall election, removal of the official by
operation of law, and other analogous causes.
This brings us to an examination of situations and jurisprudence wherein such consecutive
terms were considered or not considered as having been "involuntarily interrupted or
broken."
(1)Assumption of Office by Operation of Law
In Borja, Jr. v. Commission on Elections and Jose T. Capco, Jr. 35 (1998) and Montebon v.
Commission on Elections 36 (2008), the Court delved on the effects of"assumption to office
by operation of law" on the three-term limit rule. This contemplates a situation wherein an
elective local official fills by succession a higher local government post permanently left
vacant due to any of the following contingencies, i.e., when the supposed incumbent refuses
to assume office, fails to qualify, dies, is removed from office, voluntarily resigns or is
otherwise permanently incapacitated to discharge the functions of his office. 37
In Borja, Jr., Jose T. Capco, Jr. (Capco) was elected vice-mayor of Pateros on January 18, 1988
for a term ending June 30, 1992. On September 2, 1989, Capco became mayor, by operation
of law, upon the death of the incumbent mayor, Cesar Borja. Capco was then elected and
served as mayor for terms 1992-1995 and 1995-1998. When Capco expressed his intention
to run again for the mayoralty position during the 1998 elections, Benjamin U. Borja, Jr., who
was then also a candidate for mayor, sought Capco's disqualification for violation of the
three-term limit rule.
Finding for Capco, the Court held that for the disqualification rule to apply, "it is not enough
that an individual has served three consecutive terms in an elective local office, he must
also have been elected to the same position for the same number of times before the
disqualification can apply." 38 There was, the Court ruled, no violation of the three-term
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limit, for Capco "was not elected to the office of the mayor in the first term but simply found
himself thrust into it by operation of law" 39when a permanent vacancy occurred in that
office.
The Court arrived at a parallel conclusion in the case of Montebon. There, Montebon had
been elected for three consecutive terms as municipal councilor of Tuburan, Cebu in 1998-
2001, 2001-2004, and 2004-2007. However, in January 2004, or during his second term,
Montebon succeeded and assumed the position of vice-mayor of Tuburan when the
incumbent vice-mayor retired. When Montebon filed his certificate of candidacy again as
municipal councilor, a petition for disqualification was filed against him based on the three-
term limit rule. The Court ruled that Montebon's assumption of office as vice-mayor in
January 2004 was an interruption of his continuity of service as councilor. The Court
emphasized that succession in local government office is by operation of law and as
such, it is an involuntary severance from office. Since the law no less allowed
Montebon to vacate his post as councilor in order to assume office as vice-mayor, his
occupation of the higher office cannot, without more, be deemed as a voluntary renunciation
of his position as councilor.
(2)Recall Election
With reference to the effects of recall election on the continuity of service, Adormeo v.
Commission on Elections 40 (2002) and the aforementioned case of Socrates(2002) provide
guidance.
In Adormeo, Ramon Talaga, Jr. (Talaga) was elected and served as mayor of Lucena City
during terms 1992-1995 and 1995-1998. During the 1998 elections, Talaga lost to Bernard
G. Tagarao. However, before Tagarao's 1998-2001 term ended, a recall election was
conducted in May 2000 wherein Talaga won and served the unexpired term of Tagarao until
June 2001. When Talaga ran for mayor in 2001, his candidacy was challenged on the ground
he had already served as mayor for three consecutive terms for violation of the three term-
limit rule. The Court held therein that the remainder of Tagarao's term after the recall
election during which Talaga served as mayor should not be considered for purposes of
applying the three-term limit rule. The Court emphasized that the continuity of Talaga's
mayorship was disrupted by his defeat during the 1998 elections.
A similar conclusion was reached by the Court in Socrates. The petitioners in that case
assailed the COMELEC Resolution which declared Edward Hagedorn qualified to run for
mayor in a recall election. It appeared that Hagedorn had been elected and served as mayor
of Puerto Princesa City for three consecutive terms: in 1992-1995, 1995-1998 and 1998-
2001. Obviously aware of the three-term limit principle, Hagedorn opted not to vie for the
same mayoralty position in the 2001 elections, in which Socrates ran and eventually won.
However, midway into his term, Socrates faced recall proceedings and in the recall election
held, Hagedorn run for the former's unexpired term as mayor. Socrates sought Hagedorn's
disqualification under the three-term limit rule.
In upholding Hagedorn's candidacy to run in the recall election, the Court ruled:
. . . After Hagedorn ceased to be mayor on June 30, 2001, he became a
private citizen until the recall election of September 24, 2002 when he
won by 3,018 votes over his closest opponent, Socrates.
From June 30, 2001 until the recall election on September 24, 2002, the
mayor of Puerto Princesa was Socrates. During the same period, Hagedorn
was simply a private citizen. This period is clearly an interruption in the
continuity of Hagedorn's service as mayor, not because of his voluntary
renunciation, but because of a legal prohibition. 41
The Court likewise emphasized in Socrates that "an elective local official cannot
seek immediate reelection for a fourth term. The prohibited election refers to the next
regular election for the same office following the end of the third consecutive term [and,
hence], [a]ny subsequent election, like recall election, is no longer covered . . . ."42
(3)Conversion of a Municipality into a City
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On the other hand, the conversion of a municipality into a city does not constitute
an interruption of the incumbent official's continuity of service. The Court said so
in Latasa v. Commission on Elections 43 (2003).
Latasa is cast against the ensuing backdrop: Arsenio A. Latasa was elected and served as
mayor of the Municipality of Digos, Davao del Sur for terms 1992-1995, 1995-1998, and
1998-2001. During his third term, Digos was converted into a component city, with the
corresponding cityhood law providing the holdover of elective officials. When Latasa filed his
certificate of candidacy as mayor for the 2001 elections, the Court declared Latasa as
disqualified to run as mayor of Digos City for violation of the three-term limit rule on the
basis of the following ratiocination:
This Court believes that (Latasa) did involuntarily relinquish his office as
municipal mayor since the said office has been deemed abolished due to the
conversion. However, the very instant he vacated his office as
municipal mayor, he also assumed office as city mayor. Unlike
in Lonzanida, where petitioner therein, for even just a short period of time,
stepped down from office, petitioner Latasa never ceased from acting as
chief executive of the local government unit. He never ceased from
discharging his duties and responsibilities as chief executive of Digos.
(Emphasis supplied.)
(4)Period of Preventive Suspension
In 2009, in the case Aldovino Jr., the Court espoused the doctrine that the period during
which a local elected official is under preventive suspension cannot be considered
as an interruption of the continuity of his service. The Court explained why so:
Strict adherence to the intent of the three-term limit rule demands that
preventive suspension should not be considered an interruption that allows
an elective official's stay in office beyond three terms. A preventive
suspension cannot simply be a term interruption because the
suspended official continues to stay in office although he is barred
from exercising the functions and prerogatives of the office within
the suspension period. The best indicator of the suspended official's
continuity in office is the absence of a permanent replacement and
the lack of the authority to appoint one since no vacancy
exists. 44 (Emphasis supplied.)
(5)Election Protest
With regard to the effects of an election protest vis- -vis the three-term limit rule,
jurisprudence presents a more differing picture. The Court's pronouncements inLonzanida v.
Commission on Elections 45 (1999), Ong v. Alegre 46 (2006), Rivera III v. Commission on
Elections 47 (2007) and Dizon v. Commission on Elections 48 (2009), all protest cases, are
illuminating.
In Lonzanida, Romeo Lonzanida was elected and had served as municipal mayor of San
Antonio, Zambales in terms 1989-1992, 1992-1995 and 1995-1998. However, his
proclamation relative to the 1995 election was protested and was eventually declared by the
RTC and then by COMELEC null and void on the ground of failure of elections. On February
27, 1998, or about three months before the May 1998 elections, Lonzanida vacated the
mayoralty post in light of a COMELEC order and writ of execution it issued. Lonzanida's
opponent assumed office for the remainder of the term. In the May 1998 elections,
Lonzanida again filed his certificate of candidacy. His opponent, Efren Muli, filed a petition for
disqualification on the ground that Lonzanida had already served three consecutive terms in
the same post. The Court, citingBorja Jr., reiterated the two (2) conditions which must concur
for the three-term limit to apply: "1) that the official concerned has been elected for three
consecutive terms in the same local government post and 2) that he has fully served three
consecutive terms." 49
In view of Borja, Jr., the Court ruled that the foregoing requisites were absent in the case
of Lonzanida. The Court held that Lonzanida cannot be considered as having been duly
elected to the post in the May 1995 elections since his assumption of office as
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mayor "cannot be deemed to have been by reason of a valid election but by reason of a void
proclamation." And as a corollary point, the Court stated that Lonzanida did not fully serve
the 1995-1998 mayoral term having been ordered to vacate his post before the expiration of
the term, a situation which amounts to an involuntary relinquishment of office.
This Court deviated from the ruling in Lonzanida in Ong v. Alegre 50 owing to a variance in
the factual situations attendant.
In that case, Francis Ong (Ong) was elected and served as mayor of San Vicente, Camarines
Norte for terms 1995-1998, 1998-2001, and 2001-2004. During the 1998 mayoralty
elections, or during his supposed second term, the COMELEC nullified Ong's proclamation on
the postulate that Ong lost during the 1998 elections. However, the COMELEC's decision
became final and executory on July 4, 2001, when Ong had fully served the 1998-2001
mayoralty term and was in fact already starting to serve the 2001-2004 term as mayor-elect
of the municipality of San Vicente. In 2004, Ong filed his certificate of candidacy for the
same position as mayor, which his opponent opposed for violation of the three-term limit
rule.
Ong invoked the ruling in Lonzanida and argued that he could not be considered as having
served as mayor from 1998-2001 because he was not duly elected to the post and merely
assumed office as a "presumptive winner." Dismissing Ong's argument, the Court held that
his assumption of office as mayor for the term 1998-2001 constitutes "service for the full
term" and hence, should be counted for purposes of the three-term limit rule. The Court
modified the conditions stated in Lonzanida in the sense that Ong's service was deemed and
counted as service for a full term because Ong's proclamation was voided only after the
expiry of the term. The Court noted that the COMELEC decision which declared Ong as not
having won the 1998 elections was "without practical and legal use and value" promulgated
as it was after the contested term has expired. The Court further reasoned:
Petitioner [Francis Ong's] contention that he was only a presumptive winner
in the 1998 mayoralty derby as his proclamation was under protest did not
make him less than a duly elected mayor. His proclamation as the duly
elected mayor in the 1998 mayoralty election coupled by his
assumption of office and his continuous exercise of the
functions thereof from start to finish of the term, should legally be
taken as service for a full term in contemplation of the three-term
rule.
The absurdity and the deleterious effect of a contrary view is not hard to
discern. Such contrary view would mean that Alegre would under the
three-term rule beconsidered as having served a term by virtue of a
veritably meaningless electoral protest ruling, when another actually served
such term pursuant to a proclamation made in due course after an
election. 51 (Emphasis supplied.)
The Court did not apply the ruling in Lonzanida and ruled that the case of Ong
was different, to wit:
The difference between the case at bench and Lonzanida is at once
apparent. For one, in Lonzanida, the result of the mayoralty election was
declared a nullity for the stated reason of "failure of election", and, as a
consequence thereof, the proclamation of Lonzanida as mayor-elect was
nullified, followed by an order for him to vacate the office of mayor. For
another, Lonzanida did not fully serve the 1995-1998 mayoral term, there
being an involuntary severance from office as a result of legal processes. In
fine, there was an effective interruption of the continuity of
service. 52 (Emphasis supplied.)
Ong's slight departure from Lonzanida would later find reinforcement in the consolidated
cases of Rivera III v. Commission on Elections 53 and Dee v. Morales. 54Therein, Morales
was elected mayor of Mabalacat, Pampanga for the following consecutive terms: 1995-1998,
1998-2001 and 2001-2004. In relation to the 2004 elections, Morales again ran as mayor of
the same town, emerged as garnering the majority votes and was proclaimed elective mayor
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for term commencing July 1, 2004 to June 30, 2007. A petition for quo warranto was later
filed against Morales predicated on the ground that he is ineligible to run for a "fourth" term,
having served as mayor for three consecutive terms. In his answer, Morales averred that his
supposed 1998-2001 term cannot be considered against him, for, although he was
proclaimed by the Mabalacat board of canvassers as elected mayor vis- -vis the 1998
elections and discharged the duties of mayor until June 30, 2001, his proclamation was later
nullified by the RTC of Angeles City and his closest rival, Anthony Dee, proclaimed the duly
elected mayor. Pursuing his point, Morales parlayed the idea that he only served as a mere
caretaker.
The Court found Morales' posture untenable and held that the case of Morales presents a
factual milieu similar with Ong, not with Lonzanida. For ease of reference, the proclamation
of Francis Ong, in Ong, was nullified, but after he, like Morales, had served the three-year
term from the start to the end of the term. Hence, the Court concluded that Morales
exceeded the three-term limit rule, to wit:
Here, respondent Morales was elected for the term July 1, 1998 to June 30,
2001. He assumed the position. He served as mayor until June 30, 2001. He
was mayor for the entire period notwithstanding the Decision of the
RTC in the electoral protest case filed by petitioner Dee ousting him
(respondent) as mayor. To reiterate, as held in Ong v. Alegre, such
circumstance does not constitute an interruption in serving the full term.
xxx xxx xxx
Respondent Morales is now serving his fourth term. He has been mayor of
Mabalacat continuously without any break since July 1, 1995. In just over a
month, by June 30, 2007, he will have been mayor of Mabalacat for twelve
(12) continuous years. 55 (Emphasis supplied.)
The Court ruled in Rivera that the fact of being belatedly ousted, i,e., after the expiry of the
term, cannot constitute an interruption in Morales' service of the full term; neither can
Morales, as he argued, be considered merely a "caretaker of the office" or a mere "de facto
officer" for purposes of applying the three-term limit rule.
In a related 2009 case of Dizon v. Commission on Elections, 56 the Court would again find
the same Mayor Morales as respondent in a disqualification proceeding when he ran again
as a mayoralty candidate during the 2007 elections for a term ending June 30, 2010. Having
been unseated from his post by virtue of this Court's ruling inRivera, Morales would argue
this time around that the three-term limit rule was no longer applicable as to his 2007
mayoralty bid. This time, the Court ruled in his favor, holding that for purposes of the 2007
elections, the three-term limit rule was no longer a disqualifying factor as against Morales.
The Court wrote:
Our ruling in the Rivera case served as Morales' involuntary
severance from office with respect to the 2004-2007 term.
Involuntary severance from office for any length of time short of the full
term provided by law amounts to an interruption of continuity of service. Our
decision in the Rivera case was promulgated on 9 May 2007 and was
effective immediately. The next day, Morales notified the vice mayor's office
of our decision. The vice mayor assumed the office of the mayor from 17
May 2007 up to 30 June 2007. The assumption by the vice mayor of the
office of the mayor, no matter how short it may seem to Dizon,
interrupted Morales' continuity of service. Thus, Morales did not hold
office for the full term of 1 July 2004 to 30 June 2007. 57 (Emphasis
supplied)
To summarize, hereunder are the prevailing jurisprudence on issues affecting
consecutiveness of terms and/or involuntary interruption, viz.:
1.When a permanent vacancy occurs in an elective position and the official merely assumed
the position pursuant to the rules on succession under the LGC, then his service for the
unexpired portion of the term of the replaced official cannot be treated as one full term as
contemplated under the subject constitutional and statutory provision that service cannot be
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counted in the application of any term limit (Borja, Jr.). If the official runs again for the same
position he held prior to his assumption of the higher office, then his succession to said
position is by operation of law and is considered an involuntary severance or
interruption (Montebon).
2.An elective official, who has served for three consecutive terms and who did not seek the
elective position for what could be his fourth term, but later won in a recall election, had an
interruption in the continuity of the official's service. For, he had become in the
interim, i.e., from the end of the 3rd term up to the recall election, a private
citizen (Adormeo and Socrates).
3.The abolition of an elective local office due to the conversion of a municipality to a city
does not, by itself, work to interrupt the incumbent official's continuity of service (Latasa).
4.Preventive suspension is not a term-interrupting event as the elective officer's continued
stay and entitlement to the office remain unaffected during the period of suspension,
although he is barred from exercising the functions of his office during this period (Aldovino,
Jr.).
5.When a candidate is proclaimed as winner for an elective position and assumes office, his
term is interrupted when he loses in an election protest and is ousted from office, thus
disenabling him from serving what would otherwise be the unexpired portion of his term of
office had the protest been dismissed (Lonzanida andDizon). The break or interruption need
not be for a full term of three years or for the major part of the 3-year term; an interruption
for any length of time, provided the cause is involuntary, is sufficient to break the continuity
of service (Socrates, citing Lonzanida).
6.When an official is defeated in an election protest and said decision becomes final after
said official had served the full term for said office, then his loss in the election contest does
not constitute an interruption since he has managed to serve the term from start to finish.
His full service, despite the defeat, should be counted in the application of term limits
because the nullification of his proclamation came after the expiration of the term
(Ong and Rivera).
The Case of Abundo
Abundo argues that the RTC and the COMELEC erred in uniformly ruling that he had already
served three consecutive terms and is, thus, barred by the constitutional three-term limit
rule to run for the current 2010-2013 term. In gist, Abundo arguments run thusly:
1.Aldovino, Jr.is not on all fours with the present case as the former dealt with preventive
suspension which does not interrupt the continuity of service of a term;
2.Aldovino, Jr.recognizes that the term of an elected official can be interrupted so as to
remove him from the reach of the constitutional three-term limitation;
3.The COMELEC misinterpreted the meaning of "term" in Aldovino, Jr. by its reliance on a
mere portion of the Decision and not on the unified logic in the disquisition;
4.Of appropriate governance in this case is the holding in Lonzanida 58 and Rivera III v.
Commission on Elections. 59
5.The COMELEC missed the point when it ruled that there was no interruption in the service
of Abundo since what he considered as an "interruption" of his 2004-2007 term occurred
before his term started; and
6.To rule that the term of the protestee (Torres) whose proclamation was adjudged invalid
was interrupted while that of the protestant (Abundo) who was eventually proclaimed winner
was not so interrupted is at once absurd as it is illogical.
Both respondents Vega and the COMELEC counter that the ratio decidendi of Aldovino,
Jr. finds application in the instant case. The COMELEC ruled that Abundo did not lose title to
the office as his victory in the protest case confirmed his entitlement to said office and he
was only unable to temporarily discharge the functions of the office during the pendency of
the election protest.
We note that this present case of Abundo deals with the effects of an election protest, for
which the rulings in Lonzanida, Ong, Rivera and Dizon appear to be more attuned than the
case of Aldovino Jr., the interrupting effects of the imposition of a preventive suspension
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being the very lis mota in the Aldovino, Jr. case. But just the same, We find that Abundo's
case presents a different factual backdrop.
Unlike in the abovementioned election protest cases wherein the individuals subject of
disqualification were candidates who lost in the election protest and each declared loser
during the elections, Abundo was the winner during the election protest and was
declared the rightful holder of the mayoralty post. Unlike Mayor Lonzanida and Mayor
Morales, who were both unseated toward the end of their respective terms, Abundo was
the protestant who ousted his opponent and had assumed the remainder of the
term.
Notwithstanding, We still find this Court's pronouncements in the past as instructive, and
consider several doctrines established from the 1998 case of Borja, Jr. up to the most recent
case of Aldovino Jr. in 2009, as potent aids in arriving at this Court's conclusion.
The intention behind the three-term limit rule was not only to abrogate the "monopolization
of political power" and prevent elected officials from breeding "proprietary interest in their
position" 60 but also to "enhance the people's freedom of choice." 61 In the words of Justice
Vicente V. Mendoza, "while people should be protected from the evils that a monopoly of
power may bring about, care should be taken that their freedom of choice is not unduly
curtailed." 62
In the present case, the Court finds Abundo's case meritorious and declares that the two-
year period during which his opponent, Torres, was serving as mayor should be
considered as an interruption, which effectively removed Abundo's case from the
ambit of the three-term limit rule.
It bears to stress at this juncture that Abundo, for the 2004 election for the term starting July
1, 2004 to June 30, 2007, was the duly elected mayor. Otherwise how explain his victory in
his election protest against Torres and his consequent proclamation as duly elected mayor.
Accordingly, the first requisite for the application of the disqualification rule based on the
three-term limit that the official has been elected is satisfied.
This thus brings us to the second requisite of whether or not Abundo had served for "three
consecutive terms," as the phrase is juridically understood, as mayor of Viga, Catanduanes
immediately before the 2010 national and local elections. Subsumed to this issue is of
course the question of whether or not there was an effective involuntary interruption during
the three three-year periods, resulting in the disruption of the continuity of Abundo's
mayoralty.
The facts of the case clearly point to an involuntary interruption during the July 2004-June
2007 term.
There can be no quibbling that, during the term 2004-2007, and with the enforcement of the
decision of the election protest in his favor, Abundo assumed the mayoralty post only on
May 9, 2006 and served the term until June 30, 2007 or for a period of a little over one year
and one month. Consequently, unlike Mayor Ong inOng and Mayor Morales in Rivera, it
cannot be said that Mayor Abundo was able to serve fully the entire 2004-2007 term to
which he was otherwise entitled.
A "term," as defined in Appari v. Court of Appeals, 63 means, in a legal sense, "a fixed and
definite period of time which the law describes that an officer may hold an office." 64 It also
means the "time during which the officer may claim to hold office as a matter of right, and
fixes the interval after which the several incumbents shall succeed one another." 65 It is the
period of time during which a duly elected official has title to and can serve the functions of
an elective office. From paragraph (a) of Sec. 43, RA 7160, 66 the term for local elected
officials is three (3) years starting from noon of June 30 of the first year of said term.
In the present case, during the period of one year and ten months, or from June 30, 2004
until May 8, 2006, Abundo cannot plausibly claim, even if he wanted to, that he
could hold office of the mayor as a matter of right. Neither can he assert title to
the same nor serve the functions of the said elective office. The reason is simple:
during that period, title to hold such office and the corresponding right to assume the
functions thereof still belonged to his opponent, as proclaimed election winner. Accordingly,
Abundo actually held the office and exercised the functions as mayor only upon his
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declaration, following the resolution of the protest, as duly elected candidate in the May
2004 elections or for only a little over one year and one month. Consequently, since the
legally contemplated full term for local elected officials is three (3) years, it cannot be said
that Abundo fully served the term 2004-2007. The reality on the ground is that Abundo
actually served less.
Needless to stress, the almost two-year period during which Abundo's opponent actually
served as Mayor is and ought to be considered an involuntary interruption of Abundo's
continuity of service. An involuntary interrupted term, cannot, in the context of the
disqualification rule, be considered as one term for purposes of counting the three-term
threshold. 67
The notion of full service of three consecutive terms is related to the concepts
of interruption of service and voluntary renunciation of service. The
wordinterruption means temporary cessation, intermission or suspension. 68 To interrupt
is to obstruct, thwart or prevent. 69 When the Constitution and the LGC of 1991 speak
of interruption, the reference is to the obstruction to the continuance of the service by the
concerned elected official by effectively cutting short the service of a term or giving a hiatus
in the occupation of the elective office. On the other hand, the word "renunciation" connotes
the idea of waiver or abandonment of a known right. To renounce is to give up, abandon,
decline or resign. 70 Voluntary renunciation of the office by an elective local official would
thus mean to give up or abandon the title to the office and to cut short the service of the
term the concerned elected official is entitled to.
In its assailed Resolution, the COMELEC en banc, applying Aldovino, Jr., 71 held:
It must be stressed that involuntary interruption of service which
jurisprudence deems an exception to the three-term limit rule, implies that
the service of the term has begun before it was interrupted. Here, the
respondent did not lose title to the office. As the assailed Resolution states:
In the case at bar, respondent cannot be said to have lost his title to
the office. On the contrary, he actively sought entitlement to the
office when he lodged the election protest case. And respondent-
appellant's victory in the said case is a final confirmation that he was
validly elected for the mayoralty post of Viga, Catanduanes in 2004-
2007. At most, respondent-appellant was only unable to
temporarily discharge the functions of the office to which he
was validly elected during the pendency of the election protest,
but he never lost title to the said office. 72 (Emphasis added.)
The COMELEC's Second Division, on the other hand, pronounced that the actual length of
service by the public official in a given term is immaterial by reckoning said service for the
term in the application of the three-term limit rule, thus:
As emphasized in the case of Aldovino, "this formulation no more than
three consecutive terms is a clear command suggesting the existence of
an inflexible rule." Therefore we cannot subscribe to the argument that since
respondent Abundo served only a portion of the term, his 2004-2007 "term"
should not be considered for purposes of the application of the three term
limit rule. When the framers of the Constitution drafted and incorporated the
three term limit rule, it is clear that reference is to the term, not the actual
length of the service the public official may render. Therefore, one's actual
service of term no matter how long or how short is immaterial. 73
In fine, the COMELEC ruled against Abundo on the theory that the length of the actual
service of the term is immaterial in his case as he was only temporarily unable to discharge
his functions as mayor.
The COMELEC's case disposition and its heavy reliance on Aldovino, Jr. do not commend
themselves for concurrence. The Court cannot simply find its way clear to understand the
poll body's determination that Abundo was only temporarily unable to discharge his
functions as mayor during the pendency of the election protest.
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As previously stated, the declaration of being the winner in an election protest grants the
local elected official the right to serve the unexpired portion of the term. Verily, while he was
declared winner in the protest for the mayoralty seat for the 2004-2007 term, Abundo's full
term has been substantially reduced by the actual service rendered by his opponent (Torres).
Hence, there was actual involuntary interruption in the term of Abundo and he cannot be
considered to have served the full 2004-2007 term.
This is what happened in the instant case. It cannot be overemphasized that pending the
favorable resolution of his election protest, Abundo was relegated to being an ordinary
constituent since his opponent, as presumptive victor in the 2004 elections, was occupying
the mayoralty seat. In other words, for almost two years or from July 1, 2004 the start of
the term until May 9, 2006 or during which his opponent actually assumed the mayoralty
office, Abundo was a private citizen warming his heels while awaiting the outcome
of his protest. Hence, even if declared later as having the right to serve the elective
position from July 1, 2004, such declaration would not erase the fact that prior to the finality
of the election protest, Abundo did not serve in the mayor's office and, in fact, had no legal
right to said position.
Aldovino Jr. cannot possibly lend support to respondent's cause of action, or to COMELEC's
resolution against Abundo. In Aldovino Jr., the Court succinctly defines what temporary
inability or disqualification to exercise the functions of an elective office means, thus:
On the other hand, temporary inability or disqualification to exercise the
functions of an elective post, even if involuntary, should not be considered
an effective interruption of a term because it does not involve the loss of
title to office or at least an effective break from holding office;
the office holder, while retaining title, is simply barred from exercising the
functions of his office for a reason provided by law. 74
We rule that the above pronouncement on preventive suspension does not apply to
the instant case. Verily, it is erroneous to say that Abundo merely was temporarily unable
or disqualified to exercise the functions of an elective post. For one, during the intervening
period of almost two years, reckoned from the start of the 2004-2007 term, Abundo cannot
be said to have retained title to the mayoralty office as he was at that time not
the duly proclaimed winner who would have the legal right to assume and serve such
elective office. For another, not having been declared winner yet, Abundo cannot be said
to have lost title to the office since one cannot plausibly lose a title which, in the
first place, he did not have. Thus, for all intents and purposes, even if the belated
declaration in the election protest accords him title to the elective office from the start of the
term, Abundo was not entitled to the elective office until the election protest was finally
resolved in his favor.
Consequently, there was a hiatus of almost two years, consisting of a break and
effective interruption of his service, until he assumed the office and served barely over a
year of the remaining term. At this juncture, We observe the apparent similarities of Mayor
Abundo's case with the cases of Mayor Talaga in Adormeo and Mayor Hagedorn
in Socrates as Mayors Talaga and Hagedorn were not proclaimed winners since they were
non-candidates in the regular elections. They were proclaimed winners during the recall
elections and clearly were not able to fully serve the terms of the deposed incumbent
officials. Similar to their cases where the Court deemed their terms as involuntarily
interrupted, Abundo also became or was a private citizen during the period over which his
opponent was serving as mayor. If in Lonzanida, the Court ruled that there was interruption
in Lonzanida's service because of his subsequent defeat in the election protest, then with
more reason, Abundo's term for 2004-2007 should be declared interrupted since he was not
proclaimed winner after the 2004 elections and was able to assume the office and serve only
for a little more than a year after winning the protest.
As aptly stated in Latasa, to be considered as interruption of service, the "law contemplates
a rest period during which the local elective official steps down from office and ceases to
exercise power or authority over the inhabitants of the territorial jurisdiction of a particular
local government unit." 75 Applying the said principle in the present case, there is no
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question that during the pendency of the election protest, Abundo ceased from
exercising power or authority over the good people of Viga, Catanduanes. Consequently,
the period during which Abundo was not serving as mayor should be considered as a rest
period or break in his service because, as earlier stated, prior to the judgment in the election
protest, it was Abundo's opponent, Torres, who was exercising such powers by virtue of the
still then valid proclamation.
As a final note, We reiterate that Abundo's case differs from other cases involving the effects
of an election protest because while Abundo was, in the final reckoning,the winning
candidate, he was the one deprived of his right and opportunity to serve his
constituents. To a certain extent, Abundo was a victim of an imperfect election system.
While admittedly the Court does not possess the mandate to remedy such imperfections,
the Constitution has clothed it with enough authority to establish a fortress against the
injustices it may bring.
In this regard, We find that a contrary ruling would work damage and cause grave
injustice to Abundo an elected official who was belatedly declared as the winner and
assumed office for only a short period of the term. If in the cases
of Lonzanida and Dizon, this Court ruled in favor of a losing candidate or the person who
was adjudged not legally entitled to hold the contested public office but held it anyway
We find more reason to rule in favor of a winning candidate-protestant who, by popular vote,
deserves title to the public office but whose opportunity to hold the same was halted by an
invalid proclamation.
Also, more than the injustice that may be committed against Abundo is the injustice that
may likewise be committed against the people of Viga, Catanduanes by depriving them of
their right to choose their leaders. Like the framers of the Constitution, We bear in mind that
We "cannot arrogate unto ourselves the right to decide what the people want" 76 and
hence, should, as much as possible, "allow the people to exercise their own sense of
proportion and rely on their own strength to curtail the power when it overreaches
itself." 77 For democracy draws strength from the choice the people make which is the same
choice We are likewise bound to protect.
WHEREFORE, the instant petition is PARTLY GRANTED.Accordingly, the assailed February
8, 2012 Resolution of the Commission on Elections Second Division and May 10, 2012
Resolution of the Commission on Elections en banc in EAC (AE) No. A-25-2010 and the
Decision of the Regional Trial Court (RTC) of Virac, Catanduanes, Branch 43, dated August 9,
2010, in Election Case No. 55, are hereby REVERSED and SET ASIDE.
Petitioner Abelardo Abundo, Sr. is DECLARED ELIGIBLE for the position of Mayor of Viga,
Catanduanes to which he was duly elected in the May 2010 elections and is accordingly
ordered IMMEDIATELY REINSTATED to said position. Withal, Emeterio M. Tarin and Cesar
O. Cervantes are ordered to immediately vacate the positions of Mayor and Vice-Mayor of
Viga, Catanduanes, respectively, and shall revert to their original positions of Vice-Mayor and
First Councilor, respectively, upon receipt of this Decision.
The TRO issued by the Court on July 3, 2012 is hereby LIFTED.
This Decision is immediately executory.
SO ORDERED.
Sereno, C.J., Carpio, Peralta, Bersamin, Del Castillo, Abad, Villarama, Jr., Perez, Mendoza,
Reyes, Perlas-Bernabe and Leonen, JJ., concur.
Leonardo-de Castro, J., I join the majority opinion subject to the clarification in the separate
opinion of Justice Brion.
Brion, J., see: separate opinion.
Separate Opinions
BRION, J.:
I agree with Justice Presbitero J. Velasco, Jr.'s conclusion that the proclamation of Jose Torres,
as the "apparent winner" in the 2004 elections, effectively interrupted what could have been
Abelardo Abundo, Sr.'s full term. I write this Opinion to briefly expound on the Court's ruling
in Aldovino, Jr. v. Commission on Elections 1 which the Commission on
Elections (COMELEC) erroneously relied upon in affirming the grant of the quo
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warranto petition against Abundo, and to express my own views on how our present
Decision should be read in light of other three-term limit cases that have been decided
under a protest case scenario.
The Aldovino ruling
The issue in Aldovino was whether the preventive suspension of a local elective official
amounted to an interruption in the continuity of his term for the purpose of applying the
three-term limit rule. The issue arose because an elective local official who is preventively
suspended is prevented, under legal compulsion, from exercising the functions of his office;
thus, the question is there then an interruption of his term of office for purposes of the
three-term limit rule of the Constitution?
After analyzing the first clause of the three-term limit rule (Section 8, Article X of the
1987 Constitution) which provides:
The term of office of elective local officials, except barangay officials,
which shall be determined by law, shall be three years and no such official
shall serve for more than three consecutive terms.
the Court observed that the limitation specifically refers to the term (or the period of
time an official has title to office and can serve), not to the service of a term.
Complementing the term limitation is the second clause of the same provision on voluntary
renunciation stating that:
[V]oluntary renunciation of the office for any length of time shall not be
considered as an interruption in the continuity of his service for the full
term for which he was elected.
The Court construed "voluntary renunciation" as "a loss of title to office by conscious
choice." 2
Based on its analysis of the provision and after a survey of jurisprudence on the three-term
limit rule, the Court concluded that the interruption of a term that would prevent the
operation of the rule involves "no less than the involuntary loss of title to office" or "at least
an effective break from holding office[.]" 3
An interruption occurs when the term is broken because the office holder
lost the right to hold on to his office, and cannot be equated with the failure
to render service. The latter occurs during an office holder's term when he
retains title to the office but cannot exercise his functions for reasons
established by law. . . . .
To put it differently although at the risk of repetition, Section 8, Article X
both by structure and substance fixes an elective official's term of office
and limits his stay in office to three consecutive terms as an inflexible rule
that is stressed, no less, by citing voluntary renunciation as an example of a
circumvention. The provision should be read in the context of interruption of
term, not in the context of interrupting the full continuity of the exercise of
the powers of the elective position. The "voluntary renunciation" it speaks of
refers only to the elective official's voluntary relinquishment of office and
loss of title to this office. It does not speak of the temporary "cessation of
the exercise of power or authority" that may occur for various reasons, with
preventive suspension being only one of them. To quote Latasa v. Comelec:
Indeed, [T]he law contemplates a rest period during which the local
elective official steps down from office and ceases to exercise power
or authority over the inhabitants of the territorial jurisdiction of a
particular local government unit. 4 (italics supplied; citation omitted)
The Court further concluded that while preventive suspension is involuntary in nature, its
imposition on an elective local official cannot amount to an interruption of a term "because
the suspended official continues . . . in office although he is barred from exercising the
functions and prerogatives of the office within the suspension period." 5
Based on these clear rulings, I consider it a grave error for the Comelec to equate the
situation of a preventively suspended elective local official with the situation of anon-
proclaimed candidate who was later found to have actually won the election. With its
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conclusion, the Comelec thereby grossly disregarded the nature and effects of a preventive
suspension, and at the same time glossed over the legal and factual realities that obtain in a
protested election situation where one candidate is proclaimed, only to lose out later during
the term to the winner in the protest case. To state the obvious, election protests are quite
common and it is best for the Court to already provide guidance on how a reversal decision
in a protest case affects the three-term limit rule.
The proclamation alone of an apparent winner (i.e., the candidate immediately proclaimed
but whose election is protested) entitles him to take his oath of office and to perform his
duties as a newly-elected local official. That he may be characterized merely as a
"presumptive winner" 6 during the pendency of a protest against him does not make him
any less of a duly elected local official; for the time being, he possesses all the rights and is
burdened with all the duties of his office under the law. In stark contrast with his situation,
the non-proclaimed candidate cannot but be considered a private citizen while prosecuting
his election protest; 7 he carries no title to office and is denied the exercise of the rights and
the performance of the duties and functions of an elected official.
It is from these perspectives that Aldovino cannot be used as basis for the conclusion that
there had been no interruption in the case of Abundo the eventual election winner who is
so recognized only after winning his protest case. Notably in Aldovino, while a preventive
suspension is an involuntary imposition, what it affects is merely the authority to discharge
the functions of an office that the suspended local official continues to hold. As already
mentioned above, the local elective official continuous to possess title to his office while
under preventive suspension, so that no interruption of his term ensues.
In the present case, Torres (instead of Abundo) was immediately proclaimed the winner in
the 2004 elections and effectively held title to the office until he was unseated. This
circumstance necessarily implied that Abundo had no title to the office of Mayor in the
meanwhile or, at least, had an effective break in the continuity of his term as mayor;
from his first (2001-2004) term, he did not immediately continue into his second (2004-
2007) term and for a time during this term completely ceased to exercise authority in the
local government unit. It was not a mere cessation of the authority to exercise the rights and
prerogatives of the office of Mayor as in the case of Aldovino; he was not the Mayor and had
no title to this office in the meanwhile. No better proof of his loss of title exists than the need
to file an election protest to claim the seat Torres already occupied after his proclamation.
From this perspective, the Aldovino ruling cannot be used as basis for the conclusion that
Abundo enjoyed an uninterrupted 2001-2004 term.
Election to office
In Borja, Jr. v. Commission on Elections, 8 reiterated in Lonzanida v. Commission on
Elections, 9 the Court ruled that a local elective official can seek reelection in the same local
government position unless two requisites concur: the official has been elected for three
consecutive terms to the same local government post, and that he fully served the
three consecutive terms. It is from the prism of these requisites that the three-term limit
rule must be viewed; in Abundo's case, the continuity of his first and third terms are not at
issue; the issue is confined to his second term.
That Abundo has been elected to the position of Mayor in the 2004 elections is a matter that
is now beyond dispute based on the legal reality that he was eventuallyfound, in his election
protest, to be the true choice of the electorate. This legal reality, however, is complicated by
an intervening development the wrongful proclamation of another candidate (Torres) so
that he (Abundo) could only take his oath of office and discharge the duties of a Mayor very
much later into the 2004-2007 mayoralty term. As I have argued above to contradict the use
of the Aldovino ruling, the factual reality that he had no title to office and did not serve as
Mayor while he was a protestant cannot simply be glossed over, and cannot likewise be
brushed aside by trying to draw a conclusion from a combined reading of Ong v.
Alegre10 and Lonzanida v. Commission on Elections. 11 The Court cannot avoid considering
the attendant factual and legal realities, based on the requirements that Borja Jr.established,
and has no choice but to adjust its appreciation of these realities, as may be necessary, as it
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had done in Ong. This, I believe, is the approach and appreciation that should be made, not
the drawing of a forced conclusion from a combined reading of Ong and Lonzanida.
In Lonzanida (where Lonzanida was the protestee), the Court considered both the
requisites for the application of the three-term limit rule absent where a local official's
(Lonzanida's) proclamation, supposedly for his third consecutive term in office, was later
invalidated prior to the expiration of this third term, i.e., from 1995 to 1998. With the
invalidation, Lonzanida could not really be considered as having been elected to the office
since he was found not to be the real choice of the electorate this is the legal reality for
Lonzanida. Too, he did not fully serve his (supposedly third) term because of the intervening
ruling ordering him to vacate his post. This ruling, no less equivalent to involuntary
renunciation, is the factual reality in Lonzanida's case. Thus, an interruption of the three
consecutive terms took place.
Ong v. Alegre 12 involved facts close, but not completely similar, to Lonzanida. For
in Ong, the ruling ordering the apparent winner and protestee (Francis Ong) to vacate his
post came after the expiration of the contested term, i.e., after Ong's second term from
1998 to 2001. In holding that both requisites were present (so that there was effectively
no interruption), the Court again took the attendant legal and factual realities into account.
Its appreciation of these realities, however, came with a twist to allow for the attendant
factual situation. The Court ruled that while Joseph Alegre was later adjudged the "winner" in
the 1998 elections and, "therefore, was the legally elected mayor," this legal conclusion
"was without practical and legal use and value[.]" 13
[Ong's] contention that he was only a presumptive winner in the 1998
mayoralty derby as his proclamation was under protest did not make him
less than a duly elected mayor. His proclamation by the Municipal Board of
Canvassers of San Vicente as the duly elected mayor in the 1998 mayoralty
election coupled by his assumption of office and his continuous exercise of
the functions thereof from start to finish of the term, should legally be taken
as service for a full term in contemplation of the three-term rule. 14
Effectively, while the Court defined the legalities arising from the given factual situation,
it recognized that the given facts rendered its legal conclusion moot and academic or, in
short, useless and irrelevant; while Ong effectively lost the election, he had served the
full term that should belong to the winning candidate. Based on this recognition, the
Court ruled that no effective interruption took place for purposes of the three-term limit
rule.
From these perspectives, Ong did not "supersede" or "supplant" Lonzanida. Neither Ong nor
the subsequent case of Rivera III v. Commission on Elections 15 says so. The evident factual
variance in Ong simply called for an adjusted appreciation of the element of "election" under
the three-term limit rule. This is what a sensible reading of these two cases yields.
In considering the case of Abundo with Lonzanida and Ong, a noticeable distinction that sets
Abundo apart is his situation as protestant, as against Lonzanida and Ong who were
both protestees the presumptive winners whose election and proclamation were
protested. Both protestees lost in the protest and effectively were not "elected," although
this was appreciated by the Court with twist in Ong, as mentioned above. Abundo, on the
other hand, successfully prosecuted his protest and was thus recognized as the candidate
whom the people voted for, subject only to the question raised in the present case
whether this recognition or declaration rendered him "elected" from the start of his term.
The differing factual situations of the cited cases and Abundo that necessarily gave rise to
different perspectives in appreciating the same legal question, immediately suggest that the
Court's rulings in the cited cases cannot simply be combined nor wholly be bodily lifted and
applied to Abundo. At the simplest, both Lonzanida and Ong were protestees who faced the
same legal reality of losing the election, although Ong fully served the elected term; for
Abundo, the legal reality is his recognized and declared election victory. In terms of factual
reality, Lonzanida and Abundo may be the same since they only partially served their term,
but this similarity is fully negated by their differing legal realities with respect to the element
of "election." Ong and Abundo, on the other hand, have differing legal and factual realities;
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aside from their differing election results, Ong served the full term, while Abundo only
enjoyed an abbreviated term.
If at all, the parallelism that can be drawn from Ong, that can fully serve the resolution of
Abundo's case, is the practical and purposive approach that the Court used inOng when it
implicitly recognized that dwelling on and giving full stress to the "election" element of the
three-term limit rule (as established in Borja, Jr.) is irrelevant and pointless, given that Ong
had served the full contested term.
Under this same approach, Abundo should not be considered to have been elected for the
full term for purposes of the three-term limit rule, despite the legal reality that he won the
election; as in Ong, the factual reality should prevail, and that reality is that he served for
less than this full term. Thus, where less than a full term is served by a winning protestant,
no continuous and uninterrupted term should be recognized. This is the view that best
serves the purposes of the three-term limit rule.
Footnotes
||| (Abundo, Sr. v. COMELEC, G.R. No. 201716, [January 8, 2013])
On April 20, 2007, private respondent Umbra Ramil Bayam Dilangalen, another mayoralty
candidate, filed a Petition 13 for Disqualification [the Dilangalen petition] against Fermin,
docketed as SPA (PES) No. A07-003 [re-docketed as SPA No. 07-372 before the COMELEC]
with the Office of the Provincial Election Supervisor of Shariff Kabunsuan. The petition
alleged that the petitioner did not possess the period of residency required for candidacy
and that he perjured himself in his CoC and in his application for transfer of voting record.
The pertinent portions of the petition follow:
1. THE PETITIONER is of legal age, a registered voter, resident and
incumbent Municipal Mayor of the Municipality of Northern
Kabuntalan, holding office at Barangay Paulino Labio in the
Municipality of Northern Kabuntalan where he may be served
summons and other legal processes.
2. THE PETITIONER is a candidate for election as Mayor in the same
Municipality of Northern Kabuntalan, being a resident of and
domiciled in the Municipality since birth. The Respondent is also a
candidate for the same office, Mayor in the same Municipality of
Northern Kabuntalan. He is, however, not a resident of the
Municipality.
3. THE RESPONDENT perjured himself when he swore to the truth of his
statement in his Certificate of Candidacy of being a resident of the
Municipality for the last 38 years, when in truth and in fact he simply
transferred his registration from the Municipality of Kabuntalan on 13
December 2006, wherein he stated that he has relocated to that
municipality a year and six months earlier, or no earlier than June
2005.
4. THE RESPONDENT perjured himself when he swore to the truth of his
statement in his Certificate of Candidacy of being a resident of the
Municipality for the last 38 years, when in truth and in fact he has
stayed for at least 33 years in Barangay Payan, Municipality [of]
Kabunt[a]lan.
5. THE RESPONDENT perjured himself when he swore to the truth of his
statement in his Application for Transfer that he is a resident of
Barangay Indatuan on 13 December 2006, wherein he stated that he
has relocated to that municipality a year and six months earlier, or
on or about June 2005, when in truth and in fact he has never resided
much less domiciled himself in Indatuan or anywhere else in the
Municipality of Northern Kabuntalan earlier than 14 May
2006. HAICTD
6. THE RESPONDENT perjured himself when he swore to the truth of his
statement in his Certificate of Candidacy of being a resident of the
Municipality for the last 38 years, when in truth and in fact he has
never resided in the Municipality, but was simply visiting the area
whenever election is [f]ast approaching.
WHEREFORE, premises considered, it is most respectfully prayed that, [in
consideration] of the Respondent not possessing the residence required for
candidacy, and having perjured himself in a number of times, the
Commission disqualify the Respondent. 14
Elections were held without any decision being rendered by the COMELEC in the said case.
After the counting and canvassing of votes, Dilangalen emerged as the victor with 1,849
votes over Fermin's 1,640. 15 The latter subsequently filed an election protest (Election
Case No. 2007-022) with the Regional Trial Court (RTC), Branch 13 of Cotabato City. 16
G.R. No. 179695
On June 29, 2007, the COMELEC 2nd Division, in SPA No. 07-372, disqualified Fermin for not
being a resident of Northern Kabuntalan. 17 It ruled that, based on his declaration that he is
a resident of Barangay Payan as of April 27, 2006 in his oath of office before Datu Andal
Election Law Cases
Ampatuan, Fermin could not have been a resident ofBarangay Indatuan for at least one
year. 18
The COMELEC En Banc,on September 20, 2007, affirmed the Division's ruling. 19
Thus, petitioner instituted G.R. No. 179695 before this Court raising the following issues:
A.
WHETHER OR NOT THE PETITION TO DISQUALIFY PETITIONER FROM SEEKING
THE MAYORALTY POST OF THE MUNICIPALITY OF NORTHERN KABUNTALAN
SHOULD BE DISMISSED FOR HAVING BEEN FILED OUT OF TIME.
B.
WHETHER OR NOT THE ONE (1) YEAR RESIDENCY REQUIREMENT AS
PROVIDED BY ART. 56, PAR. NO. 3, RULE XIII, RULES AND REGULATIONS
IMPLEMENTING THE LOCAL GOVERNMENT CODE OF THE AUTONOMOUS
REGION IN MUSLIM MINDANAO IS APPLICABLE TO PETITIONER, WHO
TRANSFERRED HIS VOTER'S REGISTRATION RECORD DUE TO CHANGE OF
RESIDENCE FROM BARANGAY PAYAN TO BARANGAY INDATUAN IN THE SAME
MUNICIPALITY OF KABUNTALAN. 20
Petitioner contends that the Dilangalen petition is a petition to deny due course to or cancel
a CoC under Section 78 of the Omnibus Election Code (OEC). 21 Following Republic Act
(R.A.) No. 6646, the same must be filed within 5 days from the last day for the filing of CoC,
which, in this case, is March 30, 2007, and considering that the said petition was filed by
Dilangalen only on April 20, 2007, the same was filed out of time. The COMELEC should have
then dismissed SPA No. 07-372 outright. 22
Petitioner further argues that he has been a resident of Barangay Indatuan long before the
creation of Northern Kabuntalan. This change of residence prompted him to apply for the
transfer of his voter's registration record from Barangay Payan to Barangay Indatuan.
Moreover, the one year residency requirement under the law is not applicable to candidates
for elective office in a newly created municipality, because the length of residency of all its
inhabitants is reckoned from the effective date of its creation. 2 3
In his comment, private respondent counters that the petition it filed is one for
disqualification under Section 68 of the OEC which may be filed at any time after the last
day for filing of the CoC but not later than the candidate's proclamation should he win in the
elections. As he filed the petition on April 20, 2007, long before the proclamation of the
eventual winning candidate, the same was filed on time. 24 ECDaAc
Private respondent likewise posits that petitioner failed to comply with the one-year
residency requirement for him to be able to run for an elective office in Northern Kabuntalan.
Petitioner applied for the transfer of his voting record on December 13, 2006, and this was
approved only on January 8, 2007. 25
G.R. No. 182369
During the pendency of G.R. No. 179695 with the Court, Dilangalen filed, on September 27,
2007, with the RTC of Cotabato a motion to dismiss Election Case No. 07-022 on the ground
that Fermin had no legal standing to file the said protest, the COMELEC En Banc having
already affirmed his disqualification as a candidate; and this Court, in the abovementioned
case, did not issue an order restraining the implementation of the assailed COMELEC
resolutions.
The RTC, however, denied this motion on September 28, 2007. On motion for
reconsideration, the trial court remained steadfast in its stand that the election protest was
separate and distinct from the COMELEC proceedings, and that, unless restrained by the
proper authority, it would continue hearing the protest. 26
Assailing the RTC's denial of his motions, Dilangalen filed a Petition for Certiorari and
Prohibition 27 docketed as SPR No. 45-2007 with the COMELEC. On February 14, 2008, the
COMELEC 1st Division set aside the aforesaid orders of the trial court for having been issued
with grave abuse of discretion, prohibited the said court from acting on and proceeding with
the protest, and ordered it to dismiss the same. 28 The COMELEC En Banc, on March 13,
2008, denied petitioner's motion for the reconsideration of the division's ruling on account
of Fermin's failure to pay the required fees. It further directed the issuance of an entry of
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judgment in the said case.29 On March 26, 2008, the ECAD recorded the finality of the
ruling in SPR No. 45-2007 in the Book of Entries of Judgments. 30
These developments prompted Fermin to file another certiorari petition before this Court,
docketed as G.R. No. 182369. In this petition, Fermin raises the following issues for our
resolution:
A.
Whether or not public respondent has departed from the accepted and usual
course of its rules of procedure, as to call for an exercise of the power of
supervision by the Honorable Court.
B.
Whether or not public respondent in taking cognizance of the certiorari and
prohibition not in aid of its appellate jurisdiction, acted without or in excess
of jurisdiction, or with grave abuse of discretion amounting to lack or
in (sic) excess [of jurisdiction].
C.
Whether or not public respondent, in ordering Judge Ibrahim to dismiss the
election protest case, acted without or in excess of jurisdiction, or with grave
abuse of discretion amounting to lack or in (sic) excess of jurisdiction.
D.
Whether or not public respondent, in not uniformly observing its process in
the service of its resolution and/or order, had denied to petitioner the equal
protection of the law.
E.
Whether or not the petition for certiorari and prohibition is dismissible in
view of the pendency of another action and whereby the result of the first
action is determinative of the second action in any event and regardless of
which party is successful. SECAHa
F.
Whether or not there is forum shopping.
G.
Whether or not the public respondent, acting not in aid of its appellate
jurisdiction, has authority to issue TRO and/or Preliminary Injunction as
ancillary remedy of the original action for certiorari and prohibition.
H.
Whether or not public respondent has jurisdiction to divest the Court of
Judge Ibrahim of its jurisdiction on the election protest case. 31
The Court, on April 29, 2008, initially dismissed the said petition. 32 Fermin subsequently
filed in succession his motions for reconsideration and for the consolidation of G.R. Nos.
179695 & 182369. Considering that the two petitions were interrelated, the Court resolved
to consolidate them.
The Issues
The primordial issues in these consolidated cases may be encapsulated, as follows:
(1) Whether or not the Dilangalen petition is one under Section 68 or Section
78 of the OEC;
(2) Whether or not it was filed on time;
(3) Whether or not the COMELEC gravely abuse its discretion when it
declared petitioner as not a resident of the locality for at least one
year prior to the May 14, 2007 elections; and
(4) Whether or not the COMELEC gravely abuse its discretion when it
ordered the dismissal of Election Case No. 07-022 on the ground
that Fermin had no legal standing to file the protest.
Our Ruling
I.
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Pivotal in the ascertainment of the timeliness of the Dilangalen petition is its proper
characterization.
As aforesaid, petitioner, on the one hand, argues that the Dilangalen petition was filed
pursuant to Section 78 of the OEC; while private respondent counters that the same is based
on Section 68 of the Code. ACDIcS
After studying the said petition in detail, the Court finds that the same is in the nature of a
petition to deny due course to or cancel a CoC under Section 78 33 of the OEC. The petition
contains the essential allegations of a "Section 78" petition, namely: (1) the candidate made
a representation in his certificate; (2) the representation pertains to a material matter which
would affect the substantive rights of the candidate (the right to run for the election for
which he filed his certificate); and (3) the candidate made the false representation with the
intention to deceive the electorate as to his qualification for public office or deliberately
attempted to mislead, misinform, or hide a fact which would otherwise render him
ineligible. 34 It likewise appropriately raises a question on a candidate's eligibility for public
office, in this case, his possession of the one-year residency requirement under the law.
Lest it be misunderstood, the denial of due course to or the cancellation of the CoC is not
based on the lack of qualifications but on a finding that the candidate made a material
representation that is false, which may relate to the qualifications required of the public
office he/she is running for. It is noted that the candidate states in his/her CoC that he/she
is eligible for the office he/she seeks. Section 78 of the OEC, therefore, is to be read
in relation to the constitutional 35 and statutory 36provisions on qualifications or
eligibility for public office. If the candidate subsequently states a material
representation in the CoC that is false, the COMELEC, following the law, is
empowered to deny due course to or cancel such certificate. 37 Indeed, the Court
has already likened a proceeding under Section 78 to a quo warranto proceeding under
Section 253 38 of the OEC since they both deal with the eligibility or qualification of a
candidate, 39 with the distinction mainly in the fact that a "Section 78" petition is filed
before proclamation, while a petition for quo warranto is filed after proclamation of the
winning candidate.
At this point, we must stress that a "Section 78" petition ought not to be interchanged or
confused with a "Section 68" petition. They are different remedies, based on different
grounds, and resulting in different eventualities. Private respondent's insistence,
therefore, that the petition it filed before the COMELEC in SPA No. 07-372 is in the nature of
a disqualification case under Section 68, as it is in fact captioned a "Petition for
Disqualification", does not persuade the Court.
The ground raised in the Dilangalen petition is that Fermin allegedly lacked one of the
qualifications to be elected as mayor of Northern Kabuntalan, i.e., he had not established
residence in the said locality for at least one year immediately preceding the election.
Failure to meet the one-year residency requirement for the public office is not a ground for
the "disqualification" of a candidate under Section 68. The provision only refers to the
commission of prohibited acts and the possession of a permanent resident status in a
foreign country as grounds for disqualification, thus:
SEC. 68. Disqualifications.Any candidate who, in an action or protest in
which he is a party is declared by final decision of a competent court guilty
of, or found by the Commission of having (a) given money or other material
consideration to influence, induce or corrupt the voters or public officials
performing electoral functions; (b) committed acts of terrorism to enhance
his candidacy; (c) spent in his election campaign an amount in excess of
that allowed by this Code; (d) solicited, received or made any contribution
prohibited under Sections 89, 95, 96, 97 and 104; or (e) violated any of
Sections 80, 83, 85, 86 and 261, paragraphs d, e, k, v, and cc, subparagraph
6, shall be disqualified from continuing as a candidate, or if he has been
elected, from holding the office. Any person who is a permanent resident of
or an immigrant to a foreign country shall not be qualified to run for any
elective office under this Code, unless said person has waived his status as a
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In support of his claim that he actually filed a "petition for disqualification" and not a
"petition to deny due course to or cancel a CoC", Dilangalen takes refuge in Rule 25 of the
COMELEC Rules of Procedure, 43 specifically Section 1 44 thereof, to the extent that it
states, "[a]ny candidate who does not possess all the qualifications of a candidate as
provided for by the Constitution or by existing law . . . may be disqualified from continuing
as a candidate," and COMELEC Resolution No. 7800 45 (Rules Delegating to COMELEC Field
Officials the Authority to Hear and Receive Evidence in Disqualification Cases Filed in
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Connection with the May 14, 2007 National and Local Elections), which states in Section 5
(C) (1) and (3) (a) (4) that: HSAcaE
Sec. 5. Procedure in filing petitions. For purposes of the preceding section,
the following procedure shall be observed:
xxx xxx xxx
C. PETITION TO DISQUALIFY A CANDIDATE PURSUANT TO SEC. 68 OF
THE OMNIBUS ELECTION CODE AND PETITION TO DISQUALIFY FOR
LACK OF QUALIFICATIONS OR POSSESSING SOME GROUNDS FOR
DISQUALIFICATION
1) A verified petition to disqualify a candidate pursuant to Sec. 68 of
the OEC and the verified petition to disqualify a candidate for lack of
qualifications or possessing some grounds for disqualification may be filed
on any day after the last day for filing of certificates of candidacy but not
later than the date of proclamation.
xxx xxx xxx
3) The petition to disqualify a candidate for lack of qualification or
possessing some grounds for disqualification, shall be filed in ten (10)
legible copies with the concerned office mentioned in Sec. 3 hereof,
personally or through a duly authorized representative by any person of
voting age, or duly registered political party, organization or coalition of
political parties on the grounds that any candidate does not possess all the
qualifications of a candidate as provided for by the constitution or by
existing law, or who possesses some grounds for disqualification,
3.a. Disqualification under existing election laws:
1. For not being a citizen of the Philippines;
2. For being a permanent resident of or an immigrant to a foreign country;
3. For lack of the required age;
4. For lack of residence;
5. For not being a registered voter;
6. For not being able to read and write;
7. In case of a party-list nominee, for not being a bona fide member of the
party or organization which he seeks to represent for at least ninety (90)
days immediately preceding the day of the election. [Emphasis
supplied.] cSCTEH
We disagree. A COMELEC rule or resolution cannot supplant or vary the legislative
enactments that distinguish the grounds for disqualification from those of ineligibility, and
the appropriate proceedings to raise the said grounds. In other words, Rule 25 and COMELEC
Resolution No. 7800 cannot supersede the dissimilar requirements of the law for the filing of
a petition for disqualification under Section 68, and a petition for the denial of due course to
or cancellation of CoC under Section 78 of the OEC.46 As aptly observed by the eminent
constitutionalist, Supreme Court Justice Vicente V. Mendoza, in his separate opinion
in Romualdez-Marcos v. Commission onElections: 47
Apparently realizing the lack of an authorized proceeding for declaring the
ineligibility of candidates, the COMELEC amended its rules on February 15,
1993 so as to provide in Rule 25, 1 the following:
Grounds for disqualification. Any candidate who does not possess
all the qualifications of a candidate as provided for by the
Constitution or by existing law or who commits any act declared by
law to be grounds for disqualification may be disqualified from
continuing as a candidate.
The lack of provision for declaring the ineligibility of candidates,
however, cannot be supplied by a mere rule. Such an act is
equivalent to the creation of a cause of action which is a
substantive matter which the COMELEC, in the exercise of its rule-
making power under Art. IX, A, 6 of the Constitution, cannot do. It
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is noteworthy that the Constitution withholds from the COMELEC even the
power to decide cases involving the right to vote, which essentially involves
an inquiry into qualifications based on age, residence and citizenship of
voters. [Art. IX, C, 2(3)]
The assimilation in Rule 25 of the COMELEC rules of grounds for
ineligibility into grounds for disqualification is contrary to the
evident intention of the law. For not only in their grounds but also
in their consequences are proceedings for "disqualification"
different from those for a declaration of "ineligibility".
"Disqualification" proceedings, as already stated, are based on
grounds specified in 12 and 68 of the Omnibus Election Code and
in 40 of the Local Government Code and are for the purpose of
barring an individual from becoming a candidate or from continuing
as a candidate for public office. In a word, their purpose is to
eliminate a candidate from the race either from the start or during
its progress. "Ineligibility", on the other hand, refers to the lack of
the qualifications prescribed in the Constitution or the statutes for
holding public office and the purpose of the proceedings for
declaration of ineligibility is to remove the incumbent from office.
Consequently, that an individual possesses the qualifications for a
public office does not imply that he is not disqualified from
becoming a candidate or continuing as a candidate for a public
office and vice-versa. We have this sort of dichotomy in our Naturalization
Law. (C.A. No. 473) That an alien has the qualifications prescribed in 2 of
the law does not imply that he does not suffer from any of [the]
disqualifications provided in 4.
Indeed, provisions for disqualifications on the ground that the candidate is
guilty of prohibited election practices or offenses, like other pre-
proclamation remedies, are aimed at the detestable practice of "grabbing
the proclamation and prolonging the election protest", through the use of
"manufactured" election returns or resort to other trickery for the purpose of
altering the results of the election. This rationale does not apply to cases for
determining a candidate's qualifications for office before the election. To the
contrary, it is the candidate against whom a proceeding for disqualification
is brought who could be prejudiced because he could be prevented from
assuming office even though in the end he prevails. 48
Furthermore, the procedure laid down in the said Rule 25 of the COMELEC Rules of Procedure
cannot be used in "Section 78" proceedings, precisely because a different rule, Rule
23, 49 specifically governs petitions to deny due course to or cancel CoCs. TDcCIS
II.
Having thus determined that the Dilangalen petition is one under Section 78 of the OEC, the
Court now declares that the same has to comply with the 25-day statutory period for its
filing. Aznar v. Commission on Elections 50 and Loong v. Commission on Elections 51 give
ascendancy to the express mandate of the law that "the petition may be filed at any
time not later than twenty-five days from the time of the filing of the certificate of
candidacy." Construed in relation to reglementary periods and the principles of
prescription, the dismissal of "Section 78" petitions filed beyond the 25-day period must
come as a matter of course.
We find it necessary to point out that Sections 5 and 7 52 of Republic Act (R.A.) No.
6646, 53 contrary to the erroneous arguments of both parties, did not in any way amend the
period for filing "Section 78" petitions. While Section 7 of the said law makes reference to
Section 5 on the procedure in the conduct of cases for the denial of due course to the CoCs
of nuisance candidates 54 (retired Chief Justice Hilario G. Davide, Jr., in his dissenting
opinion in Aquino v. Commission on Elections 55 explains that "the 'procedure hereinabove
provided' mentioned in Section 7 cannot be construed to refer to Section 6 which does not
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provide for a procedure but for the effects of disqualification cases, [but] can only refer to
the procedure provided in Section 5 of the said Act on nuisance candidates . . . ."), the same
cannot be taken to mean that the 25-day period for filing "Section 78" petitions under
the OEC is changed to 5 days counted from the last day for the filing of CoCs. The clear
language of Section 78 certainly cannot be amended or modified by the mere reference in a
subsequent statute to the use of a procedure specifically intended for another type of action.
Cardinal is the rule in statutory construction that repeals by implication are disfavored and
will not be so declared by the Court unless the intent of the legislators is manifest. 56 In
addition, it is noteworthy that Loong, 57 which upheld the 25-day period for filing "Section
78" petitions, was decided long after the enactment of R.A. 6646. In this regard, we
therefore find as contrary to the unequivocal mandate of the law, Rule 23, Section 2 of the
COMELEC Rules of Procedure which states:
Sec. 2. Period to File Petition. The petition must be filed within five (5)
days following the last day for the filing of certificates of candidacy.
As the law stands, the petition to deny due course to or cancel a CoC "may be filed at
any time not later than twenty-five days from the time of the filing of the
certificate of candidacy."
Accordingly, it is necessary to determine when Fermin filed his CoC in order to ascertain
whether the Dilangalen petition filed on April 20, 2007 was well within the restrictive 25-day
period. If it was not, then the COMELEC should have, as discussed above, dismissed the
petition outright.
The record in these cases reveals that Fermin filed his CoC for mayor of Northern Kabuntalan
for the May 14, 2007 National and Local Elections on March 29, 2007. 58 It is clear
therefore that the petition to deny due course to or cancel Fermin's CoC was filed by
Dilangalen well within the 25-day reglementary period. The COMELEC therefore did not
abuse its discretion, much more gravely, when it did not dismiss the petition outright.
III.
However, the Court finds the COMELEC to have gravely abused its discretion when it
precipitately declared that Fermin was not a resident of Northern Kabuntalan for at least one
year prior to the said elections.
In its assailed June 29, 2007 Resolution, 59 the COMELEC ruled as follows:
In the petitioner's memorandum, an authenticated copy of the respondent's
oath of office subscribed and sworn to before Datu Andal Ampatuan,
Governor Maguindanao Province, it was stated that respondent's residence
is at Barangay Payan, Maguindanao (sic) as of April 27, 2006. Clearly the
respondent is not a resident of Northern Kabuntalan earlier than 15 May
2006 as his very own oath of office would reveal that he is really a resident
of Barangay Payan, Kabuntalan less than 365 days immediately preceding
the May 14, 2007 elections. He is a resident of a barangay not a component
of the local government unit in which he seeks to be elected as of May 15,
2006 and is therefore not qualified or eligible to seek election as mayor in
the said municipality. 60 DHacTC
Obviously, the COMELEC relied on a single piece of evidence to support its finding that
petitioner was not a resident of Barangay Indatuan, Northern Kabuntalan, i.e., the oath of
office subscribed and sworn to before Governor Datu Andal Ampatuan, in which petitioner
indicated that he was a resident of Barangay Payan, Kabuntalanas of April 27, 2006.
However, this single piece of evidence does not necessarily support a finding that petitioner
was not a resident of Northern Kabuntalan as of May 14, 2006, or one year prior to the May
14, 2007 elections. 61 Petitioner merely admitted that he was a resident of another locality
as of April 27, 2006, which was more than a year before the elections. It is not inconsistent
with his subsequent claim that he complied with the residency requirement for the elective
office, as petitioner could have transferred to Barangay Indatuan after April 27, 2006, on or
before May 14, 2006.
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Neither does this evidence support the allegation that petitioner failed to comply with the
residency requirement for the transfer of his voting record from BarangayPayan
to Barangay Indatuan. Given that a voter is required to reside in the place wherein he
proposes to vote only for six months immediately preceding the election, 62petitioner's
application for transfer on December 13, 2006 does not contradict his earlier admission that
he was a resident of Barangay Payan as of April 27, 2006. Be that as it may, the issue
involved in the Dilangalen petition is whether or not petitioner made a material
representation that is false in his CoC, and not in his application for the transfer of his
registration and voting record.
The foregoing considered, the Court finds that the Dilangalen petition does not make out
a prima facie case. Its dismissal is therefore warranted. We emphasize that the mere filing of
a petition and the convenient allegation therein that a candidate does not reside in the
locality where he seeks to be elected is insufficient to effect the cancellation of his CoC.
Convincing evidence must substantiate every allegation. 63 A litigating party is said to have
a prima facie case when the evidence in his favor is sufficiently strong for his opponent to be
called on to answer it. A prima facie case, then, is one which is established by sufficient
evidence and can be overthrown only by rebutting evidence adduced on the other side. 64
IV.
In light of the foregoing disquisition, the COMELEC's order for the dismissal of Fermin's
election protest is tainted with grave abuse of discretion, considering that the same is
premised on Fermin's alleged lack of legal standing to file the protest, which, in turn, is
based on Fermin's alleged lack of residency qualification. With our disposition herein that the
Dilangalen petition should be dismissed, a disquisition that Fermin has no standing as a
candidate would be reckless and improper.
WHEREFORE, premises considered, the petitions for certiorari are GRANTED. The assailed
issuances of the COMELEC are ANNULLED and SET ASIDE.
SO ORDERED. cDIaAS
||| (Fermin v. COMELEC, G.R. No. 179695, 182369, [December 18, 2008], 595 PHIL 449-479)
space and air time to political candidates, it mandates the COMELEC to procure and itself
allocate to the candidates space and time in the media. There is no suppression of political
ads but only a regulation of the time and manner of advertising. cDCaTS
3. ID.; ID.; ID.; ID.; There is no total ban on political ads, much less restriction on the
content of the speech. Given the fact that print space and air time can be controlled or
dominated by rich candidates to the disadvantage of poor candidates, there is a substantial
or legitimate governmental interest justifying exercise of the regulatory power of the
COMELEC under Art. IX-C, 4 of the Constitution. The provisions in question involve no
suppression of political ads. They only prohibit the sale or donation of print space and air
time to candidates but require the COMELEC instead to procure space and time in the mass
media for allocation, free of charge, to the candidates. In effect, during the election period,
the COMELEC takes over the advertising page of newspapers or the commercial time of
radio and TV stations and allocates these to the candidates.
4. ID.; ID.; ID.; MAIN PURPOSE IS REGULATORY. The main purpose of 11(b) is regulatory.
Any restriction on speech is only incidental, and it is no more than is necessary to achieve its
purpose of promoting equality of opportunity in the use of mass media for political
advertising. The restriction on speech, as pointed out inNPC, is limited both as to time and
as to scope. DHECac
5. CONSTITUTIONAL LAW; LEGISLATIVE DEPARTMENT; CHOICE OF REMEDIES FOR SOCIAL
MALADY REQUIRING GOVERNMENT ACTION BELONGS TO CONGRESS. Well-settled is the
rule that the choice or remedies for an admitted social malady requiring government action
belongs to Congress. The remedy prescribed by it, unless clearly shown to be repugnant to
fundamental law, must be respected. As shown in this case, 11(b) of R.A. 6646 is a
permissible restriction on the freedom of speech, of expression and of the press.
6. ID.; VALIDITY OF LAWS; CANNOT DEPEND ON FAITHFUL COMPLIANCE OF THOSE CHARGED
WITH ITS ENFORCEMENT. The validity of a law cannot be made to depend on the faithful
compliance of those charged with its enforcement but by appropriate constitutional
provisions.
||| (Osmea v. COMELEC, G.R. No. 132231, [March 31, 1998], 351 PHIL 692-781)
expression calls all the more for the utmost respect when what may be curtailed is the
dissemination of information to make more meaningful the equally vital right of suffrage.
(Mutuc v. Commission on Elections, supra)
3. ID.; ID.; ID.; SUBSTANTIAL GOVERNMENT INTEREST AND PUBLIC INTEREST, NOT
THREATENED; CLEAR AND PRESENT DANGER RULE, NOT PRESENT. The regulation in the
present case is of a different category. The promotion of a substantial Government interest is
not clearly shown. "A government regulation is sufficiently justified if it is within the
constitutional power of the Government, if it furthers an important or substantial
governmental interest; if the governmental interest is unrelated to the suppression of free
expression; and if the incidental restriction on alleged First Amendment freedom is no
greater than is essential to the furtherance of that interest. (Id., at 377, 20 L Ed 2d 672, 88
S. Ct 1673." (City council v. Taxpayers For Vincent, 466 US 789, 80 L Ed 2d 772, 104 S. Ct
2118 [1984]) The posting of decals and stickers in mobile places like cars and other moving
vehicles does not endanger any substantial government interest. There is no clear public
interest threatened by such activity so as to justify the curtailment of the cherished citizen's
right of free speech and expression. Under the clear and present danger rule not only must
the danger be patently clear and pressingly present but the evil sought to be avoided must
be so substantive as to justify a clamp over one's mouth or a writing instrument to be stilled:
"The case confronts us again with the duty our system places on the Court to say where the
individual's freedom ends and the State's power begins. Choice on that border, now as
always delicate, is perhaps more so where the usual presumption supporting legislation is
balanced by the preferred place given in our scheme to the great, the indispensable
democratic freedoms secured by the first Amendment ... That priority gives these liberties a
sanctity and a sanction not permitting dubious intrusions and it is the character of the right,
not of the limitation, which determines what standard governs the choice .... For these
reasons any attempt to restrict those liberties must be justified by clear public interest,
threatened not doubtfully or remotely but by clear and present danger. The rational
connection between the remedy provided and the evil to be curbed, which in other context
might support legislation against attack on due process grounds, will not suffice. These
rights rest on firmer foundation. Accordingly, whatever occasion would restrain orderly
discussion and persuasion, at appropriate time and place, must have clear support in public
danger, actual or impending. Only the greatest abuses, endangering permanent interests,
give occasion for permissible limitation. (Thomas V. Collins, 323 US 516 [1945]."
Significantly, the freedom of expression curtailed by the questioned prohibition is not so
much that of the candidate or the political party. The regulation strikes at the freedom of an
individual to express his preference and, by displaying it on his car, to convince others to
agree with him. A sticker may be furnished by a candidate but once the car owner agrees to
have it placed on his private vehicle, the expression becomes a statement by the owner,
primarily his own and not of anybody else. If, in the National Press Club case, the Court was
careful to rule out restrictions on reporting by newspaper or radio and television stations and
commentators or columnists as long as these are not covertly paid-for advertisements or
purchased opinions with less reason can we sanction the prohibition against a sincere
manifestation of support and a proclamation of belief by an individual person who pastes a
sticker or decal on his private property.
4. ID.; ID.; DEBATE ON PUBLIC ISSUES SHOULD BE OPEN. We have adopted the principle
that debate on public issues should be uninhibited, robust, and wide open and that it may
well include vehement, caustic and sometimes unpleasantly sharp attacks on government
and public officials. (New York Times Co. v. Sullivan 376 U.S. 254, 11 L. Ed. 2d 686 [1964];
cited in the concurring opinion of then Chief Justice Enrique Fernando in Babst v. National
Intelligence Board, 132 SCRA 316 [1984]. Too many restrictions will deny to people the
robust, uninhibited, and wide open debate, the generating of interest essential if our
elections will truly be free, clean, and honest.
5. ID.; ID.; FREEDOM OF SPEECH AND INFORMATION PREVAILS. When faced with border
line situations where freedom to speak by a candidate or party and freedom to know on the
part of the electorate are invoked against actions intended for maintaining clean and free
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elections, the police, local officials and COMELEC should lean in favor of freedom. For in the
ultimate analysis, the freedom of the citizen and the State's power to regulate are not
antagonistic. There can be no free and honest elections if in the efforts to maintain them,
the freedom to speak and the right to know are unduly curtailed.
6. ID.; ID.; REGULATION OF ELECTION ACTIVITY, LIMITED; TEST OF VALIDITY. The
regulation of election activity has its limits. We examine the limits of regulation and not the
limits of free speech. The carefully worded opinion of the Court, through Mr. Justice Feliciano,
shows that regulation of election campaign activity may not pass the test of validity if it is
too general in its terms or not limited in time and scope in its application, if it restricts one's
expression of belief in a candidate or one's opinion of his or her qualifications, if it cuts off
the flow of media reporting, and if the regulatory measure bears no clear and reasonable
nexus with the constitutionally sanctioned objective.
7. ID.; ID.; SECTION 15 (a) AND SECTION 21 (f) COMELEC RESOLUTION NO. 2347 VOID FOR
OVERBREADTH. Second the questioned prohibition premised on the statute and as
couched in the resolution is void for overbreadth. A statute is considered void for
overbreadth when "it offends the constitutional principle that a governmental purpose to
control or prevent activities constitutionally subject to state regulations may not be achieved
by means which sweep unnecessarily broadly and thereby invade the area of protected
freedoms." (Zwickler v. Koota, 19 L ed 2d 444 [1967]). "In a series of decisions this Court has
held that, even though the governmental purpose be legitimate and substantial, that
purpose cannot be pursued by means that broadly stifle fundamental personal liberties
when the end can be more narrowly achieved. The breadth of legislative abridgment must
be viewed in the light of less drastic means for achieving the same basic purpose.
8. ID.; ID.; ID.; RESTRICTION PROVIDED THEREIN VIOLATES DUE PROCESS CLAUSE. The
resolution prohibits the posting of decals and stickers not more than eight and one-half (8-)
inches in width and fourteen (14) inches in length in any place, including mobile
places whether public or private except in areas designated by the COMELEC. Verily, the
restriction as to where the decals and stickers should be posted is so broad that it
encompasses even the citizen's private property, which in this case is a privately-owned
vehicle. In consequence of this prohibition, another cardinal rule prescribed by the
Constitution would be violated. Section 1, Article III of the Bill of Rights provides "that no
person shall be deprived of his property without due process of law." Property is more than
the mere thing which a person owns, it includes the right to acquire, use, and dispose of it;
and the Constitution, in the 14th Amendment, protects these essential attributes. Property is
more than the mere thing which a person owns. It is elementary that it includes the right to
acquire, use, and dispose of it. The Constitution protects these essential attributes of
property. Holde v. Hardy, 169 U.S. 366, 391, 41 L. ed. 780. 790, 18 Sup. CXt. Rep. 383.
Property consists of the free use, enjoyment, and disposal of a person's acquisitions without
control or diminution save by the law of the land. 1 Cooley's Bl. Com. 127."
(Buchanan v. Warley 245 US 60 [1917])
9. ID.; ID.; ID.; PROHIBITION DEPRIVES CITIZEN OF RIGHT TO FREE SPEECH AND
INFORMATION. "We have to consider the fact that in the posting of decals and stickers on
cars and other moving vehicles, the candidate needs the consent of the owner of the
vehicle. In such a case, the prohibition would not only deprive the owner who consents to
such posting of the decals and stickers the use of his property but more important, in the
process, it would deprive the citizen of his right to free speech and information. Freedom to
distribute information to every citizen wherever he desires to receive it is so clearly vital to
the preservation of a free society that, putting aside reasonable police and health
regulations of time and manner of distribution, it must be fully preserved. The danger of
distribution can so easily be controlled by traditional legal methods leaving to each
householder the full right to decide whether he will receive strangers as visitors, that
stringent prohibition can serve no purpose but that forbidden by the constitution, the naked
restriction of the dissemination of ideas." (Martin v. City of strutters, Ohio, 319 U.S. 141; 87
L. ed. 1313 [1943]) The preference of the citizen becomes crucial in this kind of election
Election Law Cases
propaganda not the financial resources of the candidate. Whether the candidate is rich and,
therefore, can afford to dole-out more decals and stickers or poor and without the means to
spread out the same number of decals and stickers is not as important as the right of the
owner to freely express his choice and exercise his right of free speech. The owner can even
prepare his own decals or stickers for posting on his personal property. To strike down this
right and enjoin it is impermissible encroachment of his liberties.
10. ID.; ID.; RA 6646, SECTION 11; RIGHT TO PROPERTY JOINED BY LIBERTY INTEREST;
REGULATION, NOT JUSTIFIED. The right to property may be subject to a greater degree of
regulation but when this right is joined by a "liberty" interest, the burden of justification on
the part of the Government must be exceptionally convincing and irrefutable. The burden is
not met in this case. Section 11 of Rep. Act 6646 is so encompassing and invasive that it
prohibits the posting or display of election propaganda in any place, whether public or
private except in the common poster areas sanctioned by COMELEC. This means that a
private person cannot post his own crudely prepared personal poster on his own front door
or on a post in his yard. While the COMELEC will certainly never require the absurd, there are
no limits to what overzealous and partisan police officers, armed with a copy of the statute
or regulation, may do. The provisions allowing regulation are so loosely worded that they
inclose the posting of decals or stickers in the privacy of one's living room or bedroom. This
is delegation running riot. As stated by Justice Cardozo in his concurrence in Panama
Refining Co. v. Ryan (293 U.S. 388; 79 L. Ed. 46 [1935], "The delegated power is unconfined
and vagrant . . . This is delegation running riot. No such plenitude of power is susceptible of
transfer."
11. ID.; ID.; ARTICLE 11 SECTION 26 AND ARTICLE XII SECTION 1 IN RELATION TO ARTICLE IX
(c) SECTION 4 OF THE CONSTITUTION; NOT IMPAIRED BY POSTING OF DECALS AND STICKERS
ON PRIVATE VEHICLES. The constitutional objective to give a rich candidate and a poor
candidate equal opportunity to inform the electorate as regards their candidacies, mandated
by Article II Section 26 and Article XIII Section 1 in relation to Article IX (c) Section 4 of the
Constitution, is not impaired by posting decals and stickers on cars and other private
vehicles. Compared to the paramount interest of the State in guaranteeing freedom of
expression, any financial considerations behind the regulation are of marginal significance.
Under Section 26 Article II of the Constitution, "The State shall guarantee equal access to
opportunities for public service, . . . while under Section 1, Article XIII thereof "The Congress
shall give highest priority to the enactment of measures that protect and enhance the right
of all the people to human dignity, reduce social, economic, and political inequalities, and
remove cultural inequities by equitably diffusing wealth and political power nor the common
good."
12. ID.; ID.; SECTION 15 (a) AND SECTION 21 (f) OF COMELEC RESOLUTION NO. 2347;
PROHIBITION BECOMES CENSORSHIP, NOT JUSTIFIED BY CONSTITUTION. In sum, the
prohibition on posting of decals and stickers on "mobile" places whether public or private
except in the authorized areas designated by the COMELEC becomes censorship which
cannot be justified by the Constitution: ". . . The concept of the Constitution as the
fundamental law, setting forth the criterion for the validity of any public act whether
proceeding from the highest official or the lowest functionary, is a postulate of our system of
government. That is to manifest fealty to the rule of law, with priority accorded to that which
occupies the topmost rung in the legal hierarchy. The three departments of government in
the discharge of the functions with which it is entrusted have no choice but to yield
obedience to its commands. Whatever limits it imposes must be observed. Congress in the
enactment of statutes must ever be on guard lest the restrictions on its authority, either
substantive or formal, be transcended. The Presidency in the execution of the laws cannot
ignore or disregard what it ordains. In its task of applying the law to the facts as found in
deciding cases, the judiciary is decreed by the fundamental law. Even its power of judicial
review to pass upon the validity of the acts of the coordinate branches in the course of
adjudication is a logical corollary of this basic principle that the Constitution is paramount. It
overrides any governmental measure that fails to live up to its mandates. Thereby there is a
recognition of its being the supreme law." (Mutuc v.Commission on Elections, supra)
Election Law Cases
13. ID.; ID.; FREEDOM OF SPEECH AND INFORMATION, CALLS FOR MORE LIBERAL
INTERPRETATION. The unusual circumstances of this year's national and local elections
call for a more liberal interpretation of the freedom to speak and the right to know. It is not
alone the widest possible dissemination of information on platforms and programs which
concern us. Nor are we limiting ourselves to protecting the unfettered interchange of ideas
to bring about political change. (Cf. New York Times v. Sullivan, supra) The big number of
candidates and elective positions involved has resulted in the peculiar situation where
almost all voters cannot name half or even two-thirds of the candidates running for Senator.
The public does not know who are aspiring to be elected to public office. There are many
candidates whose names alone evoke qualifications, platforms, programs and ideologies
which the voter may accept or reject. When a person attaches a sticker with such
candidate's name on his car bumper, he is expressing more than the name; he is espousing
ideas.
||| (Adiong v. COMELEC, G.R. No. 103956, [March 31, 1992])
[G.R. No. 160428. July 21, 2004.]
HADJI RASUL BATABOR, petitioner, vs. COMMISSION ON ELECTIONS,
BARANGAY BOARD OF CANVASSERS, BOARD OF ELECTION
INSPECTORS OF PRECINCTS NOS. 3A, 4A and 5A, BARANGAY
MAIDAN, TUGAYA, LANAO DEL SUR, and MOCASIM ABANGON
BATONDIANG, respondents.
DECISION
SANDOVAL-GUTIERREZ, J p:
The power to declare a failure of elections should be exercised with utmost care and only
under circumstances which demonstrate beyond doubt that the disregard of the law has
been so fundamental or so persistent and continuous that it is impossible to distinguish what
votes are lawful and what are unlawful, or to arrive at any certain result whatsoever; or that
the great body of voters have been prevented by violence, intimidation and threats from
exercising their franchise. There is failure of elections only when the will of the electorate
has been muted and cannot be ascertained. If the will of the people is determinable, the
same must as far as possible be respected. 1
Before us is a petition for certiorari 2 with application for a temporary restraining order and
writ of preliminary injunction, assailing the Commission on Elections(COMELEC) En
Banc's Resolution dated October 9, 2003 in SPA No. 02-295 (Brgy.). In this Resolution, the
COMELEC denied Hadji Rasul Batabor's petition seeking: (a) the declaration of failure of
election in Precincts 3A, 4A and 5A of Barangay Maidan, Tugaya, Lanao del Sur; (b) the
annulment of the proclamation that Mocasim Abangon Batondiang is the duly elected
Punong Barangay of Barangay Maidan; and (c) the holding of a special election in the
questioned precincts.
In the synchronized July 15, 2002 Barangay and Sangguniang Kabataan Elections, Hadji
Rasul Batabor, petitioner, and Mocasim Abangon Batondiang, private respondent, ran as
opposing candidates for the position of Punong Barangay in Barangay Maidan, Tugaya,
Lanao del Sur. It was petitioner's re-election bid being then the incumbent Punong Barangay.
The result of the election shows that private respondent won as Punong Barangay, garnering
123 votes, as against petitioner's 94 votes, or a difference of 29 votes.
In due time, private respondent was proclaimed the duly elected Punong Barangay of
Barangay Maidan.
Bewailing the outcome of the election, petitioner filed with the COMELEC a petition to
declare a failure of election in Precincts 3A, 4A and 5A of Barangay Maidan, docketed as SPA
No. 02-295 (Brgy.). The petition alleges that during the election, the voting started at around
8:30 o'clock in the morning. It was temporarily suspended during the lunch break and was to
resume at 1:00 o'clock in the afternoon of that day. But after lunch, the Chairwoman of the
Board of Election Inspectors (BEI) of Precincts 3A, 4A and 5A suddenly tore all the unused
official ballots. Thus, the voting was not continued. The BEI then padlocked the ballot boxes.
At that time, petitioner was not present. Despite the note of Election Officer Taha Casidar
directing the BEI to resume the voting, the latter did not allow the remaining voters to vote.
Election Law Cases
Thus, petitioner's relatives and followers, numbering more than 100, were not able to cast
their votes.
In his comment, private respondent averred that petitioner's allegations are not supported
by substantial evidence. It was petitioner who padlocked the ballot boxes as shown by the
affidavit of Comini Manalastas. During the counting of votes, petitioner's wife, daughter and
son actually witnessed the same. Besides, petitioner's allegations can be properly ventilated
in an election protest because the issues raised are not grounds for declaration of a failure of
election.
On October 9, 2003, the COMELEC En Banc issued the assailed Resolution 3 denying the
petition.
Petitioner now contends in his petition for certiorari before us that the COMELEC committed
grave abuse of discretion amounting to lack or excess of jurisdiction in denying his petition
in SPA No. 02-295 (BRGY.). He reiterates his allegations in his petition filed with the COMELEC
showing there was failure of election.
The Solicitor General, in his comment on the instant petition, vehemently disputes
petitioner's allegations and prays that the petition be dismissed for lack of merit.
We dismiss the petition.
The power to declare a failure of election is vested exclusively upon the COMELEC. 4 Section
6 of the Omnibus Election Code 5 provides:
"Section 6. Failure of Election. If, on account of force majeure, violence,
terrorism, fraud, or other analogous causes, the election in any polling place
has not been held on the date fixed, or had been suspended before the hour
fixed by law for the closing of the voting, or after the voting and during the
preparation and the transmission of the election returns or in the custody or
canvass thereof, such election results in a failure to elect, and in any such
cases the failure or suspension of election would affect the result of the
election, the Commission shall, on the basis of a verified petition by any
interested party and after due notice and hearing, call for the holding or
continuation of the election not held, suspended or which resulted in a
failure to elect on a date reasonably close to the date of the election not
held, suspended or which resulted in a failure to elect but not later than
thirty days after the cessation of the cause of such postponement or
suspension of the election or failure to elect."
Explaining the above provisions, we held in Benito vs. Commission on Elections 6 that these
two (2) conditions must exist before a failure of election may be declared: (1) no voting has
been held in any precinct or precincts due to fraud, force majeure, violence or terrorism; and
(2) the votes not cast therein are sufficient to affect the results of the election. The cause of
such failure may arise before or after the casting of votes or on the day of the election.
The familiar rule, as applied to this case, is that grave abuse of discretion exists when the
questioned act of the COMELEC was exercised capriciously and whimsically as is equivalent
to lack or in excess of jurisdiction. Such exercise of judgment must be done in an arbitrary or
despotic manner by reason of passion or personal hostility, and it must be so patent and
gross as to amount to an evasion of positive duty or to a virtual refusal to perform the duty
enjoined or to act at all in contemplation of law. 7 It is not sufficient that the COMELEC, in
the exercise of its power, abused its discretion; such abuse must be grave. 8
We find that the COMELEC did not commit any grave abuse of discretion in dismissing
petitioner's petition alleging a failure of election. While the alleged 100 votes of petitioner's
relatives and supporters, if cast during the election, are sufficient to affect its result,
however, he failed to prove that the voting did not take place in precincts 3A, 4A and 5A. As
found by the COMELEC, the Statement of Votes and the Certificate of Canvass of Votes show
that out of the 316 registered voters in the questioned precincts, at least 220 actually voted.
This simply shows that there was no failure of election in the subject precincts. Moreover,
petitioner's allegation that the voting was not resumed after lunch break, preventing 100 of
his relatives and followers to vote, is better ventilated in an election contest. The COMELEC,
in its assailed Resolution, held: ASHaTc
Election Law Cases
"In the first place, the petitioner failed to show with certainty that the voting
did not push through in the questioned precincts. In fact, the Statement of
Votes by Precincts show that out of the three hundred sixteen (316)
registered voters in the questioned precincts, two hundred twenty (220) or
69.62% of the registered voters actually voted. This high turnout in the
number of registered voters who actually voted is clearly not an indication of
a failure of elections.
"We cannot also help but notice that the instant petition seeks to declare a
failure of elections and to annul solely the proclamation of respondent
Batondiang, the elected punong barangay. The prayer for annulment of
proclamation does not extend to all the elected and proclaimed candidates
in Barangay Maidan, Tugaya, Lanao del Sur. The Commission may not, on
the ground of failure of elections, annul the proclamation of one candidate
only, and thereafter call a special election therefor, because failure of
elections necessarily affects all the elective positions in the place where
there has been a failure of elections. To hold otherwise will be discriminatory
and violative of the equal protection of the laws (See Loong vs. COMELEC,
305 SCRA 832 [1999]).
"As pronounced by the Supreme Court
in Mitmug vs. Commission on Elections (230 SCRA 54 [1994]), allegations of
fraud and other election irregularities are better ventilated in an election
contest:
'. . ., the question of whether there have been terrorism and other
irregularities is better ventilated in an election contest. These
irregularities may not as a rule be invoked to declare a failure of
election and to disenfranchise the electorate through the misdeeds of
a relative few. Otherwise, elections will never be carried out with the
resultant disenfranchisement of innocent voters as losers will always
cry fraud and terrorism.
'There can be failure of election in a political unit only if the will of the
majority has been defiled and cannot be ascertained. But, if it can be
determined, it must be accorded respect. After all, there is no
provision in our election laws which requires that a majority of
registered voters must cast their votes. All the law requires is that a
winning candidate must be elected by a plurality of valid votes,
regardless of the actual number of ballots cast. Thus, even if less
than 25% of the electorate in the questioned precincts cast their
votes, the same must still be respected. There is prima facie showing
that private respondent was elected through a plurality of valid votes
of a valid constituency.'" 9
We reiterate our ruling in Benito vs. COMELEC 10 that there is failure of elections only when
the will of the electorate has been muted and cannot be ascertained. In the case at bar, this
incident is not present.
In sum, we find no reason to disturb the assailed Resolution of the COMELEC.
WHEREFORE, the instant petition is DISMISSED for lack of merit.
SO ORDERED.
||| (Hadji Rasul Batabor v. COMELEC, G.R. No. 160428, [July 21, 2004], 478 PHIL 795-802)
officials of which are determined through the will of the electorate. "An election is the
embodiment of the popular will, the expression of the sovereign power of the people."
"Specifically, the term 'election,' in the context of the Constitution, may refer to the conduct
of the polls, including the listing of voters, the holding of the electoral campaign, and the
casting and counting of votes." The winner is the candidate who has obtained a majority or
plurality of valid votes cast in the election. "Sound policy dictates that public elective offices
are filled by those who receive the highest number of votes cast in the election for that
office. For, in all republican forms of government the basic idea is that no one can be
declared elected and no measure can be declared carried unless he or it receives a majority
or plurality of the legal votes cast in the election." In case of protest, a revision or recount of
the ballots cast for the candidates decides the election protest case. The candidate receiving
the highest number or plurality of votes shall be proclaimed the winner. Even if the
candidate receiving the majority votes is ineligible or disqualified, the candidate receiving
the next highest number of votes or the second placer, can not be declared elected. "The
wreath of victory cannot be transferred from the disqualified winner to the repudiated loser
because the law then as now only authorizes a declaration of election in favor of the person
who has obtained a plurality of votes and does not entitle a candidate receiving the next
highest number of votes to be declared elected." In other words, "a defeated candidate
cannot be deemed elected to the office."
3. ID.; ID.; ELECTION; ELECTIONS ARE WON ON THE BASIS OF THE MAJORITY OR PLURALITY
OF VOTES CAST AND RECEIVED BY THE CANDIDATES. The annulment of an election on the
ground of fraud, irregularities and violations of election laws may be raised as an incident to
an election contest. Such grounds for annulment of an election may be invoked in an
election protest case. However, an election must not be nullified and the voters
disenfranchised whenever it is possible to determine a winner on the basis of valid votes
cast, and discard the illegally cast ballots. In this case, the petitioner admittedly received
17,007 valid votes more than the protestee, and therefore the nullification of the election
would not lie. The power to nullify an election must be exercised with the greatest care with
a view not to disenfranchise the voters, and only under circumstances that clearly call for
such drastic remedial measure. As heretofore stated, in this jurisdiction, elections are won
on the basis of a majority or plurality of votes cast and received by the candidates. "The
right to hold an elective office is rooted on electoral mandate, not perceived entitlement to
the office."
4. ID.; ID.; FAILURE OF ELECTIONS; INSTANCES WHERE A FAILURE OF ELECTIONS MAY BE
DECLARED. In a petition to annul an election under Section 6, Batas Pambansa Blg. 881,
two conditions must be averred in order to support a sufficient cause of action. These are:
(1) the illegality must affect more than 50% of the votescast and (2) the good votes can be
distinguished from the bad ones. It is only when these two conditions are established that
the annulment of the election can be justified because the remaining votes do not constitute
a valid constituency. We have held that: "To declare a failure of election, two (2) conditions
must occur: first, no voting has taken place in the precincts concerned on the date fixed by
law or, even if there were voting, the election nevertheless resulted in a failure to elect; and,
second, the votes not cast would affect the result of the election." Neither of these
conditions was present in the case at bar. More recently, we clarified that, "Under the
pertinent codal provision of the Omnibus Election Code, there are only three (3) instances
where a failure of elections may be declared, namely: (a) the election in any polling place
has not been held on the date fixed on account of force majeure, violence, terrorism, fraud,
or other analogous causes; (b) the election in any polling place had been suspended before
the hour fixed by law for the closing of the voting on account of force majeure, violence,
terrorism, fraud, or other analogous causes; or (c) after the voting and during the
preparation and transmission of the election returns or in the custody or canvass thereof,
such election results in a failure to elect on account of force majeure, violence, terrorism,
fraud, or other analogous causes."
5. ID.; ID.; PROCLAIMING A MAYORIAL CANDIDATE WINNER IN THE ELECTION ON THE BASIS
OF PERCEPTION OF THE VOICE OF THE PEOPLE, EVEN WITHOUT A MAJORITY OR PLURALITY
Election Law Cases
VOTES CAST IN HIS FAVOR IS VOID. We find that the trial court committed a grave abuse
of discretion amounting to lack or excess of jurisdiction in rendering its decision proclaiming
respondent Serapio the duly elected mayor of Valenzuela, Metro Manila, on the basis of its
perception of the voice of the people of Valenzuela, even without a majority or plurality
votes cast in his favor. In fact, without a single vote in his favor as the trial court discarded
all the votes. Thus, the decision is not supported by the highest number of valid votes cast
in his favor. This violated the right to due process of law of petitioner who was not heard on
the issue of failure of election, an issue that was not raised by the protestant. "A decision is
void for lack of due process if, as a result, a party is deprived of the opportunity of being
heard." The trial court can not decide the election protest case outside the issues raised. If it
does, as in this case, the trial court is ousted of its jurisdiction. Likewise, it is a basic
principle that a decision with absolutely nothing to support it is void. "A void decision may
be assailed or impugned at any time either directly or collaterally, by means of a petition
filed in the same case or by means of a separate action, or by resisting such decision in any
action or proceeding where it is invoked." Here, the trial court indulged in speculations on its
view of the voice of the people, and decided the case disregarding the evidence, but on its
own intuition,ipse dixit. How was this voice communicated to the trial court? Certainly not by
competent evidence adduced before the court as it should be, but by extra-sensory
perception. This is invalid in law. Contrary to its own finding that petitioner obtained 83,600
valid votes against 66,602 valid votes for the respondent as second placer, or a plurality of
17,007 votes, the trial court declared the second placer as the winner. This is a blatant
abuse of judicial discretion by any account. It is a raw exercise of judicial function in an
arbitrary or despotic manner, amounting to evasion of the positive duty to act in accord with
law. HSCATc
to have definite knowledge of what its means to make the decisions, orders and rulings of
the Commission "subject to review by the Supreme Court". And since instead of maintaining
that provision intact, it ordained that the Commission's actuations be instead brought to the
Supreme Court on certiorari", the Supreme Court cannot insist that there was no intent to
change the nature of the remedy, considering that the limited scope of certiorari, compared
to a review, is well known in remedial law. A review includes digging into the merits or
unearthing errors of judgment, while certiorari deals exclusively with grave abuse of
discretion, which may not exist even when the decision is otherwise erroneous. Certiorari
implies indifferent disregard of the law, arbitrariness and caprice, an omission to weigh
pertinent considerations, a decision arrived at without rational deliberation. While the effects
of an error of judgment may not differ from that of an indiscretion, as a matter of policy,
there are matters that by their nature ought to be left for final determination to the sound
discretion of certain officers or entities, reserving it to the Supreme Court to insure the
faithful observance of due process only in cases of patent arbitrariness.
2. CERTIORARI; GRAVE ABUSE OF DISCRETION; CONSIDERING AS SPURIOUS VOTES
EXCEEDING THE HIGHEST POSSIBLE NUMBER OF VALID VOTES THAT CAN BE CAST IN A
VOTING CENTER, NOT A CASE OF. It is not grave abuse of discretion for the Comelec to
deem as spurious and manufactured votes exceeding the highest possible number of valid
votes that can be cast in a voting center even if the total number of excess votes in the
voting center is not more than 40%, considering the historical antecedents relative to the
highly questionable manner in which elections have been held in the past in the provinces
involved in this case, of which the Supreme Court has judicial notice.
3. ID.; ID.; NOT A CASE OF; COMELEC MAY DO DIRECTLY WHAT THE BOARD OF CANVASSERS
IS SUPPOSED TO DO OR OUGHT TO HAVE DONE. Under Section 168 of the Revised
Election Code of 1978, the Comelec shall have direct control and supervision of the board of
canvassers, and that relatedly Section 175 of the same Code provides that it "shall be the
sole judge of all pre-proclamation controversies." The authority of the Commission in
reviewing actuations of the board of canvassers does not spring from any appellate
jurisdiction conferred by any specific provision of law, for there is none such provision any
where in the Election Code, but from the plenary prerogative of direct control and
supervision endowed by Section 168 of the Code. And in administrative law, it is a too well
settled postulate to need any supporting citation, that a superior body or office having
supervision and control over another may do directly what the latter is supposed to do or
ought to have done.
4. ID.; ID.; ERRORS OF JUDGMENT NOT REVIEWABLE BY THE SUPREME COURT. Where it
appears from the records that the Comelec has taken pains to consider as meticulously as
the nature of the evidence presented by both parties would permit all the contentions of
petitioners relative to the weight that should be given to such evidence, the Supreme Court
will not hold that the Comelec acted wantonly and arbitrarily in drawing its conclusions. If
errors there are in any of those conclusions, they are errors of judgment which are not
reviewable in certiorari, so long as they are founded on substantial evidence.
5. ID.; ID.; NOT A CASE OF; WHERE COMELEC PASSED UPON RETURNS USING COMMON
SENSE AND PERCEPTION ONLY; PRESUMPTION OF REGULARITY IN THE PERFORMANCE OF
DUTIES. Where the Comelec did not examine the questioned election returns with the aid
of experts but "using common sense and perception only", apart from presuming regularity
in the performance of its duties, a case of grave abuse of discretion would not come out,
considering that Comelec cannot be said to have acted whimsically or capriciously or
without any rational basis, particularity if it is considered that in many respects and from the
very nature of the Supreme Court's and the Commission's respective functions, the
Commission is in a better position to appreciate and assess the vital circumstances closely
and accurately.
6. ID.; NON-IDENTIFICATION OF BALLOT BOXES IN DEFECTIVE CONDITIONS DOES NOT
CONSTITUTE GRAVE ABUSE OF DISCRETION WHERE COMELEC HAS EXAMINED, STUDIED AND
PASSED UPON THE RECORDS RELATED THERETO. Non-identification of defective ballot
boxes by the Comelec does not constitute grave abuse of discretion where it has examined,
Election Law Cases
studied and passed upon the records related thereto. If at all, deeper inquiry into this point
would be of real value in an electoral protest.
||| (Aratuc v. COMELEC, G.R. Nos. L-49705-09, [February 8, 1979], 177 PHIL 205-246)
[G.R. No. 150477. February 28, 2005.]
LAZARO C. GAYO, petitioner, vs. VIOLETA G. VERCELES, respondent.
DECISION
CALLEJO, SR., J p:
Before us is a petition for review on certiorari of the Decision 1 of the Regional Trial Court
(RTC), Agoo, La Union, Branch 32, in EPC A-07, dismissing a petition for quo warranto filed by
petitioner Lazaro C. Gayo to declare as null and void the proclamation of respondent Violeta
G. Verceles as Mayor of the Municipality of Tubao, La Union, during the May 14, 2001
elections.
This case proceeded from the following antecedents:
Sometime in 1977, the respondent migrated to the United States of America (U.S.A.) with
her family to look for greener pastures. Although her husband was granted American
citizenship, she retained her citizenship as a Filipino. 2 In 1993, she returned to the
Philippines for good. The following year, she was appointed as Treasurer of the B.P. Verceles
Foundation 3 and regularly attended the meetings of its Board of Directors. 4
In 1995, the respondent registered herself as a voter of Precinct No. 16 in Tubao, La
Union. 5 As certified by the Assistant Revenue District Officer, Revenue District No. 3 of the
Bureau of Internal Revenue (BIR) in San Fernando City, the respondent also filed her income
tax returns for the taxable years 1996 and 1997. 6 Between the years 1993 to 1997, the
respondent would travel to the U.S.A. to visit her children. 7
The respondent abandoned her status as lawful permanent resident of the U.S.A. effective
November 5, 1997 for the purpose of filing her candidacy for Mayor of Tubao, La Union in the
May 11, 1998 elections. On January 28, 1998, she surrendered her alien registration receipt
card before the Immigration and Naturalization Service of the American Embassy in
Manila. 8
The respondent ran in the May 11, 1998 elections and was elected Mayor of Tubao, La
Union. CIaASH
Thereafter, during the May 14, 2001 elections, the petitioner ran for re-election and won.
She was proclaimed as the duly-elected Mayor on May 16, 2001. 9
On May 26, 2001, the petitioner, also a candidate for Mayor during the May 2001 elections,
filed a petition for quo warranto with the RTC of Agoo, La Union. He prayed that (a) the
respondent be declared disqualified to hold the position of Mayor of Tubao, La Union; (b) the
respondent's proclamation as winner be declared null and void; and (c) the petitioner be
proclaimed as the duly-elected mayor. iatdcjur
In her Answer, the respondent argued that she had clearly and unequivocally shown,
through direct and positive acts, that she already renounced and waived her right to
permanently reside in the U.S.A. even before she surrendered her "green card" in 1998. As a
counterclaim, she prayed for the payment of attorney's fees and litigation expenses, moral
damages, and exemplary damages.
On October 12, 2001, the RTC rendered a Decision 10 dismissing the petition for quo
warranto. The RTC ruled that the respondent was qualified to occupy the position as
Municipal Mayor.
The RTC held that the respondent's act of registration as a voter, or of filing an income tax
return, does not constitute an abandonment or waiver of her status as a permanent resident
of the U.S.A. 11 Nonetheless, it declared that the respondent was no longer such permanent
resident during the May 2001 elections because she had already waived her green card
even prior to the filing of her certificate of candidacy when she first ran for mayor in the
1998 elections. 12 The RTC held that the waiver of the status as a permanent resident
under Sec. 68(e) 13 of the Omnibus Election Code is still effective. It ruled that Sec.
40(f) 14 of the Local Government Code (LGC) of 1991 did not repeal Sec. 68(e). For one,
there is nothing in the repealing clause of the LGC that indicates an intention to repeal or
modify the Omnibus Election Code. 15 Moreover, the two provisions are not inconsistent
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with each other. In fact, Section 68(e) of the Omnibus Election Code complements Section
40(f) of the LGC, in the sense that the former may supply the condition when permanent
residents may be qualified to run for public office. 16
Dissatisfied, the petitioner filed this petition for review based on the following ground:
THE TRIAL COURT HAS DEPARTED FROM THE ACCEPTED AND USUAL
COURSE OF JUDICIAL PROCEEDINGS AND CONTRAVENED APPLICABLE LAW
AND JURISPRUDENCE IN DISMISSING THE PETITION DESPITE PRESENCE OF
LEGAL GROUND FOR ITS GRANT. 17
The fundamental issue in this case is whether or not the respondent was able to meet the
residency requirement for the position of municipal mayor during the May 2001 elections.
Before ruling on the substantive issues of the case, we note that the petitioner filed a
petition for review on certiorari with this Court under Rule 45 of the Rules of Court. While a
petition for review on certiorari under Rule 45 may be filed with this Court to assail the
decision of the RTC on questions of law, the rule is that the Court will not entertain direct
resort to it unless the redress desired cannot be obtained in the appropriate courts, or where
exceptional and compelling circumstances justify availment of a remedy within and calling
for the exercise of our primary jurisdiction. 18 The Court notes that the petitioner has not
relied on any such exceptional circumstances.
The remedy of the petitioner was to appeal the decision to the Court of Appeals (CA) via a
writ of error under Rule 41 of the Revised Rules of Civil Procedure. Section 2(a) of Rule 41
provides for the appeal to the CA of cases decided by the RTC in the exercise of its original
jurisdiction. The petition for quo warranto in this case was filed with and decided by the RTC
in its original jurisdiction; hence, the remedy of the petitioner was to appeal by writ of error
to the CA.
We also note that the contested term of office, which commenced on June 30, 2001, lasted
only until June 30, 2004. This petition, thus, has become moot and academic insofar as it
concerns the petitioner's right to the mayoralty seat in his municipality. 19 For this reason,
we resolve to accept the appeal and consider the case on the merits. Further, as we have
previously ruled, Courts will decide a question otherwise moot and academic if it is capable
of repetition, yet evading review and if it will aid in fostering free, orderly, and peaceful
elections. 20
The issue in this case involves one of the essential qualifications for running for public office,
that is, the one-year residency requirement prescribed under Section 39 of the LGC, thus:
SECTION 39. Qualifications.
(a) An elective local official must be a citizen of the Philippines; a registered
voter in the barangay, municipality, city, or province or, in the case of a
member of thesangguniang panlalawigan, sangguniang panlungsod,
or sangguniang bayan, the district where he intends to be elected; a
resident therein for at least one (1) year immediately preceding the day of
the election; and able to read and write Filipino or any local language or
dialect. EAcCHI
In interpreting this requirement, our ruling in Papandayan, Jr. v. Commission on
Elections 21 is instructive, thus:
The term "residence," as used in the election law, imports not only an
intention to reside in a fixed place but also personal presence in that place,
coupled with conduct indicative of such intention. "Domicile" denotes a fixed
permanent residence to which when absent for business or pleasure, or for
like reasons, one intends to return. . . . 22
More recently in Coquilla v. Commission on Elections, 23 we further clarified the meaning of
the term, and held as follows:
The term "residence" is to be understood not in its common acceptation as
referring to "dwelling" or "habitation," but rather to "domicile" or legal
residence, that is, the place where a party actually or constructively has his
permanent home, where he, no matter where he may be found at any given
time, eventually intends to return and remain (animus manendi). A domicile
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effectivity of the LGC. 30 The respondent avers that the provision simply means that after
the effectivity of the LGC, permanent residents in a foreign country or those who have
acquired the right to reside there and continue to avail of the said right are disqualified from
running for any elective local position. She argues therefore that she is no longer disqualified
because, at the time she ran for office, she already ceased to avail of her right as a
permanent U.S. resident or immigrant. 31
We agree with the respondent. Section 68 of the Omnibus Election Code was not repealed by
the LGC of 1991. The repealing clause of the LGC, Section 534, 32 does not specifically
mention a repeal of any provision of the Omnibus Election Code. The legislature is presumed
to know the existing laws, such that whenever it intends to repeal a particular or specific
provision of law, it does so expressly. The failure to add a specific repealing clause
particularly mentioning the statute to be repealed indicates that the intent was not to repeal
any existing law on the matter, unless an irreconcilable inconsistency and repugnancy exists
in the terms of the new and the old laws. 33
In this case, we discern no irreconcilable inconsistency between Section 68 of the Omnibus
Election Code and Section 40(f) of the LGC. Section 68 of the Omnibus Election Code
provides in part:
Any person who is a permanent resident of or an immigrant to a foreign
country shall not be qualified to run for any elective office under this Code,
unless said person has waived his status as a permanent resident or
immigrant of a foreign country in accordance with the residence
requirement provided for in the election laws. acAIES
On the other hand, Sec. 40(f) of the LGC provides that "permanent residents in a foreign
country or those who have acquired the right to reside abroad and continue to avail of the
same right after the effectivity of this Code" are disqualified from running for any elective
local position.
The two provisions are basically the same in that they both provide that permanent
residents or immigrants to a foreign country are disqualified from running for any local
elective position. The difference lies only in the fact that Section 68 of the Omnibus Election
Code specifically provides for an exception to the disqualification. This does not make the
two provisions inconsistent with each other.
Moreover, the two provisions are in pari materia they relate to the same subject matter.
Statutes in pari materia, although in apparent conflict, are so far as reasonably possible
construed to be in harmony with each other. 34 Thus, the RTC correctly made the following
observations:
The deletion is based on the premise that once a person waives or abandons
his status as a permanent resident or immigrant of a foreign country he has,
therefore, ceased to be such from the time of the waiver or abandonment.
The phrase as used in Section 68 of the Omnibus Election Code is a
catchphrase or a conditional clause on how a permanent resident or
immigrant of a foreign country could fall outside the coverage of the
prohibition. The legislature found the inclusion of the phrase unnecessary or,
with no offense meant to the framers of Batas Pambansa [Blg.] 881, a
surplusage, so to speak. Hence, the deletion.
So that, the absence of that conditional clause in Section 40(f) of the Local
Government Code may be supplied by Section 68(e) of the Omnibus Election
Code as both provisions relate to the same subject matter and purpose;
hence, in pari materia. And, when statutes are in pari materia, they are to
be "construed together; each legislative intent is to be interpreted with
reference to other acts relating to the same matter or subject." (Black,
Construction and Interpretation of Laws, 2nd ed., p. 331) 35
Finally, the respondent avers that in the event of her disqualification from holding office, the
petitioner cannot assume the mayoralty post because he did not obtain a plurality of votes
for the position.
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The rule is well settled. The ineligibility of a candidate receiving majority votes does not
entitle the eligible candidate receiving the next highest number of votes to be declared
elected. A minority or defeated candidate cannot be deemed elected to the office. As we
held in Reyes v. Commission on Elections: 36
To simplistically assume that the second placer would have received the
other votes would be to substitute our judgment for the mind of the voter.
The second placer is just that, a second placer. He lost the elections. He was
repudiated by either a majority or plurality of voters. He could not be
considered the first among qualified candidates because in a field which
excludes the disqualified candidate, the conditions would have substantially
changed. We are not prepared to extrapolate the results under the
circumstances. 37
WHEREFORE, premises considered, the petition is hereby DENIED. The Decision of the
Regional Trial Court of Agoo, La Union, Branch 32, in EPC No. A-07 is AFFIRMED.EcSCAD
SO ORDERED.
||| (Gayo v. Verceles, G.R. No. 150477, [February 28, 2005], 492 PHIL 592-604)
DECISION
VILLARAMA, JR., J p:
With the adoption of automated election system in our country, one of the emerging concerns
is the application of the law on nuisance candidates under a new voting system wherein voters
indicate their choice of candidates by shading the oval corresponding to the name of their chosen
candidate printed on the ballots, instead of writing the candidate's name on the appropriate space
provided in the ballots as in previous manual elections. If the name of a nuisance candidate whose
certificate of candidacy had been cancelled by the Commission on Elections (COMELEC) was still
included or printed in the official ballots on election day, should the votes cast for such nuisance
The Case
In this petition for certiorari with prayer for injunctive relief/s under Rule 65 in conjunction with
Section 2, Rule 64 of the 1997 Rules of Civil Procedure, as amended, filed on May 31,
2010, Casimira S. Dela Cruz (petitioner) assails COMELEC Resolution No. 8844 1 considering as stray
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the votes cast in favor of certain candidates who were either disqualified or whose COCs had been
cancelled/denied due course but whose names still appeared in the official ballots or certified lists of
1.Upon the filing of the instant Petition, a Temporary Restraining Order and/or Writ of
Preliminary Injunction be issued enjoining the taking of oath and assumption into office
Bugasong;
2.After the Petition is submitted for resolution, a decision be rendered granting the
instant Petition and:
(a)declaring as null and void the portion of COMELEC Resolution No. 8844
(b)ordering that the votes cast in favor of Aurelio N. Dela Cruz be counted and
(c)requiring the Regional Trial Court of the Province of Antique where the
votes after the votes in favor of nuisance candidate Aurelio N. Dela Cruz is
counted and tallied to the votes garnered by Petitioner Casimira S. Dela Cruz.
3.Permanently enjoining the taking of oath and assumption into office of Private
Factual Antecedents
In the 2001, 2004 and 2007 elections, petitioner ran for and was elected member of
the Sangguniang Bayan (SB) of Bugasong, Antique. On November 28, 2009, petitioner filed her
certificate of candidacy 3 for the position of Vice-Mayor of the Municipality of Bugasong, Province of
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Antique under the ticket of the National People's Coalition (NPC). Subsequently, Aurelio
N. Dela Cruz (Aurelio) also filed a certificate of candidacy 4 for the same position. IATSHE
the ground that he filed his certificate of candidacy for the vice-mayoralty position to put the election
process in mockery and to cause confusion among voters due to the similarity of his surname with
petitioner's surname. Petitioner emphasized that she is considered a very strong candidate for the
said position having been elected as member of the SB for three consecutive terms under the ticket of
the NPC and obtained the fifth (2001), fourth (2004) and third (2007) highest number of votes. In
contrast, Aurelio is an unknown in the political scene with no prior political experience as an elective
official and no political party membership. Being a retiree and having no known business, Aurelio has
no sufficient source of income but since the 2007 elections petitioner's opponents have been prodding
him to run for the same position as petitioner in order to sow confusion and thwart the will of the
voters of Bugasong. Petitioner further cited Aurelio's miserable showing in the previous local elections
when he ran and garnered only 126 and 6 votes for the positions of SB member (May 2007) and
a bona fide intention and capability to run for the position of Vice-Mayor, thus preventing a faithful
On January 29, 2010, the COMELEC First Division issued a Resolution 7 declaring Aurelio as
a nuisance candidate and cancelling his certificate of candidacy for the vice-mayoralty position in
Bugasong.
Despite the declaration of Aurelio as a nuisance candidate, however, his name was not
deleted in the Certified List of Candidates 8 and Official Sample Ballot 9issued by the COMELEC.
The names of the candidates for Vice-Mayor, including Aurelio and respondent John Lloyd M. Pacete,
Aurelio's name from the Official List of Candidates for the position of Vice-Mayor, the Official Ballots,
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and other election paraphernalia to be used in Bugasong for the May 2010 elections. She also prayed
that in the event Aurelio's name can no longer be deleted in time for the May 10, 2010 elections, the
COMELEC issue an order directing that all votes cast in favor of Aurelio be credited in her favor, in
On May 1, 2010, the COMELEC En Banc issued Resolution No. 8844 11 listing the names of
as follows:
1.to delete the names of the foregoing candidates from the certified list of
candidates; and
On May 10, 2010, the first automated national and local elections proceeded as scheduled.
During the canvassing of the votes by the Municipal Board of Canvassers (MBOC) of
Bugasong on May 13, 2010, petitioner insisted that the votes cast in favor of Aurelio be counted in her
favor. However, the MBOC refused, citing Resolution No. 8844. The Statement of Votes by Precinct
for Vice-Mayor of Antique-Bugasong13 showed the following results of the voting:
TOTAL RANK
DELA CRUZ, AURELIO N. 532 3
DELA CRUZ, CASIMIRA S. 6389 2
PACETE, JOHN LLOYD M. 6428 1
Consequently, on May 13, 2010, private respondent John Lloyd M. Pacete was proclaimed
Vice-Mayor of Bugasong by the MBOC of Bugasong. 14
On May 21, 2010, petitioner filed with the Regional Trial Court of the Province of Antique an
election protest praying for (1) the tallying in her favor of the 532 votes cast for Aurelio; (2) the
Petitioner's Arguments
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Considering that private respondent won by a margin of only thirty-nine (39) votes over
petitioner's 6,389 votes, petitioner contends that she would have clearly won the elections for Vice-
Mayor of Bugasong had the MBOC properly tallied or added the votes cast for Aurelio to her votes.
Thus, petitioner insists she would have garnered a total of 6,921 votes as against the 6,428 votes of
private respondent. By issuing a directive to consider the votes cast for Aurelio as stray votes instead
of counting the same in favor of petitioner in accordance with COMELEC Resolution No. 4116, the
Petitioner argues that Resolution No. 8844 violates her constitutional right to equal protection
of the laws because there is no substantial difference between the previous manual elections and the
automated elections conducted in 2010 to justify non-observance of Resolution No. 4116 issued in
2001, particularly on the matter of votes cast for a candidate who was declared a nuisance candidate
in a final judgment where such nuisance candidate has the same name with that of the bona
fide candidate. Moreover, in contrast to the assailed resolution, COMELEC Resolution No. 4116
properly recognized the substantial distinctions between and among (a) disqualified candidates, (b)
nuisance candidates whose names are similar to those of the bona fide candidates, (c) nuisance
candidates who do not have similar names with those of the bona fide candidates, and (d) candidates
who had voluntarily withdrawn their certificates of candidacy. As a result of the failure of the
COMELEC's First Division to make these important distinctions when it issued Resolution No. 8844
that applies to disqualified candidates, nuisance candidates and all other candidates whose
certificates of candidacy had been cancelled or denied course, petitioner's right to due process was
clearly violated, and only made possible the very evil that is sought to be corrected by the former rule
not to consider the votes cast for the nuisance candidate as stray but count them in favor of the bona
fide candidate.
Respondents' Arguments
COMELEC maintains that there is a presumption of validity with respect to its exercise of
supervisory or regulatory authority in the conduct of elections. Also, the time-honored rule is that a
statute is presumed to be constitutional and that the party assailing it must discharge the burden of
clearly and convincingly proving its invalidity. Thus, to strike down a law as unconstitutional, there
must be a clear and unequivocal showing that what the law prohibits, the statute permits. In this case,
petitioner miserably failed to prove a clear breach of the Constitution; she merely invokes a violation
of the equal protection clause and due process of law without any basis.
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On the claim of equal protection violation, COMELEC contends that there is a substantial
distinction between a manual election where Resolution No. 4116 applies, and an automated election
governed by Resolution No. 8844. While the votes for the nuisance candidate were not considered
stray but counted in favor of the bona fide candidate, this is no longer the rule for automated elections.
COMELEC cites the following factors which changed the previous rule: (1) the official ballots in
automated elections now contain the full names of the official candidates so that when a voter shaded
an oval, it was presumed that he carefully read the name adjacent to it and voted for that candidate,
regardless of whether said candidate was later declared disqualified or nuisance; (2) since the names
of the candidates are clearly printed on the ballots, unlike in manual elections when these were only
listed in a separate sheet of paper attached to the ballot secrecy folder, the voter's intention is clearly
to vote for the candidate corresponding to the shaded oval; (3) the rules on appreciation of ballots
under Section 211, Article XVIII of the Omnibus Election Code apply only to elections where the
names of candidates are handwritten in the ballots; and (4) with the use of the automated election
system where the counting of votes is delegated to the Precinct Count Optical Scan (PCOS)
and allegations of misreading the names of the candidates written, were flaws which the automation
rectified. Aside from being germane to the purpose of our election laws, Resolution No. 8844 is not
limited to existing conditions as it is applicable to all persons of the same class even in succeeding
elections, and covered all disqualified and nuisance candidates without distinction. CTAIDE
Lastly, COMELEC asserts there is no violation of the right to due process. For public office is
not a property right and no one has a vested right to any public office.
On his part, private respondent Pacete asserts that petitioner cannot validly claim the votes cast for
Aurelio in view of the rule provided in Section 211 (24) of Batas Pambansa Blg. 881, which cannot be
supplanted by Resolution No. 4116. He also cites an annotation on election law, 15 invoking this Court's
ruling in Kare v. COMELEC16 that the aforesaid provision when read together with Section 72, are
understood to mean that "any vote cast in favor of a candidate, whose disqualification has already been
Private respondent also points out the fact that on May 4, 2010, COMELEC caused the
publication of Resolution No. 8844 in two newspapers of general circulation in the country. There was
thus an earnest effort on the part of COMELEC to disseminate the information, especially to the
voters in Bugasong, Antique, that the name of Aurelio was printed on the official ballots as one of the
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candidates for Vice-Mayor. Said voters were amply forewarned about the status of Aurelio's candidacy
and the consequences that will obtain should he still be voted for. Additionally, the petitioner and
Aurelio bear different first names, female and male, respectively; petitioner and her political party
engaged in a massive voter education during the campaign period, emphasizing to her supporters
that she was given the corresponding number ("2") in the official ballots, and the voters should be very
circumspect in filling up their ballots because in case of error in filling up the same, they will not be
given replacement ballots. As to the Judicial Affidavits of those who voted for petitioner attesting to the
fact of mistakenly shading the oval beside the name of Aurelio in the ballots, which was attached to
the petition, petitioner in effect would want this Court to sit in judgment as trier of facts.
The only question that may be raised in a petition for certiorari under Section 2, Rule 64 of the Revised
Rules of Court is whether or not the COMELEC acted with grave abuse of discretion amounting to lack or
excess of jurisdiction. 17 For a petition for certiorari to prosper, there must be a clear showing of caprice
and arbitrariness in the exercise of discretion. There is also grave abuse of discretion when there is a
contravention of the Constitution, the law or existing jurisprudence. 18
COMELEC being a specialized agency tasked with the supervision of elections all over the country, its
factual findings, conclusions, rulings and decisions rendered on matters falling within its competence shall
not be interfered with by this Court in the absence of grave abuse of discretion or any jurisdictional
infirmity or error of law.19 In this case, Resolution No. 8844 issued by COMELEC clearly contravened
existing law and jurisprudence on the legal effect of declaration of a candidate as a nuisance candidate,
especially in the case of nuisance candidates who have the same surnames as those of bona
fide candidates.
Private respondent argues that no grave abuse of discretion can be imputed on COMELEC when it issued
Resolution No. 8844 which is simply consistent with the rule laid down in Section 211 (24), Article XVIII
and Section 72, Article IX of Batas Pambansa Blg. 881, otherwise known as the Omnibus Election
SEC. 72.Effects of Disqualification cases and priority. The Commission and the
courts shall give priority to cases of disqualification by reason of violation of this Act to
the end that a final decision shall be rendered not later than seven days before the
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election in which the disqualification is sought. Any candidate who has been declared
by final judgment to be disqualified shall not be voted for, and the votes cast for him
shall not be counted. Nevertheless, if for any reason, a candidate is not declared by
final judgment before an election to be disqualified and he is voted for and receives the
winning number of votes in such election, his violation of the provisions of the
office. cAaDHT
SEC. 211.Rules for the appreciation of ballots. In the reading and appreciation of
ballots, every ballot shall be presumed to be valid unless there is clear and good reason
to justify its rejection. The board of election inspectors shall observe the following rules,
bearing in mind that the object of the election is to obtain the expression of the voter's
will:
24.Any vote cast in favor of a candidate who has been disqualified by final judgment
shall be considered as stray and shall not be counted but it shall not invalidate the
ballot.
Private respondent cites the case of Kare v. COMELEC 20 where this Court, construing the above
provisions, stated:
According to the Comelec, Section 211 (24) of the OEC is a clear legislative policy that
is contrary to the rule that the second placer cannot be declared winner.
We disagree.
The provision that served as the basis of Comelec's Decision to declare the second
placer as winner in the mayoral race should be read in relation with other provisions of
When read together, these provisions are understood to mean that any vote cast in
favor of a candidate, whose disqualification has already been declared finalregardless
of the ground therefor, shall be considered stray. The Comelec misconstrued this
judgment; the law lists other grounds for disqualification. It escapes us why the
Comelec insists that Section 211(24) of the OEC is strictly for those convicted by a final
judgment. Such an interpretation is clearly inconsistent with the other provisions of the
election code. 21 (Emphasis supplied; italics not ours) STcEIC
Private respondent thus suggests that regardless of the ground for disqualification, the votes cast for the
disqualified candidate should result in considering the votes cast for him as stray as explicitly mandated
We disagree.
It bears to stress that Sections 211 (24) and 72 applies to all disqualification cases and not to petitions to
cancel or deny due course to a certificate of candidacy such as Sections 69 (nuisance candidates) and 78
(material representation shown to be false). Notably, such facts indicating that a certificate of candidacy
has been filed "to put the election process in mockery or disrepute, or to cause confusion among the
voters by the similarity of the names of the registered candidates, or other circumstances or acts which
clearly demonstrate that the candidate has no bona fide intention to run for the office for which the
certificate of candidacy has been filed and thus prevent a faithful determination of the true will of the
electorate" are not among those grounds enumerated in Section 68 (giving money or material
consideration to influence or corrupt voters or public officials performing electoral functions, election
campaign overspending and soliciting, receiving or making prohibited contributions) of the OEC or Section
40 22 of Republic Act No. 7160 (Local Government Code of 1991).
In Fermin v. COMELEC, 23 this Court distinguished a petition for disqualification under Section 68 and a
petition to cancel or deny due course to a certificate of candidacy (COC) under Section 78. Said
proceedings are governed by different rules and have distinct outcomes. TCASIH
At this point, we must stress that a "Section 78" petition ought not to be interchanged or
confused with a "Section 68" petition. They are different remedies, based on
insistence, therefore, that the petition it filed before the COMELEC in SPA No. 07-372 is
Section 12 or 68 of the OEC, or Section 40 of the LGC. On the other hand, a petition to
deny due course to or cancel a CoC can only be grounded on a statement of a material
representation in the said certificate that is false. The petitions also have different
effects. While a person who is disqualified under Section 68 is merely prohibited
never filed a CoC. Thus, in Miranda v. Abaya, this Court made the distinction that a
candidate who is disqualified under Section 68 can validly be substituted under Section
77 of the OEC because he/she remains a candidate until disqualified; but a person
whose CoC has been denied due course or cancelled under Section 78 cannot be
substituted because he/she is never considered a candidate. 24 (Additional emphasis
supplied)
Clearly, a petition to cancel or deny due course to a COC under Section 69 as in Section 78 cannot be
treated in the same manner as a petition to disqualify under Section 68 as what COMELEC did when it
applied the rule provided in Section 72 that the votes cast for a disqualified candidate be considered stray,
to those registered candidates whose COC's had been cancelled or denied due course. Strictly speaking,
a cancelled certificate cannot give rise to a valid candidacy, and much less to valid votes. Said votes
cannot be counted in favor of the candidate whose COC was cancelled as he/she is not treated as a
candidate at all, as if he/she never filed a COC. But should these votes cast for the candidate whose COC
COMELEC Resolution No. 4116 issued in relation to the finality of resolutions or decisions in special
Considering the foregoing and in order to guide field officials on the finality of decisions
cases shall become final and executory after five (5) days from its promulgation unless
be immediately executory;
where the nuisance candidate has the same name as the bona fide candidate
shall be immediately executory after the lapse of five (5) days unless a motion for
reconsideration is seasonably filed. In which case, the votes cast shall not be
considered stray but shall be counted and tallied for the bona fide candidate.
All resolutions, orders and rules inconsistent here with are hereby modified or repealed.
(Emphasis supplied) 25
The foregoing rule regarding the votes cast for a nuisance candidate declared as such under a final
judgment was applied by this Court in Bautista v. COMELEC 26 where the name of the nuisance
candidate Edwin Bautista (having the same surname with the bona fide candidate) still appeared on the
ballots on election day because while the COMELEC rendered its decision to cancel Edwin Bautista's
COC on April 30, 1998, it denied his motion for reconsideration only on May 13, 1998 or three days after
the election. We said that the votes for candidates for mayor separately tallied on orders of the COMELEC
Chairman was for the purpose of later counting the votes and hence are not really stray votes. These
separate tallies actually made the will of the electorate determinable despite the apparent confusion
But since the COMELEC decision declaring Edwin Bautista a nuisance candidate was not yet final on
election day, this Court also considered those factual circumstances showing that the votes mistakenly
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deemed as "stray votes" refer to only the legitimate candidate (petitioner Efren Bautista) and could not
have been intended for Edwin Bautista. We further noted that the voters had constructive as well as actual
knowledge of the action of the COMELEC delisting Edwin Bautista as a candidate for mayor.
A stray vote is invalidated because there is no way of determining the real intention of
the voter. This is, however, not the situation in the case at bar. Significantly, it has also
been established that by virtue of newspaper releases and other forms of notification,
the voters were informed of the COMELEC's decision to declare Edwin Bautista a
nuisance candidate. 27
In the more recent case of Martinez III v. House of Representatives Electoral Tribunal, 28 this Court
likewise applied the rule in COMELEC Resolution No. 4116 not to consider the votes cast for a nuisance
candidate stray but to count them in favor of the bona fide candidate notwithstanding that the decision to
election day inevitably exposes the bona fide candidate to the confusion over the
similarity of names that affects the voter's will and frustrates the same. It may be that
the factual scenario in Bautista is not exactly the same as in this case, mainly because
issued before and not after the elections, with the electorate having been informed
thereof through newspaper releases and other forms of notification on the day of
election. Undeniably, however, the adverse effect on the voter's will was similarly
present in this case, if not worse, considering the substantial number of ballots with
only "MARTINEZ" or "C. MARTINEZ" written on the line for Representative over five
thousand which have been declared as stray votes, the invalidated ballots being
more than sufficient to overcome private respondent's lead of only 453 votes after the
recount. 29 CASIEa
Here, Aurelio was declared a nuisance candidate long before the May 10, 2010 elections. On the basis of
Resolution No. 4116, the votes cast for him should not have been considered stray but counted in favor of
petitioner. COMELEC's changing of the rule on votes cast for nuisance candidates resulted in the
invalidation of significant number of votes and the loss of petitioner to private respondent by a slim
Bautista upheld the basic rule that the primordial objective of election laws is to give
effect to, rather than frustrate, the will of the voter. The inclusion of nuisance candidates
turns the electoral exercise into an uneven playing field where the bona fide candidate
is faced with the prospect of having a significant number of votes cast for him
invalidated as stray votes by the mere presence of another candidate with a similar
surname. Any delay on the part of the COMELEC increases the probability of votes lost
in this manner. While political campaigners try to minimize stray votes by advising the
electorate to write the full name of their candidate on the ballot, still, election woes
The Court will not speculate on whether the new automated voting system to be
implemented in the May 2010 elections will lessen the possibility of confusion over the
names of candidates. What needs to be stressed at this point is the apparent failure of
the HRET to give weight to relevant circumstances that make the will of the
electorate determinable, following the precedent in Bautista. . . . 30 CaHAcT
COMELEC justified the issuance of Resolution No. 8844 to amend the former rule in Resolution No. 4116
by enumerating those changes brought about by the new automated election system to the form of official
ballots, manner of voting and counting of votes. It said that the substantial distinctions between manual
and automated elections validly altered the rules on considering the votes cast for the disqualified or
nuisance candidates. As to the rulings in Bautista and Martinez III,COMELEC opines that these find no
application in the case at bar because the rules on appreciation of ballots apply only to elections where
In Martinez III, we took judicial notice of the reality that, especially in local elections, political rivals or
operators benefited from the usually belated decisions by COMELEC on petitions to cancel or deny due
course to COCs of potential nuisance candidates. In such instances, political campaigners try to minimize
stray votes by advising the electorate to write the full name of their candidate on the ballot, but still,
election woes brought by nuisance candidates persist. 31
As far as COMELEC is concerned, the confusion caused by similarity of surnames of candidates for the
same position and putting the electoral process in mockery or disrepute, had already been rectified by the
new voting system where the voter simply shades the oval corresponding to the name of their chosen
Election Law Cases
candidate. However, as shown in this case, COMELEC issued Resolution No. 8844 on May 1, 2010, nine
days before the elections, with sufficient time to delete the names of disqualified candidates not just from
the Certified List of Candidates but also from the Official Ballot. Indeed, what use will it serve if
COMELEC orders the names of disqualified candidates to be deleted from list of official candidates if the
We hold that the rule in Resolution No. 4116 considering the votes cast for a nuisance candidate declared
as such in a final judgment, particularly where such nuisance candidate has the same surname as that of
the legitimate candidate, not stray but counted in favor of the latter, remains a good law. As earlier
discussed, a petition to cancel or deny a COC under Section 69 of the OEC should be distinguished from
a petition to disqualify under Section 68. Hence, the legal effect of such cancellation of a COC of a
nuisance candidate cannot be equated with a candidate disqualified on grounds provided in
Moreover, private respondent admits that the voters were properly informed of the cancellation of COC of
Aurelio because COMELEC published the same before election day. As we pronounced in Bautista, the
voters' constructive knowledge of such cancelled candidacy made their will more determinable, as it is
then more logical to conclude that the votes cast for Aurelio could have been intended only for the
legitimate candidate, petitioner. The possibility of confusion in names of candidates if the names of
nuisance candidates remained on the ballots on election day, cannot be discounted or eliminated, even
under the automated voting system especially considering that voters who mistakenly shaded the oval
beside the name of the nuisance candidate instead of the bona fide candidate they intended to vote for
could no longer ask for replacement ballots to correct the same. aDTSHc
Finally, upholding the former rule in Resolution No. 4116 is more consistent with the rule well-ensconced
in our jurisprudence that laws and statutes governing election contests especially appreciation of ballots
must be liberally construed to the end that the will of the electorate in the choice of public officials may not
be defeated by technical infirmities. 32 Indeed, as our electoral experience had demonstrated, such
infirmities and delays in the delisting of nuisance candidates from both the Certified List of Candidates
and Official Ballots only made possible the very evil sought to be prevented by the exclusion of nuisance
WHEREFORE, the petition is hereby GIVEN DUE COURSE and the writ prayed for,
accordingly GRANTED. COMELEC Resolution No. 8844 dated May 1, 2010 insofar as it orders that the
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votes cast for candidates listed therein, who were declared nuisance candidates and whose certificates of
candidacy have been either cancelled or set aside, be considered stray, is hereby
declared NULL and VOID. Consequently, the 532 votes cast for Aurelio N. Dela Cruz during the elections
of May 10, 2010 should have been counted in favor of Casimira S. Dela Cruz and not considered stray
votes, making her total garnered votes 6,921 as against the 6,428 votes of private respondent John Lloyd
Petitioner Casimira S. Dela Cruz is hereby DECLARED the duly elected Vice-Mayor of the Municipality of
Let a copy of this Decision be served personally upon the parties and the Commission on Elections.
No pronouncement as to costs.
SO ORDERED.
||| (dela Cruz v. COMELEC, G.R. No. 192221, [November 13, 2012])
ELECTIONS,respondent.
DECISION
LEONEN, J p:
It is beyond human expectations that we charge voters with knowledge as to which among the many
party-list groups listed in the ballot they are presented with during election day is disqualified. To do so will
amount to their disenfranchisement and the failure to comply with the proportionality for party-list
We are asked to decide the Petition for Review on Certiorari filed by a party-list group that ran for the
2010 national elections. The petitioner questions the validity of the formula used by the Commission on
Elections in determining and proclaiming the winning party-list groups. 1
We rule that the Petition is moot and academic. However, we provide guidance for the bench and the bar
with respect to the formula used in determining the winning party-list groups. We refine the divisor in the
Petitioner, Alliance for Rural and Agrarian Reconstruction, Inc., (ARARO) was a duly accredited party-list
under Republic Act No. 7941. 2 It garnered a total of one hundred forty-seven thousand two hundred four
(147,204) votes in the May 10, 2010 elections and ranked fiftieth (50th). 3 The Commission on
Elections En Banc sitting as the National Board of Canvassers initially proclaimed twenty-eight (28) party-
list organizations as winners involving a total of thirty-five (35) seats guaranteed and additional
seats. 4 The result was based on the Commission on Elections' count of one hundred twenty-one (121)
Certificates of Canvass or a total of twenty-nine million seven hundred fifty thousand and forty-one
(29,750,041) votes for the Party-List System. 5
PARTY NUMBER
OF SEATS
5 ABONO 2
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6 BAYAN MUNA 2
7 AN WARAY 2
10 ANAKPAWIS 1
11 KABATAAN PARTYLIST 1
13 ACT TEACHERS 1
16 BAGONG HENERASYON 1
MAMAMAYAN, INC.
ASSOCIATION, INC.
WALANG SALA
26 ALAGAD PARTY-LIST 1
OF NEO-CONSERVATIVES
TOTAL SEATS 35
=======
Petitioner then filed an election protest before the House of Representatives Electoral Tribunal questioning
the Resolution of the Commission on Elections that proclaimed the 28 party-list groups listed above. 7
Without waiting for the resolution of the House of Representatives Electoral Tribunal, the petitioner filed
the present Petition for Review on Certiorari with Prayer for Preliminary Injunction and Temporary
Restraining Order. 8 The petitioner asks that this Court:
votes, from total number of votes cast minus the votes for the disqualified party-
list candidates, to the total number of votes cast regardless whether party-list
and
3. issue a Temporary Restraining Order against the public respondent until it modifies
the present formula for computing the number of seats for the winning party-list
candidates to the formula proposed by the petitioner. 10
By Resolution, the National Board of Canvassers proclaimed the winning party-list groups with the
following computation: 12
WHEREAS, as of May 17, 2010, the projected/maximum total party-list votes cannot go
any higher than thirty million two hundred sixty[-]four thousand five hundred
DESCRIPTION REGISTERED
VOTERS
canvassed/tabulated
disqualified parties
Maximum Total Party-List Votes 30,264,579
=========
WHEREAS, since there are two hundred twenty-nine (229) legislative districts, the total
number of party-list seats available for the May 10, 2010 automated national and local
districts/0.80 x 0.20;
WHEREAS, the provision of Section 11 of Republic Act No. 7941 provides, in part, that:
"(b)The parties, organizations, and coalitions receiving at least two percent (2%) of the
total votes cast for the party-list system shall be entitled to one seat each: Provided,
That those garnering more than two [sic] (2%) of the votes shall be entitled to additional
seats in proportion to their total number of votes: Provided, finally, That each party,
organization or coalitions shall be entitled to not more than three (3) seats."
WHEREAS, applying the formula in the case of Barangay Association for National
Educational Reforms, Inc., and Abono [v.] Commission on Elections, the ranking of the
participating parties, organizations and coalitions from highest to lowest based on the
number of votes garnered as of May 17, 2010, and the seats that may be obtained by
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each party to complete the allocation of the available 57 party-list seats, are shown
below: 13
VOTES
Second
RANK PARTY GARNERED VOTES FOR First Round integers
Round
PARTY
(A)
POLITICAL PARTY
COALITION OF
ASSOCIATIONS OF
YUMABONG
ACTION PARTY
WOMEN'S PARTY
COOPERATIVE
PARTY
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1ST CONSUMERS
RURAL ENERGY
CORRUPTION
ADVOCACY FOR
TEACHER
EMPOWERMENT
COOPERATION AND
HARMONY TOWARDS
EDUCATIONAL
REFORMS
AGRICULTURAL
SECTOR OF THE
PHILIPPINES, INC.
PARTY
ALLIANCE FOR
Election Law Cases
CONCERNS PARTY
PARTYLIST
INC.
ANG ASOSASYON
SANG
BISAYA-OWA
MANGUNGUMA, INC.
YOU AGAINST
POVERTY
ASSOCIATION OF
COOPERATIVES
KAUNLARAN, INC.
HENERASYON
ALLIANCE FOR
DEMOCRACY
ILOCANO, INC.
BAYANING ATLETA
PROFESSIONALS
CONGRESS PARTY
ALYANSA NG MGA
GRUPONG HALIGI NG
TEKNOLOHIYA PARA
SA MAMAMAYAN, INC.
DEMOCRATIC
WORKERS'
ASSOCIATION, INC.
KAPATIRAN NG MGA
WALANG SALA
KALINGA-
ADVOCACY FOR
SOCIAL
NATION BUILDING
THROUGH EASING
POVERTY, INC.
1-UNITED
KOALISYON
ALLIANCE OF NEO-
CONSERVATIVES
ALLIANCE OF
EDUCATORS
ADHIKAING
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KOOPERATIBA
INDIGONG FILIPINO
ASSOCIATION OF
EMPLOYEES
KASOSYO
PRODUCER-
EXCHANGE
ASSOCIATION, INC.
ALAY BUHAY
DEVELOPMENT
FOUNDATION, INC.
AKSYON
PARTIDO TINIG NG
MASA
KATIPUNAN NG MGA
ALL FILIPINO
DEMOCRATIC
MOVEMENT
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PARTY
ALLIANCE FOR
RECONSTRUCTION,
INC.
PILIPINO
ASSOCIATION FOR
POOR YOUTH
ADVANCEMENT AND
WELFARE
MAKABANSA
ANGAT ATING
PILIPINAS, INC.
MANGGAGAWA
ALYANSANG
BAYANIHAN NG MGA
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MANGGAGAWANG-
BUKID AT
MANGINGISDA
TRANSPORT SECTOR
KAUNLARAN NG
AGRIKULTURA
PROBINSYA ANGAT
NG BAYAN
ASTIG AASENSO
1 GUARDIANS
PHILIPPINES, INC.
KAUNLARAN
BAGONG BAYAN
NAGTATAGUYOD SA
IDEOLOHIYA AT
LAYUNIN
Election Law Cases
ACTION FOR
DEVELOPMENT, INC.
KATRIBU
SECTORAL PARTY
PARTY
CONFEDERATION OF
AND LOAN
ASSOCIATIONS, INC.
MAMAMAYAN
AND OPPORTUNITY
BINHI; PARTIDO NG
PARA SA MGA
MAGSASAKA
ANG ASOSASYON NG
AT PAHINANTE
AGILA NG MGA
PILIPINO, INC.
The petitioner suggests that the formula used by the Commission on Elections is flawed because votes
that were spoiled or that were not made for any party-lists were not counted. According to the petitioner,
around seven million (7,000,000) votes were disregarded as a result of the Commission on Elections'
erroneous interpretation. The figure presented by petitioner resulted from the following computations: 14
number of votes for disqualified party-list candidates)
First, the total number of votes for disqualified party-lists is deducted from the total number of voters
that actually voted. The total number of votes for disqualified party-list groups is three hundred eight
thousand three hundred thirty-five (308,335). 15 The total number of voters that actually voted is thirty-
seven million six hundred eighty-five thousand seven hundred six (37,685,706). 16 After subtracting the
amounts, the result is thirty-seven million three hundred seventy-seven thousand three hundred seventy-
Second, the number of votes for disqualified party-list groups is again deducted from the number of votes
for party-list candidates which the petitioner pegged at thirty million five hundred seventy-two thousand
Election Law Cases
nine hundred fourteen votes (30,572,914). 17 The difference then is thirty million two hundred sixty-four
Lastly, to get the total number of votes disregarded by the Commission on Elections' interpretation,
30,264,579 is subtracted from 37,377,371. The computation then results to seven million one hundred
twelve thousand seven hundred ninety-two (7,112,792) votes disregarded using the Commission on
Elections' interpretation.
On the other hand, the formula used by the Commission on Elections En Banc sitting as the National
representatives
.80
Thus, the total number of party-list seats available for the May 2010 elections is 57 as shown below:
229
x .20 = 57
.80
The National Board of Canvassers' Resolution No. 10-009 applies the formula used in Barangay
Association for National Advancement and Transparency (BANAT) v. COMELEC 18 to arrive at the
Proportion or
garnered by party-list
candidates
The Proportion or Percentage of votes garnered by party-list should be greater than or equal to 2% or 0.02
to entitle a party-list candidate to one (1) seat in the first round. There will be a second round if the total
number of guaranteed seats awarded in the first round is less than the total number of party-list seats
available. Thus:
available
If the total seats available for party-lists are not yet awarded after the second round (this is computed by
getting the sum of the seats awarded in the first round and the additional seats awarded in the second
round), the next in the party-list ranking will be given one (1) seat each until all seats are fully distributed.
A three-seat cap per party-list, however, is imposed on winning groups. Fractional seats are not rounded
The petitioner argues that the Commission on Elections' interpretation of the formula used in BANAT v.
COMELEC is flawed because it is not in accordance with the law.19 The petitioner distinguishes the
phrases, valid votes cast for party-list candidates on the one hand as against votes cast for the party-list
The petitioner puts in issue the interpretation of Sections 11 and 12 of Republic Act No. 7941 or "An Act
Providing for the Election of Party-List Representatives Through the Party-List System, and Appropriating
Funds Therefor." The sections provide the guidelines in allocating seats to party-list representatives:
shall constitute twenty per centum (20%) of the total number of the members of the
For purposes of the May 1998 elections, the first five (5) major political parties on the
basis of party representation in the House of Representatives at the start of the Tenth
Congress of the Philippines shall not be entitled to participate in the party-list system.
In determining the allocation of seats for the second vote, the following procedure
shall be observed:
(a) The parties, organizations, and coalitions shall be ranked from the highest
to the lowest based on the number of votes they garnered during the
elections.
(b) The parties, organizations, and coalitions receiving at least two percent
(2%) of the total votes cast for the party-list system shall be entitled to
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one seat each: Provided, That those garnering more than two percent (2%)
COMELEC shall tally all the votes for the parties, organizations, or coalitions on a
nationwide basis, rank them according to the number of votes received and allocate
The petitioner argues that the correct interpretation of the provisions of Republic Act No. 7941 or
the Party-list Law does not distinguish between valid and invalid votes, to wit:
Therefore, votes for specific party lists are not the same as votes for the party-list
system. Hence, people whose votes were spoiled for instance (like checking or failure
to properly shade the ovals in the ballots, or voted for two party lists when the
requirement is only one, or had erasures on their ballots for instance), or did not vote
for any party-list at all are still voters for the party-list system. The votes for the
party-list system [include] all those people who voted whether their votes were
In its November 12, 2010 Comment, 21 the Commission on Elections through the Office of the Solicitor
General took the position that invalid or stray votes should not be counted in determining the divisor. The
Commission on Elections argues that this will contradict Citizens' Battle Against Corruption (CIBAC) v.
COMELEC 22 and Barangay Association for National Advancement and Transparency (BANAT) v.
Neither can the phrase be construed to include the number of voters who did not even
vote for any qualified party-list candidate, as these voters cannot be considered to have
cast any vote "for the party-list system." 24
III. Whether the Commission on Elections committed grave abuse of discretion in its
interpretation of the formula used in BANAT v. COMELEC 25 to determine the
The third issue requires our determination of the computation of the correct divisor to be used. The
options are:
A. All votes cast for the party-list system less the votes cast for subsequently
C. The total number of valid votes cast for the party-list system including votes cast for
The divisor should not include votes that are declared spoiled or invalid.
We decide as follows:
A moot and academic case is one that ceases to present a justiciable controversy by
value. As a rule, courts decline jurisdiction over such case, or dismiss it on ground of
mootness. 27
Several supervening events have already rendered this case moot and academic. First, the Commission
on Elections En Banc already proclaimed other winning party-list groups. 28 Second, the term of office of
the winning party-list groups in the May 2010 national elections ended on June 30, 2013. Finally, the
conduct of the May 13, 2013 elections resulted in a new set of party-list groups.
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We held that the expiration of the challenged term of office renders the corresponding Petition moot and
academic. 29 This leaves any ruling on the issues raised by the petitioner with no practical or useful
value. 30
However, the following exceptions to the rule of declining jurisdiction over moot and academic cases are
allowed: (1) there was a grave violation of the Constitution; (2) the case involved a situation of exceptional
character and was of paramount public interest; (3) the issues raised required the formulation of
controlling principles to guide the Bench, the Bar and the public; and (4) the case was capable of
repetition yet evading review. 31 On the importance of the assailed formula, this Court will discuss the
issues raised by the petitioner as these are capable of repetition yet evading review 32 and for the
II
"A real party in interest is the party who stands to be benefited or injured by the judgement in the suit, or
the party entitled to the avails of the suit." 34 The party's interest must be direct, substantial, and
material. 35 In this case, the petitioner attacks the validity of the formula used and upheld in BANAT. It
also proposes its own interpretation of the formula to determine the proportional representation of party-
list candidates in the House of Representatives. However despite any new computation, ARARO's
proposed divisor of total votes cast for the party-list system whether valid or invalid still fails to secure one
seat for ARARO. Reviewing the figures presented by the petitioner: 36
(30,264,579) (37,377,371)
party-lists (%)
Guaranteed Seat 0 0
This table clearly shows that the petitioner does not suffer a direct, substantial or material injury from the
application of the formula interpreted and used in BANAT in proclaiming the winning party-lists in the
assailed National Board of Canvassers Resolution. The computation proposed by petitioner ARARO even
lowers its chances to meet the 2% threshold required by law for a guaranteed seat. Its arguments will
neither benefit nor injure the party. Thus, it has no legal standing to raise the argument in this Court.
III
However, we review the interpretation of the formula used for the determination of wining party-list
candidates with respect to the divisor used for the guidance of bench and bar and for future elections.
The textual references for determining the formula to be used are found in the Constitution and the statute
Article VI, Section 5, paragraphs 1 and 2 of the 1987 Constitution provide the following:
1.The House of Representatives shall be composed of not more than two hundred
and fifty members, unless otherwise fixed by law, who shall be elected from
legislative districts apportioned among the provinces, cities, and the Metropolitan
Manila area in accordance with the number of their respective inhabitants, and on the
basis of a uniform and progressive ratio, and those who, as provided by law, shall be
parties or organizations.
2.The party-list representatives shall constitute twenty per centum of the total number
of representatives including those under the party list. For three consecutive terms
after the ratification of this Constitution, one-half of the seats allocated to party-list
labor, peasant, urban poor, indigenous cultural communities, women, youth, and such
shall constitute twenty per centum (20%) of the total number of the members of the
For purposes of the May 1998 elections, the first five (5) major political parties on the
basis of party representation in the House of Representatives at the start of the Tenth
Congress of the Philippines shall not be entitled to participate in the party-list system.
In determining the allocation of seats for the second vote, the following procedure
shall be observed:
(a)The parties, organizations, and coalitions shall be ranked from the highest to the
lowest based on the number of votes they garnered during the elections.
(b)The parties, organizations, and coalitions receiving at least two percent (2%) of
the total votes cast for the party-list system shall be entitled to one seat each:
Provided, That those garnering more than two percent (2%) of the votes shall be
finally, That each party, organization, or coalition shall be entitled to not more than
COMELEC shall tally all the votes for the parties, organizations, or coalitions on a
nationwide basis, rank them according to the number of votes received and allocate
ruling that the respondent parties, coalitions, and organizations were each entitled to a party-list seat
despite their failure to reach the 2% threshold in the 1998 party-list election. Veterans also stated that the
Veterans laid down the "four inviolable parameters" in determining the winners in a Philippine-style party-
list election based on a reading of the Constitution andRepublic Act No. 7941:
Election Law Cases
First, the twenty percent allocation the combined number of all party-list
congressmen shall not exceed twenty percent of the total membership of the House of
Second, the two percent threshold only those parties garnering a minimum of two
percent of the total valid votes cast for the party-list system are "qualified" to have a
Third, the three-seat limit each qualified party, regardless of the number of votes it
actually obtained, is entitled to a maximum of three seats; that is, one "qualifying" and
entitled to shall be computed "in proportion to their total number of votes." 38(Emphasis
provided)
In Partido ng Manggagawa (PM) and Butil Farmers Party (Butil) v. COMELEC, 39 the petitioning party-list
groups sought the immediate proclamation by the Commission on Elections of their respective second
nominee, claiming that they were entitled to one (1) additional seat each in the House of Representatives.
We held that the correct formula to be used is the one used in Veterans and reiterated it in Ang Bagong
Bayani OFW Labor Party v. COMELEC. 40 This Court in CIBAC v. COMELEC 41differentiates the
formula used in Ang Bagong Bayani but upholds the validity of the Veterans formula.
In BANAT v. COMELEC, 42 we declared the 2% threshold in relation to the distribution of the additional
. . . There are two steps in the second round of seat allocation. First, the percentage is
multiplied by the remaining available seats, 38, which is the difference between the 55
maximum seats reserved under the Party-List System and the 17 guaranteed seats of
the two-percenters. The whole integer of the product of the percentage and of the
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seats. Second, we assign one party-list seat to each of the parties next in rank until all
available seats are completely distributed. We distributed all of the remaining 38 seats
in the second round of seat allocation. Finally, we apply the three-seat cap to determine
the number of seats each qualified party-list candidate is entitled. 43
The most recent Atong Paglaum v. COMELEC 44 does not in any way modify the formula set in Veterans.
It only corrects the definition of valid party-list groups. We affirmed that party-list groups may be national,
regional, and sectoral parties or organizations. We abandoned the requirement introduced in Ang Bagong
Bayani that all party-list groups should prove that they represent a "marginalized" or "under-represented"
sector.
votes. We clarified that the interpretation that only those that obtained at least 2% of the votes may get
additional seats will not result in proportional representation because it will make it impossible for the
party-list seats to be filled completely. As demonstrated in BANAT, the 20% share may never be filled if the
2% threshold is maintained.
The divisor, thus, helps to determine the correct percentage of representation of party-list groups as
intended by the law. This is part of the index of proportionality of the representation of a party-list to the
House of Representatives. 46 It measures the relation between the share of the total seats and the share
of the total votes of the party-list. 47 In Veterans, where the 20% requirement in the Constitution was
treated only as a ceiling, the mandate for proportional representation was not achieved, and thus, was
The petitioner now argues that the votes of all the registered voters who actually voted in the May 2010
elections should be included in the computation of the divisor whether valid or invalid. 48 According to the
petitioner, votes cast for the party-list candidates is not the same as the votes cast under or for the
The party list system is not just for the specific party lists as provided in the ballot, but
pertains to the system of selection of the party list to be part of the House of
Representatives. 49
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The petitioner claims that there should be no distinction in law between valid and invalid votes. Invalid
votes include those votes that were made for disqualified party-list groups, votes that were spoiled due to
improper shading, erasures in the ballots, and even those that did not vote for any party-list candidate at
all. 50 All of the votes should be included in the divisor to determine the 2% threshold.
We agree with the petitioner but only to the extent that votes later on determined to be invalid due
to no cause attributable to the voter should not be excluded in the divisor. In other words, votes
cast validly for a party-list group listed in the ballot but later on disqualified should be counted as
part of the divisor. To do otherwise would be to disenfranchise the voters who voted on the basis
of good faith that that ballot contained all the qualified candidates. However, following this
rationale, party-list groups listed in the ballot but whose disqualification attained finality prior to
the elections and whose disqualification was reasonably made known by the Commission on
Elections to the voters prior to such elections should not be included in the divisor.
Not all votes cast in the elections should be included in the divisor. Contrary to the argument of the
petitioner, Section 11 (b) of Republic Act No. 7941 is clear that only those votes cast for the party-list
(b)The parties, organizations, and coalitions receiving at least two percent (2%) of
the total votes cast for the party-list system shall be entitled to one seat each:
Provided, That those garnering more than two percent (2%) of the votes shall be
finally, That each party, organization, or coalition shall be entitled to not more than
The total votes cast do not include invalid votes. The invalid votes, for the determination of the
denominator, may be votes that were spoiled or votes that resulted from the following: improper shading
or having no shade at all; 51 existence of stray or ambiguous marks; 52 tears in the ballot; and/or ballots
rejected by the Precinct Count Optical Scan (PCOS) machines under the paper-based 53 automated
election system. All these are causes that nullify the count for that vote that can be attributable to the
voter's action.
Votes cast for the party-list system should, however, include all votes cast for party-list groups contained
in the ballot even if subsequently they are disqualified by the Commission on Elections or by our courts.
Election Law Cases
Thus, the content of the divisor in the formula to determine the seat allocation for the party-list component
We qualify that the divisor to be used in interpreting the formula used in BANAT is the total votes cast for
the party-list system. This should not include the invalid votes. However, so as not to disenfranchise a
substantial portion of the electorate, total votes cast for the party-list system should mean all the votes
validly cast for all the candidates listed in the ballot. The voter relies on the ballot when making his or
her choices.
To the voter, the listing of candidates in the official ballot represents the extent of his or her choices for an
electoral exercise. He or she is entitled to the expectation that these names have properly been vetted by
the Commission on Elections. Therefore, he or she is also by right entitled to the expectation that his or
her choice based on the listed names in the ballot will be counted.
In Reyes v. COMELEC 54 as cited in Loreto v. Brion, 55 this Court said "that the votes cast for the
disqualified candidate are presumed to have been cast in the belief that he is qualified." 56 Therefore, the
votes cast for disqualified candidates are presumed to be made with a sincere belief that the voters'
choices were qualified candidates and that they were without any intention to misapply their
franchise. 57 Their votes may not be treated as stray, void or meaningless 58 for purposes of the divisor in
the party-list elections. Assuming arguendo that petitions for certiorari do not stay the execution of the
judgment or final order or resolution sought to be reviewed, 59 the finality of the disqualification of a
candidate should not be a means for the disenfranchisement of the votes cast for the party-list system.
Section 10 of the Party-list Law should thus be read in conjunction with the intention of the law as seen in
Section 2, to wit:
coalitions thereof, which will enable Filipino citizens belonging to the marginalized and
political constituencies but who could contribute to the formulation and enactment of
appropriate legislation that will benefit the nation as a whole, to become members of
the House of Representatives. Towards this end, the State shall develop and
guarantee a full, free and open party system in order to attain the broadest
Election Law Cases
Representatives by enhancing their chances to compete for and win seats in the
Section 10 of Republic Act No. 7941, which governs party-list elections, states that votes cast for a party-
list "not entitled to be voted for shall not be counted." It does not specify any reckoning period of the
finding of disqualification or cancellation of registration for the validity or the invalidity of votes unlike that
in Section 72 of theOmnibus Election Code, as amended by Section 6, Republic Act No. 6646. 60 Taking
Sections 2 and 10 together, this Court must consider the intention of the law and the nature of Philippine
style party-list elections. Party-list groups provide for a different and special representation in Congress.
To disregard votes of party-list groups disqualified after the conduct of the elections means the
disenfranchisement of thousands, if not hundreds of thousands of votes, of the Filipino people. Definitely,
it is not the voter's fault that the party-list group in the ballot it votes for will be subsequently disqualified.
The counting of votes for party-list groups in the ballot but subsequently declared as disqualified is, thus,
corollary to the "fundamental tenet of representative democracy that the people should be allowed to
choose whom they please to govern them." 61 It is also part of the right of suffrage, and the law's intention
Therefore, the divisor should now include all votes cast for party-list groups that are subsequently
If his or her vote is not counted as part of the divisor, then this would amount to a disenfranchisement of a
basic constitutional right to be able to choose representatives of the House of Representatives in two
ways. First, his or her vote will be nullified. Second, he or she will be deprived of choosing another party-
list group to represent his or her interest should the party listed in the ballot be declared disqualified.
However, there are instances when the Commission on Elections include the name of the party-list group
in the ballot but such group is disqualified with finality prior to the elections. In applying and interpreting
the provisions of Section 6 of Republic Act No. 6646, we said in Cayat v. Commission on Elections 62 that
votes cast in favor of a candidate "disqualified with finality" should be considered stray and not be
counted. To be consistent, the party-list group in the ballot that has been disqualified with finality and
whose final disqualification was made known to the electorate by the Commission on Elections should
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also not be included in the divisor. This is to accord weight to the disqualification as well as accord respect
Thus, the formula to determine the proportion garnered by the party-list group would now henceforth be:
= Percentage of votes
party-list candidates
The total votes cast for the party-list system include those votes made for party-list groups indicated in the
ballot regardless of the pendency of their motions for reconsideration or petitions before any tribunal in
relation to their cancellation or disqualification cases. However, votes made for those party-list groups
whose disqualification attained finality prior to the elections should be excluded if the electorate is notified
of the finality of their disqualification by the Commission on Elections. The divisor also shall not include
invalid votes.
1.The prayer to enjoin the Commission on Elections from proclaiming the qualified
party-list groups is denied for being moot and academic;
2.The formula in determining the winning party-list groups, as used and interpreted in
the case of BANAT v. COMELEC, is MODIFIED as follows:
= Percentage of votes
party-list candidates
The divisor shall be the total number of valid votes cast for the party-list system including votes cast for
party-list groups whose names are in the ballot but are subsequently disqualified. Party-list groups listed
in the ballot but whose disqualification attained finality prior to the elections and whose disqualification
was reasonably made known by the Commission on Elections to the voters prior to such elections should
not be included in the divisor. The divisor shall also not include votes that are declared spoiled or invalid.
The refined formula shall apply prospectively to succeeding party-list elections from the date of finality of
this case.
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SO ORDERED.
Sereno, C.J., Carpio, Leonardo-de Castro, Brion, Peralta, Bersamin, Del Castillo, Abad, Villarama, Jr.,
||| (Alliance for Rural and Agrarian Reconstruction, Inc. v. COMELEC, G.R. No. 192803, [December 10,
2013])
DECISION
LEONEN, J : p
This is a Petition for Certiorari and Prohibition under Rule 65 of the Rules of
Court filed by petitioner Locsin praying:
Petitioner Locsin and private respondent Lagdameo, along with three other
candidates, vied for the position to represent the First Legislative District of
Makati in the 2010 national elections. Respondent Lagdameo was proclaimed
winner by the City Board of Canvassers on 11 May 2010 garnering 42,102 votes.
Petitioner came in second with 41,860 votes or a losing margin of 242 votes. 4 EDCcaS
Lagdameo's winning margin increased from 242 to 265 votes after the revision
and appreciation of ballots in 25% of the pilot protested
precincts. 6 Nevertheless, HRETthrough the 1 December 2011 Resolution
continued the revision proceedings to clear all doubts surrounding the victory of
private respondent. Revision proceedings covered the remaining 174 clustered
precincts from 18 January 2012 to 31 January 2012.
After the parties filed their respective memoranda, the HRET promulgated on 17
September 2012 the assailed Decision 7 dismissing petitioner's election protest,
the dispositive portion of which reads:
The HRET discussed in detail the results of the recount and its appreciation of
the contested ballots. 9 The results showed that Lagdameo's proclamation margin
of 242 votes increased to 265 votes after revision proceedings in the 25% pilot
protested clustered precincts. The margin rose to 335 votes after the revision and
appreciation of ballots in the remaining precincts. 10 On the allegations of fraud
and election irregularities, respondent tribunal found no compelling evidence that
may cast doubt on the credibility of the results generated by the Precinct Count
Optical Scan (PCOS) electronic system. 11
The HRET also denied with finality petitioner's motion for reconsideration
by Resolution No. 12-209 dated 15 October 2012. 12
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On 16 November 2012, Locsin filed the present petition on the ground that public
respondent HRET committed grave abuse of discretion amounting to lack or
excess of jurisdiction when:
Locsin alleged that the HRET committed grave abuse of discretion when it
ignored the presence of 2,457 invalid, irregular, and rejectible ballots for
Lagdameo and 663bona fide claimed ballots for petitioner. 14 Specifically, only
two of the 2,457 contested ballots were rejected by the HRET, and only 192 of the
663 ballots claimed by petitioner were admitted by the HRET. 15 Petitioner argued
that a re-examination of the private respondent's ballots would show that
markings were placed intentionally for identification, and the ballots should have
been rejected. Those which contained shadings below the 50% threshold should
have been rejected also.
For its part, private respondent Lagdameo argued that the HRET's rulings on the
recount, revision and appreciation of objected and claimed ballots are in accord
with law and evidence. 16
The sole issue in the present petition is whether the HRET committed grave
abuse of discretion in dismissing petitioner's election protest.
Article VI, Section 17 of the Constitution provides that the HRET shall be the
"sole judge of all contests relating to the election, returns, and qualifications of
their respective members." 17 As this Court held in Lazatin v. House of
Representatives Electoral Tribunal: 18 HAaECD
The use of the word "sole" emphasizes the exclusive character of the
jurisdiction conferred. The exercise of the power by the Electoral
Commission under the 1935Constitution has been described as
"intended to be as complete and unimpaired as if it had remained
originally in the legislature." Earlier, this grant of power to the
legislature was characterized by Justice Malcolm "as full, clear and
complete." Under the amended 1935 Constitution, the power was
unqualifiedly reposed upon the Electoral Tribunal and it remained as
full, clear and complete as that previously granted the legislature and
the Electoral Commission. The same may be said with regard to the
jurisdiction of the Electoral Tribunals under the 1987 Constitution. 19
Thus, this Court's jurisdiction to review HRET's decisions and orders is exercised
only upon showing that the HRET acted with grave abuse of discretion amounting
to lack or excess of jurisdiction. 20 Otherwise, this Court shall not interfere with
the HRET's exercise of its discretion or jurisdiction. 21 "Grave abuse of discretion"
has been defined as the capricious and whimsical exercise of judgment, the
exercise of power in an arbitrary manner, where the abuse is so patent and gross
as to amount to an evasion of positive duty. 22
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Time and again, this Court has held that mere abuse of discretion is not
enough. 23 It must be grave abuse of discretion as when the power is exercised in
an arbitrary or despotic manner by reason of passion or personal hostility, and
must be so patent and so gross as to amount to an evasion of a positive duty or
to a virtual refusal to perform the duty enjoined or to act at all in contemplation of
law. 24
In the present case, we find no grave abuse of discretion on the part of public
respondent HRET when it dismissed petitioner's election protest.
Public respondent HRET conducted a revision and appreciation of all the ballots
from all the precincts. This was done despite the fact that results of initial revision
proceedings in 25% of the precincts increased the winning margin of private
respondent from 242 to 265 votes. Out of due diligence and to remove all doubts
on the victory of private respondent, the HRET directed continuation of revision
proceedings. This was done despite the dissent of three of its members,
representatives Franklin P. Bautista, Rufus B. Rodriguez, and Joselito Andrew R.
Mendoza. The three voted "for the dismissal of the instant election protest without
further proceedings for lack of reasonable recovery of votes in the pilot protested
clustered precincts. 25 HSaIDc
Thus, in reaching the assailed decision, the HRET took pains in reviewing the
validity or invalidity of each contested ballot with prudence. This is evident from
the decision's ballot enumeration specifying with concrete basis and clarity the
reason for its denial or admittance. 26 The results, as well as the objections,
claims, admissions, and rejections of ballots were explained sufficiently and
addressed by the HRET in its Decision.
Well settled also is the rule that the Supreme Court is not a trier of facts, and
factual issues are beyond its authority to review. 30
In the absence of any showing of grave abuse of discretion by the HRET, there is
no reason for this Court to annul respondent tribunal's decision or to substitute it
with its own. As held by this Court in Garcia vs. House of Representatives
Electoral Tribunal: 31
[T]he Court has ruled that the power of the Electoral Commission 'is
beyond judicial interference except, in any event, upon a clear showing
of arbitrary and improvident use of power as will constitute a denial of
due process.' The Court does not to paraphrase it
in Co vs. HRET, 32 venture into the perilous area of correcting
perceived errors of independent branches of the Government; it
comes in only when it has to vindicate a denial of due process or
correct an abuse of discretion so grave or glaring that no less
than the Constitution itself calls for remedial action. 33 aETASc
But still, to erase all lingering doubts, this Court looked into the contested ballots
as summarized by Locsin in the petition.
I.Objected Ballots
Petitioner alleges that the HRET acted with grave abuse of discretion in rejecting
only two (2) out of the 2,457 Lagdameo-identified ballots which were contested
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for identification.
4 "X" mark drawn over the oval shape MB
beside the pre-printed name "[different
candidate]," which serves no purpose
other than to mark the ballot for
identification.
5 Voter's signature affixed . . . MB
deliberately
done to mark the ballot.
17 Oval shape beside pre-printed name MISC/STRAY
"LAGDAMEO" are only shaded
below 50% threshold required by
the rules, hence, it should be stray.
10 Oval shape beside pre-printed name MISC/STRAY
"[different candidate]," [different
position], is only shaded below
50% threshold required by the
rules, hence, it should be stray.
1 Oval shape beside pre-printed name MISC/STRAY
of Lagdameo was crossed out,
hence, it should be stray.
1 Oval shape beside "[different MISC/STRAY
candidate]," [different position],was
slashed, hence, it should be stray.
Petitioner argues that in election law, irrelevant expressions, impertinent figures,
words or phrases, and unnecessary and identifying expressions nullify ballots.
Petitioner cites Section 195 of the Omnibus Election Code which states that it
shall be unlawful to apply "any distinguishing mark" or "make use of any other
means to identify the vote of the voter." 36 Petitioner also cites Alfelor v.
Fuentebella, 37 which states that it is illegitimate practice to include in the ballot
unnecessary writings that detract from the solemnity of the exercise of suffrage.
The 1935 case of Cecilio v. Tomacruz 38 and the 1958 case of Amurao v.
Calangi 39 were also cited saying that ballots containing impertinent, irrelevant,
unnecessary words or expressions are null ballots with these markings serving
no other purpose than to identify the ballot. Finally, petitioner cites the 1962 case
of Tajanlangit v. Cazenas 40 indicating that ballots containing the signature of
voters shall be invalidated. 41 TaSEHD
The cardinal objective in ballot appreciation is to discover and give effect to,
rather than frustrate, the intention of the voter. 42 Extreme caution is observed
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before any ballot is invalidated and doubts are resolved in favor of the ballot's
validity. 43 Public respondent HRET was guided by this principle and the existing
rules and rulings in its appreciation of the contested ballots. 44
Ballots with an Ambiguous Vote have a mark that is allegedly neither a definite
vote nor a non-vote. This may happen if the mark is too light or the voter
inadvertently made a small mark inside the oval or other similar cases. The
tribunal determined whether the voter clearly intended to draw the mark or if this
was made inadvertently. On this ground, the HRET admitted all 250 ballots
objected by petitioner in favor of Lagdameo. On the other hand,
the HRET admitted all 439 ballots objected by Lagdameo and containing a
definite vote for petitioner.
Marked Ballots contain a mark intentionally written or placed by the voter for the
purpose of identifying the ballot or the voter. In Cailles v. Gomez, 45
The distinguishing mark which the law forbids to be placed in the ballots
is that which the elector may have placed with the intention of facilitating
the means of identifying said ballot, for the purpose of defeating the
secrecy of the suffrage which the law establishes. As this is a question of
fact, it should be resolved with the ballot itself in view. 46
Marks made by the voter unintentionally do not invalidate the ballot. 47 Neither do
marks made by some person other than the voter. 48
Moreover, the Omnibus Election Code provides explicitly that every ballot shall be
presumed valid unless there is clear and good reason to justify its
rejection. 49 Unless it should clearly appear that they have been deliberately put
by the voter to serve as identification marks, commas, dots, lines, or hyphens
between the first name and surname of a candidate, or in other parts of the
ballot, traces of the letter "T", "J", and other similar ones, the first letters or
syllables of names which the voter does not continue, the use of two or more
kinds of writing and unintentional or accidental flourishes, strokes, or strains,
shall not invalidate the ballot. 50 HcaATE
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On the premise that the alleged markings in the ballots, i.e., "/" ")" and other
similar marks do not qualify to identify the ballot, the HRET admitted as not
marked the 381 ballots objected by petitioner in favor of Lagdameo. On the other
hand, the HRET admitted as not marked 4,562 ballots objected by Lagdameo in
favor of petitioner. Only one (1) ballot for petitioner was rejected while only two (2)
ballots for Lagdameo were rejected for being marked.
In Punzalan v. Comelec, 51 this Court held that "[i]t is a well-settled rule that the
failure of the BEI chairman or any of the members of the board to comply with
their mandated administrative responsibility, i.e., signing, authenticating and
thumbmarking of ballots, should not penalize the voter with disenfranchisement,
thereby frustrating the will of the people." 52 The consistent rule is that a ballot is
considered valid and genuine when it bears any one of the following
authenticating marks: (a) the COMELEC watermark or (b) the signature or initials
or thumbprint of the Chairman of the BEI; and (c) in those cases where the
COMELEC watermarks are blurred or not readily apparent to the naked eye, the
presence of red and blue fibers in the ballots. 53
In this case, ultra-violet (UV) lamps were used to confirm the presence of the UV
code or seal placed as security markings at the upper center of the automated
ballots.54 This UV code or seal was inserted to identify ballots that were cast and
fed to the PCOS machines. The HRET found these ballots authentic and
admitted as valid the 1,808 ballots objected by petitioner and favoring Lagdameo.
On the other hand, the HRET admitted 1,905 ballots objected by Lagdameo and
favoring Locsin.
Ballots with an Over-Voting count occur when a voter shaded more than two or
more ovals pertaining to two or more candidates for representative.
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Lastly, the HRET found without merit objections made on miscellaneous grounds
and admitted one (1) ballot for petitioner and four (4) ballots for Lagdameo. 55 AHEDaI
This Court finds no grave abuse of discretion by the HRET in its findings
after HRET's careful review of the objected ballots and guided by existing
principles, rules and rulings on its appreciation.
II.Claimed Ballots
Petitioner also alleged that the HRET acted with grave abuse of discretion in
admitting only 192 out of the 663 stray, common or PCOS-rejected ballots
claimed timely and duly by the petitioner during the judicial recount and revision
proceedings. The petition included tables enumerating the contested ballots,
ground for their rejection and findings, organized by barangay and clustered
precinct number. 56 Petitioner's findings are consolidated and summarized as
follows:
Number of Ballots Findings
1 The names of LAGDAMEO and LOCSIN are both
shaded but the shading for LAGDAMEO is more
prominent.
The HRET applied this rule on its appreciation of the claimed ballots.
For Stray ballots, the tribunal admitted two (2) ballots out of the 451 stray ballots
claimed by petitioner and in fact admitted only one (1) out of the 606 stray ballots
claimed by Lagdameo. For PCOS Machine-Rejected ballots, these may still be
admissible for the claimant provided that upon physical examination, the four
requisites for the applicability of the intent rule are present. The HRET admitted
190 claimed ballots in favor of petitioner and 191 in favor of Lagdameo.
The HRET did not act with grave abuse of discretion when it in fact applied
meticulously the existing rules and rulings on the ballot appreciation for the
objected and claimed ballots made by both parties. TaCDAH
Clearly, Lagdameo received 42,484 votes. Locsin, on the other hand, received
42,149 votes.
SO ORDERED.
Sereno, C.J., Carpio, Leonardo-de Castro, Del Castillo, Abad, Villarama, Jr.,
Perez, Mendoza, Reyes and Perlas-Bernabe, JJ., concur.
Velasco, Jr., Brion, Peralta and Bersamin, JJ., took no part due
to HRET participation.
||| (Locsin v. HRET, G.R. No. 204123, [March 19, 2013])
JAIME
C. REGIO, petitioner, vs. COMMISSION ON ELECTIONS and
RONNIE C. CO, respondents.
DECISION
VELASCO, JR., J : p
The Case
This Petition for Certiorari filed under Rule 64, in relation to Rule 65, seeks to
nullify and set aside the Resolution dated December 7, 2012 of
the Commission onElections (COMELEC) En Banc in EAC (BRGY-SK) No. 161-
2011. The assailed Resolution reversed and set aside the Resolution of the
Election Law Cases
COMELEC First Division dated August 23, 2011, which, in turn, affirmed the May
4, 2011 Decision in Election Case No. 02480-EC of the Metropolitan Trial Court
(MeTC), Branch 4 in Manila.
The Facts
Petitioner Jaime C. Regio (Regio) and private respondent Ronnie C. Co (Co),
among other candidates, ran in the October 25, 2010 barangay elections
in Barangay 296, Zone 28, District III of the City of Manila for the position
of punong barangay.
Immediately following the counting and canvassing of the votes from seven
clustered precincts in the adverted barangay, Regio, who garnered four hundred
seventy-eight (478) votes, as against the three hundred thirty-six (336) votes
obtained by Co, was proclaimed winner for the contested post of punong
barangay. The detailed tally of the votes per precinct, as reflected in the
Statement of Votes, is as follows: 1 SacTCA
Of the seven clustered precincts (CPs) initially protested, Co would later exclude
CP Nos. 1304A and 1305A from the protest. During the preliminary conference,
the trial court allowed the revision of ballots. The revision of ballots occurred on
January 13-14, 2011. 3 Per the report of the revision committee, the number of
votes obtained by both candidates in the contested precincts, as shown below,
indicated a substantial recovery on the part of Co: ACIDSc
Regio, on the other hand, denied that the elections were tainted with
irregularities. He claimed that the results of the revision are products of post-
elections operations, as the ballots were tampered with, switched, and altered
drastically to change the results of the elections. He presented as witnesses the
following: poll watchers Evangeline Garcia, Cezar Regio, and Ruben Merilles,
who all testified that there were no instances of electoral fraud, irregularities, and
anomalies during the day of the elections. Presented too were volunteers Love
Agpaoa and Romy Que, who belied allegations of miscounting, misreading, and
misappreciation of the ballots during the counting, and Dominador Dela Cruz,
Chairperson of the BET for CP Nos. 1302A/1303A, as well as Erlina Hernandez,
Chairperson of the BET for CP No. 1306A, who both testified that they followed
the rules and regulations in conducting the elections in Barangay 296, and that
each ballot was correctly tabulated. 4
The results of the revision notwithstanding, the trial court, in its Decision of May
4, 2011, dismissed Co's protest and declared Regio as the duly-elected punong
barangay of Barangay 296. It disposed of the case, as follows: AHacIS
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According to the trial court, before it can accord credence to the results of the
revision, it should first be ascertained that the ballots found in the box during the
revision are the same ballots deposited by the voters. In fine, the court "should
first be convinced that the ballots counted during the revision have not been
tampered with before it can declare the ballots a) as superior evidence of how the
electorate voted, and b) as sufficient evidence to set aside the election returns.
For the ballots to be considered the best evidence of how the voters voted, their
integrity should be satisfactorily established." 6
Invoking Rosal v. COMELEC, 7 the trial court ruled that Co failed to sufficiently
show that the integrity of the contested ballots had been preserved. It then cited
the presumption that election returns are genuine, and that the data and
information supplied by the board of election inspectors are true and
correct. 8 The trial court said:
A closer scrutiny of the premise made by the protestant will reveal that
he is trying to prove the misreading, miscounting, and misappreciation of
ballots by introducing as evidence the marked difference of the results of
the revision and of the results in the election returns. This premise is too
presumptuous. The marked difference cannot be used to prove the
misreading, miscounting, and misappreciation of ballots because the
misreading, miscounting, and misappreciation of ballots is precisely what
the protestant needs to prove to justify the marked difference in the
results. Prudence dictates that the protestant should first explain where
this huge discrepancy is coming from before using it as evidence. In
other words, the misreading, miscounting, and misappreciation of ballots
should be proven by other independent evidence. DaACIH
Election Law Cases
Traversing the allegations of post-elections tampering, the trial court rejected Co's
allegation that the ballot boxes were properly locked and sealed. In fact, the trial
court said, the envelope containing the ballots for CP Nos. 1302A/1303A was
glued on both sides, prompting protestee's revisor to comment that the envelope
appears to be re-pasted and tampered. In CP No. 1306A, the report stated that
the ballots were not placed in a sealed envelope. 10
Corollarily, the trial court stated the observation that Regio has presented credible
witnesses to prove that there were no irregularities or anomalies during the
casting and counting of votes. cTSDAH
Aggrieved, Co filed an appeal before the COMELEC, arguing that the trial court
erred:
1.) In disregarding the result of the physical count of the revised ballots
found in Precinct Nos. 1302A/1303A and 1306A;
2.) In declaring that the protestant appellant was not able to sufficiently
show that the integrity of the contested ballots in Precinct Nos.
1302A/1303A and 1306A was preserved;
4.) In declaring that the votes obtained by the parties in Precinct Nos.
1302A/1303A and 1306A as reflected in their respective Election
Returns are [the] true and actual results of the elections;
In a Resolution dated August 23, 2011, the COMELEC First Division 12 dismissed
the appeal, noting, as the MeTC did, that Co failed to show that the integrity of
the ballots in question was in fact preserved. Echoing the trial court, the
COMELEC First Division ruled that the absence of any report or record of
tampering of the ballot boxes does not preclude the possibility of ballot
tampering. 13 It also affirmed the rejection of Co's reliance on the revision
committee report as proof that no post-election tampering occurred. The
COMELEC First Division observed:
We note that protestant-appellant did not offer any evidence to prove his
claims of misreading, miscounting, and misappreciation of the ballots; he
posits that the variance between the election results according to the
election documents and the revision of the ballots is in itself enough to
prove his allegations of misreading, miscounting, and misappreciation of
the ballots by the Board of Election Tellers. Protestant-appellant begs the
question instead of laying support to his claims.
Since it could not divine the will of the electorate from the ballots, the trial
court had no other recourse other than to rely on the available election
documents. And, We cannot fault the trial court for doing so when there
was no question as to the election documents' authenticity and
validity. IDaEHC
The COMELEC First Division noted that Co could have, but did not, presented
testimonies of witnesses to substantiate his claims of electoral fraud, albeit he
attached affidavits of various witnesses in his protest. The affidavits, the
COMELEC First Division said, asserted, in one form or another, the electoral
malfeasance or misfeasance allegedly committed by the BET. In dismissing the
arguments of Co for his failure to present evidence, the COMELEC commented,
"[I]t appears that protestant-appellant [Co] rested on laurels after seeing the
result of the physical count of the revised ballots and the conclusion of the
Technical Examination. In fine, protestant-appellant proverbially lost the war for
want of a nail." 15 The fallo of the COMELEC First Division Resolution reads: CcAESI
elected punong barangay. Vital to the En Banc's disposition is its finding that the
ballots subjected to revision were genuine. The En Banc found: EDSHcT
The Issues
I.
II.
In the case now before the Court, the position involved is that of a punong
barangay. The governing law, therefore, is Republic Act No. (RA) 9164, as
amended by RA 9340. Sec. 4 of the law states:
The court takes judicial notice of the holding of barangay elections last October
28, 2013. Following the elections, the new set of barangay officials already
assumed office as of noon of November 30, 2013. It goes without saying, then,
that the term of office of those who were elected during the October
2010 barangay elections also expired by noon on November 30, 2013. In fine,
with the election of a new punong barangay during the October 28, 2013
elections, the issue of who the rightful winner of the 2010 barangay elections has
already been rendered moot and academic.
Notwithstanding the mootness of the case, We find the need to decide the
petition on its merits, in view of the finding of the COMELEC En Banc that
protestant Co should have been declared the winner for the post of punong
barangay for the term 2010-2013. We find that the grave abuse of discretion
committed by the COMELECEn Banc, specifically in ignoring the rules on
evidence, merits consideration. Still in line with the Court's decision
in Malaluan 22 to the effect that the Court can decide on the merits a moot protest
if there is practical value in so doing, We find that the nullification of the
COMELEC En Banc's Resolution is in order, due to its gross contravention of
established rules on evidence in election protest cases. TSADaI
Election Law Cases
We shall discuss the issues jointly, related as they are to the finding of the
COMELEC En Banc giving primacy to the results of the revision proceedings
over the results of the canvassing as reflected in the election returns.
(1) The ballots cannot be used to overturn the official count as reflected in the
election returns unless it is first shown affirmatively that the ballots have been
preserved with a care which precludes the opportunity of tampering and
suspicion of change, abstraction or substitution; HISAET
(2) The burden of proving that the integrity of the ballots has been preserved in
such a manner is on the protestant;
(3) Where a mode of preserving the ballots is enjoined by law, proof must be
made of such substantial compliance with the requirements of that mode as
would provide assurance that the ballots have been kept inviolate notwithstanding
slight deviations from the precise mode of achieving that end;
(4) It is only when the protestant has shown substantial compliance with the
provisions of law on the preservation of ballots that the burden of proving actual
tampering or likelihood thereof shifts to the protestee; and ICDSca
(5) Only if it appears to the satisfaction of the court of COMELEC that the
integrity of the ballots has been preserved should it adopt the result as shown by
the recount and not as reflected in the election returns.
In the same case, the Court referred to various provisions in the Omnibus
Election Code providing for the safe-keeping and preservation of the ballots,
more specifically Secs. 160, 217, 219, and 220 of the Code.
Election Law Cases
Even then, the results of the revision will not automatically be given more weight
over the official canvassing results or the election returns. What happens in the
event of discrepancy between the revision results and the election returns is that
the burden of proof shifts to the protestee to provide evidence of actual tampering
of the ballots, or at least a likelihood of tampering. It is only when the court or the
COMELEC is fully satisfied that the ballots have been well preserved, and that
there had been no tampering of the ballots, that it will accord credibility to the
results of the revision.
The Rosal ruling, to be sure, does not involve issues merely related to
the appreciation or calibration of evidence; its critical ruling is on the
propriety of relying on the revision of ballot results instead of the election
returns in the proclamation of a winning candidate. In deciding this issue,
what it notably established was a critical guide in arriving at its
conclusion the need to determine whether the court or the COMELEC
looked at the correct considerations in making its ruling. 24
This Court had long stated that "[u]pholding the sovereignty of the people is what
democracy is all about. When the sovereignty of the people expressed thru the
ballot is at stake, it is not enough for this Court to make a statement but it should
do everything to have that sovereignty obeyed by all. Well done is always better
than well said." 25 This is really what the Rosal doctrine is all about.
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The Rosal doctrine ensures that in election protest cases, the supreme mandate
of the people is ultimately determined. In laying down the rules in appreciating the
conflicting results of the canvassing and the results of a revision later made, the
Court has no other intention but to determine the will of the electorate.
It is well to note that the respondent Co did not present any testimonial evidence
to prove that the election paraphernalia inside the protested ballot boxes had
been preserved. He mainly relied on the report of the revision committee. There
was no independent, direct or indirect, evidence to prove the preservation of the
ballots and other election paraphernalia. cDTCIA
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Respondent Co admits having, under the Rosal doctrine, the burden of proving
the preservation of the ballots, and corollarily, that their integrity have not been
compromised before the revision proceedings. He, however, argues that he had
successfully discharged that burden. And how? First, he pointed out that from the
moment the various BETs placed the counted official ballots inside the ballot
boxes until they were transported for canvassing, and until they were transmitted
to the Election Officer/City Treasurer of Manila for storage and custody, no
irregularities or ballot-box snatching were reported; neither was there any news or
record of ballot box tampering in the protested precincts. Second, no untoward
incident or irregularity which may taint or affect the integrity of the ballot boxes
was ever reported when they were transported to the storage area of the trial
court. Third, the storage place of the ballot boxes was at all times tightly secured,
properly protected, and well safeguarded. Fourth, all the protested ballot boxes
were properly locked and sealed. Fifth, the petitioner never questioned or raised
any issue on the preservation of the integrity of the protested ballot boxes.
And sixth, the Technical Examination Report signed by the COMELEC
representative confirmed the genuineness, authenticity, and integrity of all the
ballots found during the revision. 27 ETHaDC
The respective custodians of the ballot boxes, from the time they were used in the
elections until they were delivered to the court, were not, to stress, presented in
court. They could have testified as to the security afforded the ballot boxes while
in their custody. Moreover, no witness at all was presented by respondent Co
during the proceedings in the trial court. The Court reminds respondent Co that
the trial court's consideration of the case is confined to whatever evidence is
presented before it. This is amply stated in Rule 13, Sec. 2 of A.M. No. 07-4-15-
SC:
cannot simplistically insist on the consideration of said affidavits, the trial court
not having been given the opportunity to observe their testimonies, and petitioner
not having been accorded the opportunity to cross-examine them. The fact that
respondent attached the affidavits in his Protest does not mean that the trial court
is bound to consider them, precisely because they have not been formally offered
before the court. The attachments to the Protest will not be considered unless
formally offered.
The Court notes that respondent Co has offered no explanation whatsoever why
he failed to present his witnesses. Nevertheless, he would have this Court
consider as evidence their purported testimonies. This would be incongruously
unfair to petitioner, who endeavored to prove his case by presenting evidence
before the trial court.
evidence, the trial court, the COMELEC, as well as this Court, is constrained to
affirm as a fact the disputable presumption that the ballots were properly counted
during the counting and canvassing of votes.
In sum, We find that the COMELEC gravely abused its discretion in ruling that
private respondent had discharged the burden of proving the integrity of the
ballots. We rule, on the contrary, that there is utter lack of evidence to that effect.
A candidate for a public elective position ought to familiarize himself with election
laws, pertinent jurisprudence, and COMELEC resolutions, rules and regulations.
Alternatively, he should have an experienced and knowledgeable election lawyer
to guide him on the different aspects of elections. Sans competent legal advice
and representation, a victory in the elections may turn out to be a crushing defeat
for the candidate who actually got the nod of the electorate. Unfortunately for
respondent Co, he committed several miscues that eventually led to his debacle
in the instant election protest.
SO ORDERED.
DECISION
BRION, J : p
Before the Court is a petition for certiorari under Rule 64 in relation with Rule 65
assailing the May 4, 2010 1 and September 5, 2012 resolutions of
the Commission onElections (COMELEC). The assailed rulings (i) dismissed the
petition filed by Samson S. Alcantara, Romeo R. Robiso, Pedro T. Dabu, Jr.,
Lope E. Feble, Noel T. Tiampong and Jose Floro Crisologo
(collectively, petitioners) for the declaration of nullity of the Supreme
Assembly held on February 6, 2010 and (ii) denied the motion for reconsideration
the petitioners subsequently filed.
The petitioners are officials and members of Abakada Guro Partylist (ABAKADA):
Attys. Alcantara, Tiampong and Dabu (Alcantara, et al.) are the founding
President, Vice President for the Visayas and Secretary, respectively,
of Abakada; while Robiso, Feble and Crisologo have been members of the party
since 2007. 2
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ANTECEDENT FACTS
Sometime between January and April 2003, Alcantara, et al., along with their
fellow law teachers, organized a party named Advocates and Adherents of Social
Justice for School Teachers and Allied Workers. The party has a constitution and
by-laws (CBL) and a principal office at the same location as Atty. Alcantara's law
office. 3
On May 14, 2004, the party name was amended and changed to Abakada Guro
Party list. The change was duly approved by the COMELEC. In the May 2007
elections, where ABAKADA participated and won a seat, Jonathan de la Cruz
(De la Cruz), its first nominee, became the party's sole representative in
Congress. 4
In a May 5, 2009 letter separately addressed to the COMELEC and the Speaker
of the House of Representatives, De la Cruz tendered his "irrevocable"
resignation effective December 31, 2009. 5 Despite the supposed effectivity of his
resignation however, De la Cruz refused to vacate his seat,
prompting Alcantara, et al. to file a petition for quo warranto with the Supreme
Court. This petition was subsequently dismissed for being moot and
academic. 6 acHTIC
This prompted the petitioners to file a petition with the COMELEC to (i) declare
the meeting held on February 6, 2010 void and (ii) restrain the respondents from
falsely representing themselves as the duly elected officers of ABAKADA.
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In their petition, the petitioners alleged that the sending of notices and the holding
of a Supreme Assembly were contrary to the party's CBL for not having been
authorized by the President and by the party's National Executive Board. They
alleged that Albano has no authority to sign and send notices, much less call a
Supreme Assembly, since he is not the party's Secretary. Likewise, the
membership status of several meeting participants have neither been approved
nor accepted in accordance with the party's CBL.
The respondents defended the validity of the meeting in their comment to the
petition. They narrated that between September 2009 and February 2010, De la
Cruz made several communications to Alcantara to urge him to call a general
membership meeting and to inform him of the consultation meetings and party
caucuses being conducted at the respondents' instance in preparation for the
May 2010 elections. The respondents added that since Alcantara's letter-
response merely sought the deferment of the Supreme Assembly to "early next
year" 10 i.e., 2010, an All Leaders Assembly was convened on December 15,
2009, with prior notice to Alcantara, leading to the Supreme Assembly on
February 6, 2010.
COMELEC Rulings
The COMELEC Second Division dismissed the petition. It ruled that the
holding of an assembly for purposes of electing party officers and the
amendment of the party's CBL have long been overdue. Under the party's CBL, a
Supreme Assembly must be convened every three years to elect officers and to
amend or revise the party's CBL. Under Alcantara's leadership, no Supreme
Assembly was convened since ABAKADA's accreditation in 2004.
The petitioners moved for reconsideration of the ruling, mainly questioning the
COMELEC Second Division's failure to address the issue of validity of the
Supreme Assembly based on the non-membership status of several meeting
participants. The COMELEC En Banc denied the petitioners' motion under the
following terms: SHTcDE
With their recourses at the COMELEC exhausted, the petitioners now come
before this Court on the present petition for certiorari under Rules 64 and 65 of
the Rules of Court.
THE PETITION
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The petition alleged that the COMELEC gravely abused its discretion when it did
not consider Alcantara's affidavit, the submitted list of party members, and the
attached individual applications for membership. Since the attendance sheets of
the participants in the Supreme Assembly were submitted to the COMELEC, it
could have simply compared the submitted lists to determine whether the
Supreme Assembly participants are legitimate party members.
Assuming arguendo that the participants in the Supreme Assembly were all party
members, the petition further alleged that the meeting was not convened in
accordance with the party's CBL; thus, the COMELEC should have granted their
petition to declare the Supreme Assembly meeting void.
The respondents further posit that the petitioners cannot invoke ABAKADA's CBL
in assailing the validity of the Supreme Assembly because their own refusal to
abide by the democratic provisions of the CBL (among others, on electing new
officers every three years) is the very violation that prompted the conduct of the
party proceeding now being assailed.
The respondents add that during the hearing on the registered party-list groups'
continuing compliance with Republic Act No. 7941 and the 1987 Constitution,
only respondent De la Cruz and the present ABAKADA composition participated
and submitted the necessary documentary and testimonial evidence proving the
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OUR RULING
We dismiss the petition.
At the outset, the respondents informed the Court (and the Court takes judicial
notice) of the fact that Atty. Alcantara is now running for a seat in the Senate
under the group Social Justice Society. The respondents claim that by filing his
certificate of candidacy for the Senate under a different
party, Alcantara effectively abandoned any claim to the ABAKADA presidency
the position he seeks to recover by asking for the nullity of the Supreme
Assembly. They argue that petitioner Alcantara's claim to the presidency of
ABAKADA, a marginalized and underrepresented party-list group, is inconsistent
with his act of waging an expensive national campaign for the Philippine Senate.
We need not dwell at length on this development as this is not a matter that the
parties presented and argued before the COMELEC and which that tribunal
resolved; there is no ruling on the matter that is now before us for review.
Additionally, what the petitioners question is petitioner Alcantara's expulsion as a
party president and as a member of the party when he questioned the legality of
the holding of the Supreme Assembly. This was the matter directly litigated before
the COMELEC and an issue that the tribunal directly ruled upon. We can resolve
this issue without need of considering the effect of petitioner Alcantara's Senate
candidacy.
As a juridical entity, a party-list group can only validly act through its duly
authorized representative/s. In the exercise of its power to register parties, the
COMELEC necessarily possesses the power to pass upon the question of who,
among the legitimate officers of the party-list group, are entitled to exercise the
rights and privileges granted to a party-list group under the law. The COMELEC's
jurisdiction on this point is well settled and is not here disputed.
With clear jurisdictional authority to resolve the issue of party leadership and
party identity, this Court will only be justified in interfering with the COMELEC's
action under Rules 64 and 65 of the Rules of Court if the petitioners can establish
that the COMELEC acted without or in excess of jurisdiction or with grave abuse
of discretion amounting to lack or excess of jurisdiction. By grave abuse of
discretion is generally meant the capricious and whimsical exercise of judgment
equivalent to lack of jurisdiction. Mere abuse of discretion is not enough. It must
be grave, as when it is exercised arbitrarily or despotically by reason of passion
or personal hostility. Such abuse must be so patent and so gross as to amount to
an evasion of a positive duty or to a virtual refusal to perform the duty enjoined or
to act at all in contemplation of law. 15 The petitioners failed to hurdle this barrier.
The petitioners opened their petition with the principle that only members of a
registered party can chart its destiny to the necessary exclusion of non-members.
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The COMELEC correctly observed that while this may be true, all that the
petitioners established is the group's membership as of 2003. The petitioners
failed to account for the group's actual membership at least as of 2009, i.e., five
(5) years after ABAKADA was accredited and the year immediately prior to the
Supreme Assembly held in February 2010 and the party-list elections of May
2010. ADaECI
What the petitioners presented are simply applications for membership with
ABAKADA as of November 3, 2003 during the party's inceptive stage,
and Alcantara's affidavit that denies the membership of most of those who
attended the 2010 Supreme Assembly. Alcantara alleged on this point that:
The petitioners have not pointed out the basis for such broad claim of authority
by Alcantara. Under Article IV (Membership) of ABAKADA's CBL, 16 however, the
President or the National Executive Board is not given the exclusive authority to
approve applications for party membership. Such applications are approved by
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We remind the petitioners that the findings of fact of the COMELEC are generally
binding on the Court, unless its factual conclusions are clearly shown to be
unsupported by substantial evidence. 19 The petitioners have not demonstrated
that its case fall within this narrow exception.
Even assuming that all participants in the 2010 Supreme Assembly are legitimate
members of the party, the petitioners claim that since the Supreme Assembly
meeting did not comply with the provisions of the party's CBL, then the
COMELEC should have granted their petition to nullify the meeting.
often conflicting interests of the different segments of society. Should they belong
to the minority, they also provide a check to counterbalance those who are in
power.
For these reasons, particularly, for the role they play in the general political
process, political parties are generally free to conduct its internal affairs pursuant
to its constitutionally-protected right to free association. 21 This includes the
determination of the individuals who shall constitute the association and the
officials who shall lead the party in attaining its goals. 22 The political parties,
through their members, are free to adopt their own constitution and by-laws that
contain the terms governing the group in pursuing its goals. These terms, include
the terms in choosing its leaders and members, among others. To the group
belongs the power to adopt a constitution; to them likewise belongs the power to
amend, modify or altogether scrap it.
The petitioners' argument is contrary to these basic tenets. If the validity of the
Supreme Assembly would completely depend on the person who calls the
meeting and on the person who sends the notice of the meeting who are
petitioners Alcantara and Dabu themselves then the petitioners would be able
to perpetuate themselves in power in violation of the very constitution whose
violation they now cite. This kind of result would strike at the heart of political
parties as the "basic element of the democratic institutional apparatus." This
potential irregularity is what the COMELEC correctly prevented in ruling for the
dismissal of the petition. TCaAHI
2010 elections." This call, to our mind, is far from unreasonable and was in fact a
practical approach to a coming political exercise.
SO ORDERED.
ANGEL
G. NAVAL, petitioner, vs. COMMISSION ON ELECTIONS and
NELSON B. JULIA, respondents.
DECISION
REYES, J : p
The Case
A provincial board member cannot be elected and serve for more than three
consecutive terms. But then, the Court is now called upon to resolve the following
questions. First. What are the consequences to the provincial board member's
eligibility to run for the same elective position if the legislative district, which
brought him or her to office to serve the first two consecutive terms, be
reapportioned in such a way that 8 out of its 10 town constituencies are carved
out and renamed as another district? Second. Is the provincial board member's
election to the same position for the third and fourth time, but now in
representation of the renamed district, a violation of the three-term limit rule?
Before the Court is a Petition for Certiorari with an Urgent Prayer for the Issuance
of a Temporary Restraining Order and a Writ of Preliminary Injunction 1 filed
under Rule 64 of the Rules of Court to assail the following resolutions of the
public respondent Commission on Elections (COMELEC):
Antecedents
From 2004 to 2007 and 2007 to 2010, Naval had been elected and had served as
a member of the Sanggunian, Second District, Province of Camarines Sur.
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On October 12, 2009, the President approved Republic Act (R.A.) No.
9716, 8 which reapportioned the legislative districts in Camarines Sur in the
following manner: EICSTa
Notably, 8 out of 10 towns were taken from the old Second District to form the
present Third District. The present Second District is composed of the two
remaining towns, Gainza and Milaor, merged with five towns from the old First
District.
In the 2010 elections, Naval once again won as among the members of
the Sanggunian, Third District. He served until 2013.
In the 2013 elections, Naval ran anew and was re-elected as Member of
the Sanggunian, Third District.
Julia was likewise a Sanggunian Member candidate from the Third District in the
2013 elections. On October 29, 2012, he invoked Section 78 10 of the Omnibus
Election Code (OEC) and filed before the COMELEC a Verified Petition to Deny
Due Course or to Cancel the Certificate of Candidacy 11 of Naval. Julia posited
that Naval had fully served the entire Province of Camarines Sur for three
consecutive terms as a member of the Sanggunian, irrespective of the district he
had been elected from. The three-term limit rule's application is more with
reference to the same local elective post, and not necessarily in connection with
an identical territorial jurisdiction. Allowing Naval to run as a Sanggunian member
for the fourth time is violative of the inflexible three-term limit rule enshrined in the
Constitution and the LGC, which must be strictly construed. 12 HSATIC
This Court held that the two conditions for the application
of the disqualification must concur: 1) that the official
concerned has been elected for three consecutive
terms in the same local government post and 2) that
he has fully served three consecutive terms. It stated:
. . . The first requisite does not only describe a candidate who has been
elected for public office for three consecutive terms. The candidate must
have been elected in the same local government post. This connotes
that the candidate must have been in the same elective position serving
the same constituency who elected him to office for three consecutive
terms.
The three-term limit rule was designed by the framers of the Constitution
to prevent the monopoly of power centered only on a chosen few. The
said disqualification was primarily intended to forestall the accumulation
of massive political power by an elective local government official in a
given locality in order to perpetuate his tenure in office. The framers also
considered the necessity of the enhancement of the freedom of choice of
the electorate by broadening the selection of would-be elective public
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officers. By rendering ineligible for public office those who have been
elected and served for three consecutive terms in the same public
elective post, the prohibition seeks to infuse new blood in the political
arena.
. . . [T]he new Third District where [Naval] was elected and has served is
composed of the same municipalities comprising the previous Second
District, absent the towns Gainza and [Milaor]. The territorial jurisdiction
[Naval] seeks to serve for the term 2013-2016 is the same as the
territorial jurisdiction he previously served. The electorate who voted for
him in 2004, 2007 and 2010 is the same electorate who shall vote for
him come May 13, 2013 Elections. They are the same group of voters
who elected him into office for three consecutive terms. EAIaHD
mayor into a local government post different from the office of the city
mayor[.]
The conditions for the application of the three-term limit rule are present
in the instant case as the records clearly establish that [Naval] is running
for the 4th time for the same government post. To put things in a proper
perspective, it is imperative to review and discuss the salient points in
the case of Latasa v. [COMELEC]. The case involves the question of
whether or not a municipal mayor, having been elected and had already
served for three (3) consecutive terms, can run as city mayor in light of
the conversion of the municipality to a city. In applying the three-term
limit rule, the Court pointed out that the conversion of the municipality
into a city did not convert the office of the municipal mayor into a local
government post different from the office of the city mayor. The Court
took into account the following circumstances: (1) That the territorial
jurisdiction of [the] city was the same as that of the municipality; (2) That
the inhabitants were the same group of voters who elected the municipal
mayor for three (3) consecutive terms; and (3) That the inhabitants were
the same group of voters [over] whom he held power and authority as
their chief executive for nine years.
Anchoring from the said case, it is therefore clear that the position to
which [Naval] has filed his candidacy for the 13 May 2013 . . . Elections
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is the same position for which he had been elected and had served for
the past nine (9) years.
. . . The following circumstances establish that the subject posts are one
and the same: First, the territorial jurisdictions of the two (2) districts are
the same except for the municipalities of Gainza and Milaor which were
excluded by R.A. No. 9716; Second, the inhabitants of the 3rd District of
Camarines Sur, where [Naval] is presently running as member of the
[Sanggunian], are the same voters who elected him for the past three (3)
consecutive terms; and Lastly, the inhabitants of the [3rd] District are the
same group of voters whom [Naval] had served as member of the
[Sanggunian] representing the 2nd District. DTAIaH
. . . The enactment of R.A. No. 9716 did not convert [Naval's] post [into
one] different from [w]hat he [previously had]. As correctly ruled by the
Commission (Second Division), [Naval] ha[d] already been elected and
ha[d] already served in the same government post for three consecutive
terms, . . .[.]
Unperturbed, Naval is now before the Court raising the issues of whether
or not the COMELEC gravely erred and ruled contrary to law and
jurisprudence:
Naval further invokes Article 94 19 of Administrative Order No. 270 prescribing the
Implementing Rules and Regulations of the LGC to argue
that Sanggunian members are elected by districts. Thus, the right to choose
representatives in the Sanggunian pertains to each of the districts. Naval was
elected as Sanggunian member in 2004 and 2007 by the Second District. In 2010
and 2013, it was the Third District, which brought him to office. Essentially
then, Naval's election in 2013 is merely his second term as Sanggunian member
for the Third District.
Naval likewise cites Borja, Jr. v. COMELEC 20 to point out that for the
disqualification on the ground of the three-term limit to apply, it is not enough that
an individual has served three consecutive terms in an elective local office, but it
is also required that he or she had been elected to the same position for the
same number of times. 21
Naval further emphasizes that he garnered the majority of the votes from his
constituents, whose will and mandate should be upheld. Besides, Julia's counsel
already withdrew his appearance, indicating no less than his client's lack of
interest in still pursuing Naval's ouster from office. 24
In its Comment, 25 the Office of the Solicitor General (OSG) seeks the denial of
the instant petition. The OSG contends that Naval had been elected and had fully
served the same local elective post for three consecutive terms. Naval thus
violated Section 78 of the OEC when he filed his COC despite knowledge of his
ineligibility. Naval'sreliance on Bandillo is also misplaced since in the said case,
two towns were instead added to form a new district. Apparently then, in Bandillo,
there was a new set of voters. The OSG also alleges that Naval is not entitled to
the issuance of injunctive reliefs by this Court. No clear and unmistakable right
pertains to Naval and it is his eligibility to be elected as Sanggunian member for
the Third District which is the issue at hand.
The case before this Court is one of first impression. While the contending
parties cite Latasa, Lonzanida v. COMELEC, 26 Borja, Aldovino, Jr. v.
COMELEC, 27 and Bandillo, which all involve the application of the three-term
limit rule, the factual and legal circumstances in those cases are different and the
doctrinal values therein do not directly address the issues now at hand.
In Lonzanida, a candidate ran for the mayoralty post and won in three
consecutive elections. While serving his third term, his opponent filed an election
protest. Months before the expiration of the mayor's third term, he was ousted
from office. He ran again for the same post in the immediately succeeding
election. A petition was thereafter filed assailing his eligibility to run as mayor on
the ground of violation of the three-term limit rule. The Court ruled that the mayor
could not be considered as having served a full third term. An interruption for any
length of time, if due to an involuntary cause, is enough to break the elected
official's continuity of service.
In Borja, the mayor of Pateros died and was succeeded in office by the vice
mayor. In the two immediately succeeding elections, the latter vied for and won
the mayoralty post. When he ran for the same position for the third time, his
disqualification was sought for alleged violation of the three-term limit rule. The
Court ruled that when he assumed the position of mayor by virtue of succession,
his service should not be treated as one full term. For the disqualification to apply,
the candidate should have been thrice elected for and had served the same post
consecutively.
In Bandillo, a case decided by the COMELEC, Gainza and Milaor were added to
five of the ten towns, which used to comprise Camarines Sur's old First District,
to form the new Second District. The COMELEC declined to apply the three-term
limit rule against the elected Provincial Board member on the ground that the
addition of Gainza and Milaor distinctively created a new district, with an altered
territory and constituency.
In the case before this Court, the task is to determine the application of the three-
term limit rule upon local elective officials in renamed and/or reapportioned
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districts. In the process of doing so, it is inevitable to discuss the role of elections
and the nature of public office in a democratic and republican state like ours.
their will on the defining issues of the day and they are able to choose
their leaders in accordance with the fundamental principle of
representative democracy that the people should elect whom they
please to govern them. Voting has an important instrumental value in
preserving the viability of constitutional democracy. It has traditionally
been taken as a prime indicator of democratic participation. 31 (Citations
omitted and italics ours)
With respect to local officials, Mr. Nolledo, informed that the Committee
on Local Governments had not decided on the term of office for local
officials and suggested that the Body decide on the matter.
He added that the turnover in public office after nine years would
ensure the introduction of new ideas and approaches. He stressed
that public office would no longer be a preserve of conservatism
and tradition, and that public service would no longer be limited to
those directly holding public office, but would also include consultative
bodies organized by the people.
In reply to Mr. Regalado's query whether the three terms need not be
served consecutively, Mr. Garcia answered in the affirmative.
Mr. Monsod stated that while the new Constitution would recognize
people power because of a new awareness, a new kind of voter and a
new kind of Filipino, at the same time, it pre-screens the candidates
among whom the people would choose by barring those who
would have served for nine years from being reelected. He opined
that this would actually require an additional qualification for office to a
certain number of people.
Mr. Garcia stated that there are two principles involved in Alternative
No. 1: 1) the recognition of the ambivalent nature of political
power, and 2) the recognition of alternative forms of public
service. He stated that it is important to remember the lessons learned
from the recent past; that public service is service to the people and
not an opportunity to accumulate political power, and that a prolonged
stay in public office brings about political dynasties or vested
interests. Regarding political parties, he stated that it will encourage
the constant renewal of blood in party leadership, approach, style
and ideas. He opined that this is very healthy for a pluralist and
multi-party democracy.
Mr. Abubakar stated that in any democracy the voice of the people
is the voice of God. He stated that if the people want to elect a
representative to serve them continuously, the Commission should not
arrogate unto itself the right to decide what the people want. He stated
that in the United States, a Senator had served for 30 years.
Ms. Aquino stated that she differs from the views advanced by Mr.
Garcia and Ms. Tan, although she stated that they spoke of the same
premises. She stated that she agrees with them that leaders need not
be projected and developed publicly in an election as leaders are
better tempered and tested in the various forms of mass
struggles and organized work. She stated that if the people are to be
encouraged to have their own sense of responsibility in national
leadership, what ultimately matters is the political determination of the
citizenry to chart their own national destiny. She opined that the Body
should allow the people to exercise their own sense of proportion
and imbibe the salutary effects of their own strength to curtail
power when it overreaches itself. She stressed that in the final
analysis, the Commission cannot legislate into the Constitution
the essence of new politics as it is a chastening experience of
learning and unlearning. Adverting to Mr. Garcia's statement that
politics is an imperfect art, she stated that the Commission could
correct politics with all its imperfections and flaws by a constitutional
provision. She opined that perpetual disqualification cannot provide the
cure. She maintained that perpetual disqualification is, at best, a
palliative which could also be counter-productive, in the sense that it
could effectively foil the possibilities of real public service.
Mr. Bacani stated that when the Body granted the illiterates the right to
vote and that proposals were made to empower the people to engage
in the legislative process, the Body presupposed the political
maturity of the people. He observed that in this instance, political
maturity is denied with the constitutional bar for reelection. He
opined that the Body should stick to the premise that the people are
politically mature.
Mr. Garcia stated that politics is not won by ideals alone but by solid
organized work by organizations. He stated that with three terms, an
official would have served the people long enough.
In the end, 26 members of the Commission cast their votes in favor of the
proposal that no immediate re-election after three successive terms shall be
allowed. On the other hand, 17 members stood pat on their view that there
should be no further reelection after three successive terms.
Clearly, the drafters of our Constitution are in agreement about the possible
attendant evils if there would be no limit to re-election. Notwithstanding their
conflicting preferences on whether the term limit would disqualify the elected
official perpetually or temporarily, they decided that only three consecutive
elections to the same position would be allowed. Thereafter, the public official can
once again vie for the same post provided there be a gap of at least one term
from his or her last election. The rule answers the need to prevent the
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consolidation of political power in the hands of the few, while at the same time
giving to the people the freedom to call back to public service those who are
worthy to be called statesmen.
The compromise agreed upon by the drafters of our Constitution was a result of
exhaustive deliberations. The required gap after three consecutive elections is
significant. Thus, the rule cannot be taken with a grain of salt. Nothing less than
its strict application is called for.
Section 1. The composition of the current First (1st) and Second (2nd)
Legislative Districts in the Province of Camarines Sur is hereby
reapportioned in order to create an additional legislative district to
commence in the next national elections after the effectivity of this Act.
As a result of the reapportionment made by R.A. No. 9716, the old Second
District of Camarines Sur, minus only the two towns of Gainza and Milaor, is
renamed as the Third District and now configured as follows: 43
First, the general rule in construing words and phrases used in a statute
is that, in the absence of legislative intent to the contrary, they should be
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given their plain, ordinary and common usage meaning; the words
should be read and considered in their natural, ordinary, commonly
accepted usage, and without resorting to forced or subtle construction.
Words are presumed to have been employed by the lawmaker in their
ordinary and common use and acceptation.
The Court looks to the language of the document itself in our search for its
meaning. 45
In Naval's case, the words of R.A. No. 9716 plainly state that the new Second
District is to be created, but the Third District is to be renamed. Verba legis non
est recedendum. The terms used in a legal provision to be construed compels
acceptance and negates the power of the courts to alter it, based on the
postulate that the framers mean what they say. 46
The verb create means to "make or produce something new." 47 On the other
hand, the verb rename means to "give a new name to someone or
something." 48 A complete reading of R.A. No. 9716 yields no logical conclusion
other than that the lawmakers intended the old Second District to be merely
renamed as the current Third District.
It likewise bears noting that the actual difference in the population of the old
Second District from that of the current Third District amounts to less than 10% of
the population of the latter. This numerical fact renders the new Third District as
essentially, although not literally, the same as the old Second District. Hence,
while Naval is correct in his argument that Sanggunian members are elected by
district, it does not alter the fact that the district which elected him for the third
and fourth time is the same one which brought him to office in 2004 and 2007.
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Naval's ineligibility to run, by reason of violation of the three-term limit rule, does
not undermine the right to equal representation of any of the districts in
Camarines Sur. With or without him, the renamed Third District, which he labels
as a new set of constituents, would still be represented, albeit by another eligible
person. ACTaDH
"In a special civil action for certiorari, the burden rests on the petitioner to prove
not merely reversible error, but grave abuse of discretion amounting to lack or
excess of jurisdiction on the part of the public respondent issuing the impugned
order, decision or resolution." 51 "Grave abuse of discretion arises when a court
or tribunal violates the Constitution, the law or existing jurisprudence." 52
In the case at bar, the Court finds the COMELEC's disquisitions to be amply
supported by the Constitution, law and jurisprudence.
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Conclusion
In sum, the Court finds no compelling reason to grant the reliefs prayed for
by Naval. For the Court to declare otherwise would be to create a dangerous
precedent unintended by the drafters of our Constitution and of R.A. No. 9716.
Considering that the one-term gap or rest after three consecutive elections is a
result of a compromise among the members of the Constitutional Commission,
no cavalier exemptions or exceptions to its application is to be
allowed. Aldovino affirms this interpretation. Further,
sustaining Naval's arguments would practically allow him to hold the same office
for 15 years. These are the circumstances the Constitution explicitly intends to
avert.
Certainly, the Court accords primacy to upholding the will of the voting public, the
real sovereign, so to speak. However, let all the candidates for public office be
reminded that as citizens, we have a commitment to be bound by our Constitution
and laws. Side by side our privileges as citizens are restrictions too.
Einer Elhauge, a faculty member from Harvard Law School, wrote an article
entitled "What Term Limits Do That Ordinary Voting Cannot." 53 In the article,
Greek mythology was tapped to make a tempting analogy. The gist of the story
follows.
In Odyssey Book XII, the goddess Circe warned Odysseus of the Sirens who
seduce all men approaching them with their voices. Those who fell into the
Sirens' trap never returned home to their wives and children. A clever strategy
was thus hatched to secure safe passage for Odysseus and his men. The men
were to plug their ears with wax to muffle the songs of the Sirens. Odysseus, on
the other hand, was to be tied to the mast of the ship so he could still listen to the
songs, which may contain clues on how they can get home. When the wind died
down, Odysseus heard beautiful voices calling out to them. The voices were
incomparable to anything he had ever heard before. Even when Odysseus knew
that the irresistible voices were coming from the Sirens, he struggled with all his
strength to free himself from the ropes, but was unable to do so. The voices
became fainter as the men continued to row. When the voices can no longer be
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heard, Odysseus realized how he had nearly been beguiled. They had made it
through safely and Odysseus was untied. It was their clever plan which kept them
all alive. 54
The same lesson holds true in the case before this Court. The drafters of the
Constitution recognized the propensity of public officers to perpetuate themselves
in power, hence, the adoption of term limits and a guarantee of every citizen's
equal access to public service. These are the restrictions statesmen should
observe for they are intended to help ensure the continued vitality of our
republican institutions. IEaCDH
SO ORDERED.
RENATO
M. FEDERICO, petitioner, vs. COMMISSION ON ELECTIONS,
COMELEC EXECUTIVE DIRECTOR and OSMUNDO M.
MALIGAYA, respondents.
DECISION
MENDOZA, J : p
This is a petition for certiorari under Rule 65, in relation to Rule 64, of the Rules
of Court, assailing the December 21, 2011 Resolution 1 of
the Commission on Elections(Comelec) En Banc, in SPC No. 10-082, entitled In
Re: Petition to Annul the Proclamation of Respondent Renato M. Federico,
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The Facts
Edna Sanchez (Edna) and private respondent Osmundo M.
Maligaya (Maligaya) were candidates for the position of municipal mayor of Sto.
Tomas, Batangas, in the May 10, 2010 Automated National and Local Elections.
Maligaya was the Liberal Party's official mayoralty candidate. 2
On April 27, 2010, Armando Sanchez, husband of Edna and the gubernatorial
candidate for the province of Batangas, died. Two days later, or on April 29,
2010, 3 Edna withdrew her Certificate of Candidacy (COC) for the position of
mayor. She then filed a new COC and the corresponding Certificate of
Nomination and Acceptance(CONA) for the position of governor as substitute
candidate for her deceased husband.
On May 5, 2010, petitioner Renato M. Federico (Federico) filed with the Office of
the Election Officer of Sto. Tomas, Batangas, his COC 4 and CONA 5 as official
candidate of the Nationalista Party and as substitute candidate for mayor, in view
of the withdrawal of Edna.
On the same day, May 7, 2010, Maligaya filed his Petition to Deny Due Course
and to Cancel Certificate of Candidacy 7 of Federico before the Comelec,
docketed as SPA No. 10-137 (DC). Maligaya sought to have Federico declared
ineligible to run as substitute candidate for Edna because the period to file the
COC for substitute candidates had already lapsed after December 14, 2009,
pursuant to Section 13 of Comelec Resolution No. 8678. 8
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In Resolution No. 8889, 9 dated May 8, 2010, the COMELEC En Banc gave due
course to the COC of Edna as substitute gubernatorial candidate in the Batangas
province and to that of Federico as substitute mayoralty candidate in Sto. Tomas.
By that time, however, the official ballots had already been printed. Expectedly,
on May 10, 2010, the day of elections, the name "SANCHEZ, Edna P." was
retained in the list of candidates for Mayor of Sto. Tomas, and garnered the
highest number of votes 28,389 against Maligaya's 22,577 votes. 10
On May 11, 2010, the Municipal Board of Canvassers (MBOC) printed the
Certificate of Canvass of Votes and Proclamation of Winning
Candidates 11 (COCVP) showing "SANCHEZ Edna P." as the winning mayoralty
candidate. The printed COCVP, reads:
This action of MBOC prompted Maligaya to file his Petition to Annul Proclamation
of Respondent Edna Sanchez, 12 docketed as SPC No. 10-022, on May 20,
2010. This petition was, however, later withdrawn, as agreed upon by the parties,
and the case was dismissed by the Comelec First Division. 13
A second print-out 14 of the COCVP was issued by the MBOC bearing the same
time and date with the same number of votes garnered by Edna being credited
toFederico. The second print-out reads:
In his answer to the petition, Federico raised, among others, the defenses that
the petition was an erroneous remedy, having no basis under the rules; that it
was not based on valid grounds; and that it should not have been given due
course as it was belatedly filed. 16
The members of the MBOC likewise filed an answer, claiming good faith when
they proclaimed Federico as winner considering that the substitutions of Edna
andFederico were valid under Comelec Resolution No. 8889. 17
Meanwhile, Maligaya's petition to deny due course and to cancel the COC
of Federico was denied by the Comelec Second Division in its
Resolution, 18 dated October 19, 2010. It gave due course to Federico's COC and
CONA on the basis of the Comelec En Banc's Resolution No. 8889 which
upheld Federico's substitution.
In its Resolution, 19 dated June 21, 2011, the Comelec First Division denied
Maligaya's petition to annul the proclamation of Federico for having been filed out
of time, as it was filed beyond the ten (10) day period from the day of
proclamation as provided for under Section 6, Rule 4 of Comelec Resolution
8804. 20 Further, it held thatFederico's filing of candidacy for mayor, vice Edna,
was valid.
Maligaya then filed his Verified Partial Motion for Reconsideration, 21 dated June
27, 2011, insisting that his petition had not yet prescribed and
that Federico'ssubstitution was null and void with his COC and CONA filed after
December 14, 2009, the deadline provided for under Section 13 of Comelec
Resolution No. 8678. He further claimed that the generation of a second print-out
of the COCVP bearing the same time and date with the same number of votes
garnered by Edna being credited to Federico was questionable for it was
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The said partial motion for reconsideration was elevated to the Comelec En
Banc for proper disposition. ACTIcS
In the hearing of August 25, 2011, the Comelec En Banc considered the case
submitted for resolution.
On December 21, 2011, the Comelec En Banc issued the assailed Resolution
granting Maligaya's partial motion for reconsideration. Thus:
SO ORDERED. 25
The Comelec En Banc ruled that the petition for the annulment
of Federico's proclamation filed on June 1, 2011 was within the prescribed ten
(10) day period. It explained that the period for the filing of the said petition
should be reckoned from May 27, 2011, when Maligaya discovered the existence
of the second COCVP and not on May 11, 2011, the proclamation date. The
Comelec En Banc was of the view that the annulment of Federico's proclamation
was in order because of his invalid substitution of Edna, as his substitute COC
was filed beyond the deadline and due to the illegality of the proceedings of the
MBOC in generating the second COCVP without authority from the Comelec and
without notice to the parties, in violation of Comelec Resolution No. 8804.
Hence, Federico filed the present Petition for Certiorari with Prayer for Writ of
Preliminary Injunction and/or Temporary Restraining Order, dated December 23,
2011, before this Court anchored on the following: cADEIa
GROUNDS
(I)
(II)
A.The votes cast for "SANCHEZ, Edna P." were legally considered
votes for Petitioner.
(III)
In the meantime, on December 29, 2011, the Comelec En Banc issued Minute
Resolution No. 11-1306 constituting the special MBOC pursuant to its December
21, 2011 Resolution. 27
On January 17, 2012, the Special MBOC issued a notice to convene on January
24, 2012 at the Comelec's Session Hall for the purpose of proclaiming Maligaya
as the duly elected mayor. 29 cCTAIE
In its Resolution, dated January 17, 2012, the Court required the respondents in
this case to comment on Federico's petition for certiorari within ten (10) days from
notice, to which Maligaya and the Comelec complied. In the same Resolution, the
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Court issued a Temporary Restraining Order (TRO) enjoining the Comelec from
constituting and reconvening the Special MBOC and from proclaiming Maligaya
as mayor of Sto. Tomas, Batangas. 30
Both the Office of the Solicitor General (OSG) and Maligaya opposed the motion
to intervene, both arguing that he (Maligaya) was the only mayoralty candidate
left to be voted for given the withdrawal of Edna and Federico's invalid
substitution. Maligaya, then, was not a second placer but the sole and only placer
in the elections. Hence, the doctrine of the second-placer would not apply to him.
The Issues
From the pleadings of the parties, the principal issues presented for resolution
are: (1) whether Federico could validly substitute Edna who withdrew her
candidacy for the mayoralty position; (2) whether Maligaya's Petition to Annul
Proclamation of Federico as mayor of Sto. Tomas, Batangas, docketed as SPC
No. 10-082, was filed on time; and (3) granting that Federico was disqualified,
whether he should be succeeded by Intervenor Silva under the LGC or replaced
by Maligaya.
Essentially, the issue thrust upon the Court is whether the Comelec gravely
abused its discretion when it annulled Federico's proclamation as the winning
candidate on the ground that his substitution as mayoralty candidate was void.
Federico insists that his substitution of Edna was valid and had long been final in
view of Comelec Resolution No. 8889. He likewise argues that his proclamation
as mayor of Sto. Tomas, Batangas, was valid and regular and, hence, it must be
upheld. cADaIH
The Court agrees with the position taken by the OSG representing public
respondent Comelec En Banc. The electoral commission committed no grave
abuse of discretion when it came out with its December 21, 2011 Resolution, 33 in
SPC No. 10-082, granting Maligaya's partial motion for reconsideration. The
Court shall discuss the issues in seriatim.
Federico argues that Comelec Resolution No. 8678 cannot prevail over the
provisions of Section 77 of Batas Pambansa Bilang 881, the Omnibus Election
Code (OEC), prescribing the rules on substitution of an official candidate of a
registered political party who dies, withdraws or is disqualified for any cause after
the last day for the filing of his COC. The law provides:
Federico posits that he timely filed his COC as it was not later than midday of the
day of the election. He argues that the law makes no distinction between the
different causes for substitution death, disqualification or withdrawal.
Regardless of the cause of substitution, the deadline for the filing of a substitute
COC is "not later than mid-day of the election." Accordingly, he asserts that he
validly substituted Edna having filed his COC and CONA on May 5, 2010 or five
(5) days before the elections and having complied with all the procedural
requirements for a valid substitution.
On January 23, 2007, Congress enacted Republic Act (R.A) No. 9369, An Act
Amending Republic Act No. 8436, Entitled 'An Act Authorizing
the Commission on Elections to Use an Automated Election System in the May
11, 1998 National or Local Elections and in Subsequent National and Local
Electoral Exercises,' to Encourage Transparency, Credibility, Fairness and
Accuracy of Elections, Amending for the Purpose Batas Pambansa Blg. 881, As
Amended, Republic Act No. 7166 and Other Related Elections Laws, Providing
Funds Therefor and for Other Purposes. Section 13 of said law partially provides:
For this purpose, the Commission shall set the deadline for
the filing of certificate of candidacy/petition of
registration/manifestation to participate in the election. Any
person who files his certificate of candidacy within this period
shall only be considered as a candidate at the start of the
campaign period for which he filed his certificate of
candidacy: Provided, That, unlawful acts or omissions applicable
to a candidate shall effect only upon that start of the aforesaid
campaign period: Provided, finally, That any person holding a
public appointive office or position, including active members of
the armed forces, and officers, and employees in government-
owned or -controlled corporations, shall be considered ipso
facto resigned from his/her office and must vacate the same at the
start of the day of the filing of his/her certification of candidacy.
(Emphasis supplied)
Under said provision, "the Comelec, which has the constitutional mandate to
enforce and administer all laws and regulations relative to the conduct of an
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election," 34has been empowered to set the dates for certain pre-election
proceedings. In the exercise of such constitutional and legislated power,
especially to safeguard and improve on the Automated Election System (AES),
Comelec came out with Resolution No. 8678.
As automated elections had been mandated by law, there was a need for the
early printing of the ballots. So that all candidates would be accommodated in the
ballots, the early filing of COCs was necessary. If there would be late filing and
approval of COCs, the names of aspiring candidates would not be included in the
ballot, the only document to be read by the Precinct Count Optical
Scan (PCOS) machines.
Regarding the May 10, 2010 automated elections, the Comelec came out with
Resolution No. 8678. On substitution, Section 13 thereof provides:
The substitute for a candidate who withdrew may file his certificate
of candidacy as herein provided for the office affected not later
than December 14, 2009.
As correctly pointed out by the OSG, it is clear from the foregoing that different
deadlines were set to govern the specific circumstances that would necessitate
the substitution of a candidate due to death, disqualification or withdrawal. In
case of death or disqualification, the substitute had until midday of the election
day to file the COC. In case of withdrawal, which is the situation at bench, the
substitute should have filed a COC by December 14, 2009.
The reason for the distinction can easily be divined. Unlike death or
disqualification, withdrawal is voluntary. Generally, a candidate has sufficient time
to ponder on his candidacy and to withdraw while the printing has not yet started.
If a candidate withdraws after the printing, the name of the substitute candidate
can no longer be accommodated in the ballot and a vote for the substitute will just
be wasted.
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When Batangas Governor Armando Sanchez died on April 27, 2010, Edna
withdrew her candidacy as mayor and substituted her late husband as
gubernatorial candidate for the province on April 29, 2010. The party actually had
the option to substitute another candidate for Governor aside from Edna. By
fielding Edna as their substitute candidate for Governor, the party knew that she
had to withdraw her candidacy for Mayor. Considering that the deadline for
substitution in case of withdrawal had already lapsed, no person could substitute
her as mayoralty candidate. The sudden death of then Governor Armando
Sanchez and the substitution by his widow in the gubernatorial race could not
justify a belated substitution in the mayoralty race. TIaDHE
As far as Maligaya is concerned, the resolution was void as it lacked legal basis
as Federico's substitution was invalid, his COC having been filed only on May 5,
2010, or after December 14, 2009, the deadline provided for under Section 13 of
Comelec Resolution No. 8678. No reason was mentioned in the resolution why
his COC was given due course except that the withdrawal "merely caused a
vacuum in mayoralty contest." 35 The resolution reads:
affected not later than December 14, 2009, is far from germane
considering that the vacancy arose by reason of the death of Governor
Sanchez.
To stress, the vacancy in the mayoralty race in Sto. Tomas, Batangas, was due to
the withdrawal of Edna as mayoralty candidate, not due to the death of Armando
Sanchez.
Accordingly, the Court agrees with the OSG that Resolution No. 8889 was void
as it was in contravention of the guidelines set forth under Resolution No. 8678.
With respect to Federico, it cannot be regarded as a valid source of any right, like
the right to be voted for public office. Indeed, a void judgment can never be final
and executory and may be assailed at any time. 36 cACEaI
Unquestionably, parties who had no participation therein were not bound by the
resolution. Federico cannot invoke res judicata, one of the requirements of which
is identity of parties. Stated differently, as Maligaya was not a party in the said
proceeding, Resolution No. 8889 was not binding on him.
COCVP in his name had no legal basis. Granting that those who voted for Edna
had in mind to vote for Federico, nonetheless, the fact that there was no
compliance with the rules cannot be ignored.
It was alleged that the MBOC of Sto. Tomas, Batangas, raised the hands
of Federico as the winner. As correctly pointed out by Maligaya, however, this was
impossible because the CCS printed the name of Edna Sanchez as the winner
on the first COCVP. Thereafter, the MBOC came out with a second COCVP, this
time, with the name ofFederico on it with the same number of votes as that of
Edna, and generated on the very same date and the very same time as the first
COCVP a physical impossibility.
It has been argued that there is no evidence that Maligaya became aware of the
issuance of the second COCVP in favor of Federico only on May 27, 2010. In this
regard, the Court believes that the actions taken by Maligaya after the elections
and the separate proclamations of Edna and Federico strongly indicate that he
was telling the truth. Indeed, there is no rhyme or reason why he should file a
petition questioning the proclamation of Edna if he had knowledge of the
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Accordingly, the Comelec did not abuse its discretion when it annulled the actions
of the MBOC and the proclamation of Federico. Such exercise is within its powers
under the law to administer and enforce election laws.
Considering that Maligaya was the winner, the position of Intervenor Silva that he
be considered the legal successor of Federico, whom he claims failed to qualify,
has no legal basis. There is simply no vacancy. When there is no vacancy, the
rule on succession under Section 44 42 of the LGC cannot be invoked.
SO ORDERED.
MAYOR EMMANUEL
L. MALIKSI, petitioner, vs. COMMISSION ON ELECTIONS and
HOMER T. SAQUILAYAN, respondents.
DECISION
CARPIO, J : p
The Case
Before the Court is a petition for certiorari 1 assailing the 14 September 2012
Resolution 2 of the Commission on Elections (COMELEC) En Banc which
affirmed the 15 August 2012 Resolution 3 of the COMELEC First Division in EAC
(AE) No. A-22-2011.
Maliksi filed an election protest before the Regional Trial Court of Imus, Cavite,
Branch 22 (trial court), questioning the results of the elections in 209 clustered
precincts. The case was docketed as Election Protest No. 009-10. In its 15
November 2011 Decision, the trial court declared Maliksi as the duly elected
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Municipal Mayor of Imus, Cavite. The trial court ruled that Maliksi garnered
41,088 votes as against Saquilayan's 40,423 votes. Thus, based on the trial
court's recount, Maliksi won over Saquilayan by a margin of 665 votes. The
dispositive portion of the trial court's decision reads: STcDIE
WHEREFORE, in view of all the foregoing, this Court finds the Election
Protest filed by Emmanuel L. Maliksi meritorious. Accordingly,
Emmanuel L. Maliksi is hereby DECLARED as the duly elected Mayor of
the Municipality of Imus, Province of Cavite after having obtained the
highest number of legal votes of 41,088 as against Protestant Homer T.
Saquilayan's 40,423 votes or a winning margin of 665 votes in favor of
the former.
SO ORDERED. 4
Saquilayan filed an appeal before the COMELEC, docketed as EAC (AE) No. A-
22-2011. Meanwhile, in a Special Order dated 28 November 2011, the trial court
grantedMaliksi's motion for execution pending appeal.
3.On ballots with ambiguous votes. It has been the position of the
Commission to always take into consideration [that] the intent of the
voter shall be given effect, taking aside any technicalities. A ballot
indicates the voter's will. In the reading and appreciation of ballots,
every ballot is presumed valid unless there is a clear reason to justify
its rejection. The object in the appreciation of ballots is to ascertain and
carry into effect the intention of the voter, if it can be determined with
reasonable certainty. DSIaAE
4.On spurious ballots. Ballots have security features like bar codes,
ultra-violet inks and such other security marks to be able to preserve its
integrity and the PCOS machines were programmed to accept genuine
and valid ballots only. Further, the ballots used in the elections were
precinct specific, meaning, the PCOS machine assigned to a specific
precinct will only accept those ballots designated to such precinct. This
follows that the digital images stored in the CF cards are digital images
of genuine, authentic and valid ballots. In the absence of any evidence
proving otherwise, the Commission will not invalidate a vote cast which
will defeat the sovereign will of the electorate.
After the counting and appreciation of the ballot images in the CF cards of the
appealed clustered precincts, the COMELEC First Division came up with the
following findings: CIAHaT
COMELEC First Division stated that unless one of the clustered precincts had a
photocopying machine, it could only mean that an official ballot was taken out of
the polling place to be photocopied, in violation of Section 30 (a) of COMELEC
Resolution No. 8786. 7 The dispositive portion of the 15 August 2012 Resolution
reads:
SO ORDERED. 8
The COMELEC En Banc ruled that the COMELEC First Division did not err in
ordering the decryption, printing, and examination of the ballot images in the CF
cards instead of recounting the physical ballots. The COMELEC En Banc stated
that when the case was elevated to it on appeal, it immediately noted an
"unprecedented number of double-votes involving 8,387 ballots exclusively
affecting the position of Mayor and specifically affecting the ballots for
Saquilayan." 9 The COMELEC En Banc further noted: TECcHA
. . . . Worth noting also is that these 8,387 ballots all came from 53
clustered precincts specifically pinpointed by Maliksi as his pilot precincts
(which is 20% of the total precincts he protested) thereby affecting a
total of 33.38% or more than one-third (1/3) of the total ballots cast in
those precincts. We find this too massive to have not been detected on
election day, too specific to be random and too precise to be accidental
which leaves a reasonable mind no other conclusion except that those
8,387 cases of double-shading were purposely machinated. These
dubious and highly suspicious circumstances left us with no other option
but to dispense with the physical ballots and resort to their digital
images. To recount the tampered ballots will only yield us tampered
results defeating the point of this appeal. 10
The COMELEC En Banc also ruled that it is free to adopt procedures that will
ensure the speedy disposition of its cases as long as the parties are amply heard
on their opposing claims. The COMELEC En Banc ruled that the decryption,
printing, and examination of the ballot images in the CF cards are not without
basis since a Division, through its Presiding Commissioner, may take such
measures as he may deem proper to resolve cases pending before it. The
COMELEC En Banc ruled that Maliksi was not denied due process because he
never questioned the Order of decryption by the COMELEC First Division nor did
he raise any objection in any of his pleadings. Further, the ballot images are not
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mere secondary images, as Maliksi claimed. The digital images of the physical
ballots, which are instantaneously written in the CF cards by the
PCOS 11 machines the moment the ballots are read and counted, are equivalent
to the original for the purpose of the best evidence rule. The COMELEC En Banc
accorded higher evidentiary value to the ballot images because their integrity are
more secure for the following reasons:
(4)the CF cards storing the digital images of all the ballots used in the
10 May 2010 elections are kept in a secured facility within the
Commission to prevent unauthorized access. 12
The COMELEC En Banc further ruled that the result of the revision proceedings
in the trial court could not be admitted because of the finding by the COMELEC
First Division that the recounted ballots were tampered. The COMELEC En Banc
explained:
Finally, the COMELEC En Banc ruled that Maliksi had no basis to call for the
inhibition of Commissioners Sarmiento and Velasco. Commissioner Lim
voluntarily inhibited himself from the case.
SO ORDERED. 14
The Issues
The overriding issue in this petition for certiorari is whether the COMELEC En
Banc committed grave abuse of discretion amounting to lack or excess of
jurisdiction in issuing its assailed Resolution dated 14 September 2012. In
resolving this issue, we shall examine:
In a Motion dated 21 March 2011 filed before the trial court, 15 Saquilayan moved
for the printing of the images of the ballots in the CF cards of the contested
clustered precincts. Thus, it cannot be said that Saquilayan asked for decryption
of the ballot images for the first time only on appeal. Saquilayan had called the
attention of the trial court to the unusually large number of double-shaded ballots
affecting only the position of Mayor, giving rise to a strong suspicion of tampering
of the ballots and ballot boxes. However, the trial court did not immediately act on
his motion, as shown by Saquilayan's Omnibus Motion to Resolve and for
Issuance of Order 16 dated 14 April 2011.
In an Omnibus Order 17 dated 3 May 2011, the trial court granted Saquilayan's
motion for the printing of the ballot images in the CF cards. The trial court gave
Saquilayan a period of 30 days within which to accomplish the printing of the
ballot images. Saquilayan received a copy of the Omnibus Order on 10 May
2011. On 11 May 2011, he sent a letter to the COMELEC requesting it to forward
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at the soonest time the CF cards of the protested precincts to the COMELEC
Election Records and Statistics Department (ERSD) to enable the decrypting and
printing of the ballot images. It turned out that the CF cards were still with the trial
court. Thus, in a Manifestation and Request 18 dated 20 May 2011, Saquilayan
asked the trial court to forward the CF cards of the protested precincts to the
ERSD to enable the COMELEC to decrypt and print the ballot images. TICaEc
In an Order 19 dated 17 June 2011, the trial court noted that the ERSD already
specified the main and back-up CF cards that were used in the 10 May 2010
National and Local Elections in Imus, Cavite and the decryption and copying of
the ballot images was scheduled to start on 21 June 2011. The trial court then
requested the ERSD to specify the procedure that the ERSD would undertake for
the decryption of the ballot images. In a letter 20 dated 20 June
2011, Maliksi wrote the ERSD requesting that further proceedings be deferred
and held in abeyance in deference to the 17 June 2011 Order of the trial court
requiring the ERSD to specify the procedure it would undertake for the
decryption.
Thereafter, Maliksi filed a Motion to Consider That Period Has Lapsed to Print
Ballot's Picture Images, 21 alleging that Saquilayan was only given a maximum of
30 days within which to accomplish the printing of the ballot
images. Maliksi alleged that the period, which was until 22 June 2011, had
lapsed and Saquilayan should be considered barred from having access to the
electronic data in the COMELEC's back-up server to print the ballot images in the
CF cards. The trial court granted Maliksi's motion in its Order dated 3 August
2011. 22 The trial court stated that Saquilayan should have included in his motion
to have access to the electronic data a request for the trial court to turn over to
the COMELEC the CF cards in its possession. As it turned out, the delay in the
turn over of the CF cards likewise delayed the printing of the ballot images in the
CF cards.
It is clear from the foregoing events that the delay in the printing of the ballot
images could not be attributed to Saquilayan alone. In its 17 June 2011 Order,
the trial court set a conference on 27 June 2011 upon Maliksi's motion to request
Election Law Cases
The records also showed that Maliksi was aware of the decryption, printing, and
examination of the ballot images by the COMELEC First Division. The COMELEC
First Division issued an Order 23 dated 28 March 2012 directing Saquilayan to
deposit the required amount for expenses for the supplies, honoraria, and fee for
the decryption of the CF cards, and a copy of the Order was personally delivered
to Maliksi's counsel. 24 Maliksi's counsel was likewise given a copy of
Saquilayan's Manifestation of Compliance with the 28 March 2012 Order. 25 In an
Order 26 dated 17 April 2012, the COMELEC First Division directed Saquilayan to
deposit an additional amount for expenses for the printing of additional ballot
images from four clustered precincts, and a copy of the Order was again
personally delivered toMaliksi's counsel. 27 The decryption took weeks to finish.
Clearly, Maliksi was not denied due process. He received notices of the
decryption, printing, and examination of the ballot images by the COMELEC First
Division. In addition, Maliksi raised his objections to the decryption in his motion
for reconsideration before the COMELEC En Banc. The Court has ruled:
We do not agree. We have already ruled that the ballot images in the CF cards,
as well as the printouts of such images, are the functional equivalent of the
official physical ballots filled up by the voters, and may be used in an election
protest.
printouts of such images have the same evidentiary value as the official physical
ballots filled up by the voters. DacASC
Section 2 (3) of R.A. No. 9369 defines "official ballot" where AES is
utilized as the "paper ballot, whether printed or generated by the
technology applied, that faithfully captures or represents the votes cast
by a voter recorded or to be recorded in electronic form."
We agree, therefore, with both the HRET and Panotes that the picture
images of the ballots, as scanned and recorded by the PCOS, are
likewise "official ballots" that faithfully captures (sic) in electronic form the
votes cast by the voter, as defined by Section 2 (3) of R.A. No. 9369. As
such, the printouts thereof are the functional equivalent of the paper
ballots filled out by the voters and, thus, may be used for purposes of
revision of votes in an electoral protest. ADcSHC
It bears stressing that the digital images of the ballots captured by the
PCOS machine are stored in an encrypted format in the CF cards.
"Encryption is the process of encoding messages (or information) in
such a way that eavesdroppers or hackers cannot read it, but that
authorized parties can. In an encryption scheme, the message or
information (referred to as plaintext) is encrypted using an encryption
algorithm, turning it into an unreadable ciphertext. This is usually done
with the use of an encryption key, which specifies how the message is to
be encoded. Any adversary that can see the ciphertext, should not be
able to determine anything about the original message. An authorized
party, however, is able to decode the ciphertext using a decryption
algorithm, that usually requires a secret decryption key, that adversaries
do not have access to." 35 (Citations omitted)
Hence, the COMELEC First Division did not gravely abuse its discretion in using
the ballot images in the CF cards.
Maliksi further alleged that the ballot images in the CF cards should merely be
considered as secondary evidence and should be resorted to only when the
physical ballots are not available or could not be produced.
Maliksi is mistaken.
The ballot images, which are digital, are electronically generated and written in
the CF cards when the ballots are fed into the PCOS machine. The ballot images
are the counterparts produced by electronic recording which accurately
reproduce the original, and thus are the equivalent of the original. As pointed out
by the COMELEC, "[t]he digital images of the physical ballots are electronically
and instantaneously generated by the PCOS machines once the physical ballots
are fed into and read by the machines." 37 Hence, the ballot images are not
secondary evidence. The official physical ballots and the ballot images in the CF
cards are both original documents. The ballot images in the CF cards have the
same evidentiary weight as the official physical ballots. HDIATS
The Court notes that Maliksi did not raise any allegation that the use of the ballot
images falls under any of the exceptions under Section 2, Rule 4 of A.M. No. 01-
7-01-SC that would make their use inadmissible as original ballots.
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Contrary to Maliksi's claim, Saquilayan questioned the integrity of the ballot boxes
and election paraphernalia before the trial court. In an Urgent Manifestation of
Concern and Objections 38 dated 8 June 2010, Saquilayan manifested his serious
concern regarding the integrity of the ballot boxes and election paraphernalia
which remained under the effective control of Maliksi. Saquilayan informed the
trial court that his watchers were being limited to the outside of the building where
the ballot boxes and election paraphernalia were kept, thus preventing them from
looking over the security of the ballot boxes and election paraphernalia. In the
same manifestation, Saquilayan categorically stated that he was "questioning the
integrity of the ballot boxes and other election paraphernalia." 39 Saquilayan also
alleged in the same manifestation that the trial court could have prescribed a
procedure that would allow his watchers to view the ballot boxes and other
election paraphernalia that "would have prevented to some degree the tampering
of the boxes and election material[s]." 40 Clearly, Saquilayan raised before the
trial court the issue of tampering of the ballots and ballot boxes.
Further, the COMELEC En Banc clarified in its Comment 41 that the COMELEC
First Division ordered the decryption, printing, and examination of the digital
images because the COMELEC First Division "discovered upon inspection that
the integrity of the ballots themselves was compromised and that the ballot boxes
were tampered." 42 The COMELEC First Division properly invoked Section 6 (f),
Rule 2 of the COMELEC Rules of Procedure which states:
In this case, the COMELEC En Banc categorically stated that the recounting of
the physical ballots in the revision before the trial court yielded dubious results.
The COMELEC En Banc stressed:
. . . . Worth noting also is that these 8,387 ballots all came from 53
clustered precincts specifically pinpointed by Maliksi as his pilot
precincts (which is 20% of the total precincts he protested)
thereby affecting a total of 33.38% or more than one-third (1/3) of
the total ballots cast in those precincts. We find this too massive
to have not been detected on election day, too specific to be
random and too precise to be to be n accidental which leaves a
reasonable mind no other conclusion except that those 8,387
cases of double-shading were purposely machinated. These
dubious and highly suspicious circumstances left us with no
other option but to dispense with the physical ballots and resort
to their digital images. To recount the tampered ballots will only
yield us tampered results defeating the point of this
appeal. 43 (Emphasis supplied) TaCDAH
The tampering of the ballots and ballot boxes had been fully established and it
justified the decryption of the ballot images in the CF cards.
We see nothing wrong with the inclusion of the matter of inhibition in the
Resolution. Commissioners Sarmiento and Velasco signed the Resolution which
means they concurred with the COMELEC En Banc's ruling that the motion for
their inhibition had no basis. Maliksi himself pointed out that the matter of
inhibition is better left to the Commissioner's discretion and thus, he could not
impose the inhibition of Commissioners Sarmiento and Velasco just because
Commissioner Lim inhibited himself from the case. Commissioners Sarmiento
and Velasco are not even required, although they are neither prohibited, to
individually explain their vote or to individually answer the motion for inhibition,
like what Commissioner Lim did. In this case, the COMELEC En Banc ruled on
the motion for inhibition. Moreover, the dissent of Commissioners Lim and
Velasco in SPR (AE) No. 106-2011 is not a prejudgment of EAC (AE) No. A-22-
2011. While the two cases involved the same parties, the only issue in SPR (AE)
No. 106-2011 is the issuance of a temporary restraining order to stop the
execution of the trial court's decision pending appeal. Contrary to Maliksi's
allegation, the ruling in SPR (AE) No. 106-2011 on the temporary restraining
order is not a confirmation of the validity of the decision subject of the appeal in
EAC (AE) No. A-22-2011. In the same manner, the fact that Commissioner Elias
R. Yusoph did not take part in SPR (AE) No. 106-2011 does not mean he should
also take no part in EAC (AE) No. A-22-2011 considering that they involve
different issues. STaAcC
SO ORDERED.
Sereno, C.J., Del Castillo, Abad, Villarama, Jr., Perlas-Bernabe and Leonen,
JJ., concur.
Perez, J., I certify that J. Perez left his vote of concurrence with the ponencia of J.
Carpio.
Separate Opinions
I DISSENT.
Petitioner Emmanuel L. Maliksi and respondent Homer T. Saquilayan vied for the
position of Mayor of the Municipality of Imus, Cavite during the May 10, 2010
Elections. The Municipal Board of Canvassers (MBC) proclaimed Saquilayan as
the winner garnering 48,181 votes, while Maliksi came in second with 39,682
votes. Maliksi filed an election protest in the Regional Trial Court (RTC) in Imus,
Cavite, alleging discrepancies and irregularities in the counting of votes in 209
clustered precincts. SEcTHA
Based on the results of the revision, the RTC rendered its November 15, 2011
decision, declaring Maliksi as the duly-elected Mayor, thus:
WHEREFORE, in view of all the foregoing, this Court finds the Election
Protest filed by Emmanuel L. Maliksi meritorious. Accordingly,
Emmanuel L. Maliksi is herebyDECLARED as the duly elected Mayor of
the Municipality of Imus, Province of Cavite after having obtained the
highest number of legal votes of 41,088 as against Protestant Homer T.
Saquilayan's 40,423 votes or a winning margin of 665 votes in favor of
the former.
SO ORDERED. 1
In the meantime, Maliksi moved for execution pending appeal, and the RTC
granted his motion. Thus, Maliksi was seated as Mayor, prompting Saquilayan to
assail the grant of the motion via petition for certiorari in the COMELEC
(docketed as SPR (AE) No. 106-2011).
After the parties filed their respective briefs in EAC (AE) No. A-22-2011, the
COMELEC First Division issued an order dated March 28, 2012, requiring
Saquilayan to deposit the amount necessary for the printing of the ballot images,
thus:
In as much as the printing of ballot image in the instant case would entail
expense for supplies, honoraria, one-time fee for the use of the system in
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the decryption of the CF cards, and storage fee for the ballot boxes, it is
hereby RESOLVED that the appellant be directed to deposit to the Cash
Division of the Commission, the amount of One Hundred Nineteen
Thousand Seven Hundred Fourteen Pesos (P119,714.00)
SO ORDERED. 2 aEIADT
The First Division later issued another order dated April 17, 2012, requiring
Saquilayan to augment his cash deposit. 3
Finally, on August 15, 2012, the First Division issued a resolution nullifying the
RTC's decision, 4 to wit:
SO ORDERED. 5
Pursuant to this principle, to be able to determine fully the true will of the
electorate, we scrutinized the appealed ballots by using its digital images
since there is an allegation of ballot tampering.
Maliksi filed an omnibus motion, 7 seeking, inter alia, the reconsideration of the
First Division Resolution based on the following arguments, namely: (a) the
decryption proceedings violated his right to due process and were null and void
for being held without notice to the parties; and (b) ballot images were secondary
evidence that could be resorted to only in the event that the ballots were
unavailable, or when sufficient proof existed that tampering or substitution had
taken place.
SO ORDERED. 8
Maliksi brought this special civil action for certiorari, reiterating that: (a) his right to
due process of law was violated when he was not notified of the decryption,
printing and examination of the digital images of the ballots; and (b) the printouts
of the picture images of the ballots were secondary evidence to be resorted to
only when the ballots were not available, or when there was evidence that the
integrity of the ballots had not been preserved.
I submit that the proceedings conducted by the First Division, the results of which
became the basis of the questioned resolution, were void and ineffectual for
being in abject violation of Maliksi's right to due process of law.
The picture images of the ballots are electronic documents that are regarded as
the equivalents of the original official ballots themselves. 9 In Vinzons-Chato v.
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House of Representatives Electoral Tribunal, 10 the Court held that "the picture
images of the ballots, as scanned and recorded by the PCOS, are likewise
'official ballots' that faithfully capture in electronic form the votes cast by the voter,
as defined by Section 2 (3) of R.A. No. 9369. As such, the printouts thereof are
the functional equivalent of the paper ballots filled out by the voters and, thus,
may be used for purposes of revision of votes in an electoral protest."
That the two documents the official ballot and its picture image are
considered "original documents" simply means that both of them are given equal
probative weight. In short, when either is presented as evidence, one is not
considered as weightier than the other.
But this juridical reality does not authorize the courts, the COMELEC, and
the Electoral Tribunals to quickly and unilaterally resort to the printouts of
the picture images of the ballots in the proceedings had before them
without notice to the parties. Despite the equal probative weight accorded
to the official ballots and the printouts of their picture images, the rules for
the revision of ballots adopted for their respective proceedings still
consider the official ballots to be the primary or best evidence of the voters'
will. In that regard, the picture images of the ballots are to be used only
when it is first shown that the official ballots are lost or their integrity has
been compromised.
(m)In the event that the revision committee determines that the
integrity of the ballots and the ballot box have not been preserved,
as when proof of tampering or substitution exists, it shall proceed to
instruct the printing of the picture image of the ballots stored in the data
storage device for the precinct. The court shall provide a non-partisan
technical person who shall conduct the necessary authentication
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process to ensure that the data or image stored is genuine and not
a substitute. Only after this determination can the printed picture
image be used for the recount.
(q)In the event that the RC determines that the integrity of the ballots
and the ballot box was not preserved, as when there is proof of
tampering or substitution, it shall proceed to instruct the printing of the
picture image of the ballots of the subject precinct stored in the data
storage device for the same precinct.The Tribunal may avail itself of
the assistance of the COMELEC for the service of a non-partisan
technical person who shall conduct the necessary authentication
process to ensure that the data or images stored are genuine and
not merely substitutes. It is only upon such determination that the
printed picture image can be used for the revision of votes. aCASEH
Section 6, Rule 15 of COMELEC Resolution No. 8804 (In Re: Comelec Rules of
Procedure on Disputes in an Automated Election System in Connection with the
May 10, 2010 Elections) itself requires that "the Recount Committee
determines that the integrity of the ballots has been violated or has not
been preserved, or are wet and otherwise in such a condition that (the
ballots) cannot be recounted" before the printing of the image of the ballots
should be made, and that such printing should be done "in the presence of
the parties," to wit:
(l)In the event the Recount Committee determines that the integrity of
the ballots has been violated or has not been preserved, or are wet
and otherwise in such a condition that it cannot be recounted, the
Chairman of the Committee shall request from the Election Records and
Statistics Department (ERSD), the printing of the image of the ballots of
the subject precinct stored in the CF card used in the May 10, 2010
elections in the presence of the parties. Printing of the ballot images
shall proceed only upon prior authentication and certification by a duly
authorized personnel of the Election Records and Statistics Department
(ERSD) that the data or the images to be printed are genuine and not
substitutes. (As amended by COMELEC Resolution No. 9164, March 16,
2011) cACHSE
All the foregoing rules on revision of ballots stipulate that the printing of
the picture images of the ballots may be resorted to only after the proper
Revision/Recount Committee has first determined that the integrity of the
ballots and the ballot box was not preserved. The foregoing rules further
require that the decryption of the images stored in the CF cards and the
printing of the decrypted images take place during the revision or recount
proceedings, and that it is the Revision/Recount Committee that
determines whether the ballots are unreliable.
There is a good reason for thus fixing where and by whom the decryption and the
printing should be conducted. It is during the revision or recount conducted by the
Revision/Recount Committee when the parties are allowed to be represented,
with their representatives witnessing the proceedings and timely raising their
objections in the course of the proceedings. Moreover, whenever the
Revision/Recount Committee makes any determination that the ballots have been
tampered and have become unreliable, the parties are immediately made aware
of such determination. IDTcHa
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Here, however, it was not the Revision/Recount Committee or the RTC exercising
its original jurisdiction over the protest that made the finding that the ballots had
been tampered, but the First Division in the exercise of its appellate
jurisdiction. Maliksi was not immediately made aware of that crucial finding
because the First Division did not even issue any written resolution stating its
reasons for ordering the printing of the picture images.
The parties were formally notified that the First Division had found that the ballots
had been tampered only when they received the resolution of August 15, 2012,
whereby the First Division nullified the decision of the RTC and declared
Saquilayan as the duly elected Mayor. Even so, the resolution of the First Division
that effect was unusually mute about the factual bases for the finding of ballot box
tampering, and did not also particularize how and why the First Division was
concluding that the integrity of the ballots had been compromised. All that the
First Division uttered as justification was a simple generality of the same being
apparent from the allegations of ballot and ballot box tampering and upon
inspection of the ballot boxes, viz.:
It was the COMELEC En Banc's assailed resolution of September 14, 2012 that
later on provided the explanation to justify the First Division's resort to the picture
images of the ballots, by observing that the "unprecedented number of double-
votes" exclusively affecting the position of Mayor and the votes for Saquilayan
had led to the belief that the ballots had been tampered. However, that
observation did not cure the First Division's lapse and did not erase the
irregularity that had already invalidated the First Division's proceedings. ICHAaT
Election Law Cases
The blatant disregard of Maliksi's right to be informed of the decision to print the
picture images of the ballots and to conduct the recount proceedings during the
appellate stage cannot be brushed aside by the invocation of the fact
that Maliksi was able to file, after all, a motion for reconsideration. To be exact,
the motion for reconsideration was actually directed against the entire resolution
of the First Division, while Maliksi's claim of due process violation is directed only
against the First Division's recount proceedings that resulted in the prejudicial
result rendered against him. I note that the First Division did not issue any order
directing the recount. Without the written order, Maliksi was deprived of the
chance to seek any reconsideration or even to assail the irregularly-held recount
through a seasonable petition for certiorari in this Court. In that context, he had
no real opportunity to assail the conduct of the recount proceedings.
I disagree that the service of the orders requiring Saquilayan to make the cash
deposits for the printing of the picture images made Maliksi aware of the First
Division's decision to print the picture images. The orders still did not meet the
requirement of due process because they did not specifically inform Maliksi that
the ballots had been found to be tampered. Nor did the orders offer the factual
bases for the finding of tampering. Hence, to leave for Maliksi to surmise on the
factual bases for finding the need to print the picture images still violated the
principles of fair play, because the responsibility and the obligation to lay down
the factual bases and to inform Maliksi as the party to be potentially prejudiced
thereby firmly rested on the shoulders of the First Division.
As I see it, the First Division arbitrarily arrogated unto itself the conduct of the
revision/recount proceedings and recounted the ballots, contrary to the regular
procedure of remanding the protest to the RTC and directing the reconstitution of
the Revision Committee for the decryption and printing of the picture images and
the revision of the ballots on the basis thereof. Quite unexpectedly, the
COMELEC En Banc upheld the First Division's unwarranted deviation from the
standard procedures by invoking the COMELEC's power to "take such measures
as [the Presiding Commissioner] may deem proper," and even citing the Court's
minute resolution in Alliance of Barangay Concerns (ABC) Party-
Election Law Cases
List v. Commission on Elections 12 to the effect that the "COMELEC has the
power to adopt procedures that will ensure the speedy resolution of its cases.
The Court will not interfere with its exercise of this prerogative so long as the
parties are amply heard on their opposing claims." 13 CADHcI
The COMELEC En Banc should not have upheld the deviation of the First
Division. Based on the pronouncement in Alliance of Barangay Concerns v.
COMELEC, the power of the COMELEC to adopt procedures that will ensure the
speedy resolution of its cases should still be exercised only after giving to all the
parties the opportunity to be heard on their opposing claims. The parties' right to
be heard upon adversarial issues and matters is never to be waived or sacrificed,
or to be treated so lightly because of the possibility of the substantial prejudice to
be thereby caused to the parties, or to any of them.
In other words, what took place at the SET were the internal
deliberations of the COMELEC, as a quasi-judicial body, in the course of
appreciating the evidence presented and deciding the provincial election
contest on the merits. These deliberations are no different from judicial
deliberations which are considered confidential and privileged. We find it
significant that the private respondent's Comment fully supported the
COMELEC's position and disavowed any participation in the contested
proceeding the petitioner complained about. The petitioner, on the other
hand, has not shown that the private respondent was ever present in any
proceeding at the SET relating to the provincial election contest.
Moreover, I respectfully point out that the First Division should not conduct
the proceedings now being assailed because it was then exercising
appellate jurisdiction as to which no existing rule of procedure allowed the
First Division to conduct the recount in the first instance. The recount
proceedings authorized under Section 6, Rule 15 of COMELEC Resolution
No. 8804, are to be conducted by the COMELEC Divisions only in the
Election Law Cases
On the other hand, we have Section 6 (l), Rule 15 of COMELEC Resolution No.
8804, as amended by COMELEC Resolution No. 9164, which clearly requires the
parties' presence during the printing of the images of the ballots, thus:
(l)In the event the Recount Committee determines that the integrity of the
ballots has been violated or has not been preserved, or are wet and
otherwise in such a condition that it cannot be recounted, the Chairman
of the Committee shall request from the Election Records and Statistics
Department (ERSD), the printing of the image of the ballots of the
subject precinct stored in the CF card used in the May 10, 2010
elections in the presence of the parties. Printing of the ballot images
shall proceed only upon prior authentication and certification by a duly
authorized personnel of the Election Records and Statistics Department
(ERSD) that the data or the images to be printed are genuine and not
substitutes. (Emphasis supplied.)
I write this dissent not to validate the victory of any of the parties in the 2010
Elections. That is not the concern of the Court as yet. I dissent only because the
Court should not countenance a denial of the fundamental right to due process,
which is a cornerstone of our legal system. 17
I am mindful of the urgent need to speedily resolve this protest because the term
of the Mayoralty position involved is about to end. Accordingly, I urge that we
quickly remand this case to the COMELEC, instead of to the RTC, for the conduct
of the decryption, printing and recount proceedings, with due notice to all the
parties and opportunity for them to be present and to participate during such
proceedings. Nothing less serves the ideal objective safeguarded by the
Constitution. cHCSDa
Election Law Cases
IN VIEW OF THE FOREGOING, I vote to GRANT the petition for certiorari, and
to REMAND the protest to the Commission on Elections for the decryption of the
picture images of the ballots after due authentication, for the printing of the
decrypted ballot images, and for the conduct of the recount proceedings using
the printouts of the ballot images, with notice to and in the presence of the parties
or their representatives.
||| (Maliksi v. COMELEC, G.R. No. 203302, [March 12, 2013])
DECISION
PERLAS-BERNABE, J : p
Assailed in this Petition for Certiorari and Prohibition under Rule 65 of the Rules
of Court is the March 22, 2012 Decision 1 of the House of Representatives
Electoral Tribunal (HRET) in HRET Case No. 10-031 (QW) which declared the
validity of private respondent Lucy Marie Torres-Gomez's substitution as the
Liberal Party's replacement candidate for the position of Leyte Representative
(Fourth Legislative District) in lieu of Richard Gomez.
The Facts
On November 30, 2009, Richard Gomez (Richard) filed his certificate of
candidacy 2 (CoC) with the Commission on Elections (COMELEC), seeking
congressional office as Representative for the Fourth Legislative District of Leyte
under the ticket of the Liberal Party. Subsequently, on December 6, 2009, one of
the opposing candidates, Buenaventura Juntilla (Juntilla), filed a Verified
Petition, 3 alleging that Richard, who was actually a resident of Colgate Street,
Election Law Cases
East Greenhills, San Juan City, Metro Manila, misrepresented in his CoC that he
resided in 910 Carlota Hills, Can-adieng, Ormoc City. In this regard, Juntilla
asserted that Richard failed to meet the one (1) year residency requirement
under Section 6, Article VI 4 of the 1987 Philippine Constitution (Constitution) and
thus should be declared disqualified/ineligible to run for the said office. In
addition, Juntilla prayed that Richard's CoC be denied due course and/or
cancelled. 5
SO ORDERED.
Aggrieved, Richard moved for reconsideration but the same was denied by the
COMELEC En Banc through a Resolution dated May 4, 2010. 7 Thereafter, in a
Manifestation of even date, Richard accepted the said resolution with finality "in
order to enable his substitute to facilitate the filing of the necessary documents
for substitution." 8
The crux of the opposition stemmed from the issue that there should be
no substitution because there is no candidate to substitute for.
The following day, or on May 9, 2010, Juntilla filed an Extremely Urgent Motion
for Reconsideration 12 (May 9, 2010 Motion) of the above-mentioned
COMELEC En Bancresolution.
Pending resolution of Juntilla's May 9, 2010 Motion, the national and local
elections were conducted as scheduled on May 10, 2010. During the elections,
Richard, whose name remained on the ballots, garnered 101,250 votes while his
opponents, namely, Eufrocino Codilla, Jr. and herein petitioner Silverio Tagolino,
obtained 76,549 and 493 votes, respectively. 13 In view of the aforementioned
substitution, Richard's votes were credited in favor of private respondent and as a
result, she was proclaimed the duly-elected Representative of the Fourth District
of Leyte.
On May 11, 2010, Juntilla filed an Extremely Urgent Motion to resolve the
pending May 9, 2010 Motion relative to Resolution No. 8890. 14 The said motion,
however, remained unacted. AIDTSE
On May 24, 2010, petitioner filed a Petition 15 for quo warranto before the HRET
in order to oust private respondent from her congressional seat, claiming that: (1)
she failed to comply with the one (1) year residency requirement under Section 6,
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Article VI of the Constitution considering that the transfer of her voter registration
from San Rafael, Bulacan 16 to the Fourth District of Leyte was only applied for on
July 23, 2009; (2) she did not validly substitute Richard as his CoC was void ab
initio; and (3) private respondent's CoC was void due to her non-compliance with
the prescribed notarial requirements i.e., she failed to present valid and
competent proof of her identity before the notarizing officer. 17
It is petitioner's submission that the HRET gravely abused its discretion when it
upheld the validity of private respondent's substitution despite contrary
jurisprudence holding that substitution is impermissible where the substituted
candidate's CoC was denied due course to and/or cancelled, as in the case of
Richard. On the other hand, respondents maintain that Richard's CoC was not
denied due course to and/or cancelled by the COMELEC as he was only
"disqualified" and therefore, was properly substituted by private respondent.
The foregoing variance gains utmost importance to the present case considering
its implications on candidate substitution.
As defined under Section 79 (a) of the OEC, the term "candidate" refers to any
person aspiring for or seeking an elective public office who has filed a
certificate of candidacy by himself or through an accredited political party,
aggroupment, or coalition of parties. Clearly, the law requires that one must have
validly filed a CoC in order to be considered a candidate. The requirement of
having a CoC obtains even greater importance if one considers its nature. In
particular, a CoC formalizes not only a person's public declaration to run for office
but evidences as well his or her statutory eligibility to be elected for the said post.
In Sinaca v. Mula, 44 the Court has illumined:
In this regard, the CoC is the document which formally accords upon a person
the status of a candidate. In other words, absent a valid CoC one is not
considered a candidate under legal contemplation. As held in Talaga: 45
. . . a person's declaration of his intention to run for public office and his
affirmation that he possesses the eligibility for the position he seeks to
assume, followed by the timely filing of such declaration, constitute
a valid CoC that render the person making the declaration a valid
or official candidate. (Emphasis supplied)
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C. Divergent effects of
disqualification and denial of due
course to and/or cancellation of COC
cases vis--vis candidate substitution
Proceeding from the foregoing discourse, it is evident that there lies a clear-cut
distinction between a disqualification case under Section 68 and denial of due
course to and/or cancellation of COC case under Section 78 vis--vis their
respective effects on candidate substitution under Section 77.
Yet the fact that the COMELEC First Division's February 17, 2010 Resolution did
not explicitly decree the denial of due course to and/or cancellation of Richard's
CoC should not have obviated the COMELEC En Banc from declaring the
invalidity of private respondent's substitution. It should be stressed that the clear
and unequivocal basis for Richard's "disqualification" is his failure to comply with
the residency requirement under Section 6, Article VI of the Constitution which is
a ground for the denial of due course to and/or cancellation a CoC under Section
78 of the OEC, not for disqualification. 50 As earlier mentioned, the material
misrepresentation contemplated under a Section 78 petition refers to statements
affecting one's qualifications for elective office such as age, residence and
citizenship or non-possession of natural-born Filipino status. 51 There is
therefore no legal basis to support a finding of disqualification within the
ambit of election laws. Accordingly, given Richard's non-compliance with the
one year residency requirement, it cannot be mistaken that the COMELEC First
Division's unqualified grant of Juntilla's "Verified Petition to Disqualify Candidate
for Lack of Qualification" 52 which prayed that the COMELEC declare Richard
"DISQUALIFIED and INELIGIBLE from seeking the office of Member of the
House of Representatives" and ". . . that [his] Certificate of Candidacy . . . be
DENIED DUE COURSE and/or CANCELLED" 53 carried with it the denial of
due course to and/or cancellation of Richard's CoC pursuant to Section 78.
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Case law dictates that if a petition prays for the denial of due course to and/or
cancellation of CoC and the same is granted by the COMELEC without any
qualification, the cancellation of the candidate's CoC is in order. This is precisely
the crux of the Miranda ruling wherein the Court, in upholding the COMELEC En
Banc's nullification of the substitution in that case, decreed that the COMELEC
Division's unqualified grant of the petition necessarily included the denial of due
course to and/or cancellation of the candidate's CoC, notwithstanding the use of
the term "disqualified" in the COMELEC Division's resolution, as the foregoing
was prayed for in the said petition:
The question to settle next is whether or not aside from Joel "Pempe"
Miranda being disqualified by the COMELEC in its May 5, 1998
resolution, his certificate of candidacy had likewise been denied due
course and cancelled.
SO ORDERED.
The same rule was later discussed in the case of Talaga, viz.:
In Miranda v. Abaya, the specific relief that the petition prayed for was
that the CoC "be not given due course and/or cancelled". The
COMELEC categorically granted "the petition" and then pronounced
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In view of the foregoing rulings, the COMELEC En Banc direly misconstrued the
COMELEC First Division's February 17, 2010 Resolution when it adopted the
Law Department's finding that Richard was only "disqualified" and that his CoC
was not denied due course to and/or cancelled, paving the way for the approval
of private respondent's substitution. It overlooked the fact that the COMELEC
First Division's ruling encompassed the cancellation of Richard's CoC and in
consequence, disallowed the substitution of private respondent. It was therefore
grave and serious error on the part of the COMELEC En Banc to have approved
private respondent's substitution.
Fundamental is the rule that grave abuse of discretion arises when a lower court
or tribunal patently violates the Constitution, the law or existing
jurisprudence. 54 While it is well-recognized that the HRET has been empowered
by the Constitution to be the "sole judge" of all contests relating to the election,
returns, and qualifications of the members of the House, the Court maintains
jurisdiction over it to check "whether or not there has been a grave abuse of
discretion amounting to lack or excess of jurisdiction" on the part of the
latter. 55 In other words, when the HRET utterly disregards the law and settled
precedents on the matter before it, it commits a grave abuse of discretion.
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Records clearly show that: (1) Richard was held ineligible as a congressional
candidate for the Fourth District of Leyte due to his failure to comply with the one
year residency requirement; (2) Juntilla's petition prayed for the denial of due
course to and/or cancellation of his CoC; and (3) the COMELEC First Division
granted the foregoing petition without any qualification. By these undisputed and
essential facts alone, the HRET should not have adopted the COMELEC En
Banc's erroneous finding that the COMELEC First Division's February 17, 2010
Resolution "speaks [only] of "disqualification and not of cancellation of [Richard's]
CoC" 56 and thereby, sanctioned the substitution of private respondent.
Private respondent concludes from the above that petitioner had no legal
basis to claim that the HRET, when reference to the qualification/s of
Members of the House of Representatives is concerned, is "co-equal", to
the COMELEC, such that the HRET cannot disregard any ruling of
COMELEC respecting the matter of eligibility and qualification of a
member of the House of Representatives. The truth is the other way
around, because the COMELEC is subservient to the HRET when
the dispute or contest at issue refers to the eligibility and/or
qualification of a Member of the House of Representatives. A
petition for quo warranto is within the exclusive jurisdiction of the HRET
as sole judge, and cannot be considered forum shopping even if
another body may have passed upon in administrative or quasi-
judicial proceedings the issue of the Member's qualification while
the Member was still a candidate. There is forum-shopping only where
two cases involve the same parties and the same cause of action. The
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two cases here are distinct and dissimilar in their nature and character.
(Emphasis and underscoring supplied)
Nonetheless, it must be pointed out that the HRET's independence is not without
limitation. As earlier mentioned, the Court retains certiorari jurisdiction over the
HRET if only to check whether or not it has gravely abused its discretion. In this
regard, the Court does not endeavor to denigrate nor undermine the HRET's
independence; rather, it merely fulfills its duty to ensure that the Constitution and
the laws are upheld through the exercise of its power of judicial review.
In fine, the Court observes that the HRET wantonly disregarded the law by
deliberately adopting the COMELEC En Banc's flawed findings regarding private
respondent's eligibility to run for public office which essentially stemmed from her
substitution. In this light, it cannot be gainsaid that the HRET gravely abused its
discretion.
Owing to the lack of proper substitution in this case, private respondent was
therefore not a bona fide candidate for the position of Representative for the
Fourth District of Leyte when she ran for office, which means that she could not
have been elected. Considering this pronouncement, there exists no cogent
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reason to further dwell on the other issues respecting private respondent's own
qualification to office.
SO ORDERED.
Sereno, C.J., Carpio, Villarama, Jr., Perez, Reyes and Leonen, JJ., concur.
Separate Opinions
I vote to deny the petition of Silverio R. Tagolino on the ground that after the
lapse of the reglementary period of ten (10) days from the date of proclamation of
respondent Lucy Marie Torres-Gomez as the duly elected Representative of the
Fourth Legislative District of Leyte, the said proclamation can no longer be
assailed by an election protest or a petition for quo warranto. Moreover, the
substitution by said respondent of her husband Richard Gomez cannot be
questioned, there being no factual basis to assail the decision of
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No joint election protest shall be admitted, but the Tribunal, for good and
sufficient reasons, may consolidate individual protests and hear and
decide them jointly.
The protest is verified by an affidavit that the affiant has read it and that
the allegations therein are true and correct of his knowledge and belief.
A verification based on "information and belief," or upon "knowledge,
information and belief," is not a sufficient verification.
after the proclamation of the winner. The party filing the petition shall be
designated as the petitioner while the adverse party shall be known as
the respondent.
This Court has emphasized the importance of compliance with the HRET Rules
prescribing reglementary periods to be observed by the parties in an election
contest to expedite the disposition of election controversies so as not to frustrate
the will of the electorate. In Hofer v. House of Representatives Electoral
Tribunal, 1 the Court sustained the dismissal by the HRET of the election protest
for failure to comply strictly with the period prescribed by the HRET Rules. IDTSaC
Petitioner's remedies should have been (1) to reiterate her prayer in the
petition for disqualification, and move for the issuance of an order by the
COMELEC suspending the proclamation of private respondent pending
the hearing of the said petition and, in the event the motion was denied
before the proclamation of private respondent, file a petition
for certiorari in this Court with a prayer for a restraining order to enjoin
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The HRET and this Court cannot set aside at will the HRET Rules mandating the
timely filing of election contests. Otherwise, a dangerous precedent will be set
that will cause uncertainty in the application of the HRET Rules and instability in
the holding of an elective post by a proclaimed winning candidate that may
aversely affect public service.
Based on these standards, we find that Mitra did not commit any
deliberate material misrepresentation in his COC. The COMELEC
gravely abused its discretion in its appreciation of the evidence, leading it
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The ponencia of Justice Bernabe indulged in the legal fiction that the certificate of
candidacy of Richard Gomez was cancelled when it in fact was not. Neither can
the Court now on its own decree such cancellation in the absence of any factual
basis or evidentiary support for a finding that Richard Gomez committed a
"deliberate attempt to mislead, misinform, or hide a fact that would otherwise
render [him] ineligible."
candidates to be voted for by the entire electorate of the country, with the
Commission.
On February 20, 2010 Richard moved for reconsideration of the above resolution.
Juntilla, on the other hand, did not file a similar motion even when the COMELEC
failed to grant his other prayer for denial of due course or cancellation of
Richard's CoC.
The crux of the opposition stemmed from the issue that there
should be no substitution because there is no candidate to
substitute for.
On the same day the COMELEC En Banc issued its May 8, 2010 resolution
allowing the substitution, Juntilla filed an Extremely Urgent Motion for
Reconsideration 7 of the same but the motion remained unacted upon, obviously
owing to the supervening May 10 elections. Juntilla never elevated or questioned
the matter before the Supreme Court.
On May 12, 2010 the Leyte Provincial Board of Canvassers proclaimed Lucy
Gomez as Congresswoman-elect to represent the 4th District of Leyte, having
obtained 101,250 votes. Petitioner Silvestre R. Tagolino and another candidate,
Eufrocino C. Codilla, Jr., garnered 493 votes and 76,549 votes, respectively.
In due time, Tagolino brought a quo warranto action 8 against Lucy Gomez with
the House of Representatives Electoral Tribunal (HRET) pursuant to its Rule 17
which allows the filing of a petition for quo warranto contesting the election of a
member of the House of Representatives "on the ground of ineligibility or
disloyalty to the Republic." Juntilla did not join Tagolino in this action. cSIHCA
Tagolino alleged in his petition (1) that Lucy Gomez was not a resident of Ormoc
City at least one year immediately preceding the election; (2) that she was not a
registered voter in the 4th District of Leyte; and (3) that her CoC was void for
failing to comply with the requirements of Section 2 of the 2004 Notarial
Law. 9 Tagolinodid not raise in his petition the question of the validity of Lucy
Gomez's substitution of her husband Richard.
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In her Answer, 10 Lucy Gomez averred: (a) that the petition was filed beyond 10
days from proclamation; (b) that the petition assails the validity of her CoC, which
is outside the jurisdiction of the HRET and should have been assailed before the
COMELEC through a petition to deny due course to or cancel her CoC; (c) that
the COMELEC had already resolved her substitution of Richard with finality in its
Resolution 8890; (d) that she did not have to present proof of her identity when
her CoC was notarized the notary public personally knew her; and (e) she never
abandoned her domicile in Ormoc City despite her change of residence and
transfer of voting registration to San Rafael, Bulacan, arising from her marriage to
Richard.
On March 22, 2010 the HRET rendered a Decision 11 dismissing the quo
warranto petition and declaring Lucy Gomez a qualified candidate during the May
2010 election for the subject position, her substitution of her disqualified husband
being valid and legal. HRET ruled that Lucy Gomez's domicile continued to be
Ormoc City despite her marriage to Richard. Tagolino moved for reconsideration
but HRET denied the same on May 28, 2012, hence, this petition.
Question Presented
As the ponencia would have it, the issue boils down to the question of whether or
not Lucy Gomez validly substituted Richard whom the COMELEC declared
disqualified for lack of residency.
But the above is not an accurate statement of the real issue in this case. The real
issue in this case is whether or not the HRET can review and reverse a
COMELEC Decision involving a member of the House of Representatives that
had become final and executory.
Discussion
The election of Lucy Gomez as Congresswoman of the 4th District of Leyte was
preceded by two separate incidents before the COMELEC:
in his prayer that the candidate's CoC be also cancelled or denied due course.
The COMELEC First Division granted the petition and disqualified Richard but did
not cancel or deny due course to his CoC.
The second incident involved Lucy Gomez. Juntilla opposed her substitution of
Richard on the ground that the substitution was invalid since she had no one to
substitute in view of the COMELEC First Division's disqualification of Richard by
final order. But the COMELEC En Banc denied the opposition and allowed the
substitution, given that the First Division's resolution, which merely disqualified
Richard, had already become final and executory.
The key issue in this case is actually whether or not the HRET was correct in
ruling that the COMELEC First Division's February 17, 2010 Resolution that
disqualified Richard but did not cancel his CoC or deny it due course had already
become final and executory. For, if it had indeed become final and executory, that
resolution would, as the COMELEC En Banc held in its May 8, 2010 Resolution,
provide legal basis for Lucy Gomez's substitution of Richard.
It is clear from the facts that the COMELEC First Division's February 17, 2010
Resolution, which merely disqualified Richard but did not cancel or deny due
course to his CoC, became final and executory. That resolution may be in error,
as the ponencia would have it, but it certainly became final and executory for the
following reasons:
Second. Only Richard filed a motion for reconsideration of the COMELEC First
Division's February 17, 2010 Resolution, which merely disqualified him. When
the COMELEC En Banc dismissed that motion for reconsideration on May 4,
2010, Richard filed a manifestation on the same day, accepting its validity. On
May 5 the COMELEC En Banc declared its May 4, 2010 Resolution final and
executory. Consequently, what remained the last window of opportunity to review
and possibly reverse the COMELEC First Division's February 17, 2010
Resolution closed down.
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Third. Juntilla attempted to revive the issue concerning the COMELEC First
Division's February 17, 2010 Resolution when he opposed Lucy Gomez's
substitution of Richard. He claimed that the First Division's resolution resulted in
the COMELEC denying due course to Richard's CoC with the effect that, without
a valid one, he could not be substituted. But Juntilla is clearly in error since the
COMELEC En Banc already declared on May 5 that the First Division's February
17 Resolution merely ordered Richard's disqualification and such resolution had
irreversibly become final and executory.
But the above ruling should be understood in the context of the facts of
the Farias case. Guillermo Ruiz, a registered voter, filed a petition with the
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Farias won the elections and was promptly proclaimed. On May 16, 1998,
however, Ruiz filed a motion for reconsideration of the Second Division's May 10
Resolution, contending that Farias could not validly substitute for Chevylle, since
the latter was not the official candidate of the Lakas ng Makabayan Masang
Pilipino but was an independent candidate. Meantime, on June 3, 1998 Farias
took his oath as member of the House of Representatives. caADSE
On June 10, 1998 petitioner Arnold Guerrero, a rival candidate, filed a petition-in-
intervention with the COMELEC, assailing Farias' substitution of Chevylle. On
January 6, 1999, the COMELEC En Banc dismissed Ruiz's motion for
reconsideration and Guerrero's petition-in-intervention for lack of jurisdiction
since Farias had in the meantime assumed office.
Upon Guerrero's petition, this Court held that while the COMELEC has the power
to declare a CoC valid or invalid, its refusal to exercise that power, following
Farias' proclamation and assumption of office, simply recognized the
jurisdictional boundaries between the COMELEC and the HRET. The Court said
that whether Farias validly substituted Chevylle must now be addressed to the
sound judgment of the HRET. The COMELEC's jurisdiction over election contests
relating to his election, returns, and qualifications ends, and the HRET's own
jurisdiction begins.
First, the Court's thesis in Farias is that the HRET can take over a pending
matter before the COMELEC since the latter may be considered ousted of its
jurisdiction over the same upon the winner's assumption of office. The HRET
takes over the authority to resolve such pending matter.
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Here, however, the key issue of whether or not the COMELEC First Division's
February 17, 2010 Resolution, which merely disqualified Richard but did not
cancel his CoC, is no longer a pending matter. It became final and executory
since, as pointed out above, Juntilla did not file a motion for its reconsideration
and the COMELEC En Banchad found it to be the case.
Second, Guerrero had the right to raise the issue of Farias' disqualification
before the HRET since he intervened and joined cause with Guillermo in his
action before the COMELEC. This gave Guerrero a stake in the resolution of
Guillermo's motion for reconsideration after the COMELEC declined to further act
on the same.
And third, Tagolino is barred from claiming that, in disqualifying Richard, the
COMELEC's First Division in effect caused the cancellation of his
CoC. Tagolino made a binding admission during the Preliminary Conference
before the HRET that the COMELEC did not in fact order such cancellation of
Richard's CoC. 14 Thus, Tagolinoadmitted that:
5. Said May 4, 2010 Resolution of the Comelec did not order the
cancellation of Gomez' certificate of candidacy; (Emphasis
supplied)
Tagolino's admission in paragraph 5 above that the COMELEC did not order
the cancellation of Richard Gomez's certificate of candidacy is binding on him,
especially since he makes no allegation that he made such admission through
palpable mistake. 15
True, the parties raised before the HRET the issue of "whether the substitution of
respondent is valid." But this merely accords with Lucy Gomez's defense in her
answer that the COMELEC had already resolved her substitution of Richard with
finality in its Resolution 8890. It did not mean that the parties were submitting to
the HRET for resolution the issue of the final and executory nature of the
COMELEC First Division's resolution that enabled her to substitute for Richard.
So the Court comes to the real issue in this case: whether or not the HRET can
review and reverse a COMELEC decision, involving a member of the House of
Representatives, that had already become final and executory.
The HRET has no authority to review final and executory resolutions or decisions
of the COMELEC that it rendered pursuant to its powers under the Constitution,
no matter if such resolutions or decisions are erroneous. The parties cannot by
agreement confer such authority on HRET. Neither the HRET nor the Court can
set aside the COMELEC's final and executory resolutions that paved the way for
Lucy Gomez to substitute her husband.
As for Lucy Gomez's residency qualification, the evidence presented in the case
amply supports HRET's conclusion that she met such qualification.
DECISION
REYES, J : p
This is a petition for certiorari under Rule 64 in relation to Rule 65 of the Rules of
Court filed by Abang Lingkod Party-List (ABANG LINGKOD) assailing the
Resolution 1dated May 10, 2013 issued by
the Commission on Elections (COMELEC) En Banc in SPP No. 12-238 (PLM),
which, inter alia, affirmed the cancellation of ABANGLINGKOD's registration as a
party-list group.
The Facts
ABANG LINGKOD is a sectoral organization that represents the interests of
peasant farmers and fisherfolks, and was registered under the party-list system
on December 22, 2009. It participated in the May 2010 elections, but failed to
obtain the number of votes needed for a seat in the House of Representatives.
On May 31, 2012, ABANG LINGKOD manifested before the COMELEC its intent
to participate in the May 2013 elections. On August 2, 2012, the COMELEC
issued Resolution No. 9513, 2 which, inter alia, required previously registered
party-list groups that have filed their respective Manifestations of Intent to
undergo summary evidentiary hearing for purposes of determining their
continuing compliance with the requirements under Republic Act (R.A.) No.
7941 3 and the guidelines set forth inAng Bagong Bayani-OFW Labor Party v.
COMELEC. 4
ABANG LINGKOD then filed with this Court a petition 5 for certiorari, alleging that
the COMELEC gravely abused its discretion in cancelling its registration under
the party-list system. The said petition was consolidated with the separate
petitions filed by fifty-one (51) other party-list groups whose registration were
cancelled or who were denied registration under the party-list system. The said
party-list groups, including ABANG LINGKOD, were able to obtain status quo
ante orders from this Court.
Thus, the Court remanded to the COMELEC the cases of previously registered
party-list groups, including that of ABANG LINGKOD, to determine whether they
are qualified under the party-list system pursuant to the new parameters laid
down by the Court and, in the affirmative, be allowed to participate in the May
2013 party-list elections.
In support of the instant petition, ABANG LINGKOD claims that the COMELEC
gravely abused its discretion when it affirmed the cancellation of its
registration sans a summary evidentiary hearing for that purpose, asserting that
the COMELEC should have allowed it to present evidence to prove its
qualification as a party-list group pursuant to Atong Paglaum. It claims that there
was no valid justification for the COMELEC to cancel its registration considering
that it complied with the six-point parameters in screening party-list groups laid
down in Atong Paglaum. DaTISc
On the other hand, the COMELEC avers that the instant petition should be
dismissed for utter lack of merit. It asserts that ABANG LINGKOD was not denied
due process when the COMELEC affirmed the cancellation of its registration
since it was given every reasonable opportunity to be heard. The COMELEC
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The Issues
In sum, the issues presented for the Court's resolution are the
following: first, whether ABANG LINGKOD was denied due process when the
COMELEC affirmed the cancellation of its registration under the party-list
system sans any summary evidentiary hearing; and second, whether the
COMELEC gravely abused its discretion in
cancelling ABANG LINGKOD's registration under the party-list system.
In the instant case, while the petitioner laments that it was denied due process,
the Court finds that the COMELEC had afforded ABANG LINGKOD sufficient
opportunity to present evidence establishing its qualification as a party-list group.
It was notified through Resolution No. 9513 that its registration was to be
reviewed by the COMELEC. That ABANG LINGKOD was able to file
its Manifestation of Intent and other pertinent documents to prove its continuing
compliance with the requirements under R.A. No. 7941, which the COMELEC set
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for summary hearing on three separate dates, belies its claim that it was denied
due process.
Contrary to ABANG LINGKOD's claim, the Court, in Atong Paglaum, did not
categorically require the COMELEC to conduct a summary evidentiary hearing
for the purpose of determining the qualifications of the petitioners therein
pursuant to the new parameters for screening party-list groups. The dispositive
portion of Atong Paglaum reads: CcaASE
The records also disclose that ABANG LINGKOD was able to file with the
COMELEC a motion for reconsideration of the Resolution dated May 10, 2013,
negating its claim that it was denied due process. As it has been held, deprivation
of due process cannot be successfully invoked where a party was given a chance
to be heard on his motion for reconsideration. 12
The flaw in the COMELEC's disposition lies in the fact that it insists on requiring
party-list groups to present evidence showing that they have a track record in
representing the marginalized and underrepresented.
R.A. No. 7941 did not require groups intending to register under the party-list
system to submit proof of their track record as a group. The track record
requirement was only imposed in Ang Bagong Bayani where the Court held that
national, regional, and sectoral parties or organizations seeking registration
under the party-list system must prove through their, inter alia, track record that
they truly represent the marginalized and underrepresented, thus:
. . . In this light, the Court finds it appropriate to lay down the following
guidelines, culled from the law and the Constitution, to assist the
Comelec in its work.
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In Atong Paglaum, the Court has modified to a great extent the jurisprudential
doctrines on who may register under the party-list system and the representation
of the marginalized and underrepresented. For purposes of registration under the
party-list system, national or regional parties or organizations need not
represent any marginalized and underrepresented sector; that representation
of the marginalized and underrepresented is only required of sectoral
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organizations that represent the sectors stated under Section 5 of R.A. No.
7941 that are, by their nature, economically marginalized and underrepresented.
Likewise, that there was no explicit reversal of the guidelines in Ang Bagong
Bayani in Atong Paglaum does not mean that groups intending to register under
the party-list system are still required to submit a track record. The track record of
groups intending to register under the party-list system was required under the
first guideline of Ang Bagong Bayani for a very specific purpose to show that
the national, regional, and sectoral parties or organizations that would be allowed
to participate in the party-list elections are truly representative of the
marginalized and underrepresented sectors. It was necessary then to require
groups seeking registration under the party-list system since representation of the
marginalized and underrepresented, as understood in the context of Ang Bagong
Bayani, is easy to claim and feign.
There exists no reason to further require groups seeking registration under the
party-list system to submit evidence showing their track record. Pursuant
to Atong Paglaum, not all groups are required to represent the marginalized and
underrepresented sectors and, accordingly, there is no longer any incentive in
merely feigning representation of the marginalized and underrepresented sectors.
In the case of sectoral organizations, although they are still required to represent
the marginalized and underrepresented, they are likewise not required to show a
track record since there would be no reason for them to feign representation of
the marginalized and underrepresented as they can just register as a national or
regional party or organization. Thus, the Court, in Atong Paglaum, stated that, for
purposes of registration under the party-list system, it is enough that the principal
advocacy of sectoral organizations pertains to the sector/s they represent.
There is thus no basis in law and established jurisprudence to insist that groups
seeking registration under the party-list system still comply with the track record
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Anent the photographs submitted by ABANG LINGKOD, these only show book-
giving and medical missions, which are activities it conducted. Suffice it to state,
however, that said activities do not specifically or directly pertain to the interest or
advocacy espoused by ABANG LINGKOD. As such, the misrepresentation
committed by ABANGLINGKOD with regard to said activities would not
necessarily militate against its representation of the farmers and fisherfolk.
Lest it be misunderstood, the Court does not condone the deceit perpetrated
by ABANG LINGKOD in connection with its bid for continued registration under
the party-list system. That ABANG LINGKOD, to establish its track record,
submitted photographs that were edited to make it appear that it conducted
activities aimed at ameliorating the plight of the sectors it represents is a factual
finding by the COMELEC, which the Court, considering that it is supported by
substantial evidence, will not disturb. The Court does not
tolerate ABANG LINGKOD's resort to chicanery and its shabby treatment of the
requirements for registration under the party-list system.
Further, the Court notes that the COMELEC, in its Resolution dated November 7,
2012, asserted that ABANG LINGKOD failed to adduce evidence that would
show the track record of its five nominees, composed of a non-government
organization worker, an employee and three farmers, in uplifting the cause of the
sector that the group represents. The COMELEC opined that the failure
of ABANG LINGKOD to present a track record of its nominees justified the
cancellation of its registration as a party-list group.
The Court does not agree. Assuming arguendo that the nominees
of ABANG LINGKOD, as opined by the COMELEC, indeed do not have track
records showing their participation in activities aimed at improving the conditions
of the sector that the group represents, the same would not affect the registration
of ABANG LINGKOD as a party-list group.
To stress, in Atong Paglaum, the Court pointed out that "[t]he nominees of
sectoral parties or organizations that represent the 'marginalized and
underrepresented,' or that represent those who lack 'well-defined political
constituencies,' either must belong to their respective sectors, or must have
a track record of advocacy for their respective sectors. Stated otherwise, the
nominee of a party-list groups may either be: first, one who actually belongs to
the sector which the party-list group represents, in which case the track record
requirement does not apply; or second, one who does not actually belong to the
sector which the party-list group represents but has a track record showing the
nominee's active participation in activities aimed at uplifting the cause of the
sector which the group represents."
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SO ORDERED.
Velasco, Jr., Leonardo-de Castro, Peralta, Bersamin, Abad, Villarama, Jr., Perez,
Mendoza and Perlas-Bernabe, JJ., concur.
Separate Opinions
The Commission on Elections did not gravely abuse its discretion so as to give
due course to this Petition. Reversing the Commission on Elections in this case
makes us party to the mockery of the electoral process done by the petitioner.
Petitioner ABANG LINGKOD filed its Petition for Registration and Accreditation as
a sectoral party on December 19, 2000. 3 The Commission on Elections granted
the Petition on December 22, 2009. 4 The petitioner participated in the 2010
party-list elections but failed to obtain the required 2% of the votes cast, and it
was not able to get a seat in the House of Representatives. 5
On May 31, 2012, ABANG LINGKOD filed its Manifestation of Intent to Participate
in the Party-list System of Representation in the May 2013 elections. 6
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According to the respondent, it set three (3) hearing dates (August 17, August 31,
and September 3, 2012) for petitioner to present its witness and prove continuing
compliance with the requirements under Republic Act No. 7941. Petitioner failed
to present its witness on these hearing dates. 7
On November 22, 2012, the petitioner and more than fifty (50) other party-list
groups filed a Petition for Certiorari with Prayer for Immediate Issuance of a Writ
of Preliminary Injunction and Temporary Restraining Order and/or Status Quo
Ante Order assailing the November 7, 2012 Resolution of
the Commission on Elections En Banc.
On May 10, 2013, the Commission on Elections issued the assailed Resolution,
affirming the cancellation of ABANG LINGKOD's registration under the party-list
system. The Commission on Elections issued the Resolution without any
summary evidentiary hearing and explained its Decision, to wit:
On May 12, 2013, petitioner ABANG LINGKOD filed an Extremely Urgent Motion
for Reconsideration before the Commission on Elections En Banc. However,
because of the exigencies of the case, the petitioner filed on May 15, 2013 a
Manifestation with Motion to Withdraw its Extremely Urgent Motion for
Reconsideration since the results of the May 13, 2013 elections were then being
canvassed, and the public respondent Commission on Elections may not have
the time to pass upon the merits of the case.
The petitioner then filed the current Petition for Certiorari (With Prayer for
Immediate Issuance of a Writ of Preliminary Injunction and Temporary
Restraining Order and/or Status Quo Ante Order).
Respondent, on the other hand, asserted that proof of track record and the
proscription against declaring untruthful statements in a party-list organization's
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Petition are requirements of the law reiterated in the cases of Ang Bagong
Bayani and Atong Paglaum.
It added that the petitioner does not have a vested right in its registration and
accreditation as a party-list organization.
We should deny the Petition for the reason that the Commission on Elections did
not commit grave abuse of discretion in denying the registration of
petitioner ABANGLINGKOD.
This constitutional provision serves as the basis for this Court's review of
the Commission on Elections' rulings under the standards of Rule 65 through
Rule 64 of the Rules of Court. 12 Such power of review of this Court must be
exercised under the standard of grave abuse of
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discretion. In Ocate v. Commission on Elections, 13 this Court laid down the rule
in resolving petitions for certiorari under Rule 64, to wit:
national elections. The kind of record that is required by law is not the same as
that which was formerly required in Ang Bagong Bayani. This requirement is
evident from an analysis of the provisions of Republic Act No. 7941 and the
interpretations of this Court. DEHaAS
The Declaration of Principles or Section 2 of Republic Act No. 7941 provides that:
. . . the State shall develop and guarantee a full, free and open party
system in order to attain the broadest possible representation of party,
sectoral or group interests in the House of Representatives by
enhancing their chances to compete for and win seats in the
legislature, and shall provide the simplest scheme possible.
group. All these are what the law, Republic Act No. 7941, requires from parties
that aspire to participate in the party-list elections.
With regard to this Court's interpretation of the provisions of the law, We recently
redefined party-list groups and set new parameters in determining who may
participate in the party-list elections, to wit:
This redefinition was based on a plain reading of Article VI, Section 5 (1) of the
1987 Constitution. In Atong Paglaum, We said that:
that the party-list system is not exclusively for sectoral parties for two
obvious reasons.
R.A. No. 7941 does not require national and regional parties or
organizations to represent the "marginalized and
underrepresented" sectors. To require all national and regional parties
under the party-list system to represent the "marginalized and
underrepresented" is to deprive and exclude, by judicial fiat, ideology-
based and cause-oriented parties from the party-list system. . . . . 22
The ponencia in this case supposes that when the majority in Atong
Paglaum declared as part of the fifth (5th) parameter that the "nominees of the
sectoral party either must belong to the sector, or must have a track record of
advocacy for the sector represented," it meant that the track record
requirement will only apply to the sectoral groups. I take a contrary view,
especially since this Court in several cases already deemed track record as one
of the factors considered in allowing groups to participate in party-list elections,
although discussed in the previous definition or framework of party-list groups. 27
The redefinition of the parameters for party-list registration to include national and
regional parties or organizations did not remove the requirement of showing that
these groups existed prior to the elections they wish to participate in and that they
indeed operate as genuine organizations. I maintain that the record of a party
or an organization's genuineness and bona fide existence is necessary for
all parties and organizations, whether national, regional or sectoral. This
will show whether the party-list group is genuine and not an expediently
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created formation that does not have any advocacy. This is evident from the
law, particularly from Section 5 of Republic Act No. 7941, to wit:
It is important for the groups to show that they are capable of participating in the
elections and that they will not make a mockery of the electoral system,
specifically the party-list system.
It is the parties or organizations, and not only the nominees, that must have a
concrete and verifiable record of political participation that shows how their
political platforms have been translated into action. It must be noted that when
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When the Commission on Elections made this statement, it was clearly reviewing
the qualifications of the party and not just its nominees.
Atong Paglaum did not in any way remove the genuineness and bona
fide existence requirements for registration with the Commission on Elections,
contrary to the stand taken by the ponencia. It only qualified that
the nominees of sectoral parties or organizations need not
prove both membership in their sector and record of advocacy for their respective
sectors. Atong Paglaum did not categorically state that party-list groups are not
required to show records of its genuineness and bona fide existence.
Untruthful statements
The Commission on Elections did not commit grave abuse of discretion in
cancelling ABANG LINGKOD's registration under the party-list system when the
party-list group made an "untruthful statement" in its Petition, thereby violating
Section 6 of Republic Act No. 7941. Section 6 provides:
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(8)It fails to participate in the last two (2) preceding elections or fails to
obtain at least two per centum (2%) of the votes cast under the party-list
system in the two (2) preceding elections for the constituency in which it
has registered. (Emphasis provided) AHCaES
RULE 1
RULE 2
OPPOSITION TO A PETITION FOR REGISTRATION
Section 2.Grounds for opposition to a petition for registration.
The Commission may deny due course to the petition motu propio or
upon verified opposition of any interested party, after due notice and
hearing, on any of the following grounds:
h.It has ceased to exist for a period of at least one (1) year;
All these clearly state that the declaration of untruthful statements is a ground for
cancelling the registration of a party-list group. However, the ponencia states that:
I do not question the point that the disqualification of one or some of the
nominees of party-list groups will not automatically result to disqualification. I
agree that a party-list group must be treated separately and distinctly from its
nominees, such that the qualifications of the nominees are not considered part
and parcel of the qualifications of the party-list itself. However, in this case, when
the digitally manipulated pictures were submitted by ABANG LINGKOD, it was
done to prove the continuous qualifications of the party-list group for
registration with the Commission on Elections. 34 The "photoshopped" or altered
pictures indicating the name of the party-list group were intended to deceive
people into thinking that the group was engaging in joint medical and dental
mission and book-giving activities.
The brazen use of falsified documents of ABANG LINGKOD in its compliance for
registration is deplorable and appalling because of the obvious intent to deceive
theCommission on Elections and the electorate. It cannot be tolerated. It
denigrates the right to suffrage. Submitting falsified documents is tantamount to
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WHEREFORE, I vote to DENY the Petition. The Resolution dated May 10, 2013
issued by the Commission on Elections in SPP Case No. 12-238 (PLM) should
be AFFIRMED.
||| (Abang Lingkod Party List v. COMELEC, G.R. No. 206952, [October 22, 2013])
DECISION
PERLAS-BERNABE, J : p
Assailed in this Petition for Certiorari and Prohibition under Rule 65 of the Rules
of Court is the March 22, 2012 Decision 1 of the House of Representatives
Electoral Tribunal (HRET) in HRET Case No. 10-031 (QW) which declared the
validity of private respondent Lucy Marie Torres-Gomez's substitution as the
Liberal Party's replacement candidate for the position of Leyte Representative
(Fourth Legislative District) in lieu of Richard Gomez.
The Facts
On November 30, 2009, Richard Gomez (Richard) filed his certificate of
candidacy 2 (CoC) with the Commission on Elections (COMELEC), seeking
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SO ORDERED.
Aggrieved, Richard moved for reconsideration but the same was denied by the
COMELEC En Banc through a Resolution dated May 4, 2010. 7 Thereafter, in a
Manifestation of even date, Richard accepted the said resolution with finality "in
order to enable his substitute to facilitate the filing of the necessary documents
for substitution." 8
The crux of the opposition stemmed from the issue that there should be
no substitution because there is no candidate to substitute for.
The following day, or on May 9, 2010, Juntilla filed an Extremely Urgent Motion
for Reconsideration 12 (May 9, 2010 Motion) of the above-mentioned
COMELEC En Bancresolution.
Pending resolution of Juntilla's May 9, 2010 Motion, the national and local
elections were conducted as scheduled on May 10, 2010. During the elections,
Richard, whose name remained on the ballots, garnered 101,250 votes while his
opponents, namely, Eufrocino Codilla, Jr. and herein petitioner Silverio Tagolino,
obtained 76,549 and 493 votes, respectively. 13 In view of the aforementioned
substitution, Richard's votes were credited in favor of private respondent and as a
result, she was proclaimed the duly-elected Representative of the Fourth District
of Leyte.
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On May 11, 2010, Juntilla filed an Extremely Urgent Motion to resolve the
pending May 9, 2010 Motion relative to Resolution No. 8890. 14 The said motion,
however, remained unacted. AIDTSE
On May 24, 2010, petitioner filed a Petition 15 for quo warranto before the HRET
in order to oust private respondent from her congressional seat, claiming that: (1)
she failed to comply with the one (1) year residency requirement under Section 6,
Article VI of the Constitution considering that the transfer of her voter registration
from San Rafael, Bulacan 16 to the Fourth District of Leyte was only applied for on
July 23, 2009; (2) she did not validly substitute Richard as his CoC was void ab
initio; and (3) private respondent's CoC was void due to her non-compliance with
the prescribed notarial requirements i.e., she failed to present valid and
competent proof of her identity before the notarizing officer. 17
It is petitioner's submission that the HRET gravely abused its discretion when it
upheld the validity of private respondent's substitution despite contrary
jurisprudence holding that substitution is impermissible where the substituted
candidate's CoC was denied due course to and/or cancelled, as in the case of
Richard. On the other hand, respondents maintain that Richard's CoC was not
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The foregoing variance gains utmost importance to the present case considering
its implications on candidate substitution.
As defined under Section 79 (a) of the OEC, the term "candidate" refers to any
person aspiring for or seeking an elective public office who has filed a
certificate of candidacy by himself or through an accredited political party,
aggroupment, or coalition of parties. Clearly, the law requires that one must have
validly filed a CoC in order to be considered a candidate. The requirement of
having a CoC obtains even greater importance if one considers its nature. In
particular, a CoC formalizes not only a person's public declaration to run for office
but evidences as well his or her statutory eligibility to be elected for the said post.
In Sinaca v. Mula, 44 the Court has illumined:
In this regard, the CoC is the document which formally accords upon a person
the status of a candidate. In other words, absent a valid CoC one is not
considered a candidate under legal contemplation. As held in Talaga: 45
. . . a person's declaration of his intention to run for public office and his
affirmation that he possesses the eligibility for the position he seeks to
assume, followed by the timely filing of such declaration, constitute
a valid CoC that render the person making the declaration a valid
or official candidate. (Emphasis supplied)
C. Divergent effects of
disqualification and denial of due
course to and/or cancellation of COC
cases vis--vis candidate substitution
Proceeding from the foregoing discourse, it is evident that there lies a clear-cut
distinction between a disqualification case under Section 68 and denial of due
course to and/or cancellation of COC case under Section 78 vis--vis their
respective effects on candidate substitution under Section 77.
the same does not obtain, however, in a disqualification case since there remains
to be a candidate to be substituted, although his or her candidacy is
discontinued.
Yet the fact that the COMELEC First Division's February 17, 2010 Resolution did
not explicitly decree the denial of due course to and/or cancellation of Richard's
CoC should not have obviated the COMELEC En Banc from declaring the
invalidity of private respondent's substitution. It should be stressed that the clear
and unequivocal basis for Richard's "disqualification" is his failure to comply with
the residency requirement under Section 6, Article VI of the Constitution which is
a ground for the denial of due course to and/or cancellation a CoC under Section
78 of the OEC, not for disqualification. 50 As earlier mentioned, the material
misrepresentation contemplated under a Section 78 petition refers to statements
affecting one's qualifications for elective office such as age, residence and
citizenship or non-possession of natural-born Filipino status. 51 There is
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Case law dictates that if a petition prays for the denial of due course to and/or
cancellation of CoC and the same is granted by the COMELEC without any
qualification, the cancellation of the candidate's CoC is in order. This is precisely
the crux of the Miranda ruling wherein the Court, in upholding the COMELEC En
Banc's nullification of the substitution in that case, decreed that the COMELEC
Division's unqualified grant of the petition necessarily included the denial of due
course to and/or cancellation of the candidate's CoC, notwithstanding the use of
the term "disqualified" in the COMELEC Division's resolution, as the foregoing
was prayed for in the said petition:
The question to settle next is whether or not aside from Joel "Pempe"
Miranda being disqualified by the COMELEC in its May 5, 1998
resolution, his certificate of candidacy had likewise been denied due
course and cancelled.
SO ORDERED.
The same rule was later discussed in the case of Talaga, viz.:
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In Miranda v. Abaya, the specific relief that the petition prayed for was
that the CoC "be not given due course and/or cancelled". The
COMELEC categorically granted "the petition" and then pronounced
in apparent contradiction that Joel Pempe Miranda was "disqualified."
The Court held that the COMELEC, by granting the petition without
any qualification, disqualified Joel Pempe Miranda and at the same
time cancelled Jose Pempe Miranda's CoC.
In view of the foregoing rulings, the COMELEC En Banc direly misconstrued the
COMELEC First Division's February 17, 2010 Resolution when it adopted the
Law Department's finding that Richard was only "disqualified" and that his CoC
was not denied due course to and/or cancelled, paving the way for the approval
of private respondent's substitution. It overlooked the fact that the COMELEC
First Division's ruling encompassed the cancellation of Richard's CoC and in
consequence, disallowed the substitution of private respondent. It was therefore
grave and serious error on the part of the COMELEC En Banc to have approved
private respondent's substitution.
Fundamental is the rule that grave abuse of discretion arises when a lower court
or tribunal patently violates the Constitution, the law or existing
jurisprudence. 54 While it is well-recognized that the HRET has been empowered
by the Constitution to be the "sole judge" of all contests relating to the election,
returns, and qualifications of the members of the House, the Court maintains
jurisdiction over it to check "whether or not there has been a grave abuse of
discretion amounting to lack or excess of jurisdiction" on the part of the
latter. 55 In other words, when the HRET utterly disregards the law and settled
precedents on the matter before it, it commits a grave abuse of discretion.
Records clearly show that: (1) Richard was held ineligible as a congressional
candidate for the Fourth District of Leyte due to his failure to comply with the one
year residency requirement; (2) Juntilla's petition prayed for the denial of due
course to and/or cancellation of his CoC; and (3) the COMELEC First Division
granted the foregoing petition without any qualification. By these undisputed and
essential facts alone, the HRET should not have adopted the COMELEC En
Banc's erroneous finding that the COMELEC First Division's February 17, 2010
Resolution "speaks [only] of "disqualification and not of cancellation of [Richard's]
CoC" 56 and thereby, sanctioned the substitution of private respondent.
Private respondent concludes from the above that petitioner had no legal
basis to claim that the HRET, when reference to the qualification/s of
Members of the House of Representatives is concerned, is "co-equal", to
the COMELEC, such that the HRET cannot disregard any ruling of
COMELEC respecting the matter of eligibility and qualification of a
member of the House of Representatives. The truth is the other way
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Nonetheless, it must be pointed out that the HRET's independence is not without
limitation. As earlier mentioned, the Court retains certiorari jurisdiction over the
HRET if only to check whether or not it has gravely abused its discretion. In this
regard, the Court does not endeavor to denigrate nor undermine the HRET's
independence; rather, it merely fulfills its duty to ensure that the Constitution and
the laws are upheld through the exercise of its power of judicial review.
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In fine, the Court observes that the HRET wantonly disregarded the law by
deliberately adopting the COMELEC En Banc's flawed findings regarding private
respondent's eligibility to run for public office which essentially stemmed from her
substitution. In this light, it cannot be gainsaid that the HRET gravely abused its
discretion.
Owing to the lack of proper substitution in this case, private respondent was
therefore not a bona fide candidate for the position of Representative for the
Fourth District of Leyte when she ran for office, which means that she could not
have been elected. Considering this pronouncement, there exists no cogent
reason to further dwell on the other issues respecting private respondent's own
qualification to office.
SO ORDERED.
Sereno, C.J., Carpio, Villarama, Jr., Perez, Reyes and Leonen, JJ., concur.
Separate Opinions
Election Law Cases
I vote to deny the petition of Silverio R. Tagolino on the ground that after the
lapse of the reglementary period of ten (10) days from the date of proclamation of
respondent Lucy Marie Torres-Gomez as the duly elected Representative of the
Fourth Legislative District of Leyte, the said proclamation can no longer be
assailed by an election protest or a petition for quo warranto. Moreover, the
substitution by said respondent of her husband Richard Gomez cannot be
questioned, there being no factual basis to assail the decision of
the Commission on Elections (COMELEC) not to cancel the certificate of
candidacy of respondent's husband.
No joint election protest shall be admitted, but the Tribunal, for good and
sufficient reasons, may consolidate individual protests and hear and
decide them jointly.
The protest is verified by an affidavit that the affiant has read it and that
the allegations therein are true and correct of his knowledge and belief.
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This Court has emphasized the importance of compliance with the HRET Rules
prescribing reglementary periods to be observed by the parties in an election
contest to expedite the disposition of election controversies so as not to frustrate
the will of the electorate. In Hofer v. House of Representatives Electoral
Tribunal, 1 the Court sustained the dismissal by the HRET of the election protest
for failure to comply strictly with the period prescribed by the HRET Rules. IDTSaC
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Petitioner's remedies should have been (1) to reiterate her prayer in the
petition for disqualification, and move for the issuance of an order by the
COMELEC suspending the proclamation of private respondent pending
the hearing of the said petition and, in the event the motion was denied
before the proclamation of private respondent, file a petition
for certiorari in this Court with a prayer for a restraining order to enjoin
the proclamation of private respondent; or (2) to file a petition for quo
warranto in the House of Representatives Electoral Tribunal within ten
(10) days after the proclamation of private respondent as
Representative-elect on May 16, 1998. Obviously, neither of these
remedies can be availed of now. 3
The HRET and this Court cannot set aside at will the HRET Rules mandating the
timely filing of election contests. Otherwise, a dangerous precedent will be set
that will cause uncertainty in the application of the HRET Rules and instability in
the holding of an elective post by a proclaimed winning candidate that may
aversely affect public service.
mere innocuous mistake, and cannot exist in a situation where the intent
to deceive is patently absent, or where no deception on the electorate
results. The deliberate character of the misrepresentation necessarily
follows from a consideration of the consequences of any material falsity:
a candidate who falsifies a material fact cannot run; if he runs and is
elected, he cannot serve; in both cases, he can be prosecuted for
violation of the election laws.
Based on these standards, we find that Mitra did not commit any
deliberate material misrepresentation in his COC. The COMELEC
gravely abused its discretion in its appreciation of the evidence, leading it
to conclude that Mitra is not a resident of Aborlan, Palawan. The
COMELEC, too, failed to critically consider whether Mitra
deliberately attempted to mislead, misinform or hide a fact that
would otherwise render him ineligible for the position of Governor of
Palawan. (Emphases supplied and citations omitted.)
The ponencia of Justice Bernabe indulged in the legal fiction that the certificate of
candidacy of Richard Gomez was cancelled when it in fact was not. Neither can
the Court now on its own decree such cancellation in the absence of any factual
basis or evidentiary support for a finding that Richard Gomez committed a
"deliberate attempt to mislead, misinform, or hide a fact that would otherwise
render [him] ineligible."
On February 20, 2010 Richard moved for reconsideration of the above resolution.
Juntilla, on the other hand, did not file a similar motion even when the COMELEC
failed to grant his other prayer for denial of due course or cancellation of
Richard's CoC.
The crux of the opposition stemmed from the issue that there
should be no substitution because there is no candidate to
substitute for.
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On the same day the COMELEC En Banc issued its May 8, 2010 resolution
allowing the substitution, Juntilla filed an Extremely Urgent Motion for
Reconsideration 7 of the same but the motion remained unacted upon, obviously
owing to the supervening May 10 elections. Juntilla never elevated or questioned
the matter before the Supreme Court.
On May 12, 2010 the Leyte Provincial Board of Canvassers proclaimed Lucy
Gomez as Congresswoman-elect to represent the 4th District of Leyte, having
obtained 101,250 votes. Petitioner Silvestre R. Tagolino and another candidate,
Eufrocino C. Codilla, Jr., garnered 493 votes and 76,549 votes, respectively.
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In due time, Tagolino brought a quo warranto action 8 against Lucy Gomez with
the House of Representatives Electoral Tribunal (HRET) pursuant to its Rule 17
which allows the filing of a petition for quo warranto contesting the election of a
member of the House of Representatives "on the ground of ineligibility or
disloyalty to the Republic." Juntilla did not join Tagolino in this action. cSIHCA
Tagolino alleged in his petition (1) that Lucy Gomez was not a resident of Ormoc
City at least one year immediately preceding the election; (2) that she was not a
registered voter in the 4th District of Leyte; and (3) that her CoC was void for
failing to comply with the requirements of Section 2 of the 2004 Notarial
Law. 9 Tagolinodid not raise in his petition the question of the validity of Lucy
Gomez's substitution of her husband Richard.
In her Answer, 10 Lucy Gomez averred: (a) that the petition was filed beyond 10
days from proclamation; (b) that the petition assails the validity of her CoC, which
is outside the jurisdiction of the HRET and should have been assailed before the
COMELEC through a petition to deny due course to or cancel her CoC; (c) that
the COMELEC had already resolved her substitution of Richard with finality in its
Resolution 8890; (d) that she did not have to present proof of her identity when
her CoC was notarized the notary public personally knew her; and (e) she never
abandoned her domicile in Ormoc City despite her change of residence and
transfer of voting registration to San Rafael, Bulacan, arising from her marriage to
Richard.
On March 22, 2010 the HRET rendered a Decision 11 dismissing the quo
warranto petition and declaring Lucy Gomez a qualified candidate during the May
2010 election for the subject position, her substitution of her disqualified husband
being valid and legal. HRET ruled that Lucy Gomez's domicile continued to be
Ormoc City despite her marriage to Richard. Tagolino moved for reconsideration
but HRET denied the same on May 28, 2012, hence, this petition.
Question Presented
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As the ponencia would have it, the issue boils down to the question of whether or
not Lucy Gomez validly substituted Richard whom the COMELEC declared
disqualified for lack of residency.
But the above is not an accurate statement of the real issue in this case. The real
issue in this case is whether or not the HRET can review and reverse a
COMELEC Decision involving a member of the House of Representatives that
had become final and executory.
Discussion
The election of Lucy Gomez as Congresswoman of the 4th District of Leyte was
preceded by two separate incidents before the COMELEC:
The second incident involved Lucy Gomez. Juntilla opposed her substitution of
Richard on the ground that the substitution was invalid since she had no one to
substitute in view of the COMELEC First Division's disqualification of Richard by
final order. But the COMELEC En Banc denied the opposition and allowed the
substitution, given that the First Division's resolution, which merely disqualified
Richard, had already become final and executory.
The key issue in this case is actually whether or not the HRET was correct in
ruling that the COMELEC First Division's February 17, 2010 Resolution that
disqualified Richard but did not cancel his CoC or deny it due course had already
become final and executory. For, if it had indeed become final and executory, that
resolution would, as the COMELEC En Banc held in its May 8, 2010 Resolution,
provide legal basis for Lucy Gomez's substitution of Richard.
Election Law Cases
It is clear from the facts that the COMELEC First Division's February 17, 2010
Resolution, which merely disqualified Richard but did not cancel or deny due
course to his CoC, became final and executory. That resolution may be in error,
as the ponencia would have it, but it certainly became final and executory for the
following reasons:
Second. Only Richard filed a motion for reconsideration of the COMELEC First
Division's February 17, 2010 Resolution, which merely disqualified him. When
the COMELEC En Banc dismissed that motion for reconsideration on May 4,
2010, Richard filed a manifestation on the same day, accepting its validity. On
May 5 the COMELEC En Banc declared its May 4, 2010 Resolution final and
executory. Consequently, what remained the last window of opportunity to review
and possibly reverse the COMELEC First Division's February 17, 2010
Resolution closed down.
Third. Juntilla attempted to revive the issue concerning the COMELEC First
Division's February 17, 2010 Resolution when he opposed Lucy Gomez's
substitution of Richard. He claimed that the First Division's resolution resulted in
the COMELEC denying due course to Richard's CoC with the effect that, without
a valid one, he could not be substituted. But Juntilla is clearly in error since the
COMELEC En Banc already declared on May 5 that the First Division's February
17 Resolution merely ordered Richard's disqualification and such resolution had
irreversibly become final and executory.
But the above ruling should be understood in the context of the facts of
the Farias case. Guillermo Ruiz, a registered voter, filed a petition with the
COMELEC's Second Division seeking the perpetual disqualification of Rodolfo
Farias as candidate for Congressman for the May 11, 1998 elections on the
ground that he had been campaigning for that position despite his failure to file a
CoC. Eventually, Farias filed his CoC on May 8, 1998 in substitution of Chevylle
Farias who withdrew earlier on April 3. Because of this supervening event, on
May 10 the Second Division dismissed Ruiz's petition for lack of merit.
Farias won the elections and was promptly proclaimed. On May 16, 1998,
however, Ruiz filed a motion for reconsideration of the Second Division's May 10
Resolution, contending that Farias could not validly substitute for Chevylle, since
the latter was not the official candidate of the Lakas ng Makabayan Masang
Pilipino but was an independent candidate. Meantime, on June 3, 1998 Farias
took his oath as member of the House of Representatives. caADSE
On June 10, 1998 petitioner Arnold Guerrero, a rival candidate, filed a petition-in-
intervention with the COMELEC, assailing Farias' substitution of Chevylle. On
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Upon Guerrero's petition, this Court held that while the COMELEC has the power
to declare a CoC valid or invalid, its refusal to exercise that power, following
Farias' proclamation and assumption of office, simply recognized the
jurisdictional boundaries between the COMELEC and the HRET. The Court said
that whether Farias validly substituted Chevylle must now be addressed to the
sound judgment of the HRET. The COMELEC's jurisdiction over election contests
relating to his election, returns, and qualifications ends, and the HRET's own
jurisdiction begins.
First, the Court's thesis in Farias is that the HRET can take over a pending
matter before the COMELEC since the latter may be considered ousted of its
jurisdiction over the same upon the winner's assumption of office. The HRET
takes over the authority to resolve such pending matter.
Here, however, the key issue of whether or not the COMELEC First Division's
February 17, 2010 Resolution, which merely disqualified Richard but did not
cancel his CoC, is no longer a pending matter. It became final and executory
since, as pointed out above, Juntilla did not file a motion for its reconsideration
and the COMELEC En Banchad found it to be the case.
Second, Guerrero had the right to raise the issue of Farias' disqualification
before the HRET since he intervened and joined cause with Guillermo in his
action before the COMELEC. This gave Guerrero a stake in the resolution of
Guillermo's motion for reconsideration after the COMELEC declined to further act
on the same.
for reconsideration belonged to Juntilla who alone filed it. But, as it happened, he
abandoned his motion when he did not come up either to the Supreme Court or
to the HRET to cause it to be resolved.
And third, Tagolino is barred from claiming that, in disqualifying Richard, the
COMELEC's First Division in effect caused the cancellation of his
CoC. Tagolino made a binding admission during the Preliminary Conference
before the HRET that the COMELEC did not in fact order such cancellation of
Richard's CoC. 14 Thus, Tagolinoadmitted that:
5. Said May 4, 2010 Resolution of the Comelec did not order the
cancellation of Gomez' certificate of candidacy; (Emphasis
supplied)
Tagolino's admission in paragraph 5 above that the COMELEC did not order
the cancellation of Richard Gomez's certificate of candidacy is binding on him,
especially since he makes no allegation that he made such admission through
palpable mistake. 15
True, the parties raised before the HRET the issue of "whether the substitution of
respondent is valid." But this merely accords with Lucy Gomez's defense in her
answer that the COMELEC had already resolved her substitution of Richard with
finality in its Resolution 8890. It did not mean that the parties were submitting to
the HRET for resolution the issue of the final and executory nature of the
COMELEC First Division's resolution that enabled her to substitute for Richard.
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So the Court comes to the real issue in this case: whether or not the HRET can
review and reverse a COMELEC decision, involving a member of the House of
Representatives, that had already become final and executory.
The HRET has no authority to review final and executory resolutions or decisions
of the COMELEC that it rendered pursuant to its powers under the Constitution,
no matter if such resolutions or decisions are erroneous. The parties cannot by
agreement confer such authority on HRET. Neither the HRET nor the Court can
set aside the COMELEC's final and executory resolutions that paved the way for
Lucy Gomez to substitute her husband.
As for Lucy Gomez's residency qualification, the evidence presented in the case
amply supports HRET's conclusion that she met such qualification.
MAYOR GAMAL
S. HAYUDINI, petitioner, vs. COMMISSION ON ELECTIONS and
MUSTAPHA J. OMAR, respondents.
DECISION
PERALTA, J : p
For the Court's resolution is a Petition for Certiorari and Prohibition 1 under Rule
65, which petitioner Gamal S. Hayudini (Hayudini) filed to set aside and annul the
assailed Resolutions of the Commission on Elections (COMELEC), dated June
20, 2013 2 and July 10, 2013, 3 which cancelled his Certificate of Candidacy for
the mayoralty seat in the 2013 local elections in South Ubian, Tawi-Tawi, for
having been issued with grave abuse of discretion amounting to lack or in excess
of jurisdiction.
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On October 5, 2012, Hayudini filed his Certificate of Candidacy 4 (CoC) for the
position of Municipal Mayor of South Ubian, Tawi-Tawi in the May 13, 2013
National and Local Elections held in the Autonomous Region in Muslim
Mindanao. Ten days after, or on October 15, 2012, Mustapha J.
Omar (Omar) filed a Petition to Deny Due Course or Cancel Hayudini's CoC,
entitled Mustapha J. Omar v. Gamal S. Hayudini, docketed as SPA No. 13-
106(DC)(F). 5 Omar basically asserted that Hayudini should be disqualified for
making false representation regarding his residence. He claimed
that Hayudini declared in his CoC that he is a resident of the Municipality of
South Ubian when, in fact, he resides in Zamboanga City. aETAHD
Thereafter, on November 30, 2012, Hayudini filed a Petition for Inclusion in the
Permanent List of Voters in Barangay Bintawlan, South Ubian before the
Municipal Circuit Trial Court (MCTC). Despite the opposition of Ignacio Aguilar
Baki, the MCTC granted Hayudini's petition on January 31, 2013. 6 On that same
day, the COMELEC's First Division dismissed 7 Omar's earlier petition to
cancel Hayudini's CoC in SPA No. 13-106(DC)(F) for lack of substantial evidence
that Hayudini committed false representation as to his residency.
Oppositor Baki, subsequently, elevated the case to the Bongao Regional Trial
Court (RTC), Branch 5. The RTC, on March 8, 2013, reversed 8 the MCTC ruling
and ordered the deletion of Hayudini's name in Barangay Bintawlan's permanent
list of voters. In view of said decision, Omar filed before the COMELEC a Petition
to Cancel the Certificate of Candidacy of Gamal S. Hayudini by Virtue of a
Supervening Event on March 26, 2013. The petition was docketed as SPA No.
13-249(DC)(F). 9 Hayudiniappealed the March 8, 2013 RTC decision to the Court
of Appeals (CA), but on April 17, 2013, in CA-G.R. SP No. 05426, 10 the same
was denied.
On May 13, 2013, Hayudini won the mayoralty race in South Ubian, Tawi-Tawi.
He was proclaimed and, consequently, took his oath of office.
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SO ORDERED. 12
Hayudini, thus, filed a Motion for Reconsideration with the COMELEC En Banc,
arguing that its Second Division committed grave error when it gave due course
to a belatedly filed petition and treated the March 8, 2013 RTC Decision as a
supervening event.
On July 10, 2013, the COMELEC En Banc denied Hayudini's Motion for
Reconsideration for lack of merit. The decretal portion of the En Banc's assailed
Resolution states:
SO ORDERED. 14
Thus, Hayudini filed the instant petition for certiorari and prohibition.
A.
C.
III.
L.
A special civil action for certiorari under Rule 65 is an independent action based
on the specific grounds and available only if there is no appeal or any other plain,
speedy, and adequate remedy in the ordinary course of law. It will only prosper if
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grave abuse of discretion is alleged and is actually proved to exist. Grave abuse
of discretion has been defined as the arbitrary exercise of power due to passion,
prejudice or personal hostility; or the whimsical, arbitrary, or capricious exercise
of power that amounts to an evasion or refusal to perform a positive duty
enjoined by law or to act at all in contemplation of law. For an act to be
condemned as having been done with grave abuse of discretion, such an abuse
must be patent and gross. 16 Here, Hayudini miserably failed to prove that the
COMELEC rendered its assailed Resolutions with grave abuse of discretion. SCaDAE
Hayudini contends that the COMELEC committed grave abuse of discretion when
it admitted, and later granted, Omar's petition despite failure to comply with
Sections 2 and 4 of Rule 23 of the COMELEC Rules of Procedure, as amended
by Resolution No. 9523. The subject sections read:
Here, Hayudini filed his CoC on October 5, 2012, which was also the last day of
filing of CoC for the May 13, 2013 elections. Omar, on the other hand, filed the
subject petition only on March 26, 2013. Under the COMELEC Rules, a Petition
to Deny Due Course or Cancel CoC must be filed within five days from the last
day for filing a certificate of candidacy, but not later than twenty-five days from the
time of filing of the CoC subject of the petition. Clearly, Omar's petition was filed
way beyond the prescribed period. Likewise, he failed to provide sufficient
explanation as to why his petition was not served personally to Hayudini. HTCAED
Settled is the rule that the COMELEC Rules of Procedure are subject to liberal
construction. The COMELEC has the power to liberally interpret or even suspend
its rules of procedure in the interest of justice, including obtaining a speedy
disposition of all matters pending before it. This liberality is for the purpose of
promoting the effective and efficient implementation of its objectives ensuring
the holding of free, orderly, honest, peaceful, and credible elections, as well as
achieving just, expeditious, and inexpensive determination and disposition of
every action and proceeding brought before the COMELEC. Unlike an ordinary
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civil action, an election contest is imbued with public interest. It involves not only
the adjudication of private and pecuniary interests of rival candidates, but also the
paramount need of dispelling the uncertainty which beclouds the real choice of
the electorate. And the tribunal has the corresponding duty to ascertain, by all
means within its command, whom the people truly chose as their rightful
leader. 21 AIaSTE
Given the finality of the RTC decision, the same should be considered a valid
supervening event. A supervening event refers to facts and events transpiring
after the judgment or order had become executory. These circumstances affect or
change the substance of the judgment and render its execution
inequitable. 26 Here, the RTC's March 8, 2013 decision, ordering the deletion
of Hayudini's name in the list of voters, which came after the dismissal of Omar's
first petition, is indubitably a supervening event which would render the execution
of the ruling in SPA No. 13-106(DC)(F) iniquitous and unjust. As the COMELEC
aptly ruled, the decision to excludeHayudini was still non-existent when the
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The same ruling adequately equipped Omar with the necessary ground to
successfully have Hayudini's CoC struck down. Under the rules, a statement in a
certificate of candidacy claiming that a candidate is eligible to run for public office
when in truth he is not, is a false material representation, a ground for a petition
under Section 78 of the Omnibus Election Code.
Section 74 requires the candidate to state under oath in his CoC "that he is
eligible for said office." A candidate is eligible if he has a right to run for the public
office. If a candidate is not actually eligible because he is not a registered voter in
the municipality where he intends to be elected, but still he states under oath in
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his certificate of candidacy that he is eligible to run for public office, then the
candidate clearly makes a false material representation, a ground to support a
petition under Section 78. 33It is interesting to note that Hayudini was, in fact,
initially excluded by the ERB as a voter. On November 30, 2012, the ERB issued
a certificate confirming the disapproval of Hayudini's petition for
registration. 34 This is precisely the reason why he needed to file a Petition for
Inclusion in the Permanent List of Voters in Barangay Bintawlan before the
MCTC. Thus, when he stated in his CoC that "he is eligible for said
office," Hayudini made a clear and material misrepresentation as to his eligibility,
because he was not, in fact, registered as a voter in Barangay Bintawlan.
Had the COMELEC not given due course to Omar's petition solely based on
procedural deficiencies, South Ubian would have a mayor who is not even a
registered voter in the locality he is supposed to govern, thereby creating a
ridiculously absurd and outrageous situation. Hence, the COMELEC was
accurate in cancelling Hayudini'scertificate of candidacy.
Hayudini likewise protests that it was a grave error on the part of the COMELEC
to have declared his proclamation null and void when no petition for annulment of
his proclamation was ever filed. What petitioner seems to miss, however, is that
the nullification of his proclamation as a winning candidate is also a legitimate
outcome a necessary legal consequence of the cancellation of his CoC
pursuant to Section 78. A CoC cancellation proceeding essentially partakes of
the nature of a disqualification case. 35 The cancellation of a CoC essentially
renders the votes cast for the candidate whose certificate of candidacy has been
cancelled as stray votes. 36If the disqualification or CoC cancellation or denial
case is not resolved before the election day, the proceedings shall continue even
after the election and the proclamation of the winner. Meanwhile, the candidate
may be voted for and even be proclaimed as the winner, but the COMELEC's
jurisdiction to deny due course and cancel his or her CoC continues. This rule
likewise applies even if the candidate facing disqualification has already taken his
oath of office. 37 The only exception to this rule is in the case of congressional
and senatorial candidates where the COMELEC ipso jure loses jurisdiction in
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favor of either the Senate or the House of Representatives Electoral Tribunal after
the candidates have been proclaimed, taken the proper oath, and also assumed
office. 38 IAETDc
It bears stressing that one of the requirements for a mayoralty candidate is that
he must be a resident of the city or municipality where he intends to be elected.
Thus, under Section 74 of the Omnibus Election Code, it is required that a
candidate must certify under oath that he is eligible for the public office he seeks
election. In this case, when petitioner stated in his CoC that he is a resident of
Barangay Bintawlan, South Ubian, Tawi-Tawi and eligible for a public office, but it
turned out that he was declared to be a non-resident thereof in a petition for his
inclusion in the list of registered voters, he therefore committed a false
representation in his CoC which pertained to a material fact which is a ground for
the cancellation of his CoC under Section 78 of the Omnibus Election Code.
Petitioner's ineligibility for not being a resident of the place he sought election is
not a ground for a petition for disqualification, since the grounds enumerated
under Section 68 39 of the Omnibus Election Code specifically refer to the
commission of prohibited acts, and possession of a permanent resident status in
a foreign country.
We find the factual mileu of the Aratea case applicable in the instant case, since
this is also a case for a petition to deny due course or cancel a certificate of
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candidacy. Since Hayudini was never a valid candidate for the position of the
Municipal Mayor of South Ubian, Tawi-Tawi, the votes cast for him should be
considered stray votes, Consequently, the COMELEC properly proclaimed Salma
Omar, who garnered the highest number of votes in the remaining qualified
candidates for the mayoralty post, as the duly-elected Mayor of South Ubian, Tawi
Tawi. SCIcTD
Codilla v. De Venecia case has no application in this case, since it dealt with a
petition for disqualification under Section 68 of the Omnibus Election Code and
not a petition to deny due course or cancel certificate of candidacy under Section
78 which is the case at bar.
Finally, contrary to Hayudini's belief, the will of the electorate is still actually
respected even when the votes for the ineligible candidate are disregarded. The
votes cast in favor of the ineligible candidate are not considered at all in
determining the winner of an election for these do not constitute the sole and total
expression of the sovereign voice. On the other hand, those votes for the eligible
and legitimate candidates form an integral part of said voice, which must equally
be given due respect, if not more. 41
SO ORDERED.
Sereno, C.J., Carpio, Velasco, Jr., Bersamin, Del Castillo, Abad, Villarama, Jr.,
Perez, Mendoza, Reyes, Perlas-Bernabe and Leonen, JJ., concur.
Leonardo-de Castro, J., please see separate concurring and dissenting opinion.
Separate Opinions
With all due respect to the Ponente of the decision in the above-quoted case, I
concur in the disposition of the instant case affirming the resolution of
the Commissionon Elections (COMELEC) En Banc in so far as it affirmed the
cancellation of petitioner Gamal S. Hayudini's Certificate of Candidacy (CoC) and
the proclamation by COMELEC of Salma A. Omar as duly elected Mayor of
South Ubian, Tawi-Tawi. I take exception, however, to the sweeping opinion in
the ponencia that "whether a certificate of candidacy is cancelled before or after
the elections is immaterial (to determine the validity of the votes cast), because
the cancellation on such ground means he was never a candidate from the very
beginning, his certificate of candidacy being void ab initio." On the contrary, by
virtue of the provisions of Section 7 in relation to Section 6, both of Republic Act
(R.A.) No. 6646, there should be a distinction in the treatment of votes cast where
the petition for cancellation of the certificate of candidacy had been finally
adjudicated before the election and where said petition retrained pending during
the election.
Hence, I do not agree with the opinion of Mr. Justice Arturo D. Brion that "In
a CoC cancellation proceeding, the law is silent on the legal effect of a judgment
cancelling the CoC and does not also provide any temporal distinction," 1 and that
in Fermin v. Commission on Elections, 2 the Court held that "Section 7 cannot be
construed to refer to Section 6 which does not provide for a procedure but for the
effects of disqualification, but can only refer to the procedure provided in Section
5 of [R.A. 6646] on nuisance candidates." This opinion is also anchored on the
application, without qualification, of the aforementioned principle: that the
cancellation of the certificate of candidacy renders it void ab initio, and if said
cancellation takes effect after election, it should be given retroactive effect so as
to nullify the votes cast for the ineligible candidate. I submit that the issue of
whether Section 6 should be applied to a petition for cancellation of a certificate
of candidacy pursuant to Section 7, particularly, in determining whether or not to
consider stray the votes cast, should not be based on said technical ground, but
should take into consideration the primordial principle that the sanctity of the
expression of the people's will through the ballot must be preserved. Accordingly,
the time of cancellation of the certificate of candidacy, whether it occurs before or
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after the election, is a material factor to consider in deciding whether to nullify the
votes already cast. That is the intent and import of the language of Section 7 in
relation to Section 6 which should be given effect. cdll
Section 5 of R.A. No. 6646 provides for the Procedure in Cases of Nuisance
Candidates. Whereas, Sections 6 and 7 of the same law read:
With all due respect, the Court did not categorically resolve or decide
in Fermin that "Section 7 cannot be construed to refer to Section 6" but merely
quoted that part of the Dissenting Opinion of then Chief Justice Hilario G. Davide,
Jr. in Aquino v. Commission on Elections. 3 The issue in Fermin is the timeliness
of the filing of the petition under Section 78 and not the effect of the pendency of
the said petition during election day to the votes cast.
Fermin was a consolidation of two petitions for certiorari under Rule 64 in relation
to Rule 65 of the Rules of Court, namely, G.R. No. 179695 and G.R. No. 182369,
both filed by Mike A. Fermin to assail several resolutions of the COMELEC.
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Quoted verbatim hereunder are the relevant facts and findings of the Court in the
two consolidated cases, to wit: EDCIcH
The issues that the Court resolved in the consolidated cases were as follows:
(3) Whether or not the COMELEC gravely abuse its discretion when it
declared petitioner as not a resident of the locality for at least one year
prior to the May 14, 2007 elections; and
(4) Whether or not the COMELEC gravely abuse its discretion when it
ordered the dismissal of Election Case No. 07-022 on the ground that
Fermin had no legal standing to file the protest. 4 (Emphases supplied.)
In granting the petitions, the Court held in the consolidated cases that:
I.
After studying the said petition in detail, the Court finds that the same is
in the nature of a petition to deny due course to or cancel a CoC under
Section 78 of the OEC. The petition contains the essential allegations of
a "Section 78" petition, namely: (1) the candidate made a representation
in his certificate; (2) the representation pertains to a material matter
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which would affect the substantive rights of the candidate (the right to
run for the election for which he filed his certificate); and (3) the
candidate made the false representation with the intention to deceive the
electorate as to his qualification for public office or deliberately attempted
to mislead, misinform, or hide a fact which would otherwise render him
ineligible. It likewise appropriately raises a question on a candidate's
eligibility for public office, in this case, his possession of the one-year
residency requirement under the law.
At this point, we must stress that a "Section 78" petition ought not to be
interchanged or confused with a "Section 68" petition. They are
different remedies, based on different grounds, and resulting in
different eventualities. Private respondent's insistence, therefore, that
the petition it filed before the COMELEC in SPA No. 07-372 is in the
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Considering that the Dilangalen petition does not state any of these
grounds for disqualification, it cannot be categorized as a "Section 68"
petition.
II.
Having thus determined that the Dilangalen petition is one under Section
78 of the OEC, the Court now declares that the same has to comply with
the 25-day statutory period for its
filing. Aznar v. Commission on Elections and Loong v. Commission on El
ections give ascendancy to the express mandate of the law that "the
petition may be filed at any time not later than twenty-five days from
the time of the filing of the certificate of candidacy." Construed in
relation to reglementary periods and the principles of prescription, the
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dismissal of "Section 78" petitions filed beyond the 25-day period must
come as a matter of course. THIECD
As the law stands, the petition to deny due course to or cancel a CoC
"may be filed at any time not later than twenty-five days from the
time of the filing of the certificate of candidacy."
The record in these cases reveals that Fermin filed his CoC for mayor of
Northern Kabuntalan for the May 14, 2007 National and Local Elections
on March 29, 2007. It is clear therefore that the petition to deny due
course to or cancel Fermin's CoC was filed by Dilangalen well within the
25-day reglementary period. The COMELEC therefore did not abuse its
discretion, much more gravely, when it did not dismiss the petition
outright.
From the aforequoted decision, it cannot be categorically asserted that the Court
has ruled that "Section 7 cannot be construed to refer to Section 6" of R.A. No.
6646. Justice Brion cannot definitely state, using as basis the case of Fermin,
that my conclusion that the instruction in Section 7 in relation to Section 6 of
R.A. No. 6646 is that the effects of a disqualification case apply to petitions to
deny due course to or cancel CoCs is wrong. What the Court did
in Fermin was merely "to point out that Sections 5 and 7 of Republic Act
(R.A.) No. 6646, contrary to the erroneous arguments of both parties, did
not in any way amend the period for filing 'Section 78' petitions." Admittedly,
while the Court made mention therein that "Section 7 of the said law makes
reference to Section 5 on the procedure in the conduct of cases for the denial of
due course to the CoCs of nuisance candidates," the Ponente of the decision
hastened to add that such statement was lifted from the Dissenting Opinion of
then Chief Justice Hilario G. Davide, Jr. relative to the case
of Aquino v. Commission on Elections. 5 This portion of the decision in Fermin is
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anobiter dictum and in no way definitive of the resolution of the present case for
the issues in Fermin are vastly dissimilar to this case. HTCIcE
Accordingly, I do not agree with the overly broad statement in the majority opinion
and the concurring opinion of Justice Brion that the cancellation of the certificate
of candidacy whether before or after the election is immaterial in determining the
validity of the votes cast. The said statement or opinion, which in effect declines
to abide with the mandate in Section 7 to apply Section 6 to a petition to deny
due course to or cancel a certificate of candidacy, is based on the technical
argument that when a person's certificate of candidacy is denied due course or
cancelled, he is not to be considered a candidate. This technical ground may be
properly applied in certain cases as where substitution is not allowed, such as
when the cancellation takes place before election. However, it may not suffice to
justify the nullification of the votes already cast before the certificate of candidacy
is cancelled by final judgment. Whether it is disqualification or ineligibility, if votes
were cast before final adjudication of disqualification or ineligibility, there appears
to be no justifiable reason to consider as stray the votes cast by the voters if in
their honest belief they voted for a qualified or eligible candidate. The said voters
should not be disenfranchised because of the unresolved petition for cancellation
of a certificate of candidacy unless the ground for disqualification or ineligibility is
of such notoriety that the voters can be considered to have deliberately
squandered their votes for a disqualified or ineligible candidate. The nullification
of the votes of those voters who were unaware of the disqualification or
ineligibility of the person they voted for because of the unresolved petition for
cancellation of the certificate of candidacy, which effectively disenfranchises
them, cannot be justified on the excuse that the votes cast for the next ranking
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We can now apply the rule that a second placer is allowed to take the place of a
disqualified winning candidate when two requisites concur, namely: (i) the
candidate who obtained the highest number of votes is disqualified; and (ii) the
electorate was fully aware in fact and in law of that candidate's disqualification as
to bring such awareness within the realm of notoriety but the electorate still cast
the plurality of the votes in favor of the ineligible candidate. 7 And it is with the
concurrence of the two requisites that the voting public may be said to have
waived the validity and efficacy of their votes by notoriously misapplying their
franchise or throwing away their votes, in which case the eligible candidate with
the second highest number of votes may be deemed elected. 8 The finality of the
RTC decision which definitely determined the ineligibility of Hayudini long before
the election, the votes cast in his favor are considered stray and Salma A. Omar,
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the second placer, is deemed the duly elected Mayor of the Municipality of South
Ubian, Tawi-Tawi.
I concur with the result reached by the ponencia but submit this Separate
Concurring Opinion to state my own views and observations on the propriety of
theCommission on Elections' (Comelec) cancellation of the petitioner Gamal
S. Hayudini's (Hayudini) Certificate of Candidacy (CoC) and its proclamation of
the "second placer", Salma A. Omar (Salma) as the duly-elected Mayor of South
Ubian, Tawi-Tawi.
On October 5, 2012, Hayudini filed his CoC for Mayor of South Ubian, Tawi-Tawi.
On October 15, 2012, the respondent Mustapha Omar (Mustapha) filed a petition
to deny due course or cancel Hayudini's CoC on the ground that the latter made
a false representation in his residence. EaHcDS
On November 30, 2012, the Election Registration Board of South Ubian issued a
certificate denying Hayudini's petition for registration prompting him to file a
petition for inclusion in the permanent list of voters of Brgy. Bintawlan, South
Ubian, Tawi-Tawi before the Municipal Circuit Trial Court (MCTC). The MCTC
later grantedHayudini's petition.
On March 26, 2013, Mustapha filed a petition anew to cancel Hayudini's CoC on
the basis of the final and executory RTC decision delisting his name from the
permanent list of voters of Brgy. Bintawlan.
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On May 13, 2013, the Municipal Board of Canvassers proclaimed Hayudini the
duly elected Mayor of South Ubian, Tawi-Tawi with a majority of 3,148 votes as
opposed to 2,264 votes garnered by the second placer Salma.
Subsequently, Hayudini took his oath and assumed the office of Mayor of South
Ubian, Tawi-Tawi. CTAIDE
On July 10, 2013, the Comelec en banc affirmed the Second Division ruling
cancelling Hayudini's CoC by virtue of the final and executory RTC Decision
excluding his name in the voter's list. It emphasized that even if the cancellation
of Hayudini's CoC was not declared by final judgment before the elections and
that Hayudinigarnered the highest number of votes, the Comelec citing Section 7
in relation to Section 6 of RA 6646 held that it had the jurisdiction to annul his
proclamation as the proclamation itself was null and void. Citing the
Court's dicta in Efren Racel Aratea v. Commission on Elections, et al., 1 that a
cancelled CoC cannot give rise to a valid candidacy much less to a valid vote, the
Comelec annulled Hayudini's proclamation and proclaimed Salma the duly
elected mayor of South Ubian, being the qualified candidate obtaining the highest
number of votes.
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I concur with the ponencia's (i) position that Hayudini committed a false
representation as to his eligibility (because he was not a registered voter of
Barangay Bintawlan, South Ubian, Tawi-Tawi), thus his CoC was void ab initio,
the effect of which retroacts to the date of the filing of his CoC and (ii) conclusion
that Salma, the "second placer" in the 2013 elections for the mayoralty post of
South Ubian, Tawi-Tawi, should be the rightful mayor. HTacDS
I submit that ground cited in Mustapha's petition to deny due course or cancel
CoC was appropriate for the cancellation of Hayudini's CoC. Thus, the present
case should be resolved under the rules of cancellation of CoC and not
from the point of disqualification that Justice De Castro advocates.
I wish to reiterate in this Separate Concurring Opinion, as I did in the allied cases
of Efren Racel Aratea v. Commission on Elections, et al., 2 Mayor Barbara C.
Talaga v.Commission on Elections, et al., 3 and Dominador G. Jalosjos,
Jr. v. Commission on Elections, et al., 4 that the present case should be resolved
from an analytical approach that starts from a consideration of the nature of a
CoC; the distinctions between eligibility or lack of it and disqualification; the
effects of cancellation and disqualification; and the applicable remedies.
Both the 1973 and 1987 Constitutions left to Congress the task of providing the
qualifications of local elective officials. Congress undertook this task by
enacting Batas Pambasa Bilang (B.P. Blg.) 337 (Local Government Code or
LGC), B.P. Blg. 881 (Omnibus Election Code or OEC) and, later, Republic
Act (R.A.) No. 7160 (Local Government Code of 1991 or LGC 1991). 6
COMELEC Resolution No. 8678 provides what a CoC must contain or state: 10
From the point of view of the common citizen who wants to run for a local elective
office, the above recital contains all the requirements that he must satisfy; it
contains the basic and essential requirements applicable to all citizens to
qualify for candidacy for a local elective office. These are their formal terms of
entry to local politics. A citizen must not only possessall these requirements; he
must positively represent in his CoC that he possesses them. Any falsity on these
requirements constitutes a material misrepresentation that can lead to the
cancellation of the CoC. On this point, Section 78 of the OEC provides:
Notably, Section 74 of the OEC does not require any negative qualification except
only as expressly required therein. A specific negative requirement refers to the
representation that the would-be candidate is not a permanent resident nor an
immigrant in another country. This requirement, however, is in fact simply part of
the positive requirement of residency in the locality for which the CoC is filed and,
in this sense, is not strictly a negative requirement.
Neither does Section 74 require any statement that the would-be candidate does
not possess any ground for disqualification specifically enumerated by law, as
disqualification is a matter that the OEC and LGC 1991 separately deal with, as
discussed below. Notably, Section 74 does not require a would-be candidate to
state that he has not served for three consecutive terms in the same elective
position immediately prior to the present elections.
With the accomplishment of the CoC and its filing, a political aspirant officially
acquires the status of a candidate and, at the very least, the prospect of holding
public office; he, too, formally opens himself up to the complex political
environment and processes. The Court cannot be more emphatic in holding
"that the importance of a valid certificate of candidacy rests at the very core
of the electoral process." 11
Pertinent laws 12 provide the specific periods when a CoC may be filed; when a
petition for its cancellation may be brought; and the effect of its filing. These
measures, among others, are in line with the State policy or objective of ensuring
"equal access to opportunities for public service," 13 bearing in mind that the
limitations on the privilege to seek public office are within the plenary power of
Congress to provide. 14 HSIaAT
violation of the rules. 15 It is in these senses that the term is understood in our
election laws.
Thus, anyone who may qualify or may have qualified under the general rules of
eligibility applicable to all citizens (Section 74 of the OEC) may be deprived of
the right to be a candidate or may lose the right to be a candidate (if he has
filed his CoC) because of a trait or characteristic that applies to him or an act that
can be imputed to him as an individual, separately from the general
qualifications that must exist for a citizen to run for a local public office.
Notably, the breach of the three-term limit is a trait or condition that can
possibly apply only to those who have previously served for three consecutive
terms in the same position sought immediately prior to the present elections.
In a disqualification situation, the grounds are the individual traits or conditions of,
or the individual acts of disqualification committed by, a candidate as provided
under Sections 68 and 12 of the OEC and Section 40 of LGC 1991, and which
generally have nothing to do with the eligibility requirements for the filing of a
CoC. 16
Sections 68 and 12 of the OEC (together with Section 40 of LGC 1991, outlined
below) cover the following as traits, characteristics or acts of disqualification: (i)
corrupting voters or election officials; (ii) committing acts of terrorism to enhance
candidacy; (iii) overspending; (iv) soliciting, receiving or making prohibited
contributions; (v) campaigning outside the campaign period; (vi) removal,
destruction or defacement of lawful election propaganda; (vii) committing
prohibited forms of election propaganda; (viii) violating rules and regulations on
election propaganda through mass media; (ix) coercion of subordinates; (x)
threats, intimidation, terrorism, use of fraudulent device or other forms of
coercion; (xi) unlawful electioneering; (xii) release, disbursement or expenditure
of public funds; (xiii) solicitation of votes or undertaking any propaganda on the
day of the election; (xiv) declaration as an insane; and (xv) committing
subversion, insurrection, rebellion or any offense for which he has been
sentenced to a penalty of more than eighteen months or for a crime involving
moral turpitude. DaECST
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Section 40 of LGC 1991, on the other hand, essentially repeats those already in
the OEC under the following disqualifications:
these must be positively asserted in the CoC. The latter refer to individual traits,
conditions or acts applicable to specific individuals that serve as grounds against
one who has qualified as a candidate to lose this status or privilege; essentially,
they have nothing to do with a candidate's CoC.
When the law allows the cancellation of a candidate's CoC, the law considers
the cancellation from the point of view of those positive requirements that
every citizen who wishes to run for office must commonly satisfy. Since the
elements of "eligibility" are common, the vice of ineligibility attaches to and
affects both the candidate and his CoC. In contrast, when the law allows the
disqualification of a candidate, the law looks only at the disqualifying trait or
condition specific to the individual; if the "eligibility" requirements have been
satisfied, the disqualification applies only to the person of the candidate, leaving
the CoC valid. A previous conviction of subversion is the best example as it
applies not to the citizenry at large, but only to the convicted individuals; a convict
may have a valid CoC upon satisfying the eligibility requirements under Section
74 of the OEC, but shall nevertheless be disqualified.
While the violation of the three-term rule is properly a ground for disqualification,
it is a unique ground, constitutionally anchored at that, that sets it apart from and
creates a distinction even from the ordinary grounds of disqualification. The
succeeding discussions incorporate these intra-disqualification distinctions on the
grounds for disqualification, which in sum refer to (i) the period to file a petition
and (ii) capability of substitution and (iii) on the application of the doctrine of
rejection of second placer and the doctrine's exceptions. EaCSHI
warranto, which are distinct remedies with varying applicability and effects. For
ease of presentation and understanding, their availability, grounds and effects are
topically discussed below.
As to the grounds:
In a quo warranto petition, the grounds to oust an elected official from his office
are ineligibility and disloyalty to the Republic of the Philippines. This is provided
under Section 253 of the OEC and governed by the Rules of Court as to
procedures. While quo warranto and cancellation share the same ineligibility
grounds, they differ as to the time these grounds are cited. A cancellation
case is brought before the elections, while a quo warranto is filed after and may
still be filed even if a CoC cancellation case was not filed before elections.
The only difference between the two proceedings is that, under section
78, the qualifications for elective office are misrepresented in the
certificate of candidacy and the proceedings must be initiated before the
elections, whereas a petition for quo warranto under section 253 may be
brought on the basis of two grounds (1) ineligibility or (2) disloyalty to
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the Republic of the Philippines, and must be initiated within ten days
after the proclamation of the election results. Under section 253, a
candidate is ineligible if he is disqualified to be elected to office, and he
is disqualified if he lacks any of the qualifications for elective office. 20
Note that the question of what would constitute acts of disqualification under
Sections 68 and 12 of the OEC and Section 40 of LGC 1991 is best resolved
by directly referring to the provisions involved. On the other hand, what
constitutes a violation of the three-term limit rule under the Constitution has been
clarified in our case law. 21 The approach is not as straight forward in a petition
to deny due course to or cancel a CoC and also to a quo warranto petition, which
similarly covers the ineligibility of a candidate/elected official. In Salcedo II v.
COMELEC, 22 we ruled that
The period to file a petition to deny due course to or cancel a CoC depends on
the provision of law invoked. If the petition is filed under Section 78 of the OEC,
the petition must be filed within twenty-five (25) days from the filing of the
CoC. 23 However, if the petition is brought under Section 69 of the same law, the
petition must be filed within five (5) days from the last day of filing the CoC. 24
On the other hand, the period to file a disqualification case is at any time before
the proclamation of a winning candidate, as provided in COMELEC Resolution
No. 8696. 25 The three-term limit disqualification, because of its unique
characteristics, does not strictly follow this time limitation and is discussed
at length below. At the very least, it should follow the temporal limitations of
a quo warranto petition which must be filed within ten (10) days from
proclamation. 26 The constitutional nature of the violation, however, argues
against the application of this time requirement; the rationale for the rule and the
role of the Constitution in the country's legal order dictate that a petition should
be allowed while a consecutive fourth-termer is in office. EcICSA
A candidate whose CoC was denied due course or cancelled is not considered
a candidate at all. Note that the law fixes the period within which a CoC may be
filed. 27After this period, generally no other person may join the election contest.
A notable exception to this general rule is the rule on substitution. The application
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With the disqualification of the winning candidate and the application of the
doctrine of rejection of the second placer, the rules on succession under the
law accordingly apply.
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We agree with Munder as to the nature of the petition filed by Sarip. The
main ground of the said petition is that Munder committed
dishonesty in declaring that he was a registered voter of Barangay
Rogero, Bubong, Lanao del Sur, when in fact he was not. This
ground is appropriate for a Petition to Deny Due Course or to
Cancel Certificate of Candidacy.
In the earlier case of Fermin v. Comelec, the Court clarified the two
remedies that may be availed of by a candidate to prevent another from
running in an electoral race. The Court held:
In Fermin, the Court has debunked the interpretation that a petition for
disqualification covers the absence of the substantive qualifications of a
candidate (with the exception of the existence of the fact of the
candidate's permanent residency abroad). It has, in effect, even struck
down a Comelec Resolution Resolution No. 7800, which enumerated
the grounds for a petition for disqualification to include the non-
registration of a candidate as voter in the locality where he or she is
running as a candidate. In ruling as such, Resolution No. 7800 which
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It is thus clear that the ground invoked by Sarip in his Petition for
Disqualification against Munder the latter's alleged status as
unregistered voter in the municipality was inappropriate for the
said petition. The said ground should have been raised in a petition
to cancel Munder's CoC. [emphasis ours]
Justice De Castro espouses the view that Section 6 34 (on the effects of
disqualification) in relation to Section 7 (on a petition to deny due course to or
cancel a CoC) 35 of RA 6646 should be applied in this case so that the
permanent vacancy in the office of mayor of South Ubian (as a result of the
cancellation of Hayudini's CoC) should be filled pursuant to the rules of
succession under Section 44 of the Local Government Code.
(b) Within three (3) days from the filing of the petition, the Commission
shall issue summons to the respondent candidate together with a copy of
the petition and its enclosures, if any.
(c) The respondent shall be given three (3) days from receipt of the
summons within which to file his verified answer (not a motion to
dismiss) to the petition, serving copy thereof upon the petitioner.
Grounds for a motion to dismiss may be raised as affirmative defenses.
(d) The Commission may designate any of its officials who are lawyers to
hear the case and receive evidence. The proceeding shall be summary
in nature. In lieu of oral testimonies, the parties may be required to
submit position papers together with affidavits or counter-affidavits and
other documentary evidence. The hearing officer shall immediately
submit to the Commission his findings, reports, and recommendations
within five (5) days from the completion of such submission of evidence.
The Commission shall render its decision within five (5) days from
receipt thereof.
(e) The decision, order, or ruling of the Commission shall, after five (5)
days from receipt of a copy thereof by the parties, be final and executory
unless stayed by the Supreme Court. IaAEHD
(f) The Commission shall within twenty-four hours, through the fastest
available means, disseminate its decision or the decision of the Supreme
Court or the city or municipal election registrars, boards of election
inspectors, and the general public in the political subdivision concerned.
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and which is the only procedure that precedes Section 7 of the said Act.
Heretofore, no law provided for the procedure to govern cases under
Section 78. Applying to such cases, through Section 7 of R.A. No. 6646,
the procedure applicable to cases of nuisance candidates is prudent and
wise, for both cases necessarily require that they be decided before the
day of the election; hence, only summary proceedings thereon can
adequately respond to the urgency of the matter.
election Code and not to cancellation of CoC cases under Section 78 of the
same Code. At the risk of repetition, Section 7 cannot be construed to refer to
Section 6 (which does not provide for a procedure but for the effects of
disqualification), but can only refer to the procedure provided in Section 5 of RA
6646 on nuisance candidates. Thus, Justice De Castro's conclusion that "the
instruction in Section 7 in relation to Section 6 of RA 6646 is that, the effect/s of a
disqualification case is made to apply to petitions to deny due course to or cancel
CoCs" is wrong.
In the present case, Hayudini, whose CoC was denied due course or
cancelled is not considered a candidate at all; the votes in his favor are
considered votes for an inexistent candidate or for one who is deemed not to be
in the ballot. The second placer (which is legally a misnomer), Salma should be
proclaimed the winner as the candidate with the highest number of votes for the
mayoralty post of South Ubian, Tawi-Tawi. That Hayudini's CoC cancellation case
became final after the elections is of no moment since the cancellation of his
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CoC retroacts to the date of the filing of the CoC; it signifies non-candidacy from
the very start, i.e., from before the elections.
x-----------------------x
DECISION
BERSAMIN, J.:
In focus in these consolidated special civil actions are the disqualification of a substitute who was
proclaimed the winner of a mayoralty election; and the ascertainment of who should assume the
office following the substitutes disqualification.
The consolidated petitions for certiorari seek to annul and set aside the En Banc Resolution issued
on May 20, 2011 in SPC No. 10-024 by the Commission on Elections (COMELEC), the dispositive
portion of which states:
1. REVERSING and SETTING ASIDE the January 11, 2011 Resolution of the Second
Division;
4. Ordering respondent Barbara Ruby Talaga to cease and desist from discharging the
functions of the Office of the Mayor;
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5. In view of the permanent vacancy in the Office of the Mayor of Lucena City, the
proclaimed Vice-Mayor is ORDERED to succeed as Mayor as provided under Section 44 of
the Local Government Code;
6. DIRECTING the Clerk of Court of the Commission to furnish copies of this Resolution to
the Office of the President of the Philippines, the Department of Interior and Local
Government, the Department of Finance and the Secretary of the Sangguniang Panglunsod
of Lucena City.
Let the Department of Interior and Local Government and the Regional Election Director of Region
IV of COMELEC implement this resolution.
SO ORDERED.1
Antecedents
On November 26, 2009 and December 1, 2009, Ramon Talaga (Ramon) and Philip M. Castillo
(Castillo) respectively filed their certificates of candidacy (CoCs) for the position of Mayor of Lucena
City to be contested in the scheduled May 10, 2010 national and local elections. 2
Ramon, the official candidate of the Lakas-Kampi-CMD,3 declared in his CoC that he was eligible for
the office he was seeking to be elected to.
Four days later, or on December 5, 2009, Castillo filed with the COMELEC a petition denominated
as In the Matter of the Petition to Deny Due Course to or Cancel Certificate of Candidacy of Ramon
Y. Talaga, Jr. as Mayor for Having Already Served Three (3) Consecutive Terms as a City Mayor of
Lucena, which was docketed as SPA 09-029 (DC).4 He alleged
therein that Ramon, despite knowing that he had been elected and had served three consecutive
terms as Mayor of Lucena City, still filed his CoC for Mayor of Lucena City in the May 10, 2010
national and local elections.
1. Petitioner is of legal age, Filipino, married, and a resident of Barangay Mayao Crossing,
Lucena City but may be served with summons and other processes of this Commission at
the address of his counsel at 624 Aurora Blvd., Lucena City 4301;
2. Respondent Ramon Y. Talaga, Jr. is likewise of legal age, married, and a resident of
Barangay Ibabang Iyam, Lucena City and with postal address at the Office of the City Mayor,
City Hall, Lucena City, where he may be served with summons and other processes of this
Commission;
3. Petitioner, the incumbent city vice-mayor of Lucena having been elected during the 2007
local elections, is running for city mayor of Lucena under the Liberal party this coming 10
May 2010 local elections and has filed his certificate of candidacy for city mayor of Lucena;
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4. Respondent was successively elected mayor of Lucena City in 2001, 2004, and 2007 local
elections based on the records of the Commission on Elections of Lucena City and had fully
served the aforesaid three (3) terms without any voluntary and involuntary interruption;
5. Except the preventive suspension imposed upon him from 13 October 2005 to 14
November 2005 and from 4 September 2009 to 30 October 2009 pursuant to
Sandiganbayan 4th Division Resolution in Criminal Case No. 27738 dated 3 October 2005,
the public service as city mayor of the respondent is continuous and uninterrupted under the
existing laws and jurisprudence;
6. There is no law nor jurisprudence to justify the filing of the certificate of candidacy of the
respondent, hence, such act is outrightly unconstitutional, illegal, and highly immoral;
7. Respondent, knowing well that he was elected for and had fully served three (3)
consecutive terms as a city mayor of Lucena, he still filed his Certificate of Candidacy for City
Mayor of Lucena for this coming 10 May 2010 national and local elections;
8. Under the Constitution and existing Election Laws, New Local Government Code of the
Philippines, and jurisprudence the respondent is no longer entitled and is already disqualified
to be a city mayor for the fourth consecutive term;
9. The filing of the respondent for the position of city mayor is highly improper, unlawful and
is potentially injurious and prejudicial to taxpayers of the City of Lucena; and
10. It is most respectfully prayed by the petitioner that the respondent be declared
disqualified and no longer entitled to run in public office as city mayor of Lucena City based
on the existing law and jurisprudence.5
WHEREFORE, premises considered, it is respectfully prayed that the Certificate of Candidacy filed
by the respondent be denied due course to or cancel the same and that he be declared as a
disqualified candidate under the existing Election Laws and by the provisions of the New Local
Government Code.6 (Emphasis supplied.)
Ramon countered that that the Sandiganbayan had preventively suspended him from office during
his second and third terms; and that the three-term limit rule did not then apply to him pursuant to
the prevailing jurisprudence7 to the effect that an involuntary separation from office amounted to an
interruption of continuity of service for purposes of the application of the three-term limit rule.
In the meantime, on December 23, 2009, the Court promulgated the ruling in Aldovino, Jr. v.
Commission on Elections,8 holding that preventive suspension, being a mere temporary incapacity,
was not a valid ground for avoiding the effect of the three-term limit rule. Thus, on December 30,
2009, Ramon filed in the COMELEC a Manifestation with Motion to Resolve, taking into account the
intervening ruling in Aldovino. Relevant portions of his Manifestation with Motion to Resolve are
quoted herein, viz:
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4. When respondent filed his certificate of candidacy for the position of Mayor of Lucena City, the
rule that where the separation from office is caused by reasons beyond the control of the officer
i.e. involuntary the service of term is deemed interrupted has not yet been overturned by the new
ruling of the Supreme Court. As a matter of fact, the prevailing rule then of the Honorable
Commission in [sic] respect of the three (3)-term limitation was its decision in the case of Aldovino, et
al. vs. Asilo where it stated:
"Thus, even if respondent was elected during the 2004 elections, which was supposedly his third
and final term as city councilor, the same cannot be treated as a complete service or full term in
office since the same was interrupted when he was suspended by the Sandiganbayan Fourth
Division. And the respondent actually heeded the suspension order since he did not receive his
salary during the period October 16-31 and November 1-15 by reason of his actual suspension from
office. And this was further bolstered by the fact that the DILG issued a
Memorandum directing him, among others, to reassume his position." (Emphasis supplied.)
5. Clearly, there was no misrepresentation on the part of respondent as would constitute a ground
for the denial of due course to and/or the cancellation of respondents certificate of candidacy at the
time he filed the same. Petitioners ground for the denial of due course to and/or the cancellation of
respondents certificate of candidacy thus has no basis, in fact and in law, as there is no ground to
warrant such relief under the Omnibus Election Code and/or its implementing laws.
6. Pursuant, however, to the new ruling of the Supreme Court in respect of the issue on the three
(3)-term limitation, respondent acknowledges that he is now DISQUALIFIED to run for the position of
Mayor of Lucena City having served three (3) (albeit interrupted) terms as Mayor of Lucena City prior
to the filing of his certificate of candidacy for the 2010 elections.
7. In view of the foregoing premises and new jurisprudence on the matter, respondent respectfully
submits the present case for decision declaring him as DISQUALIFIED to run for the position of
Mayor of Lucena City.9
Notwithstanding his express recognition of his disqualification to run as Mayor of Lucena City in the
May 10, 2010 national and local elections, Ramon did not withdraw his CoC.
Acting on Ramons Manifestation with Motion to Resolve, the COMELEC First Division issued a
Resolution on April 19, 2010,10 disposing as follows:
WHEREFORE, premises considered, the instant Petition is hereby GRANTED. Accordingly, Ramon
Y. Talaga, Jr. is hereby declared DISQUALIFIED to run for Mayor of Lucena City for the 10 May 2010
National and Local Elections.
SO ORDERED.
Initially, Ramon filed his Verified Motion for Reconsideration against the April 19, 2010 Resolution of
the COMELEC First Division.11 Later on, however, he filed at 9:00 a.m. of May 4, 2010 an Ex-parte
Manifestation of Withdrawal of the Pending Motion for Reconsideration. 12 At 4:30 p.m. on the same
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date, Barbara Ruby filed her own CoC for Mayor of Lucena City in substitution of Ramon, attaching
thereto the Certificate of Nomination and Acceptance (CONA) issued by Lakas-Kampi-CMD, the
party that had nominated Ramon.13
On May 5, 2010, the COMELEC En Banc, acting on Ramons Ex parte Manifestation of Withdrawal,
declared the COMELEC First Divisions Resolution dated April 19, 2010 final and executory.14
On election day on May 10, 2010, the name of Ramon remained printed on the ballots but the votes
cast in his favor were counted in favor of Barbara Ruby as his substitute candidate, resulting in
Barbara Ruby being ultimately credited with 44,099 votes as against Castillos 39,615 votes. 15
Castillo promptly filed a petition in the City Board of Canvassers (CBOC) seeking the suspension of
Barbara Rubys proclamation.16
It was only on May 13, 2010 when the COMELEC En Banc, upon the recommendation of its Law
Department,17gave due course to Barbara Rubys CoC and CONA through Resolution No. 8917,
thereby including her in the certified list of candidates.18 Consequently, the CBOC proclaimed
Barbara Ruby as the newly-elected Mayor of Lucena City.19
On May 20, 2010, Castillo filed a Petition for Annulment of Proclamation with the
COMELEC,20 docketed as SPC 10-024. He alleged that Barbara Ruby could not substitute Ramon
because his CoC had been cancelled and denied due course; and Barbara Ruby could not be
considered a candidate because the COMELEC En Banc had approved her substitution three days
after the elections; hence, the votes cast for Ramon should be considered stray.
In her Comment on the Petition for Annulment of Proclamation,21 Barbara Ruby maintained the
validity of her substitution. She countered that the COMELEC En Banc did not deny due course to or
cancel Ramons COC, despite a declaration of his disqualification, because there was no finding that
he had committed misrepresentation, the ground for the denial of due course to or cancellation of his
COC. She prayed that with her valid substitution, Section 12 of Republic Act No. 9006 22 applied,
based on which the votes cast for Ramon were properly counted in her favor.
On July 26, 2010, Roderick Alcala (Alcala), the duly-elected Vice Mayor of Lucena City, sought to
intervene,23positing that he should assume the post of Mayor because Barbara Rubys substitution
had been invalid and Castillo had clearly lost the elections.
On January 11, 2011, the COMELEC Second Division dismissed Castillos petition and Alcalas
petition-in-intervention,24 holding:
In the present case, Castillo was notified of Resolution 8917 on May 13, 2010 as it was the basis for
the proclamation of Ruby on that date. He, however, failed to file any action within the prescribed
period either in the Commission or the Supreme Court assailing the said resolution. Thus, the said
resolution has become final and executory. It cannot anymore be altered or reversed.
xxxx
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x x x. A close perusal of the petition filed by Castillo in SPA 10-029 (Dc) shows that it was actually for
the disqualification of Ramon for having served three consecutive terms, which is a ground for his
disqualification under the Constitution in relation to Section 4(b)3 of Resolution 8696. There was no
mention therein that Ramon has committed material representation that would be a ground for the
cancellation or denial of due course to the CoC of Ramon under Section 78 of the Omnibus Election
Code. The First Division, in fact, treated the petition as one for disqualification as gleaned from the
body of the resolution and its dispositive portion quoted above. This treatment of the First Division of
the petition as one for disqualification only is affirmed by the fact that its members signed Resolution
No. 8917 where it was clearly stated that the First Division only disqualified Ramon.
Having been disqualified only, the doctrine laid down in Miranda v. Abaya is not applicable. Ramon
was rightly substituted by Ruby. As such, the votes for Ramon cannot be considered as stray votes
but should be counted in favor of Ruby since the substituted and the substitute carry the same
surname Talaga, as provided in Section 12 of Republic Act No. 9006.
xxxx
Moreover, there is no provision in the Omnibus Election Code or any election laws for that matter
which requires that the substitution and the Certificate of Candidacy of the substitute should be
approved and given due course first by the Commission or the Law Department before it can be
considered as effective. All that Section 77 of the Omnibus Election Code as implemented by
Section 13 of Resolution No. 8678 requires is that it should be filed with the proper office. The
respondent is correct when she argued that in fact even the BEI can receive a CoC of a substitute
candidate in case the cause for the substitution happened between the day before the election and
mid-day of election day. Thus, even if the approval of the substitution was made after the election,
the substitution became effective on the date of the filing of the CoC with the Certificate of
Nomination and Acceptance.
There being no irregularity in the substitution by Ruby of Ramon as candidate for mayor of Lucena
City, the counting of the votes of Ramon in favor of Ruby is proper. The proclamation, thus, of Ruby
as mayor elect of Lucena City is in order. Hence, we find no cogent reason to annul the proclamation
of respondent Barbara Ruby C. Talaga as the duly elected Mayor of the City of Lucena after the
elections conducted on May 10, 2010.25
Acting on Castillo and Alcalas respective motions for reconsideration, the COMELEC En Banc
issued the assailed Resolution dated May 20, 2011 reversing the COMELEC Second Divisions
ruling.26
Pointing out that: (a) Resolution No. 8917 did not attain finality for being issued without a hearing as
a mere incident of the COMELECs ministerial duty to receive the COCs of substitute candidates; (b)
Resolution No. 8917 was based on the wrong facts; and (c) Ramons disqualification was resolved
with finality only on May 5, 2010, the COMELEC En Banc concluded that Barbara Ruby could not
have properly substituted Ramon but had simply become an additional candidate who had filed her
COC out of time; and held that Vice Mayor Alcala should succeed to the position pursuant to Section
44 of the Local Government Code (LGC).27
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Issues
The core issue involves the validity of the substitution by Barbara Ruby as candidate for the position
of Mayor of Lucena City in lieu of Ramon, her husband.
Ancillary to the core issue is the determination of who among the contending parties should assume
the contested elective position.
Ruling
1.
The filing of a CoC within the period provided by law is a mandatory requirement for any person to
be considered a candidate in a national or local election. This is clear from Section 73 of the
Omnibus Election Code, to wit:
Section 73. Certificate of candidacy No person shall be eligible for any elective public office
unless he files a sworn certificate of candidacy within the period fixed herein.
Section 74 of the Omnibus Election Code specifies the contents of a COC, viz:
Section 74. Contents of certificate of candidacy.The certificate of candidacy shall state that the
person filing it is announcing his candidacy for the office stated therein and that he is eligible for said
office; if for Member of the Batasang Pambansa, the province, including its component cities, highly
urbanized city or district or sector which he seeks to represent; the political party to which he
belongs; civil status; his date of birth; residence; his post office address for all election purposes; his
profession or occupation; that he will support and defend the Constitution of the Philippines and will
maintain true faith and allegiance thereto; that he will obey the laws, legal orders, and decrees
promulgated by the duly constituted authorities; that he is not a permanent resident or immigrant to a
foreign country; that the obligation imposed by his oath is assumed voluntarily, without mental
reservation or purpose of evasion; and that the facts stated in the certificate of candidacy are true to
the best of his knowledge. x x x
The evident purposes of the requirement for the filing of CoCs and in fixing the time limit for filing
them are, namely: (a) to enable the voters to know, at least 60 days prior to the regular election, the
candidates from among whom they are to make the choice; and (b) to avoid confusion and
inconvenience in the tabulation of the votes cast. If the law does not confine to the duly-registered
candidates the choice by the voters, there may be as many persons voted for as there are voters,
and votes may be cast even for unknown or fictitious persons as a mark to identify the votes in favor
of a candidate for another office in the same election. 28 Moreover, according to Sinaca v. Mula,29 the
CoC is:
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x x x in the nature of a formal manifestation to the whole world of the candidates political creed or
lack of political creed. It is a statement of a person seeking to run for a public office certifying that he
announces his candidacy for the office mentioned and that he is eligible for the office, the name of
the political party to which he belongs, if he belongs to any, and his post-office address for all
election purposes being as well stated.
Accordingly, a persons declaration of his intention to run for public office and his affirmation that he
possesses the eligibility for the position he seeks to assume, followed by the timely filing of such
declaration, constitute a valid CoC that render the person making the declaration a valid or official
candidate.
There are two remedies available to prevent a candidate from running in an electoral race. One is
through a petition for disqualification and the other through a petition to deny due course to or cancel
a certificate of candidacy. The Court differentiated the two remedies in Fermin v. Commission on
Elections,30 thuswise:
x x x A petition for disqualification, on the one hand, can be premised on Section 12 or 68 of the
Omnibus Election Code, or Section 40 of the Local Government Code. On the other hand, a petition
to deny due course to or cancel a CoC can only be grounded on a statement of a material
representation in the said certificate that is false. The petitions also have different effects. While a
person who is disqualified under Section 68 is merely prohibited to continue as a candidate, the
person whose certificate is cancelled or denied due course under Section 78 is not treated as a
candidate at all, as if he/she never filed a CoC.31
Inasmuch as the grounds for disqualification under Section 68 of the Omnibus Election Code (i.e.,
prohibited acts of candidates, and the fact of a candidates permanent residency in another country
when that fact affects the residency requirement of a candidate) are separate and distinct from the
grounds for the cancellation of or denying due course to a COC (i.e., nuisance candidates under
Section 69 of the Omnibus Election Code; and material misrepresentation under Section 78 of the
Omnibus Election Code), the Court has recognized in Miranda v. Abaya 32 that the following
circumstances may result from the granting of the petitions, to wit:
(1) A candidate may not be qualified to run for election but may have filed a valid CoC;
(2) A candidate may not be qualified and at the same time may not have filed a valid CoC;
and
(3) A candidate may be qualified but his CoC may be denied due course or cancelled.
In the event that a candidate is disqualified to run for a public office, or dies, or withdraws his CoC
before the elections, Section 77 of the Omnibus Election Code provides the option of substitution, to
wit:
Section 77. Candidates in case of death, disqualification or withdrawal. If after the last day for the
filing of certificates of candidacy, an official candidate of a registered or accredited political party
dies, withdraws or is disqualified for any cause, only a person belonging to, and certified by, the
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same political party may file a certificate of candidacy to replace the candidate who died, withdrew or
was disqualified. The substitute candidate nominated by the political party concerned may file his
certificate of candidacy for the office affected in accordance with the preceding sections not later
than mid-day of the day of the election. If the death, withdrawal or disqualification should occur
between the day before the election and mid-day of election day, said certificate may be filed with
any board of election inspectors in the political subdivision where he is a candidate, or, in the case of
candidates to be voted for by the entire electorate of the country, with the Commission.
Considering that a cancelled CoC does not give rise to a valid candidacy,33 there can be no valid
substitution of the candidate under Section 77 of the Omnibus Election Code. It should be clear, too,
that a candidate who does not file a valid CoC may not be validly substituted, because a person
without a valid CoC is not considered a candidate in much the same way as any person who has not
filed a CoC is not at all a candidate.34
Likewise, a candidate who has not withdrawn his CoC in accordance with Section 73 of the Omnibus
Election Code may not be substituted. A withdrawal of candidacy can only give effect to a
substitution if the substitute candidate submits prior to the election a sworn CoC as required by
Section 73 of the Omnibus Election Code.35
2.
In the light of the foregoing rules on the CoC, the Court concurs with the conclusion of the
COMELEC En Banc that the Castillo petition in SPA 09-029 (DC) was in the nature of a petition to
deny due course to or cancel a CoC under Section 78 of the Omnibus Election Code.
In describing the nature of a Section 78 petition, the Court said in Fermin v. Commission on
Elections:36
Lest it be misunderstood, the denial of due course to or the cancellation of the CoC is not based on
the lack of qualifications but on a finding that the candidate made a material representation that is
false, which may relate to the qualifications required of the public office he/she is running for. It is
noted that the candidate states in his/her CoC that he/she is eligible for the office he/she seeks.
Section 78 of the OEC, therefore, is to be read in relation to the constitutional and statutory
provisions on qualifications or eligibility for public office. If the candidate subsequently states a
material representation in the CoC that is false, the COMELEC, following the law, is empowered to
deny due course to or cancel such certificate. Indeed, the Court has already likened a proceeding
under Section 78 to a quo warranto proceeding under Section 253 of the OEC since they both deal
with the eligibility or qualification of a candidate, with the distinction mainly in the fact that a "Section
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78" petition is filed before proclamation, while a petition for quo warranto is filed after proclamation of
the winning candidate.
Castillos petition contained essential allegations pertaining to a Section 78 petition, namely: (a)
Ramon made a false representation in his CoC; (b) the false representation referred to a material
matter that would affect the substantive right of Ramon as candidate (that is, the right to run for the
election for which he filed his certificate); and (c) Ramon made the false representation with the
intention to deceive the electorate as to his qualification for public office or deliberately attempted to
mislead, misinform, or hide a fact that would otherwise render him ineligible. 37 The petition expressly
challenged Ramons eligibility for public office based on the prohibition stated in the Constitution and
the Local Government Code against any person serving three consecutive terms, and specifically
prayed that "the Certificate of Candidacy filed by the respondent Ramon be denied due course to or
cancel the same and that he be declared as a disqualified candidate." 38
The denial of due course to or the cancellation of the CoC under Section 78 involves a finding not
only that a person lacks a qualification but also that he made a material representation that is
false.39 A petition for the denial of due course to or cancellation of CoC that is short of the
requirements will not be granted. In Mitra v. Commission on Elections,40 the Court stressed that there
must also be a deliberate attempt to mislead, thus:
The false representation under Section 78 must likewise be a "deliberate attempt to mislead,
misinform, or hide a fact that would otherwise render a candidate ineligible." Given the purpose of
the requirement, it must be made with the intention to deceive the electorate as to the would-be
candidates qualifications for public office. Thus, the misrepresentation that Section 78 addresses
cannot be the result of a mere innocuous mistake, and cannot exist in a situation where the intent to
deceive is patently absent, or where no deception on the electorate results. The deliberate character
of the misrepresentation necessarily follows from a consideration of the consequences of any
material falsity: a candidate who falsifies a material fact cannot run; if he runs and is elected, he
cannot serve; in both cases, he can be prosecuted for violation of the election laws.
It is underscored, however, that a Section 78 petition should not be interchanged or confused with a
Section 68 petition. The remedies under the two sections are different, for they are based on
different grounds, and can result in different eventualities.41 A person who is disqualified under
Section 68 is prohibited to continue as a candidate, but a person whose CoC is cancelled or denied
due course under Section 78 is not considered as a candidate at all because his status is that of a
person who has not filed a CoC.42 Miranda v. Abaya43 has clarified that a candidate who is
disqualified under Section 68 can be validly substituted pursuant to Section 77 because he remains
a candidate until disqualified; but a person whose CoC has been denied due course or cancelled
under Section 78 cannot be substituted because he is not considered a candidate. 1wphi1
To be sure, the cause of Ramons ineligibility (i.e., the three-term limit) is enforced both by the
Constitution and statutory law. Article X, Section 8 of the 1987 Constitution provides:
Section 8. The term of office of elective local officials, except barangay officials, which shall be
determined by law, shall be three years and no such official shall serve for more than three
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consecutive terms. Voluntary renunciation of the office for any length of time shall not be considered
as an interruption in the continuity of his service for the full term for which he was elected.
Section 43 of the Local Government Code reiterates the constitutional three-term limit for all elective
local officials, to wit:
(b) No local elective official shall serve for more than three (3) consecutive terms in the same
position. Voluntary renunciation of the office for any length of time shall not be considered as an
interruption in the continuity of service for the full term for which the elective official concerned was
elected. (Emphasis supplied.)
The objective of imposing the three-term limit rule was "to avoid the evil of a single person
accumulating excessive power over a particular territorial jurisdiction as a result of a prolonged stay
in the same office." The Court underscored this objective in Aldovino, Jr. v. Commission on
Elections,44 stating:
x x x The framers of the Constitution specifically included an exception to the peoples freedom to
choose those who will govern them in order to avoid the evil of a single person accumulating
excessive power over a particular territorial jurisdiction as a result of a prolonged stay in the same
office. To allow petitioner Latasa to vie for the position of city mayor after having served for three
consecutive terms as a municipal mayor would obviously defeat the very intent of the framers when
they wrote this exception. Should he be allowed another three consecutive terms as mayor of the
City of Digos, petitioner would then be possibly holding office as chief executive over the same
territorial jurisdiction and inhabitants for a total of eighteen consecutive years. This is the very
scenario sought to be avoided by the Constitution, if not abhorred by it.
To accord with the constitutional and statutory proscriptions, Ramon was absolutely precluded from
asserting an eligibility to run as Mayor of Lucena City for the fourth consecutive term. Resultantly, his
CoC was invalid and ineffectual ab initio for containing the incurable defect consisting in his false
declaration of his eligibility to run. The invalidity and inefficacy of his CoC made his situation even
worse than that of a nuisance candidate because the nuisance candidate may remain eligible
despite cancellation of his CoC or despite the denial of due course to the CoC pursuant to Section
69 of the Omnibus Election Code.45
Ramon himself specifically admitted his ineligibility when he filed his Manifestation with Motion to
Resolve on December 30, 2009 in the COMELEC.46 That sufficed to render his CoC invalid,
considering that for all intents and purposes the COMELECs declaration of his disqualification had
the effect of announcing that he was no candidate at all.
We stress that a non-candidate like Ramon had no right to pass on to his substitute. As Miranda v.
Abaya aptly put it:
Even on the most basic and fundamental principles, it is readily understood that the concept of a
substitute presupposes the existence of the person to be substituted, for how can a person take the
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place of somebody who does not exist or who never was. The Court has no other choice but to rule
that in all the instances enumerated in Section 77 of the Omnibus Election Code, the existence of a
valid certificate of candidacy seasonably filed is a requisite sine qua non.
All told, a disqualified candidate may only be substituted if he had a valid certificate of candidacy in
the first place because, if the disqualified candidate did not have a valid and seasonably filed
certificate of candidacy, he is and was not a candidate at all. If a person was not a candidate, he
cannot be substituted under Section 77 of the Code. Besides, if we were to allow the so-called
"substitute" to file a "new" and "original" certificate of candidacy beyond the period for the filing
thereof, it would be a crystalline case of unequal protection of the law, an act abhorred by our
Constitution.47 (Emphasis supplied)
3.
That the COMELEC made no express finding that Ramon committed any deliberate
misrepresentation in his CoC was of little consequence in the determination of whether his CoC
should be deemed cancelled or not.
In Miranda v. Abaya,48 the specific relief that the petition prayed for was that the CoC "be not given
due course and/or cancelled." The COMELEC categorically granted "the petition" and then
pronounced in apparent contradiction that Joel Pempe Miranda was "disqualified." The
Court held that the COMELEC, by granting the petition without any qualification, disqualified Joel
Pempe Miranda and at the same time cancelled Jose Pempe Mirandas CoC. The Court explained:
The question to settle next is whether or not aside from Joel "Pempe" Miranda being disqualified by
the Comelec in its May 5, 1998 resolution, his certificate of candidacy had likewise been denied due
course and cancelled.
Private respondents petition in SPA No. 98-019 specifically prayed for the following:
WHEREFORE, it is respectfully prayed that the Certificate of Candidacy filed by respondent for the
position of Mayor for the City of Santiago be not given due course and/or cancelled.
Other reliefs just and equitable in the premises are likewise prayed for.
In resolving the petition filed by private respondent specifying a very particular relief, the Comelec
ruled favorably in the following manner:
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WHEREFORE, in view of the foregoing, the Commission (FIRST DIVISION) GRANTS the Petition.
Respondent JOSE "Pempe" MIRANDA is hereby DISQUALIFIED from running for the position of
mayor of Santiago City, Isabela, in the May 11, 1998 national and local elections.
SO ORDERED.
From a plain reading of the dispositive portion of the Comelec resolution of May 5, 1998 in SPA No.
98-019, it is sufficiently clear that the prayer specifically and particularly sought in the petition was
GRANTED, there being no qualification on the matter whatsoever. The disqualification was simply
ruled over and above the granting of the specific prayer for denial of due course and cancellation of
the certificate of candidacy. x x x.49
xxxx
x x x. There is no dispute that the complaint or petition filed by private respondent in SPA No. 98-019
is one to deny due course and to cancel the certificate of candidacy of Jose "Pempe" Miranda (Rollo,
pp. 26-31). There is likewise no question that the said petition was GRANTED without any
qualification whatsoever. It is rather clear, therefore, that whether or not the Comelec granted any
further relief in SPA No. 98-019 by disqualifying the candidate, the fact remains that the said petition
was granted and that the certificate of candidacy of Jose "Pempe" Miranda was denied due course
and cancelled. x x x.50
The crucial point of Miranda v. Abaya was that the COMELEC actually granted the particular relief of
cancelling or denying due course to the CoC prayed for in the petition by not subjecting that relief to
any qualification.
Miranda v. Abaya applies herein. Although Castillos petition in SPA No. 09-029 (DC) specifically
sought both the disqualification of Ramon and the denial of due course to or cancellation of his CoC,
the COMELEC categorically stated in the Resolution dated April 19, 2010 that it was granting the
petition. Despite the COMELEC making no finding of material misrepresentation on the part of
Ramon, its granting of Castillos petition without express qualifications manifested that the
COMELEC had cancelled Ramons CoC based on his apparent ineligibility. The Resolution dated
April 19, 2010 became final and executory because Castillo did not move for its reconsideration, and
because Ramon later withdrew his motion for reconsideration filed in relation to it.
4.
On the issue of who should assume the office of Mayor of Lucena City, Castillo submits that the
doctrine on the rejection of the second-placer espoused in Labo, Jr. v. Commission on
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Elections51 should not apply to him because Ramons disqualification became final prior to the
elections.52 Instead, he cites Cayat v. Commission on Elections,53 where the Court said:
x x x In Labo there was no final judgment of disqualification before the elections. The doctrine on the
rejection of the second placer was applied in Labo and a host of other cases because the judgment
declaring the candidates disqualification in Labo and the other cases had not become final before
the elections. To repeat, Labo and the other cases applying the doctrine on the rejection of the
second placer have one common essential condition the disqualification of the candidate had not
become final before the elections. This essential condition does not exist in the present case.
Thus, in Labo, Labos disqualification became final only on 14 May 1992, three days after the 11 May
1992 elections. On election day itself, Labo was still legally a candidate. In the present case, Cayat
was disqualified by final judgment 23 days before the 10 May 2004 elections. On election day, Cayat
was no longer legally a candidate for mayor. In short, Cayats candidacy for Mayor of Buguias,
Benguet was legally non-existent in the 10 May 2004 elections.
The law expressly declares that a candidate disqualified by final judgment before an election cannot
be voted for, and votes cast for him shall not be counted. This is a mandatory provision of law.
Section 6 of Republic Act No. 6646, The Electoral Reforms Law of 1987, states:
Sec. 6. Effect of Disqualification Case. Any candidate who has been declared by final judgment to
be disqualified shall not be voted for, and the votes cast for him shall not be
counted. If for any reason a candidate is not declared by final judgment before an election to be
disqualified and he is voted for and receives the winning number of votes in such election, the Court
or Commission shall continue with the trial and hearing of the action, inquiry, or protest and, upon
motion of the complainant or any intervenor, may during the pendency thereof order the suspension
of the proclamation of such candidate whenever the evidence of his guilt is strong. (Emphasis
added)
Section 6 of the Electoral Reforms Law of 1987 covers two situations. The first is when the
disqualification becomes final before the elections, which is the situation covered in the first
sentence of Section 6. The second is when the disqualification becomes final after the elections,
which is the situation covered in the second sentence of Section 6.
The present case falls under the first situation. Section 6 of the Electoral Reforms Law governing the
first situation is categorical: a candidate disqualified by final judgment before an election cannot be
voted for, and votes cast for him shall not be counted. The Resolution disqualifying Cayat became
final on 17 April 2004, way before the 10 May 2004 elections. Therefore, all the 8,164 votes cast in
Cayats favor are stray. Cayat was never a candidate in the 10 May 2004 elections. Palilengs
proclamation is proper because he was the sole and only candidate, second to none. 54
Relying on the pronouncement in Cayat, Castillo asserts that he was entitled to assume the position
of Mayor of Lucena City for having obtained the highest number of votes among the remaining
qualified candidates.
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It would seem, then, that the date of the finality of the COMELEC resolution declaring Ramon
disqualified is decisive. According to Section 10, Rule 19 of the COMELECs Resolution No.
8804,55 a decision or resolution of a Division becomes final and executory after the lapse of five days
following its promulgation unless a motion for reconsideration is seasonably filed. Under Section 8,
Rule 20 of Resolution No. 8804, the decision of the COMELEC En Banc becomes final and
executory five days after its promulgation and receipt of notice by the parties.
The COMELEC First Division declared Ramon disqualified through its Resolution dated April 19,
2010, the copy of which Ramon received on the same date. 56 Ramon filed a motion for
reconsideration on April 21, 201057 in accordance with Section 7 of COMELEC Resolution No.
8696,58 but withdrew the motion on May 4, 2010,59ostensibly to allow his substitution by Barbara
Ruby. On his part, Castillo did not file any motion for reconsideration. Such circumstances indicated
that there was no more pending matter that could have effectively suspended the finality of the ruling
in due course. Hence, the Resolution dated April 19, 2010 could be said to have attained finality
upon the lapse of five days from its promulgation and receipt of it by the parties. This happened
probably on April 24, 2010. Despite such finality, the COMELEC En Banc continued to act on the
withdrawal by Ramon of his motion for reconsideration through the May 5, 2010 Resolution declaring
the April 19, 2010 Resolution of the COMELEC First Division final and executory.
Yet, we cannot agree with Castillos assertion that with Ramons disqualification becoming final prior
to the May 10, 2010 elections, the ruling in Cayat was applicable in his favor. Barbara Rubys filing of
her CoC in substitution of Ramon significantly differentiated this case from the factual circumstances
obtaining in Cayat. Rev. Fr. Nardo B. Cayat, the petitioner in Cayat, was disqualified on April 17,
2004, and his disqualification became final before the May 10, 2004 elections. Considering that no
substitution of Cayat was made, Thomas R. Palileng, Sr., his rival, remained the only candidate for
the mayoralty post in Buguias, Benguet. In contrast, after Barbara Ruby substituted Ramon, the May
10, 2010 elections proceeded with her being regarded by the electorate of Lucena City as a bona
fide candidate. To the electorate, she became a contender for the same position vied for by Castillo,
such that she stood on the same footing as Castillo. Such standing as a candidate negated Castillos
claim of being the candidate who obtained the highest number of votes, and of being consequently
entitled to assume the office of Mayor.
Indeed, Castillo could not assume the office for he was only a second placer. Labo, Jr. should be
1wphi1
applied. There, the Court emphasized that the candidate obtaining the second highest number of
votes for the contested office could not assume the office despite the disqualification of the first
placer because the second placer was "not the choice of the sovereign will." 60 Surely, the Court
explained, a minority or defeated candidate could not be deemed elected to the office. 61 There was
to be no question that the second placer lost in the election, was repudiated by the electorate, and
could not assume the vacated position.62 No law imposed upon and compelled the people of Lucena
City to accept a loser to be their political leader or their representative. 63
The only time that a second placer is allowed to take the place of a disqualified winning candidate is
when two requisites concur, namely: (a) the candidate who obtained the highest number of votes is
disqualified; and (b) the electorate was fully aware in fact and in law of that candidates
disqualification as to bring such awareness within the realm of notoriety but the electorate still cast
the plurality of the votes in favor of the ineligible candidate. 64Under this sole exception, the electorate
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may be said to have waived the validity and efficacy of their votes by notoriously misapplying their
franchise or throwing away their votes, in which case the eligible candidate with the second highest
number of votes may be deemed elected.65 But the exception did not apply in favor of Castillo simply
because the second element was absent. The electorate of Lucena City were not the least aware of
the fact of Barbara Rubys ineligibility as the substitute. In fact, the COMELEC En Banc issued the
Resolution finding her substitution invalid only on May 20, 2011, or a full year after the decisions.
On the other hand, the COMELEC En Banc properly disqualified Barbara Ruby from assuming the
position of Mayor of Lucena City. To begin with, there was no valid candidate for her to substitute
due to Ramons ineligibility. Also, Ramon did not voluntarily withdraw his CoC before the elections in
accordance with Section 73 of the Omnibus Election Code. Lastly, she was not an additional
candidate for the position of Mayor of Lucena City because her filing of her CoC on May 4, 2010 was
beyond the period fixed by law. Indeed, she was not, in law and in fact, a candidate. 66
A permanent vacancy in the office of Mayor of Lucena City thus resulted, and such vacancy should
be filled pursuant to the law on succession defined in Section 44 of the LGC, to wit: 67
Section 44. Permanent Vacancies in the Offices of the Governor, Vice-Governor, Mayor, and Vice-
Mayor. If a permanent vacancy occurs in the office of the governor or mayor, the vice-governor or
vice-mayor concerned shall become the governor or mayor. x x x
WHEREFORE, the Court DISMISSES the petitions in these consolidated cases; AFFIRMS the
Resolution issued on May 20, 2011 by the COMELEC En Banc; and ORDERS the petitioners to pay
the costs of suit.
SO ORDERED.