Javellana vs Exec Sec 1973

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G.R. No. L-36142 March 31, 1973

JOSUE JAVELLANA, petitioner,vs.THE EXEUT!VE SERETAR", THE SERETAR" O#NAT!ONAL $E#ENSE, THE SERETAR" O# JUST!E AN$THE SERETAR" O# #!NANE, respondents.

G.R. No. L-36164 March 31, 1973

V!$AL TAN, J. ANTON!O ARANETA, ALEJAN$RO ROES,MANUEL RU$O, ANTON!O U. M!RAN$A, EM!L!O $E%ERALTA AN$ LOREN&O M. TA'A$A, petitioners,vs.THE EXEUT!VE SERETAR", THE SERETAR" O##!NANE , THE SERETAR" O# JUST!E, THESERETAR" O# LAN$ RE#ORM, THE SERETAR" O#NAT!ONAL $E#ENSE, THE AU$!TOR GENERAL, THE

(U$GET OMM!SS!ONER, THE HA!RMAN O#%RES!$ENT!AL OMM!SS!ON ON REORGAN!&AT!ON,THE TREASURER O# THE %H!L!%%!NES, THEOMM!SS!ON ON ELET!ONS AN$ THE OMM!SS!ONERO# !V!L SERV!E, respondents.

G.R. No. L-3616) March 31, 1973.

GERAR$O ROXAS, AM(ROS!O %A$!LLA, JOV!TO R.SALONGA, SALVA$OR H. LAUREL, RAMON V. M!TRA, JR.a*+ EVA ESTRA$A-ALA, petitioners,

vs.ALEJAN$RO MELHOR, * h/ ca0ac a/ Ec5Scrar JUAN %ONE ENR!LE, * h/ ca0ac a/Scrar o8 Nao*a $8*/ G*ra ROMEOES%!NO, * h/ ca0ac a/ h8 o8 Sa: o8 h Ar;+#orc/ o8 h %h00*/ TAN!O E. ASTA'E$A, *h/ ca0ac a/ Scrar G*ra Src/ S*aorG!L J. %U"AT, * h/ ca0ac a/ %r/+* o8 hS*a a*+ S*aor JOSE RO", h/ ca0ac, a/%r/+* %ro T;0or o8 h o8 hS*a, respondents.

G.R. No. L-36236 March 31, 1973

E$$!E (. MONTELARO, <0r/o*a a*+ * h/ ca0aca/ %r/+* o8 h Nao*a %r// 5= o8 h%h00*/>, petitioner,vs.THE EXEUT!VE SERETAR", THE SERETAR" O#

%U(L! !N#ORMAT!ON, THE AU$!TOR GENERAL, THE(U$GET OMM!SS!ONER ? THE NAT!ONALTREASURER, respondents.

G.R. No. L-362@3 March 31, 1973

NA%OLEON V. $!LAG, AL#RE$O SALA%ANTAN, JR.,LEONAR$O ASO$!SEN, JR., a*+ RAUL M.GON&ALE&, petitioners,vs.THE HONORA(LE EXEUT!VE SERETAR", THE

HONORA(LE SERETAR" O# NAT!ONAL $E#ENSE, THEHONORA(LE (U$GET OMM!SS!ONER, THEHONORA(LE AU$!TOR GENERAL, respondents.

Ramon A. Gonzales for petitioner Josue Javellana.

Lorenzo M. Tañada and Associates for petitioners Vidal Tan,et al.

Tañada, Salonga, rdoñez, Rodrigo, Sanidad, Ro!as.Gonzales and Arro"o for petitioners Gerardo Ro!as, et al.

Jo#er $. Arro"o and Rogelio %. $adilla for petitioner &ddieMonteclaro.

Raul M. Gonzales and Associates for petitioners 'apoleon V.(ilag, et al.

Arturo M. Tolentino for respondents Gil J. $u"at and Jose Ro".

)ce of t*e Solicitor General &stelito $. Mendoza, Solicitor

Vicente V. Mendoza and Solicitor Re"nato S. $uno for ot*errespondents.



R E S O L U T I O N

ONE%!ON, C.J.:

The above-entitled fve (5) ases are a se!"el o# ases $.R.

Nos. L-%5&'5,L-%5&'&, L-%5&, L-%5&*, L-%5&', L-%5&+, L-%5&5%, L-%5&*, L-%5&5 andL-%5&&, deided on an"ar/ '', *&%, to 0hih 1e 0illherea#ter re#er olletivel/ as the plebisite ases.

%ac#ground of t*e $le+iscite ases.

The #at"al settin2 thereo# is set #orth in the deision thereinrendered, #ro3 0hih 1e !"ote4

On arh *, *&, 6on2ress o# the 7hilippinespassed Resol"tion No. ', 0hih 0as a3ended b/Resol"tion No. o# said bod/, adopted on "ne*, *&&, allin2 a 6onvention to proposea3end3ents to the 6onstit"tion o# the7hilippines. Said Resol"tion No. ', as a3ended,0as i3ple3ented b/ Rep"bli 8t No. *%',approved on 8"2"st ', *&, p"rs"ant to theprovisions o# 0hih the eletion o# dele2ates tosaid 6onvention 0as held on Nove3ber *,*&, and the *&* 6onstit"tional 6onvention

be2an to per#or3 its #"ntions on "ne *, *&*.1hile the 6onvention 0as in session onSepte3ber '*, *&', the 7resident iss"ed7rola3ation No. *+* plain2 the entire7hilippines "nder artial La0. On Nove3ber '&,*&', the 6onvention approved its 7roposed6onstit"tion o# the Rep"bli o# the 7hilippines.

The ne9t da/, Nove3ber %, *&', the 7residento# the 7hilippines iss"ed 7residential :eree No.%, ;s"b3ittin2 to the <ilipino people #orratifation or re=etion the 6onstit"tion o# theRep"bli o# the 7hilippines proposed b/ the

*&* 6onstit"tional 6onvention, andappropriatin2 #"nds there#or,; as 0ell as settin2the plebisite #or said ratifation or re=etion o#the 7roposed 6onstit"tion on an"ar/ *5, *&%.

Soon a#ter, or on :ee3ber , *&', 6harito7lanas fled, 0ith this 6o"rt, 6ase $.R. No. L-

%5&'5, a2ainst the 6o33ission on Eletions,the Treas"rer o# the 7hilippines and the 8"ditor$eneral, to en=oin said ;respondents or theira2ents #ro3 i3ple3entin2 7residential :ereeNo. %, in an/ 3anner, "ntil #"rther orders o# the6o"rt,; "pon the 2ro"nds, inter alia, that said7residential :eree ;has no #ore and e>et asla0 bea"se the allin2 ... o# s"h plebisite, thesettin2 o# 2"idelines #or the ond"t o# thesa3e, the presription o# the ballots to be "sedand the !"estion to be ans0ered b/ the voters,

and the appropriation o# p"bli #"nds #or thep"rpose, are, b/ the 6onstit"tion, lod2ede9l"sivel/ in 6on2ress ...,; and ;there is noproper s"b3ission to the people o# said7roposed 6onstit"tion set #or an"ar/ *5, *&%,there bein2 no #reedo3 o# speeh

, press andasse3bl/, and there bein2 no s"?ient ti3e toin#or3 the people o# the ontents thereo#.;

S"bstantiall/ idential ations 0ere fled, on:ee3ber +, *&', b/ 7ablo 6. Sanidad a2ainst

the 6o33ission on Eletions (6ase $.R. No. L-%5&'&) on :ee3ber **, *&', b/ $erardoRo9as, et al., a2ainst the 6o33ission onEletions, the :iretor o# 7rintin2, the National

Treas"rer and the 8"ditor $eneral (6ase $.R. L-%5&), b/ Eddie @. ontelaro a2ainst the6o33ission on Eletions and the Treas"rer o#the 7hilippines (6ase $.R. No. L-%5&*), and b/Sed#re/ OrdoAeB, et al. a2ainst the National

Treas"rer and the 6o33ission on Eletions(6ase $.R. No. L-%5&')C on :ee3ber *', *&',

b/ Didal Tan, et al., a2ainst the 6o33ission onEletions, the Treas"rer o# the 7hilippines, the



8"ditor $eneral and the :iretor o# 7rintin2(6ase $.R. No. L-%5&+) and b/ ose 1. :ionoand @eni2no S. 8!"ino a2ainst the 6o33issionon Eletions (6ase $.R. No. L-%5&5%)C on:ee3ber *, *&', b/ ainto i3eneB a2ainstthe 6o33ission on Eletions, the 8"ditor$eneral, the Treas"rer o# the 7hilippines and the:iretor o# the @"rea" o# 7rintin2 (6ase $.R. No.L-%5&*), and b/ Ra"l . $onBales a2ainst the6o33ission on Eletions, the @"d2et6o33issioner, the National Treas"rer and the8"ditor $eneral (6ase $.R. No. L-%5&5)C and on:ee3ber *, *&', b/ Ernesto 6. Fidal2oa2ainst the 6o33ission on Eletions,the Seretar/ o# Ed"ation

, the National Treas"rer and the 8"ditor $eneral (6ase $.R.No. L-%5&&).

In all these ases, e9ept the last ($.R. No. L-%5&&), the respondents 0ere re!"ired to fletheir ans0ers ;not later than *'4 (oGlo)noon o# Sat"rda/, :ee3ber *, *&'.; Saidases 0ere, also, set #or hearin2 and partl/heard on onda/, :ee3ber *+, *&', at &4%a.3. The hearin2 0as ontin"ed on :ee3ber*&, *&'. @/ a2ree3ent o# the parties, thea#ore3entioned last ase H $.R. No. L-%5&& H0as, also, heard, =ointl/ 0ith the others, on:ee3ber *&, *&'. 8t the onl"sion o# the

hearin2, on that date, the parties in all o# thea#ore3entioned ases 0ere 2iven ashortperiod

o# ti3e 0ithin 0hih ;to s"b3it theirnotes on the points the/ desire to stress.; Saidnotes 0ere fled on di>erent dates, bet0een:ee3ber '*, *&', and an"ar/ , *&%.

ean0hile, or on :ee3ber *, *&', the7resident had iss"ed an order te3poraril/s"spendin2 the e>ets o# 7rola3ation No.*+*, #or the p"rpose o# #ree and open debate

on the 7roposed 6onstit"tion. On :ee3ber '%,the 7resident anno"ned the postpone3ent o#

the plebisite #or the ratifation or re=etion o#the 7roposed 6onstit"tion. No #or3al ation tothis e>et 0as taen "ntil an"ar/ , *&%, 0hen$eneral Order No. ' 0as iss"ed, diretin2 ;thatthe plebisite shed"led to be held on an"ar/*5, *&+, be postponed "ntil #"rther notie.;Said $eneral Order No. ', 3oreover,;s"spended in the 3eanti3e; the ;order o#:ee3ber *, *&', te3poraril/ s"spendin2 thee>ets o# 7rola3ation No. *+* #or p"rposes o# #ree and open debate on the proposed6onstit"tion.;

In vie0 o# these events relative to thepostpone3ent o# the a#ore3entioned plebisite,the 6o"rt dee3ed it ft to re#rain, #or the ti3ebein2, #ro3 deidin2 the a#ore3entioned ases,#or neither the date nor the onditions "nder

0hih said plebisite 0o"ld be held 0ere no0nor anno"ned o?iall/. Then, a2ain, 6on2ress0as, p"rs"ant to the *&%5 6onstit"tion,shed"led to 3eet in re2"lar session on an"ar/'', *&%, and sine the 3ain ob=etion to7residential :eree No. % 0as that the7resident does not have the le2islative a"thorit/to all a plebisite and appropriate #"ndsthere#or, 0hih 6on2ress "n!"estionabl/ o"lddo, parti"larl/ in vie0 o# the #or3alpostpone3ent o# the plebisite b/ the 7resident

H reportedl/ a#ter ons"ltation 0ith, a3on2others, the leaders o# 6on2ress and the6o33ission on Eletions H the 6o"rt dee3ed it3ore i3perative to de#er its fnal ation onthese ases.

;In the a#ternoon o# an"ar/ *', *&%, thepetitioners in 6ase $.R. No.L-%5&+ fled an ;"r2ent 3otion,; pra/in2 thatsaid ase be deided ;as soon as possible,pre#erabl/ not later than an"ar/ *5, *&%.; It

0as alle2ed in said 3otion, inter alia4



;. That the 7resident s"bse!"entl/ anno"nedthe iss"ane o# 7residential :eree No. +or2aniBin2 the so-alled 6itiBens 8sse3blies, tobe ons"lted on ertain p"bli !"estions@"lletin Toda/, an"ar/ *, *&%JC

;. That therea#ter it 0as later anno"ned that;the 8sse3blies 0ill be ased i# the/ #avor oroppose H

*J The Ne0 Soiet/C

'J Re#or3s instit"ted "nder artialLa0C

%J The holdin2 o# a plebisite onthe proposed ne0 6onstit"tion and0hen (the tentative ne0 dates

2iven #ollo0in2 the postpone3ento# the plebisite #ro3 the ori2inaldate o# an"ar/ *5 are <ebr"ar/ *&and arh 5)C

J The openin2 o# the re2"larsession slated on an"ar/ '' inaordane 0ith the e9istin26onstit"tion despite artial La0.;@"lletin Toda/, an"ar/ %, *&%.J

;+. That it 0as later reported that the #ollo0in2are to be the #or3s o# the !"estions to be asedto the 6itiBens 8sse3blies4 H

*J :o /o" approve o# the Ne0Soiet/K

'J :o /o" approve o# the re#or33eas"res "nder 3artial la0K

%J :o /o" thin that 6on2resssho"ld 3eet a2ain in re2"larsessionK

J Fo0 soon 0o"ld /o" lie theplebisite on the ne0 6onstit"tionto be heldK @"lletin Toda/, an"ar/5, *&%J.

;&. That the votin2 b/ the so-alled 6itiBens8sse3blies 0as anno"ned to tae plae d"rin2the period #ro3 an"ar/ * to an"ar/ *5, *&%C

;*. That on an"ar/ *, *&%, it 0as reportedthat on 3ore !"estion 0o"ld be added to the#o"r () !"estion previo"sl/ anno"ned, andthat the #or3s o# the !"estion 0o"ld be as#ollo0s4 H

*J :o /o" lie the Ne0 Soiet/K

'J :o /o" lie the re#or3s "nder3artial la0K

%J :o /o" lie 6on2ress a2ain tohold sessionsK

J :o /o" lie the plebisite to beheld laterK

5J (o "ou li#e t*e -a" $residentMarcos running t*e aairs of t*egovernment/@"lletin Toda/,

an"ar/ *, *&%C e3phasis anadditional !"estion.J

;**. That on an"ar/ **, *&%, it 0as reportedthat si9 () 3ore !"estions 0o"ld be s"b3ittedto the so-alled 6itiBens 8sse3blies4 H



*J :o /o" approve o# the itiBensasse3blies as the base o# pop"lar2overn3ent to deide iss"es o#national interestsK

'J (o "ou approve of t*e ne-onstitution/

%J :o /o" 0ant a plebisite to bealled to rati#/ the ne06onstit"tionK

J :o /o" 0ant the eletions to beheld in Nove3ber, *&% inaordane 0ith the provisions o#the *&%5 6onstit"tionK

5J I# the eletions 0o"ld not be

held, 0hen do /o" 0ant the ne9teletions to be alledK

J :o /o" 0ant 3artial la0 toontin"eK @"lletin Toda/, an"ar/**, *&%C e3phasis s"ppliedJ

;*'. That aordin2 to reports, the ret"rns 0ithrespet to the si9 () additional !"estions!"oted above 0ill be on a #or3 si3ilar oridential to 8nne9 ;8; hereo#C

;*%. That attahed to pa2e * o# 8nne9 ;8; isanother pa2e, 0hih 0e 3ared as 8nne9 ;8-*;,and 0hih reads4 H

6OENTS ON

UESTION No. *

In order to broaden

the base o# itiBensG

partiipation in2overn3ent.

UESTION No. '

@"t 0e do not 0ant the 8d Interi38sse3bl/ to be onvoed. Or i# it is

to be onvened at all, it sho"ld notbe done so "ntil a#ter at leastseven () /ears #ro3 the approvalo# the Ne0 6onstit"tion b/ the6itiBens 8sse3blies.

UESTION No. %

The vote o# the 6itiBens 8sse3bliessho"ld alread/ be onsidered theplebisite on the Ne0 6onstit"tion.

I# the 6itiBens 8sse3blies approveo# the Ne0 6onstit"tion, then thene0 6onstit"tion sho"ld bedee3ed ratifed.

UESTION No.

1e are si and tired o# too#re!"ent eletions. 1e are #ed "p0ith politis, o# so 3an/ debatesand so 3"h e9penses.

UESTION No. 5

7robabl/ a period o# at least seven() /ears 3oratori"3 on eletions0ill be eno"2h #or stabilit/ to beestablished in the o"ntr/, #orre#or3s to tae root and nor3al/to ret"rn.

UESTION No.



1e 0ant 7resident aros toontin"e 0ith artial La0. 1e 0anthi3 to e9erise his po0ers 0ith3ore a"thorit/. 1e 0ant hi3 to bestron2 and fr3 so that he anao3plish all his re#or3 pro2ra3sand establish nor3al/ in theo"ntr/. I# all other 3eas"res #ail,0e 0ant 7resident aros todelare a revol"tionar/2overn3ent alon2 the lines o# thene0 6onstit"tion 0itho"t the adinteri3 8sse3bl/.;

;8ttention is respet#"ll/ invited to theo33ents on ;"estion No. %,; 0hih reads4 H

UESTION No. %

The vote o# the 6itiBens 8sse3bliessho"ld be onsidered the plebisiteon the Ne0 6onstit"tion.

I# the 6itiBens 8sse3blies approveo# the Ne0 6onstit"tion, then thene0 6onstit"tion sho"ld bedee3ed ratifed.

This, 0e are a#raid, and there#ore alle2e, is

pre2nant 0ith o3ino"s possibilities.

*. That, in the 3eanti3e, speain2 ontelevision and over the radio, on an"ar/ ,*&%, the 7resident anno"ned that the li3ited#reedo3 o# debate on the proposed 6onstit"tion0as bein2 0ithdra0n and that the prola3ationo# 3artial la0 and the orders and derees iss"edthere"nder 0o"ld thene#orth stritl/ been#ored :ail/ E9press, an"ar/ +, *&%JC

*5. That petitioners have reason to #ear, andthere#ore state, that the !"estion added in thelast list o# !"estions to be ased to the 6itiBens8sse3blies, na3el/4 H

:o/o"approveo#theNe06onstit"tionK

H

in relation to the !"estion #ollo0in2 it4 H

:o /o"still 0antaplebisiteto bealled torati#/ the

ne06onstit"tionK; H

0o"ld be an atte3pt to b/-pass and short-ir"itthis Fonorable 6o"rt be#ore 0hih the !"estiono# the validit/ o# the plebisite on the proposed6onstit"tion is no0 pendin2C

;*. That petitioners have reason to #ear, andthere#ore alle2e, that i# an a?r3ative ans0er to

the t0o !"estions ="st re#erred to 0ill be



reported then this Fonorable 6o"rt and theentire nation 0ill be on#ronted 0ith a faitaccompli 0hih has been attained in a hi2hl/"nonstit"tional and "nde3orati 3annerC

;*. That the fait accompli 0o"ld onsist in thes"pposed e9pression o# the people approvin2the proposed 6onstit"tionC

;*+. That, i# s"h event 0o"ld happen, then thease be#ore this Fonorable 6o"rt o"ld, to allintents and p"rposes, beo3e 3oot bea"se,petitioners #ear, and the/ there#ore alle2e, thaton the basis o# s"h s"pposed e9pression o# the0ill o# the people thro"2h the 6itiBens8sse3blies, it 0o"ld be anno"ned that theproposed 6onstit"tion, 0ith all its de#ets, bothon2enital and other0ise, has been ratifedC

;*&. That, in s"h a sit"ation the 7hilippines 0illbe #ain2 a real risis and there is lielihood o#on#"sion i# not haos, bea"se then, the peopleand their o?ials 0ill not no0 0hih6onstit"tion is in #ore.

;'. That the risis 3entioned above an onl/be avoided i# this Fonorable 6o"rt 0illi33ediatel/ deide and anno"ne its deisionon the present petitionC

;'*. That 0ith the 0ithdra0al b/ the 7residento# the li3ited #reedo3 o# dis"ssion on theproposed 6onstit"tion 0hih 0as 2iven to thepeople p"rs"ant to Se. % o# 7residential :ereeNo. %, the opposition o# respondents topetitionersG pra/er at the plebisite beprohibited has no0 ollapsed and that a #reeplebisite an no lon2er be held.;

8t abo"t the sa3e ti3e, a si3ilar pra/er 0as3ade in a ;3ani#estation; fled b/ the

petitioners in L-%5&&, ;$erardo Ro9as, et al. v.6o33ission on Eletions, et al.,; and L-%5&',;Sed#re/ 8. OrdoAeB, et al. v. The National

Treas"rer, et al.;

The ne9t da/, an"ar/ *%, *&%, 0hih 0as aSat"rda/, the 6o"rt iss"ed a resol"tion re!"irin2the respondents in said three (%) ases too33ent on said ;"r2ent 3otion; and;3ani#estation,; ;not later than T"esda/ noon,

an"ar/ *, *&%.; 7rior thereto, or on an"ar/*5, *&%, shortl/ be#ore noon, the petitioners insaid 6ase $.R. No. L-%5&+ riled a;s"pple3ental 3otion #or iss"ane o# restrainin2order and inl"sion o# additional respondents,;pra/in2 H

;... that a restrainin2 order be

iss"ed en=oinin2 and restrainin2respondent 6o33ission onEletions, as 0ell as the:epart3ent o# Loal $overn3entsand its head, Seretar/ ose RoAoCthe :epart3ent o# 82rarianRe#or3s and its head, Seretar/6onrado EstrellaC the NationalRatifation 6oordinatin26o33ittee and its 6hair3an,$"iller3o de De2aC their dep"ties,

s"bordinates and s"bstit"tes, andall other o?ials and persons 0ho3a/ be assi2ned s"h tas, #ro3olletin2, erti#/in2, andanno"nin2 and reportin2 to the7resident or other o?ialsonerned, the so-alled 6itiBensG8sse3blies re#erend"3 res"ltsalle2edl/ obtained 0hen the/ 0eres"pposed to have 3et d"rin2 theperiod o3prised bet0een an"ar/

* and an"ar/ *5, *&%, on thet0o !"estions !"oted in para2raph



* o# this S"pple3ental Ur2entotion.;

In s"pport o# this pra/er, it 0as alle2ed H

;%. That petitioners are no0 be#ore thisFonorable 6o"rt in order to as #"rther that this

Fonorable 6o"rt iss"e a restrainin2 orderen=oinin2 herein respondents, parti"larl/respondent 6o33ission on Eletions as 0ell asthe :epart3ent o# Loal $overn3ents and itshead, Seretar/ ose RoAoC the :epart3ent o#82rarian Re#or3s and its head, Seretar/6onrado EstrellaC the National Ratifation6oordinatin2 6o33ittee and its 6hair3an,$"iller3o de De2aC and their dep"ties,s"bordinates andMor s"bstit"tes, #ro3 olletin2,erti#/in2, anno"nin2 and reportin2 to the

7resident the s"pposed 6itiBensG 8sse3bliesre#erend"3 res"lts alle2edl/ obtained 0henthe/ 0ere s"pposed to have 3et d"rin2 theperiod bet0een an"ar/ * and an"ar/ *5,*&%, parti"larl/ on the t0o !"estions !"otedin para2raph * o# this S"pple3ental Ur2entotionC

;. That the proeedin2s o# the so-alled6itiBensG 8sse3blies are ille2al, n"ll and voidparti"larl/ inso#ar as s"h proeedin2s are

bein2 3ade the basis o# a s"pposed onsens"s#or the ratifation o# the proposed 6onstit"tionbea"se4 H

aJ The eletions onte3plated inthe 6onstit"tion, 8rtile D, at0hih the proposed onstit"tionala3end3ents are to be s"b3itted#or ratifation, are eletions at0hih onl/ !"alifed and d"l/re2istered voters are per3itted to

vote, 0hereas, the so alled

6itiBensG 8sse3blies 0erepartiipated in b/ persons *5 /earso# a2e and older, re2ardless o#!"alifations or la thereo#, aspresribed in the Eletion 6odeC

bJ Eletions or plebisites #or theratifation o# onstit"tionala3end3ents onte3plated in8rtile D o# the 6onstit"tion haveprovisions #or the sere/ o# hoieand o# vote, 0hih is one o# thesa#e2"ards o# #reedo3 o# ation,b"t votes in the 6itiBensG8sse3blies 0ere open and 0ereast b/ raisin2 handsC

J The Eletion 6ode 3aes a3ple

provisions #or #ree, orderl/ andhonest eletions, and s"hprovisions are a 3ini3"3re!"ire3ent #or eletions orplebisites #or the ratifation o#onstit"tional a3end3ents, b"tthere 0ere no si3ilar provisions to2"ide and re2"late proeedin2s o#the so alled 6itiBensG 8sse3bliesC

dJ It is serio"sl/ to be do"bted

that, #or la o# 3aterial ti3e, 3orethan a hand#"l o# the so alled6itiBensG 8sse3blies have beenat"all/ #or3ed, bea"se the3ehanis o# their or2aniBation0ere still bein2 dis"ssed a da/ orso be#ore the da/ the/ 0eres"pposed to be2in #"ntionin24 H

;7rovinial 2overnorsand it/ and 3"niipal

3a/ors had been



3eetin2 0ith barrioaptains ando33"nit/ leaderssine last onda/an"ar/ +, *&%) tothresh o"t the3ehanis in the#or3ation o# the6itiBens 8sse3bliesand the topis #ordis"ssion.; @"lletin

Toda/, an"ar/ *,*&%J

;It sho"ld be realled that the 6itiBensG8sse3blies 0ere ordered #or3ed onl/ at thebe2innin2 o# the /ear :ail/ E9press, an"ar/ *,*&%J, and onsiderin2 the la o# e9periene o#

the loal or2aniBers o# said asse3blies, as 0ellas the absene o# s"?ient 2"idelines #oror2aniBation, it is too 3"h to believe that s"hasse3blies o"ld be or2aniBed at s"h a shortnotie.

;5. That #or la o# 3aterial ti3e, theappropriate a3ended petition to inl"de theadditional o?ials and 2overn3ent a2enies3entioned in para2raph % o# this S"pple3entalUr2ent otion o"ld not be o3pleted bea"se,

as noted in the Ur2ent otion o# an"ar/ *',*&%, the s"b3ission o# the proposed6onstit"tion to the 6itiBensG 8sse3blies 0as not3ade no0n to the p"bli "ntil an"ar/ **,*&%. @"t be that as it 3a/, the said additionalo?ials and a2enies 3a/ be properl/ inl"dedin the petition at bar bea"se4 H

aJ The herein petitioners havepra/ed in their petition #or theann"l3ent not onl/ o# 7residential

:eree No. %, b"t also o# ;an/

si3ilar deree, prola3ation, orderor instr"tion.

so that 7residential :eree No. +, inso#ar atleast as it atte3pts to s"b3it the proposed6onstit"tion to a plebisite b/ the so-alled6itiBensG 8sse3blies, is properl/ in iss"e in thisase, and those 0ho en#ore, i3ple3ent, orarr/ o"t the said 7residential :eree No. +.and the instr"tions inidental thereto learl/#all 0ithin the sope o# this petitionC

bJ In their petition, petitionersso"2ht the iss"ane o# a 0rit o#preli3inar/ in="ntion restrainin2not onl/ the respondents na3ed inthe petition b"t also their ;a2ents;#ro3 i3ple3entin2 not onl/

7residential :eree No. %, b"t also;an/ other si3ilar deree, order,instr"tion, or prola3ation inrelation to the holdin2 o# aplebisite on an"ar/ *5, *&% #orthe p"rpose o# s"b3ittin2 to the<ilipino people #or their ratifationor re=etion the *&' :ra#t orproposed 6onstit"tion approved b/the 6onstit"tional 6onvention onNove3ber %, *&';C and fnall/,

J 7etitioners pra/ed #or s"hother relie# 0hih 3a/ be ="st ande!"itable. p. %&, 7etitionJ.

;There#ore, vie0in2 the ase #ro3 all an2les, theo?ials and 2overn3ent a2enies 3entioned inpara2raph % o# this S"pple3ental Ur2entotion, an la0#"ll/ be reahed b/ theproesses o# this Fonorable 6o"rt b/ reason o#this petition, onsiderin2, #"rther3ore, that the



6o33ission on Eletions has "nder o"r la0s thepo0er, a3on2 others, o#4 H

(a) :iret and i33ediates"pervision and ontrol overnational, provinial, it/, 3"niipaland 3"niipal distrit o?ialsre!"ired b/ la0 to per#or3 d"tiesrelative to the ond"t o# eletionson 3atters pertainin2 to theen#ore3ent o# the provisions o#this 6ode ...; Eletion 6ode o#*&*, Se. %J.

;. That "nless the petition at bar is deidedi33ediatel/ and the 6o33ission on Eletions,to2ether 0ith the o?ials and 2overn3enta2enies 3entioned in para2raph % o# this

S"pple3ental Ur2ent otion are restrained oren=oined #ro3 olletin2, erti#/in2, reportin2 oranno"nin2 to the 7resident the res"lts o# thealle2ed votin2 o# the so-alled 6itiBensG8sse3blies, irreparable da3a2e 0ill be a"sedto the Rep"bli o# the 7hilippines, the <ilipinopeople, the a"se o# #reedo3 an de3ora/,and the petitioners herein bea"se4

aJ 8#ter the res"lt o# the s"pposedvotin2 on the !"estions 3entioned

in para2raph * hereo# shall havebeen anno"ned, a onit 0illarise bet0een those 0ho 3aintainthat the *&%5 6onstit"tion is still in#ore, on the one hand, and those0ho 0ill 3aintain that it has beens"perseded b/ the proposed6onstit"tion, on the other, thereb/reatin2 on#"sion, i# not haosC

bJ Even the ="risdition o# this

6o"rt 0ill be s"b=et to serio"s

atta bea"se the advoates o#the theor/ that the proposed6onstit"tion has been ratifed b/reason o# the anno"ne3ent o# theres"lts o# the proeedin2s o# theso-alled 6itiBensG 8sse3blies 0illar2"e that, $eneral Order No. %,0hih shall also be dee3ed ratifedp"rs"ant to the Transitor/7rovisions o# the proposed6onstit"tion, has plaed7residential :eree Nos. % and +be/ond the reah and ="risditiono# this Fonorable 6o"rt.;

On the sa3e date H an"ar/ *5, *&% H the6o"rt passed a resol"tion re!"irin2 therespondents in said ase $.R. No. L-%5&+ to fle

;fle an ans0er to the said 3otion not later than 7.., T"esda/, an"ar/ *, *&%,; and settin2the 3otion #or hearin2 ;on an"ar/ *, *&%, at&4% a.3.; 1hile the ase 0as bein2 heard, onthe date last 3entioned, at noonti3e, theSeretar/ o# "stie alled on the 0riter o# thisopinion and said that, "pon instr"tions o# the7resident, he (the Seretar/ o# "stie) 0asdeliverin2 to hi3 (the 0riter) a op/ o#7rola3ation No. **', 0hih had ="st beensi2ned b/ the 7resident. There"pon, the 0riter

ret"rned to the Session Fall and anno"ned tothe 6o"rt, the parties in $.R. No. L-%5&+ Hinas3"h as the hearin2 in onnetion there0ith0as still 2oin2 on H and the p"bli therepresent that the 7resident had, aordin2 toin#or3ation onve/ed b/ the Seretar/ o#

"stie, si2ned said 7rola3ation No. **',earlier that 3ornin2. There"pon, the 0riter read7rola3ation No. **' 0hih is o# the #ollo0in2tenor4

;@P TFE 7RESI:ENT O< TFE 7FILI77INES



;7RO6L88TION NO. **'

;8NNOUN6IN$ TFE R8TI<I68TION @P TFE<ILI7INO 7EO7LE O< TFE 6ONSTITUTION7RO7OSE: @P TFE *&* 6ONSTITUTION8L6ONDENTION.

;1FERE8S, the 6onstit"tion proposed b/ thenineteen h"ndred sevent/-one 6onstit"tional6onvention is s"b=et to ratifation b/ the<ilipino peopleC

;1FERE8S, 6itiBens 8sse3blies 0ere reated inbarrios, in 3"niipalities and in distritsM0ardsin hartered ities p"rs"ant to 7residential:eree No. +, dated :ee3ber %*, *&',o3posed o# all persons 0ho are residents o#the barrio, distrit or 0ard #or at least si9

3onths, f#teen /ears o# a2e or over, itiBens o#the 7hilippines and 0ho are re2istered in the listo# 6itiBen 8sse3bl/ 3e3bers ept b/ the barrio,distrit or 0ard seretar/C

;1FERE8S, the said 6itiBens 8sse3blies 0ereestablished preisel/ to broaden the base o#itiBen partiipation in the de3orati proessand to a>ord a3ple opport"nit/ #or the itiBenr/to e9press their vie0s on i3portant nationaliss"esC

;1FERE8S, respondin2 to the la3or o# thepeople and p"rs"ant to 7residential :eree No.+-8, dated an"ar/ 5, *&%, the #ollo0in2!"estions 0ere posed be#ore the 6itiBens8sse3blies or @aran2a/s4 :o /o" approve o# theNe0 6onstit"tionK :o /o" still 0ant a plebisiteto be alled to rati#/ the ne0 6onstit"tionK

;1FERE8S, #o"rteen 3illion nine h"ndredsevent/-si9 tho"sand fve h"ndred si9t/-one

(*,&,5*) 3e3bers o# all the @aran2a/s

(6itiBens 8sse3blies) voted #or the adoption o#the proposed 6onstit"tion, as a2ainst sevenh"ndred #ort/-three tho"sand ei2ht h"ndredsi9t/-nine (%,+&) 0ho voted #or its re=etionC0hile on the !"estion as to 0hether or not thepeople 0o"ld still lie a plebisite to be alled torati#/ the ne0 6onstit"tion, #o"rteen 3illion t0oh"ndred ninet/-ei2ht tho"sand ei2ht h"ndred#o"rteen (*,'&+,+*) ans0ered that there 0asno need #or a plebisite and that the vote o# the@aran2a/s (6itiBens 8sse3blies) sho"ld beonsidered as a vote in a plebisiteC

;1FERE8S, sine the re#erend"3 res"lts sho0that 3ore than ninet/-fve (&5) per ent o# the3e3bers o# the @aran2a/s (6itiBens8sse3blies) are in #avor o# the ne0 6onstit"tion,the0atipunan ng Mga %aranga" has stron2l/

reo33ended that the ne0 6onstit"tion sho"ldalread/ be dee3ed ratifed b/ the <ilipinopeopleC

;NO1, TFERE<ORE, I, <ER:IN8N: E. 8R6OS,7resident o# the 7hilippines, b/ virt"e o# thepo0ers in 3e vested b/ the 6onstit"tion, dohereb/ erti#/ and prolai3 that the 6onstit"tionproposed b/ the nineteen h"ndred and sevent/-one (*&*) 6onstit"tional 6onvention has beenratifed b/ an over0hel3in2 3a=orit/ o# all o#

the votes ast b/ the 3e3bers o# all the@aran2a/s (6itiBens 8sse3blies) thro"2ho"t the7hilippines, and has thereb/ o3e into e>et.

;IN 1ITNESS 1FEREO<, I have here"nto set 3/hand and a"sed the seal o# the Rep"bli o# the7hilippines to be a?9ed.

;:one in the 6it/ o# anila, this *th da/ o# an"ar/, in the /ear o# O"r Lord, nineteenh"ndred and sevent/-three.



(S2d.)<ER:IN8N: E.8R6OS;7resident o# the7hilippines

;@/ the 7resident4

;8LE8N:RO EL6FOR;E9e"tive Seretar/;

S"h is the ba2ro"nd o# the ases s"b3itteddeter3ination. 8#ter ad3ittin2 so3e o# thealle2ations 3ade in the petition in L-%5&+ andden/in2 the other alle2ations thereo#,respondents therein alle2ed in their ans0erthereto, b/ 0a/ a?r3ative de#enses4 *) that the;!"estions raised; in said petition ;are politial

in harater;C ') that ;the 6onstit"tional6onvention ated #reel/ and had plenar/a"thorit/ to propose not onl/ a3end3ents b"t a6onstit"tion 0hih 0o"ld s"persede the present6onstit"tion;C %) that ;the 7residentGs all #or aplebisite and the appropriation o# #"nds #or thisp"rpose are valid;C ) that ;there is not ani3proper s"b3ission; and ;there an be aplebisite "nder artial La0;C and 5) that the;ar2"3ent that the 7roposed 6onstit"tion isva2"e and ino3plete, 3aes an

"nonstit"tional dele2ation o# po0er, inl"des are#erend"3 on the prola3ation o# artial La0and p"rports to e9erise ="diial po0er; is ;notrelevant and ... 0itho"t 3erit.; Identialde#enses 0ere set "p in the other ases "nderonsideration.

I33ediatel/ a#ter the hearin2 held on an"ar/*, *&%, or sine the a#ternoon o# that date,the e3bers o# the 6o"rt have beendeliberatin2 on the a#ore3entioned ases and,

a#ter e9tensive dis"ssions on the 3erits

thereo#, have dee3ed it best that eah e3ber0rite his o0n vie0s thereon and that therea#terthe 6hie# "stie sho"ld state the res"lt or thevotes th"s ast on the points in iss"e. Fene,the individ"al vie0s o# 3/ brethren in the 6o"rtare set #orth in the opinions attahed hereto,e9ept that, instead o# 0ritin2 their separateopinions, so3e e3bers have pre#erred to3erel/ on"r in the opinion o# one o# o"rollea2"es.

Then the 0riter o# said deision e9pressed his o0n opinion onthe iss"es involved therein, a#ter 0hih he reapit"lated thevie0s o# the e3bers o# the 6o"rt, as #ollo0s4

*. There is "nani3it/ on the ="stiiable nat"re o# the iss"e on the le2alit/ o# 7residential :ereeNo. %.

'. On the validit/ o# the deree itsel#, "stiesaalintal, 6astro, <ernando, Teehanee,Es2"erra and 3/sel#, or si9 () e3bers o# the6o"rt, are o# the opinion that the iss"e hasbeo3e 3oot and aade3i, 0hereas "sties@arredo, aasiar and 8ntonio voted to "pholdthe validit/ o# said :eree.

%. On the a"thorit/ o# the *&* 6onstit"tional6onvention to pass the proposed 6onstit"tion or

to inorporate therein the provisions ontestedb/ the petitioners in L-%5&+, "stiesaalintal, 6astro, Teehanee and Es2"erraopine that the iss"e has beo3e 3oot andaade3i. "sties <ernando, @arredo, aasiar,8ntonio and 3/sel# have voted to "phold thea"thorit/ o# the 6onvention.

. "stie <ernando, lie0ise, e9pressed the vie0that the *&* 6onstit"tional 6onvention hada"thorit/ to ontin"e in the per#or3ane o# its

#"ntions despite the prola3ation o# artial



La0. In e>et, "sties @arredo, aasiar and8ntonio hold the sa3e vie0.

5. On the !"estion 0hether the prola3ation o#artial La0 a>eted the proper s"b3ission o#the proposed 6onstit"tion to a plebisite, inso#aras the #reedo3 essential there#or is onerned,

"stie <ernando is o# the opinion that there is arep"2nan/ bet0een the eletion onte3plated"nder 8rt. D o# the *&%5 6onstit"tion and thee9istene o# artial La0, and 0o"ld, there#ore,2rant the petitions 0ere the/ not 3oot andaade3i. "sties @arredo, 8ntonio andEs2"erra are o# the opinion that iss"e involves!"estions o# #at 0hih annot bepredeter3ined, and that artial La0 per se doesnot neessaril/ prel"de the #at"al possibilit/o# ade!"ate #reedo3, #or the p"rposes

onte3plated.

. On 7residential 7rola3ation No. **', the#ollo0in2 vie0s 0ere e9pressed4

a. "sties aalintal, 6astro,<ernando, Teehanee, aasiar,Es2"erra and 3/sel# are o# theopinion that the !"estion o# validit/o# said 7rola3ation has not beenproperl/ raised be#ore the 6o"rt,

0hih, aordin2l/, sho"ld not pass"pon s"h !"estion.

b. "stie @arredo holds that theiss"e on the onstit"tionalit/ o#7rola3ation No. **' has beens"b3itted to and sho"ld bedeter3ined b/ the 6o"rt, and thatthe ;p"rported ratifation o# the7roposed 6onstit"tion ... based onthe re#erend"3 a3on2 6itiBensG

8sse3blies #alls short o# bein2 in

strit on#or3it/ 0ith there!"ire3ents o# 8rtile D o# the*&%5 6onstit"tion,; b"t that s"h"n#ort"nate dra0banot0ithstandin2, ;onsiderin2 allother related relevantir"3stanes, ... the ne06onstit"tion is le2all/ reo2niBable

and sho"ld be reo2niBed asle2iti3atel/ in #ore.;

. "stie Qaldivar 3aintains"n!"alifedl/ that the 7roposed6onstit"tion has not been ratifedin aordane 0ith 8rtile D o# the*&%5 6onstit"tion, and that,aordin2l/, it has no #ore ande>et 0hatsoever.

d. "stie 8ntonio #eels ;that the6o"rt is not o3petent to at; onthe iss"e 0hether the 7roposed6onstit"tion has been ratifed b/the people or not, ;in the abseneo# an/ ="diiall/ disoverable and3ana2eable standards,; sine theiss"e ;poses a !"estion o# #at.

. On the !"estion 0hether or not these ases

sho"ld be dis3issed, "sties aalintal, 6astro,@arredo, aasiar, 8ntonio and Es2"erra votedin the a?r3ative, #or the reasons set #orth intheir respetive opinions. "sties <ernando,

Teehanee, and the 0riter si3ilarl/ voted,e9ept as re2ards 6ase No. L-%5&+ as to 0hihthe/ voted to 2rant to the petitioners therein areasonable period o# ti3e 0ithin 0hih to fleappropriate pleadin2s sho"ld the/ 0ish toontest the le2alit/ o# 7residential 7rola3ationNo. **'. "stie Qaldivar #avors the 2rantin2 o#

said period to the petitioners in said 6ase No. L-



%5&+ #or the a#ore3entioned p"rpose, b"t hebelieves, in e>et, that the 6o"rt sho"ld 2o#arther and deide on the 3erits ever/one o#the ases "nder onsideration.

8ordin2l/, the 6o"rt H atin2 in on#or3it/ 0ith theposition taen b/ si9 () o# its 3e3bers, 1 0ith three (%)3e3bers dissentin2, 2 0ith respet to $.R. No. L-%5&+, onl/and another 3e3ber 3 dissentin2, as re2ards all o# the asesdis3issed the sa3e, 0itho"t speial prono"ne3ent as toosts.

T*e $resent ases

7rior thereto, or on an"ar/ ', *&%, os"e avellana fled6ase $.R. No. L-%*' a2ainst the E9e"tive Seretar/ andthe Seretaries o# National :e#ense, "stie and <inane, torestrain said respondents ;and their s"bordinates or a2ents

#ro3 i3ple3entin2 an/ o# the provisions o# the propose6onstit"tion not #o"nd in the present 6onstit"tion; Hre#errin2 to that o# *&%5. The petition therein, fled b/ os"e

avellana, as a ;<ilipino itiBen, and a !"alifed and re2isteredvoter; and as ;a lass s"it, #or hi3sel#, and in behal# o# allitiBens and voters si3ilarl/ sit"ated,; 0as a3ended on orabo"t an"ar/ ', *&%. 8#ter reitin2 in s"bstane the #atsset #orth in the deision in the plebisite ases, avellanaalle2ed that the 7resident had anno"ned ;the i33ediatei3ple3entation o# the Ne0 6onstit"tion, thr" his 6abinet,respondents inl"din2,; and that the latter ;are atin2

0itho"t, or in e9ess o# ="risdition in i3ple3entin2 the saidproposed 6onstit"tion; "pon the 2ro"nd4 ;that the 7resident,as 6o33ander-in-6hie# o# the 8r3ed <ores o# the7hilippines, is 0itho"t a"thorit/ to reate the 6itiBens8sse3blies;C that the sa3e ;are 0itho"t po0er to approvethe proposed 6onstit"tion ...;C ;that the 7resident is 0itho"tpo0er to prolai3 the ratifation b/ the <ilipino people o# theproposed 6onstit"tion;C and ;that the eletion held to rati#/the proposed 6onstit"tion 0as not a #ree eletion, hene n"lland void.;

Si3ilar ations 0ere fled, on an"ar/ '%, *&%, b/ Didal Tan, . 8ntonio 8raneta, 8le=andro Roes, an"el 6r"do, 8ntonioU. iranda, E3ilio de 7eralta and LorenBo . TaAada, a2ainstthe E9e"tive Seretar/, the Seretaries o# <inane,

"stie, Land Re#or3, and National :e#ense, the 8"ditor$eneral, the @"d2et 6o33issioner, the 6hair3an o# the7residential 6o33ission on Reor2aniBation, the Treas"rer o#the 7hilippines, the 6o33ission on Eletions and the

6o33issioner o# 6ivil Servie 4 on <ebr"ar/ %, *&%, b/ Eddieontelaro, personall/ and as 7resident o# the National 7ress6l"b o# the 7hilippines, a2ainst the E9e"tive Seretar/, theSeretar/ o# 7"bli In#or3ation, the 8"ditor $eneral, the@"d2et 6o33issioner and the National Treas"rer ) and on<ebr"ar/ *', *&%, b/ Napoleon D. :ila2, 8l#redo Salapantan,

r., Leonardo 8sodisen, r. and Ra"l . $onBales, 6a2ainst theE9e"tive Seretar/, the Seretar/ o# National :e#ense, the@"d2et 6o33issioner and the 8"ditor $eneral.

Lie0ise, on an"ar/ '%, *&%, $erardo Ro9as, 83brosio7adilla, ovito R. Salon2a, Salvador F. La"rel, 7Ra3on D. itra,

r. and Eva Estrada-ala0, the frst as ;d"l/ eleted Senatorand inorit/ <loor Leader o# the Senate,; and others as ;d"l/eleted 3e3bers; thereo#, fled 6ase $.R. No. L-%*5,a2ainst the E9e"tive Seretar/, the Seretar/ National:e#ense, the 6hie# o# Sta> o# the 8r3ed <ores o# the7hilippines, the Seretar/ o# $eneral Servies, the 7residentand the 7resident 7ro Te3pore o# the Senate. In their petitionH as a3ended on an"ar/ ', *&% H petitioners $erardoRo9as, et al. alle2e, inter alia, that the ter3 o# o?e o# three

o# the a#ore3entioned petitioners @

0o"ld e9pire on :ee3ber%*, *&5, and that o# the others 9 on :ee3ber %*, *&Cthat p"rs"ant to o"r *&%5 6onstit"tion, ;0hih is still in #ore6on2ress o# the 7hilippines ;3"st onvene #or its +th Sessionon onda/, an"ar/ '', *&%, at *4 8.., 0hih is re2"lar"sto3ar/ ho"r o# its openin2 session;C that ;on said da/,#ro3 *4 8.. "p to the a#ternoon,; said petitioner ;alon20ith their other ollea2"es, 0ere "nla0#"ll/ prevented #ro3"sin2 the Senate Session Fall, the sa3e havin2 been losedb/ the a"thorities in ph/sial possession and ontrol theLe2islative @"ildin2;C that ;(a)t abo"t 54 to 4 7.. the

said da/, the pre3ises o# the entire Le2islative @"ildin2 0ereordered leared b/ the sa3e a"thorities, and no one 0as





petitionersG alle2ations onernin2 the alle2ed lai3pair3ent o# the #reedo3 o# the *&* 6onstit"tion6onvention to approve the proposed 6onstit"tion, its alle2edla o# a"thorit/ to inorporate ertain ontested provisionsthereo#, the alle2ed la o# a"thorit/ o# the 7resident toreate and establish 6itiBensG 8sse3blies ;#or the p"rposes"b3ittin2 to the3 the 3atter o# ratifation o# the ne06onstit"tion,; the alle2ed ;i3proper or inade!"ate s"b3iss

o# the proposed onstit"tion,; the ;proed"re #or ratifationadopted ... thro"2h the 6itiBens 8sse3blies;C a 3aintainin2that4 *) ;(t)he 6o"rt is 0itho"t ="risdition to at on thesepetitions;C ') the !"estions raised therein are ;politial inharater and there#ore non="stiiable;C %) ;there s"bstantialo3pliane 0ith 8rtile D o# the * 6onstit"tion;C ) ;(t)he6onstit"tion 0as properl/ s"b3itted the people in a #ree,orderl/ and honest eletionC 5) ;7rola3ation No. **',erti#/in2 the res"lts o# the eletion, is onl"sive "pon theo"rts;C and ) ;(t)he a3endin2 proess o"tlined in 8rtile Do# the *&%5 6onstit"tion is not e9l"sive o# other 3odes o#a3end3ent.;

Respondents 7"/at and Ro/, in said 6ase $.R. No. L-%*5,fled their separate o33ent therein, alle2in2 that ;(t)hes"b=et 3atter; o# said ase ;is a hi2hl/ politial !"estion0hih, "nder the ir"3stanes, this ...6o"rt 0o"ld not be ina position to at "pon ="diiall/,; and that, in vie0 o# theopinions e9pressed b/ three 3e3bers o# this 6o"rt in itsdeision in the plebisite ases, in e>et "pholdin2 thevalidit/ o# 7rola3ation No. **', ;#"rther proeedin2s in this

ase 3a/ onl/ be an aade3i e9erise in #"tilit/.;

On <ebr"ar/ 5, *&%, the 6o"rt iss"ed a resol"tion re!"irin2respondents in L-%'% to o33ent on the petition thereinnot later than Sat"rda/, <ebr"ar/ *, *&%, and settin2 thease #or hearin2 on <ebr"ar/ *', *&%, at &4% a.3. @/resol"tion dated <ebr"ar/ , *&%, this 6o"rt resolved toonsider the o33ents o# the respondents in ases $.R. Nos.L-%*', L-%*, and L-%*5, as 3otions to dis3iss thepetitions therein, and to set said ases #or hearin2 on thesa3e date and ti3e as L-%'%. On that date, the parties in

$.R. No. L-%'+%1

a2reed that the sa3e be, lie0ise, heard,as it 0as, in #at, heard =ointl/ 0ith the a#ore3entioned ases

$.R. Nos. L-%*', L-%*, L-%*5 and L-%'%. Thehearin2, 0hih be2an on <ebr"ar/ *', *&%, shortl/ a#ter&4% a.3., 0as ontin"ed not onl/ that a#ternoon, b"t, also,on <ebr"ar/ *%, *, *5 and *, 3ornin2 and a#ternoon, a#ter0hih the parties 0ere 2ranted "p to <ebr"ar/ ', *&%,noon, 0ithin 0hih to s"b3it their notes o# oral ar2"3entsand additional ar2"3ents, as 0ell as the do"3ents re!"iredo# the3 or 0hose presentation 0as reserved b/ the3. The

sa3e resol"tion 2ranted the parties "ntil arh *, *&%, torepl/ to the notes fled b/ their respetive opponents.6o"nsel #or the petitioners in $.R. Nos. L-%* and L-%*5fled their a#ore3entioned notes on <ebr"ar/ ', *&%, on0hih date the Soliitor $eneral so"2ht an e9tension o# ti3e"p to arh %, *&%, 0ithin 0hih to fle his notes, 0hih 0as2ranted, 0ith the "nderstandin2 that said notes shall inl"dehis repl/ to the notes alread/ fled b/ the petitioners in $.R.Nos. L-%* a L-%*5. 6o"nsel #or the petitioners, lie0ise,3oved and 0ere 2ranted an e9tension o# ti3e, to e9pire onarh *, *&%, 0ithin 0hih to fle, as the/ did, their notesin repl/ to those s"b3itted b/ the Soliitor $eneral on arh%, *&%. On arh '*, *&%, petitioners in L-%*5 fled a;ani#estation a S"pple3ental Re=oinder,; 0hereas the O?eo# the Soliitor $eneral s"b3itted in all these ases a;Re=oinder 7etitionersG Replies.;

8#ter deliberatin2 on these ases, the 3e3bers o# the 6o"rta2reed that eah 0o"ld 0rite his o0n opinion and serve aop/ thereo# on his ollea2"es, and this the/ did.S"bse!"entl/, the 6o"rt dis"ssed said opinions and votes

0ere ast thereon. S"h individ"al opinions are appendedhereto.

8ordin2l/, the 0riter 0ill frst e9press his person opinion onthe iss"es be#ore the 6o"rt. 8#ter the e9position his a#oresaidopinion, the 0riter 0ill 3ae, on"rrentl/ 0ith his ollea2"esin the 6o"rt, a res"3e o# s"33ar/ o# the votes ast b/ the3in these ases.

1riter2s $ersonal pinion

I.



Alleged academic futilit" of furt*er proceedings in G.R. L345657.

This de#ense or theor/, set "p b/ o"nsel #or respondents $il . 7"/at and ose Ro/ in $.R. No. L-%*5, and, also, b/ theSoliitor $eneral, is prediated "pon the #at that, in O"rdeision in the plebisite ases, r. "stie @arredo hade9pressed the vie0 that the *&%5 6onstit"tion had ;pro tantopassed into histor/; and ;been le2iti3atel/ s"pplanted b/the 6onstit"tion no0 in #ore b/ virt"e o# 7rola3ation No.**' ...;C that r. "stie 8ntonio did not #eel ;that this 6o"rto3petent to at; in said ases ;in the absene o# an/

="diiall/ disoverable and 3ana2eable standards; andbea"se ;the aess to relevant in#or3ation is ins"?ient toass"re the orret deter3ination o# the iss"e,; apart #ro3 their"3stane that ;the ne0 onstit"tion has beenpro3"l2ated and 2reat interests have alread/ arisen "nderit; and that the politial or2an o# the $overn3ent hasreo2niBed its provisionsC 0hereas, r. "stie Es2"erra hadpost"lated that ;(0)itho"t an/ o3petent evidene ... abo"tthe ir"3stanes attendin2 the holdin2; o# the ;re#erend"3or plebisite; thr" the 6itiBensG 8sse3blies, he ;annot sa/that it 0as not la0#"ll/ held; and that, aordin2l/,he assumed ;that 0hat the prola3ation (No. **') sa/s onits #ae is tr"e and "ntil overo3e b/ satis#ator/ evidene;he o"ld not ;s"bsribe to the lai3 that s"h plebisite 0asnot held aordin2l/;C and that he aepted ;as a faitaccomplithat the 6onstit"tion adopted (b/ the *&*6onstit"tional 6onvention) on Nove3ber %, *&', has been

d"l/ ratifed.

6o"nsel #or respondents $il . 7"/at and ose Ro/ 2oes on tosa/ that, "nder these ir"3stanes, ;it see3s re3ote ori3probable that the neessar/ ei2ht (+) votes "nder the*&%5 6onstit"tion, and 3"h less the ten (*) votes re!"iredb/ the *&' (*&%) 6onstit"tion, an be obtained #or therelie# so"2ht in the 83ended 7etition; in $.R. No.L-%*5.

I a3 "nable to share this vie0. To be2in 0ith, r. "stie

@arredo anno"ned p"blil/, in open o"rt, d"rin2 the

hearin2 o# these ases, that he 0as and is 0illin2 to beonvined that his a#ore3entioned opinion in the plebisiteases sho"ld be reonsidered and han2ed. In e>et, he th"sdelared that he had an open 3ind in onnetion 0ith theases at bar, and that in deidin2 the sa3e he 0o"ld notneessaril/ adhere to said opinion i# the petitioners hereins"eeded in onvinin2 hi3 that their vie0 sho"ld bes"stained.

Seondl/, o"nsel #or the a#oresaid respondents hadapparentl/ ass"3ed that, "nder the *&%5 6onstit"tion, ei2ht(+) votes are neessar/ to delare invalid the ontested7rola3ation No. **'. I do not believe that this ass"3ptionis borne o"t b/ an/ provision o# said 6onstit"tion. Setion *o# 8rtile DIII thereo# reads4

8ll ases involvin2 the onstit"tionalit/ o# atreat/ or la0 shall be heard and deided b/ the

S"pre3e 6o"rt in +anc, and no treat/ or la03a/ be delared "nonstit"tional 0itho"t theon"rrene o# t0o thirds o# all the 3e3bers o#the 6o"rt.

7"rs"ant to this setion, the on"rrene o# t0o-thirds o# allthe e3bers o# the S"pre3e 6o"rt is re!"ired onl/ todelare ;treat/ or la0; "nonstit"tional. 6onstr"in2 saidprovision, in a resol"tion dated Septe3ber *, *&&, then6hie# "stie oran, voiin2 the unanimous vie0 o# thee3bers o# this 6o"rt, post"lated4

... There is not*ing either in the 6onstit"tion orin the "diiar/ 8t re!"irin2 the vote o# ei2ht

"sties to n"lli#/ a r"le or re2"lation or ane9e"tive order iss"ed b/ the 7resident. It isver/ si2nifant that in the previo"s dra#ts o#setion *, 8rtile DIII o# the 6onstit"tion,;e9e"tive order; and ;re2"lation; -ereincluded a3on2 those that re!"ired #or theirn"llifation the vote o# t0o-thirds o# all the3e3bers o# the 6o"rt. @"t ;e9e"tive order;

and ;re2"lation; 0ere later deleted #ro3 the



fnal dra#t (8r"e2o, The <ra3in2 o# the 7hilippine6onstit"tion, Dol. I, pp. &5, &), and t*us amere ma8orit" of si! mem+ers of t*is ourt isenoug* to nullif" t*em. 11

The distintion is not 0itho"t reasonable #o"ndation. The t0othirds vote (ei2ht +J votes) re!"ire3ent, indeed, 0as 3adeto appl/ onl/ to treat/ and la0, bea"se, in these ases, thepartiipation o# the t0o other depart3ents o# the2overn3ent H the E9e"tive and the Le2islative H ispresent, 0hih ir"3stane is absent in the ase o# r"les,re2"lations and e9e"tive orders. Indeed, a la0 (stat"te)passed b/ 6on2ress is s"b=et to the approval or veto o# the7resident, 0hose disapproval annot be overridden e9ept b/the vote o# t0o-thirds ('M%) o# all 3e3bers o# eah Fo"se o#6on2ress. 12 8 treat/ is entered into b/ the 7resident 0ith theon"rrene o# the Senate, 13 0hih is not re!"ired in thease o# r"les, re2"lations or e9e"tive orders 0hih aree9l"sive ats o# the 7resident. Fene, to n"lli#/ the sa3e, alesser n"3ber o# votes is neessar/ in the S"pre3e 6o"rtthan that re!"ired to invalidate a la0 or treat/.

8ltho"2h the #ore2oin2 re#ers to r"les, re2"lations ande9e"tive orders iss"ed b/ the 7resident, the dit"3 applies0ith e!"al #ore to e9e"tive prola3ation, lie said7rola3ation No. **', inas3"h as the a"thorit/ to iss"ethe sa3e is 2overned b/ setion % o# the Revised8d3inistrative 6ode, 0hih provides4

8d3inistrative ats and o33ands o# the($overnor-$eneral) 7resident o# the 7hilippinesto"hin2 the or2aniBation or 3ode o# operationo# the $overn3ent or rearran2in2 or read="stin2an/ o# the distrits, divisions, parts or ports o#the (7hilippine Islands) 7hilippines and all atsand o33ands 2overnin2 the 2eneralper#or3ane o# d"ties b/ p"bli e3plo/ees ordisposin2 o# iss"es o# 2eneral onern shall be3ade e>etive in e9e"tive orders.

E9e"tive orders f9in2 the dates 0hen speifla0s, resol"tions, or orders are to have or easeto (have) e>et and an" information concerningmatters of pu+lic moment deter3ined b/ la0,resol"tion, or e9e"tive orders, 3a/ bepro3"l2ated in an e9e"tive prola3ation, -it*all t*e force of an e!ecutive order . 14

In #at, 0hile e9e"tive order e3bod/ ad3inistrative ats oro33ands o# the 7resident, e9e"tive prola3ations are3ainl/ in#or3ative and delarator/ in harater, and so doeso"nsel #or respondents $il . 7"/at and ose Ro/ 3aintain in$.R. No.L-%*5. 1) 8s onse!"ene, an e9e"tive prola3ationhas no more than ;the #ore o# an e9e"tive order,; so that,#or the S"pre3e 6o"rt to delare s"h prola3ation"nonstit"tional, "nder the *&%5 6onstit"tion, the sa3en"3ber o# votes needed to invalidate an e9e"tive order,r"le or re2"lation H na3el/, si9 () votes H 0o"ld s"?e.

8s re2ards the appliabilit/ o# the provisions o# the proposedne0 6onstit"tion, approved b/ the *&* 6onstit"tional6onvention, in the deter3ination o# the !"estion 0hether ornot it is no0 in #ore, it is obvio"s that s"h !"estion depends"pon 0hether or not the said ne0 6onstit"tion has beenratifed in aordane 0ith the re!"ire3ents o# the *&%56onstit"tion, "pon the a"thorit/ o# 0hih said 6onstit"tional6onvention 0as alled and approved the proposed6onstit"tion. It is 0ell settled that the 3atter o# ratifation o#

an a3end3ent to the 6onstit"tion sho"ld be settledb/ appl"ing t*e provisions of t*e onstitution in force at t*etime of t*e alleged rati9cation, or t*e old onstitution. 16

II

(oes t*e issue on t*e validit" of $roclamation 'o. 66:; parta#e of t*e nature of a political, and, *ence, non3 8usticia+le <uestion/

The Soliitor $eneral 3aintains in his o33ent the

a?r3ative vie0 and this is his 3ain de#ense. In s"pport



thereo#, he alle2es that ;petitioners 0o"ld have this 6o"rtdelare as invalid the Ne0 6onstit"tion o# the Rep"bli; #ro30hih H he lai3s H ;this 6o"rt no0 derives its a"thorit/;Cthat ;nearl/ *5 3illion o# o"r bod/ politi #ro3 the a2e o# *5/ears have 3andated this 6onstit"tion to be the Ne06onstit"tion and the prospet o# "nsettlin2 ats done inreliane on it a"tion a2ainst interposition o# the po0er o#

="diial revie0;C that ;in the ase o# the Ne0 6onstit"tion, the

2overn3ent has been reo2niBed in aordane 0ith the Ne06onstit"tion;C that ;the o"ntr/Gs #orei2n relations are no0bein2 ond"ted in aordane 0ith the ne0 harter;C that;#orei2n 2overn3ents have taen note o# it;C that the;plebisite ases; are ;not preedents #or holdin2 !"estionsre2ardin2 proposal and ratifation ="stiiable;C and that ;toabstain #ro3 ="d23ent on the "lti3ate iss"e o#onstit"tionalit/ is not to abdiate d"t/.;

8t the o"tset, it is obvio"s to 3e that 1e are not bein2 asedto ;delare; the ne- 6onstit"tion invalid. 1hat petitionersdisp"te is the theor/ that it has been validl/ ratifed b/ thepeople, espeiall/ that the/ have done soin accordance -it*

Article =V of t*e 6>47 onstitution. The petitioners 3aintainthat the onl"sion reahed b/ the 6hie# E9e"tive in thedispositive portion o# 7rola3ation No. **' is not borne o"tb/ the 0hereases preedin2 the sa3e, as the prediates#ro3 0hih said onl"sion 0as dra0nC that the plebisite or;eletion; re!"ired in said 8rtile D has not been heldC thatthe 6hie# E9e"tive has no a"thorit/, "nder the *&%56onstit"tion, to dispense 0ith said eletion or plebisiteC that

the proeedin2s be#ore the 6itiBensG 8sse3blies did notonstit"te and 3a/ not be onsidered as s"h plebisiteC thatthe #ats o# reord ab"ndantl/ sho0 that the a#ore3entioned8sse3blies o"ld not have been held thro"2ho"t the7hilippines #ro3 an"ar/ * to an"ar/ *5, *&%C and that, inan/ event, the proeedin2s in said 8sse3blies are n"ll andvoid as an alle2ed ratifation o# the ne0 6onstit"tionproposed b/ the *&* 6onstit"tional 6onvention, not onl/bea"se o# the ir"3stanes "nder 0hih said 8sse3blieshad been reated and held, b"t, also, bea"se personsdis!"alifed to vote "nder 8rtile D o# the 6onstit"tion 0ere

allo0ed to partiipate therein, bea"se the provisions o# o"rEletion 6ode 0ere not observed in said 8sse3blies, bea"se

the sa3e 0ere not held "nder the s"pervision o# the6o33ission on Eletions, in violation o# setion ' o# 8rtile o# the *&%5 6onstit"tion, and bea"se the e9istene o#artial La0 and $eneral Order No. ', 0ithdra0in2 ors"spendin2 the li3ited #reedo3 to dis"ss the 3erits andde3erits o# said proposed 6onstit"tion, i3paired the peopleGs#reedo3 in votin2 thereon, parti"larl/ a viva voce, as it 0asdone in 3an/ instanes, as 0ell as their abilit/ to have a

reasonable no0led2e o# the ontents o# the do"3ent on0hih the/ 0ere alle2edl/ alled "pon to e9press their vie0s.

Re#errin2 no0 3ore speifall/ to the iss"e on 0hether thene0 6onstit"tion proposed b/ the *&* 6onstit"tional6onvention has been ratifed in aordane 0ith theprovisions o# 8rtile D o# the *&%5 6onstit"tion is a politial!"estion or not, I do not hesitate to state that the ans0er3"st be in the ne2ative. Indeed, s"h is the position taen b/this 6o"rt, * in an endless line o# deisions, too lon2 toleave an/ roo3 #or possible do"bt that said iss"e isinherentl/ and essentiall/ ="stiiable. S"h, also, has beenthe onsistent position o# the o"rts o# the United States o#83eria, 0hose deisions have a pers"asive e>et in this

="risdition, o"r onstit"tional s/ste3 in the *&%56onstit"tion bein2 patterned a#ter that o# the United States.@esides, no pla"sible reason has, to 3/ 3ind, been advanedto 0arrant a depart"re #ro3 said position, onsistentl/ 0iththe #or3 o# 2overn3ent established "nder said 6onstit"tion..

Th"s, in the a#ore3entioned plebisite ases, 1@ 1e

re8ected the theor/ o# the respondents therein that the!"estion 0hether 7residential :eree No. % allin2 aplebisite to be held on an"ar/ *5, *&%, #or the ratifationor re=etion o# the proposed ne0 6onstit"tion, 0as valid ornot, 0as not a proper s"b=et o# ="diial in!"ir/ bea"se, the/lai3ed, it partoo o# a politial nat"re, and1e unanimousl" delared that the iss"e 0asa 8usticia+le one. 1it* identical unanimit" , 1e overr"led therespondentsG ontention in the *&* *a+eascorpus ases, 19 !"estionin2 O"r a"thorit/ to deter3ine theonstit"tional s"?ien/ o# the #at"al bases o# the

7residential prola3ation s"spendin2 the privile2e o# the 0rito# *a+eas corpus on 8"2"st '*, *&*, despite the opposite



vie0 taen b/ this 6o"rt in %arcelona v.%a#er 2and Montenegro v. astañeda, 21 inso#ar as itadhered to the #or3er ase, 0hih vie0 1e, aordin2l/,abandoned and re#"sed to appl/. <or the sa3e reason, 1edid not appl/ and e9pressl/ 3odifed, in Gonzales v.ommission on &lections, 22 the politial-!"estion theor/adopted in Ma+anag v. Lopez Vito. 23 Fene, respondentsherein "r2e Us to reonsider the ation th"s taen b/ the

6o"rt and to revert to and #ollo0 the vie0s e9pressedin %arcelon v. %a#er and Ma+anag v. Lopez Vito . 24

The reasons add"ed in s"pport thereo# are, ho0ever,s"bstantiall/ the sa3e as those 2iven in s"pport o# thepolitial-!"estion theor/ advaned in said *a+eas corpus andplebisite ases, 0hih 0ere are#"ll/ onsidered b/ this6o"rt and #o"nd b/ it to be le2all/ "nso"nd andonstit"tionall/ "ntenable. 8s a onse!"ene, O"r deision inthe a#ore3entioned *a+eas corpus ases partaes o# thenat"re and e>et o# a stare deisis, 0hih 2ained added0ei2ht b/ its virt"al reiteration in the plebisite ases.

The reason 0h/ the iss"e "nder onsideration and otheriss"es o# si3ilar harater are ="stiiable, not politial, isplain and si3ple. One o# the prinipal bases o# the non-

="stiiabilit/ o# so-alled politial !"estions is the priniple o#separation o# po0ers H harateristi o# the 7residentials/ste3 o# 2overn3ent H the #"ntions o# 0hih are lassifedor divided, b/ reason o# their nat"re, into three (%)ate2ories, na3el/4 *) those involvin2 the 3ain2 o# la0s,

0hih are alloated to the le2islative depart3entC ') thoseonerned 3ainl/ 0ith the en#ore3ent o# s"h la0s and o# ="diial deisions appl/in2 andMor interpretin2 the sa3e,0hih belon2 to the e9e"tive depart3entC and %) thosedealin2 0ith the settle3ent o# disp"tes, ontroversies oronits involvin2 ri2hts, d"ties or prero2atives that arele2all/ de3andable and en#oreable, 0hih are apportionedto o"rts o# ="stie. 1ithin its o0n sphere H b"t onl"-it*in s"h sphere H eah depart3ent is s"pre3e andindependent o# the others, and eah is devoid o# a"thorit/,not onl/ to enroah "pon the po0ers or feld o# ation

assi2ned to an/ o# the other depart3ents, b"t, also, toin!"ire into or pass "pon the advisabilit/ or -isdom o# the

ats per#or3ed, 3eas"res taen or deisions 3ade b/ theother depart3ents H provided that s"h ats, 3eas"res ordeisions are -it*in the area alloated thereto b/ the6onstit"tion. 2)

This priniple o# separation o# po0ers "nder the presidentials/ste3 2oes hand in hand 0ith the s/ste3 o# hes andbalanes, "nder 0hih eah depart3ent is vested b/ the

<"nda3ental La0 0ith so3e po0ers to #orestall, restrain orarrest a possible or at"al 3is"se or ab"se o# po0ers b/ theother depart3ents. Fene, the appointin2 po0er o# theE9e"tive, his pardonin2 po0er, his veto po0er, his a"thorit/to all the Le2islat"re or 6on2ress to speial sessions andeven to presribe or li3it the ob=et or ob=ets o# le2islationthat 3a/ be taen "p in s"h sessions, et. 6onversel/,6on2ress or an a2en/ or ar3 thereo# H s"h as theo33ission on 8ppoint3ents H 3a/ approve or disapproveso3e appoint3ents 3ade b/ the 7resident. It, also, has thepo0er o# appropriation, to ;defne, presribe, and apportionthe ="risdition o# the vario"s o"rts,; as 0ell as that o#i3peah3ent. Upon the other hand, "nder the ="diial po0ervested b/ the 6onstit"tion, the ;S"pre3e 6o"rt and ... s"hin#erior o"rts as 3a/ be established b/ la0,; 3a/ settle ordeide 0ith fnalit/, not onl/ ="stiiable ontroversiesbet0een private individ"als or entities, b"t, also, disp"tes oronits bet0een a private individ"al or entit/, on the onehand, and an o?er or branh o# the 2overn3ent, on theother, or bet0een t0o (') o?ers or branhes o# servie,0hen the latter o?er or branh is har2ed 0ith atin2

0itho"t ="risdition or in e9ess thereo# or in violation o# la0.8nd so, 0hen a po0er vested in said o?er or branh o# the2overn3ent is a+soluteor un<uali9ed, the ats in the e9eriseo# s"h po0er are said to be political in nat"re, and,onse!"entl/, non-="stiiable or be/ond ="diial revie0.Other0ise, o"rts o# ="stie 0o"ld be arro2atin2 "ponthe3selves a po0er on#erred b/ the 6onstit"tion "ponanother branh o# the servie to the e9l"sion o# the others.Fene, inTañada v. uenco, 26 this 6o"rt !"oted 0ithapproval #ro3 In re 6ona"2h/, 27 the #ollo0in24

;8t the threshold o# the ase 0e are 3et 0iththe assertion that the !"estions involved are



politial, and not ="diial. I# this is orret, theo"rt has no ="risdition as the ertifate o# thestate anvassin2 board 0o"ld then be fnal,re2ardless o# the at"al vote "pon thea3end3ent. The !"estion th"s raised is a#"nda3ental oneC +ut it *as +een so oftendecided contrar" to t*e vie- contended for +"t*e Attorne" General t*at it -ould seem to +e

9nall" settled.

999 999 999

;... 1hat is 2enerall/ 3eant, 0hen it is said thata !"estion is politial, and not ="diial, is that itis a matter -*ic* is to +e e!ercised +" t*e

people in t*eir primar" political capacit" , or thatit has been speifall/ dele2ated to so3e otherdepart3ent or parti"lar o?er o# the2overn3ent, -it* discretionar" po-er to act .See State vs. unning*am, +* 1is. &, N.1.', *5 L.R.8. 5*C ?n re Gunn, 5 an. *55C %'7a. , &+, *& L.R.8. 5*&C Green vs. Mills, &<ed. +5', * 6.6.8. 5*, % L.R.8. &C @letc*ervs. Tuttle *5* Ill. *, % N.E. +%, '5 L.R.8. *%,' 83. St. Rep. ''. Th"s the Legislature ma"in its discretion deter3ine 0hether it 0ill passla0 or s"b3it a proposed onstit"tionala3end3ent to the people. The o"rts have no

="diial ontrol over s"h 3atters, not 3erel/

bea"se t*e" involve political <uestions, b"tbea"se the/ are 3atters 0hih the peoplehave b/ the 6onstit"tion dele2ated to theLe2islat"re. The $overnor 3a/ e9erise thepo0ers dele2ated hi3, #ree #ro3 ="diialontrol, so long as *e o+serves t*e la-s act-it*in t*e limits of t*e po-er conferred.Fis discretionar" ats annot be ontrollable,not pri3aril/ bea"se the/ are o# a politisnat"re, b"t bea"se the 6onstit"tion and la0shave plaed the parti"lar 3atter "nder his

ontrol. %ut ever" o)cer under constitutionalgovernment must act accordingl" to la- and

su+8ect its restrictions, and ever" departuret*erefrom or disregard t*ereof must su+8ect *imto t*at restraining and controlling po-er of t*e

people, acting t*roug* t*e agenc" of t*e 8udiciar" for it must +e remem+ered t*at t*e people act t*roug* courts, as -ell as t*roug*t*e e!ecutive or t*e Legislature. Onedepart3ent is ="st as representative as the

other, and t*e 8udiciar" is t*e department -*ic*is c*arged -it* t*e special dut" of determiningt*e limitations -*ic* t*e la- places upon allo)cial action. The reo2nition o# this priniple,"nno0n e9ept in $reat @ritain and 83eria, isnecessar", to Bt*e end t*at t*e governmentma" +e one of la-s and not of men; H 0ords0hih 1ebster said 0ere t*e greatest ontainedin an/ 0ritten onstit"tional do"3ent.;(E3phasis s"pplied.)

and, in an atte3pt to desribe the nat"re o# a politial!"estion in ter3s, it 0as hoped, "nderstandable to thela/3en, 1e added that ;... the ter3 ;politial !"estion;onnotes, in le2al parlane, 0hat it 3eans in ordinar/parlane, na3el/, a !"estion o# poli/; in 3atters onernin2the 2overn3ent o# a State, as a bod/ politi. ;In other 0ords,in the lan2"a2e o# 6orp"s "ris Se"nd"3 (supra), it re#ers to;those !"estions 0hih, "nder the 6onstit"tion, are tobe decided +" t*e people in their soverei2n apait/, or inre2ard to 0hih full discretionar" aut*orit" has been

dele2ated to the Le2islat"re or e9e"tive branh o# the2overn3ent.; It is onerned 0ith iss"es dependent "ponthe -isdom, not legalit" , o# a parti"lar 3eas"re.;

8ordin2l/, 0hen the 2rant o# po0er is !"alifed, onditionalor s"b=et to li3itations, the iss"e on 0hether or not thepresribed !"alifations or onditions have been 3et, or theli3itations respeted, is ="stiiable or non-politial, the r"9o# the proble3 bein2 one o# legalit" or validit" o# theontested at, not its 0isdo3. Other0ise, said !"alifations,onditions or li3itations H parti"larl/ those presribed or

i3posed b/ the 6onstit"tion H 0o"ld be set at na"2ht. 1hatis 3ore, the ="diial in!"ir/ into s"h iss"e and the



settle3ent thereo# are themain #"ntions o# o"rts o# ="stie"nder the 7residential #or3 o# 2overn3ent adopted in o"r*&%5 6onstit"tion, and the s/ste3 o# hes and balanes,one o# its basi prediates. 8s a onse!"ene, 1e haveneither the a"thorit/ nor the disretion to deline passin2"pon said iss"e, b"t are under t*e inelucta+le o+ligation H3ade parti"larl/ 3ore e9atin2 and pere3ptor/ b/ o"roath, as 3e3bers o# the hi2hest 6o"rt o# the land, to s"pport

and de#end the 6onstit"tion H to settle it. This e9plains 0h/,in Miller v. Jo*nson, 2@ it 0as held that o"rts have a ;dut" ,rather than a po0er;, to deter3ine 0hether another branho# the 2overn3ent has ;ept -it*in constitutional limits.; Notsatisfed 0ith this post"late, the o"rt 0ent #arther andstressed that, i# the 6onstit"tion provides ho0 it 3a/ bea3ended H as it is in o"r *&%5 6onstit"tion H ;then, unlesst*e manner is follo-ed, t*e 8udiciar" as t*e interpreter oft*at constitution, -ill declare t*e amendment invalid.; 29 In#at, this ver/ 6o"rt H speain2 thro"2h "stie La"rel, ano"tstandin2 a"thorit/ on 7hilippine 6onstit"tional La0, as0ell as one o# the hi2hl/ respeted and #ore3ost leaders o#the 6onvention that dra#ted the *&%5 6onstit"tion Hdelared, as earl/ as "l/ *5, *&%, that ;(i)n ti3es o# soialdis!"iet"de or politial e9ite3ent, the 2reat land3ars o#the 6onstit"tion are apt to be #or2otten or 3arred, i# notentirel/ obliterated. In ases o# onit,the 8udicial depart3ent is the onl" constitutional organ 0hihan be alled "pon to deter3ine the proper alloation o#po0ers bet0een the several depart3ents; o# the2overn3ent. 3

The Soliitor $eneral has invoed Lut*er v. %orden 31 ins"pport o# his stand that the iss"e "nder onsideration isnon-="stiiable in nat"re. Neither the #at"al ba2ro"nd o#that ase nor the ation taen therein b/ the <ederalS"pre3e 6o"rt has an/ si3ilarit/ 0ith or bearin2 on theases "nder onsideration.

Lut*er v. %orden 0as an ation #or trespass fled b/ L"ther0ith the 6ir"it 6o"rt o# the United States a2ainst @ordenand others #or havin2 #oribl/ entered into L"therGs ho"se, in

Rhode Island, so3eti3e in *+'. The de#endants 0ho 0ere inthe 3ilitar/ servie o# said #or3er olon/ o# En2land, alle2ed

in their de#ense that the/ had ated in obediene to theo33ands o# a s"perior o?er, bea"se L"ther and others0ere en2a2ed in a onspira/ to overthro0 the 2overn3entb/ #ore and the state had been plaed b/ o3petenta"thorit/ "nder artial La0. S"h a"thorit/ 0as the harter2overn3ent o# Rhode Island at the ti3e o# the :elaration o#Independene, #or H "nlie other states 0hih adopted ane0 6onstit"tion "pon seession #ro3 En2land H Rhode

Island retained its #or3 o# 2overn3ent "nder a @ritish6harter, 3ain2 onl/ s"h alterations, b/ ats o# theLe2islat"re, as 0ere neessar/ to adapt it to its s"bse!"entondition as an independent state. It 0as "nder this #or3 o#2overn3ent 0hen Rhode Island =oined other 83erian statesin the :elaration o# Independene and, b/ s"bse!"entl/rati#/in2 the 6onstit"tion o# the United States, bea3e a3e3ber o# the Union. In *+%, it adopted a ne0 6onstit"tion.

7rior thereto, ho0ever, 3an/ itiBens had beo3edissatisfed 0ith the harter 2overn3ent. e3orialsaddressed b/ the3 to the Le2islat"re havin2 #ailed to brin2abo"t the desired e>et, 3eetin2s 0ere held andassoiations #or3ed H b/ those 0ho belon2ed to thisse23ent o# the pop"lation H 0hih event"all/ res"lted in aonvention alled #or the dra#tin2 o# a ne0 6onstit"tion to bes"b3itted to the people #or their adoption or re=etion. Theonvention 0as not a"thoriBed b/ an/ la0 o# the e9istin22overn3ent. The dele2ates to s"h onvention #ra3ed a ne06onstit"tion 0hih 0as s"b3itted to the people. Upon theret"rn o# the votes ast b/ the3, the onvention delared

that said 6onstit"tion had been adopted and ratifed b/ a3a=orit/ o# the people and bea3e the para3o"nt la0 and6onstit"tion o# Rhode Island.

The harter 2overn3ent, 0hih 0as s"pported b/ a lar2en"3ber o# itiBens o# the state, ontested, ho0ever, thevalidit/ o# said proeedin2s. This not0ithstandin2, one

Tho3as 1. :orr, 0ho had been eleted 2overnor "nder thene0 6onstit"tion o# the rebels, prepared to assert a"thorit/b/ #ore o# ar3s, and 3an/ itiBens asse3bled to s"pporthi3. There"pon, the harter 2overn3ent passed an 8t

delarin2 the state "nder artial La0 and adopted 3eas"resto repel the threatened atta and s"bd"e the rebels. This



0as the state o# a>airs 0hen the de#endants, 0ho 0ere in the3ilitar/ servie o# the harter 2overn3ent and 0ere to arrestL"ther, #or en2a2in2 in the s"pport o# the rebel 2overn3entH 0hih 0as never able to e9erise an" a"thorit/ in the stateH broe into his ho"se.

ean0hile, the harter 2overn3ent had taen 3eas"res toall its o0n onvention to revise the e9istin2 #or3 o#

2overn3ent. Event"all/, a ne0 onstit"tion 0as dra#ted b/ aonvention held "nder the a"thorit/ o# the harter2overn3ent, and therea#ter 0as adopted and ratifed b/ thepeople. ;(T)he ti3es and plaes at 0hih the votes 0ere tobe 2iven, the persons 0ho 0ere to reeive and ret"rn the3,and the !"alifations o# the voters *aving all +een

previousl" aut*orized and provided for +" la- passed +" t*ec*arter government ,; the latter #or3all/ s"rrendered all o# itspo0ers to the ne0 2overn3ent, established "nder itsa"thorit/, in a/ *+%, 0hih had been inoperation uninterruptedl" sine then.

8bo"t a /ear be#ore, or in a/ *+', :orr, at the head o# a3ilitar/ #ore, had 3ade an "ns"ess#"l atte3pt to taepossession o# the state arsenal in 7rovidene, b"t he 0asrep"lsed, and, a#ter an ;asse3bla2e o# so3e h"ndreds o#ar3ed 3en "nder his o33and at 6hepathet in the "ne#ollo0in2, 0hih dispersed "pon approah o# the troops o# theold 2overn3ent, no #"rther e>ort 0as 3ade to establish; his2overn3ent. ;... "ntil the 6onstit"tion o# *+%; H adopted"nder the a"spies o# the harter 2overn3ent H ;0ent into

operation, the harter 2overn3ent continued to assert itsa"thorit/ and e9erise its po0ers and to enforce o+ediencet*roug*out t*e state ... .;

Favin2 o>ered to introd"e evidene to prove that theonstit"tion o# the rebels had been ratifed b/ the 3a=orit/ o#the people, 0hih the 6ir"it 6o"rt re=eted, apart #ro3renderin2 ="d23ent #or the de#endants, the plainti> too thease #or revie0 to the <ederal S"pre3e 6o"rt 0hih a?r3edthe ation o# the 6ir"it 6o"rt, statin24

It is 0orth/ o# re3ar, ho0ever, 0hen 0e arere#errin2 to the a"thorit/ o# State deisions, thatthe trial o# Tho3as 1. :orr too plae a#ter theonstit"tion o# *+% 0ent into operation. T*e

8udges -*o decided t*at case *eld t*eiraut*orit" under t*at constitution and it isadmitted on all *ands t*at it -as adopted +"t*e people of t*e State, and is t*e la-ful and

esta+lis*ed government. ?t is t*e decision,t*erefore, of a State court, -*ose 8udicialaut*orit" to decide upon t*e constitution andla-s of R*ode ?sland is not <uestioned +" eit*er

part" to this ontrovers/, altho"2h the2overn3ent "nder 0hih it ated 0as #ra3edand adopted "nder the santion and la0s o# theharter 2overn3ent.

T*e point, t*en, raised *ere *as +een alread"decided +" t*e courts of R*ode ?sland. The!"estion relates, alto2ether, to the onstit"tionand la0s of t*at State, and t*e -ell settled rulein t*is court is, t*at t*e courts of t*e CnitedStates adopt and follo- t*e decisions of t*eState courts in <uestions -*ic* concern merel"t*e constitution and la-s of t*e State.

Cpon -*at ground could t*e ircuit ourt of t*eCnited States -*ic* tried t*is case *avedeparted from t*is rule, and disregarded and

overruled t*e decisions of t*e courts of R*ode?sland/Undo"btedl/ the o"rts o# the UnitedStates have ertain po0ers "nder the6onstit"tion and la0s o# the United States 0hihdo not belon2 to the State o"rts. @"t t*e po-er of determining t*at a State government *as+een la-full" esta+lis*ed, -*ic* t*e courts oft*e State diso-n and repudiate, is not one oft*em. Cpon suc* a <uestion t*e courts of t*eCnited States are +ound to follo- t*e decisionsof t*e State tri+unals, and 3"st there#ore re2ard

the harter 2overn3ent as the la0#"l and



established 2overn3ent d"rin2 the ti3e o# thisontest. 32

It is th"s apparent that the onte9t 0ithin 0hih the aseo# Lut*er v. %orden 0as deided is basiall/ and#"nda3entall/ di>erent #ro3 that o# the ases at bar. Tobe2in 0ith, the ase did not involve a #ederal !"estion, b"tone p"rel/ 3"niipal in nat"re. Fene, the <ederal S"pre3e

6o"rt 0as ;bo"nd to #ollo0 the deisions o# the Statetrib"nals; o# Rhode Island "pholdin2 the onstit"tion adopted"nder the a"thorit/ o# the harter 2overn3ent. 1hateverelse 0as said in that ase onstit"tes, there#ore, an o+iterdictum. @esides, no deision analo2o"s to that rendered b/the State 6o"rt o# Rhode Island e9ists in the ases at bar.Seondl/, the states o# the Union have a 3eas"re o# internalsovereignt" "pon 0hih the <ederal $overn3ent 3a/ notenroah, 0hereas o"rs is a "nitar/ #or3 o# 2overn3ent,"nder 0hih o"r loal 2overn3ents derive their a"thorit/#ro3 the national 2overn3ent. 82ain, unli#e o"r *&%56onstit"tion, the harter or or2ani la0 o# Rhode Islandontainedno provision on the 3anner, proed"re oronditions #or its a3end3ent.

Then, too, the ase o# Lut*er v. %orden hin2ed 3ore on the!"estion o# reo2nition o# government , than on reo2nitiono# constitution, and there is a #"nda3ental di>erenebet0een these t0o (') t/pes o# reo2nition, the frst bein22enerall/ oneded to be a politial !"estion, 0hereas thenat"re o# the latter depends "pon a n"3ber o# #ators, one o#

the3 bein2 0hether the ne0 6onstit"tion has been adoptedin the 3anner presribed in the 6onstit"tion in #ore at theti3e o# the p"rported ratifation o# the #or3er, 0hihis essentiall" a 8usticia+le!"estion. There 0as, in Lut*er v.%orden, a onit bet0een t-o (') rival 2overn3ents,anta2onisti to eah other, 0hih is absent in the presentases. Fere, the $overn3ent established "nder the *&%56onstit"tion is the ver/ sa3e 2overn3ent 0hose E9e"tive:epart3ent has "r2ed the adoption o# the ne0 or revised6onstit"tion proposed b/ the *&* 6onstit"tional 6onventionand no0 alle2es that it has been ratifed b/ the people.

In short, the vie0s e9pressed b/ the <ederal S"pre3e 6o"rtin Lut*er v. %orden, deided in *+&, on 3attersot*er thanthose re#errin2 to its po0er to revie0 deisions o# a stateo"rt onernin2 the onstit"tion and 2overn3ento# t*at state, not the <ederal 6onstit"tion or $overn3ent, are3ani#estl/ neither, ontrollin2, nor even pers"asive in thepresent ases, havin2 as the @ederal S"pre3e 6o"rtad3itted H no a"thorit/ 0hatsoever to pass "pon s"h

3atters or to revie0 deisions o# said state o"rt thereon. In#at, re#errin2 to that ase, the S"pre3e 6o"rt o# innessotahad the #ollo0in2 to sa/4

Lut*er v. %orden, Fo0. *, *' L. Ed. 5+*, isal0a/s ited b/ those 0ho assert that the o"rtshave no po0er to deter3ine !"estions o# apolitial harater. It is interestin2 historiall/,b"t it has not t*e slig*test appliation to thease at bar. 1hen are#"ll/ anal/Bed, it appearsthat it 3erel/ deter3ines that the federal courts-ill accept as 9nal and controlling a decision oft*e *ig*est court of a state upon a <uestion oft*e construction of t*e onstitution of t*e state.... . 33

%a#er v. arr , 34 ited b/ respondents, involved an ation toann"l a Tennessee stat"te apportionin2 the seats in the$eneral 8sse3bl/ a3on2 the o"nties o# the State, "pon thetheor/ that the le2islation violated the e!"al protetionla"se. 8 distrit o"rt dis3issed the ase "pon the 2ro"nd,

a3on2 others, that the iss"e 0as a politial one, b"t, a#ter apainstain2 revie0 o# the ="rispr"dene on the 3atter, the<ederal S"pre3e 6o"rt reversed the appealed deision andheld that said iss"e -as 8usticia+le and non-politial,inas3"h as4;... (d)eidin2 0hether a 3atter has in an/3eas"re been o33itted b/ the 6onstit"tionto anot*er branh o# 2overn3ent, or 0hether the ation o#that branhe!ceeds 0hatever a"thorit/ has been o33itted,is itsel# a deliate e9erise in onstit"tional interpretation,and is a responsi+ilit" of t*is ourt as ultimate interpreter oft*e onstitution ... .;



Si3ilarl/, in $o-ell v. Mcormac# , 3) the sa3e 6o"rt,speain2 thro"2h then 6hie# "stie 1arren, reversed adeision o# the 6o"rt o# 8ppeals o# Ne0 Por a?r3in2 that o#a <ederal :istrit 6o"rt, dis3issin2 7o0ellGs ation #or adelarator/ ="d23ent delarin2 there"nder that he H 0hose!"alifations 0ere "nontested H had been "nla0#"ll/e9l"ded #ro3 the &th 6on2ress o# the U.S. Said dis3issal0as prediated "pon the 2ro"nd, inter alia, that the iss"e

0as politial, b"t the <ederal S"pre3e 6o"rt held that it -asclearl" a 8usticia+le one.

The S"pre3e 6o"rt o# innessota "ndertoo a are#"l revie0o# 83erian ="rispr"dene on the 3atter. O0in2 to thel"idit/ o# its appraisal thereo#, 1e append the sa3e to thisopinion as 8nne9 8 thereo#.

8#ter an, e9ha"stive anal/sis o# the ases on this s"b=et, the6o"rt onl"ded4

The a"thorities are th"s practicall" uniform inholdin2 that 0hether a onstit"tionala3end3ent has been properl/ adoptedaordin2 to the re!"ire3ents o# an e9istin26onstit"tion is a 8udicial <uestion. There an belittle do"bt that the onsens"s o# ="diial opinionis to the e>et that it is thea+solute dut" o# the

="diiar/ to deter3ine 0hether the 6onstit"tionhas been a3ended in the 3anner re!"ired b/the 6onstit"tion, "nless a speial trib"nal has

been reated to deter3ine the !"estionC andeven then 3an/ o# the o"rts hold that thetrib"nal annot be per3itted to ille2all/ a3endthe or2ani la0. ... . 36

In the li2ht o# the #ore2oin2, and onsiderin2 that 8rt. D o#o"r *&%5 6onstit"tion presribes the 3ethod or proed"re #orits a3end3ent, it is lear to 3/ 3ind that the !"estion0hether or not the revised 6onstit"tion dra#ted b/ the *&*6onstit"tional 6onvention has been ratifed in aordane0ith said 8rt. D is a ="stiiable one and non-politial in

nat"re, and that it is not onl/ s"b=et to ="diial in!"ir/, b"t,

also, that it is the 6o"rtGs bo"nden dut" to deide s"h!"estion.

The S"pre3e 6o"rt o# the United States has 3eanin2#"ll/post"lated that ;the o"rts cannot re=et as Gno la0 s"itG ; Hbea"se it alle2edl/ involves a politial !"estion H ;a bonafde ontrovers/ as to 0hether so3e ation deno3inated;politial; e!ceeds constitutional aut*orit" .; 37

III

Das t*e proposed ne- or revised onstitution +een rati9edconforma+l" to said Art. =V of t*e 6>47 onstitution/

7etitioners in L-%*' 3aintain the ne2ative vie0, "pon2ro"nd4 *) that the 7resident ;is 0itho"t a"thorit/ to reatethe 6itiBensG 8sse3blies; thro"2h 0hih, respondents3aintain, the proposed ne0 6onstit"tion has been ratifedC

that said 8sse3blies ;are 0itho"t po0er to approve theproposed 6onstit"tion;C %) that the 7resident ;is 0itho"tpo0er to prolai3 the ratifation b/ the <ilipino people o# theproposed 6onstit"tion;C and ) that ;the eletion held (in the6itiBensG 8sse3blies) to rati#/ the proposed 6onstit"tion 0asnot a #ree eletion, hene n"ll and void.;

8part #ro3 s"bstantiall/ reiteratin2 these 2ro"nds s"pport o#said ne2ative vie0, the petitioners in L-%* ontend4 *)that the 7resident ;has no po0er to all a plebisite #or theratifation or re=etion; o# the proposed ne0 6onstit"tion or

;to appropriate #"nds #or the holdin2 o# the said plebisite;C') that the proposed ne0 or revised 6onstit"tion ;is va2"eand ino3plete,; as 0ell as ;ontains provisions 0hih arebe/ond the po0ers o# the *&* 6onvention to enat,;thereb/ renderin2 it ;"nft #or ... s"b3ission the peopleC; %)that ;(t)he period o# ti3e bet0een Nove3ber *&' 0hen the*&' dra#t 0as approved and an"ar/ **-*5, *&%,; 0hen the6itiBensG 8sse3blies s"pposedl/ ratifed said dra#t, ;0as tooshort, 0orse still, there 0as pratiall/ no ti3e #or the6itiBensG 8sse3blies to dis"ss the 3erits o# the 6onstit"tion0hih the 3a=orit/ o# the3 have not read a 0hih the/ never

ne0 0o"ld be s"b3itted to the3 ratifation "ntil the/ 0ere



ased the !"estion H ;do /o" approve o# the Ne06onstit"tionK; d"rin2 the said da/s o# the votin2;C and that;(t)here 0as alto2ether no #reedo3 dis"ssion and noopport"nit/ to onentrate on the 3atter s"b3itted to the30hen the *&' dra#t 0as s"pposedl/ s"b3itted to the6itiBensG 8sse3blies #or ratifation.;

7etitioner in L-%'% added, as ar2"3ents in s"pport o# the

ne2ative vie0, that 4 *) ;(0)ith a 2overn3ent-ontrolledpress, there an never be a #air and proper s"b3ission o# theproposed 6onstit"tion to the people;C and ') 7rola3ationNo. **' is n"ll and void ;(i)nas3"h as the ratifationproess; presribed ;in the *&%5 6onstit"tion 0as not#ollo0ed.;

@esides adoptin2 s"bstantiall/ so3e o# the 2ro"nds relied"pon b/ the petitioners in the above-3entioned ases, thepetitioners in L-%'+% ar2"e that ;(t)he reation o# the6itiBensG 8sse3blies as the vehile #or the ratifation o# the6onstit"tion 0as a deeption "pon the people sine the7resident anno"ned the postpone3ent o# the an"ar/ *5,*&% plebisite to either <ebr"ar/ *& or arh 5, *&%.; 3@

The reasons add"ed b/ the petitioners in L-%*5 in #avor o# the ne2ative vie0 have alread/ been set #orth earlier in thisopinion. Fene, it is "nneessar/ to reprod"e the3 here. Soit is, 0ith respet to the positions taen in L-%*5 b/o"nsel #or therein respondents $il . 7"/at and ose Ro/ Haltho"2h 3ore 0ill be said later abo"t the3 H and b/ the

Soliitor $eneral, on behal# o# the other respondents in thatase and the respondents in the other ases.

*. 1*at is t*e procedure prescri+ed +" t*e 6>47 onstitutionfor its amendment/

Under setion * o# 8rt. D o# said 6onstit"tion, three (%) stepsare essential, na3el/4

*. That the a3end3ents to the 6onstit"tion be proposedeither b/ 6on2ress or b/ a onvention alled #or that

p"rpose, ;b/ a vote o# three-#o"rths o# all the e3bers o# the

Senate and the Fo"se o# Representatives votin2 separatel/,;b"t ;in =oint session asse3bled;C

'. That s"h a3end3ents be ;s"b3itted to the people #ortheir ratifation; at an ;eletion;C and

%. That s"h a3end3ents be ;approved b/ a 3a=orit/ o# thevotes ast; in said eletion.

6o3pliane 0ith the frst re!"ire3ent is virt"all/ oneded,altho"2h the petitioners in L-%* !"estion the a"thorit/ o#the *&* 6onstit"tional 6onvention to inorporate ertainprovisions into the dra#t o# the ne0 or revised 6onstit"tion.

The 3ain iss"e in these fve (5) ases hin2es, there#ore, on0hether or not the last t0o (') re!"ire3ents have beeno3plied 0ith.

'. Das t*e contested draft of t*e ne- or revised onstitution

+een su+mitted to t*e people for t*eir rati9cationconforma+l" to Art. =V of t*e onstitution/

In this onnetion, other provisions o# the *&%5 6onstit"tiononernin2 ;eletions; 3"st, also, be taen into ao"nt,na3el/, setion I o# 8rt. D and 8rt. o# said 6onstit"tion. The#or3er reads4

Setion *. S">ra2e 3a/ be e9erised b/ 3aleitiBens o# the 7hilippines not other0isedis!"alifed b/ la0, 0ho are t0ent/-one /ears o#

a2e or over and are able to read and 0rite, and0ho shall have resided in the 7hilippines #or one/ear and in the 3"niipalit/ 0herein the/propose to vote #or at least si9 3onthspreedin2 the eletion. The National 8sse3bl/shall e9tend the ri2ht o# s">ra2e to 0o3en, i# ina plebisite 0hih shall be held #or that p"rpose0ithin t0o /ears a#ter the adoption o# this6onstit"tion, not less than three h"ndredtho"sand 0o3en possessin2 the neessar/!"alifations shall vote a?r3ativel/ on the

!"estion.





to, be held #or that p"rpose 0ithin t0o /ears a#ter theadoption o# this 6onstit"tion, not less than three h"ndredtho"sand 0o3en possessin2 the neessar/ !"alifationsshall vote a?r3ativel/ on the !"estion.;41

The third reo33endation on ;o3p"lsor/; votin2 0as, alsodebated "pon rather e9tensivel/, a#ter 0hih it 0as re=etedb/ the 6onvention. 42 This ao"nts, in 3/ opinion, #or the

per3issive lan2"a2e "sed in the frst sentene o# said 8rt. D.:espite so3e debates on the a2e !"alifation Ha3end3ent havin2 been proposed to red"e the sa3e to *+or ', 0hih 0ere re=eted, and the residene !"alifation,as 0ell as the dis!"alifations to the e9erise o# the ri2ht o#s">ra2e H the seond reo33endation limiting the ri2ht o#s">ra2e to those 0ho o"ld ;read and 0rite; 0as H in thelan2"a2e o# :r. ose . 8r"e2o, one o# the :ele2ates to said6onvention H ;readil" approved in the 6onvention 0itho"tan/ dissentin2 vote,; altho"2h there 0as so3e debate on0hether the <"nda3ental La0 sho"ld spei#/ the lan2"a2e ordialet that the voter o"ld read and 0rite, 0hih 0asdeided in the ne2ative. 43

1hat is relevant to the iss"e be#ore Us is the #at that theonstit"tional provision "nder onsideration 0as 3eant to beand is a grant or conferment o# a ri2ht to persons possessin2the !"alifations and none o# the dis!"alifations therein3entioned, 0hih in t"rn, onstit"te a limitation o#or restriction to said ri2ht, and annot, aordin2l/, bedispensed 0ith, e9ept b/ onstit"tional a3end3ent.

Obvio"sl/, ever/ s"h onstit"tional 2rant or on#er3ent o# ari2ht is neessaril/ a ne2ation o# the a"thorit/ o# 6on2ress oro# an/ other branh o# the $overn3ent to den/ said ri2ht tothe s"b=et o# the 2rant H and, in this sense onl/, 3a/ thesa3e partae o# the nat"re o# a 2"arantee. @"t, this does noti3pl/ not even re3otel/, that the <"nda3ental La0 allo0s6on2ress or an/bod/ else to vest in those lain2 the!"alifations and havin2 the dis!"alifations 3entioned inthe 6onstit"tion the ri2ht o# s">ra2e.

8t this ="nt"re, it is note0orth/ that the o33ittee on

s">ra2e responsible #or the adoption o# setion * o# 8rt. D o#

the 6onstit"tion 0as ;stron2l/ in"ened b/ the eletion la0sthen in #ore in the 7hilippines.; O"r frst Eletion La0 0as8t *5+', passed on an"ar/ &, *&, 0hih 0as partl/a3ended b/ 8ts *&, *&, *' and *+, andinorporated into the 8d3inistrative 6ode o# *&* H 8t'5 H as hapter ' thereo#, and then in the 8d3inistrative6ode o# *&* H 8t '** H as hapter *+ thereo#, 0hih, int"rn, 0as a3ended b/ 8t %%+, approved on :ee3ber %,

*&'. Setions %* and %' o# said 6ode o# *&*,presribin2, respetivel/, the !"alifations #or anddis!"alifations #ro3 votin2, are !"oted belo0. 44 In all o#these le2islative ats, the provisions onernin2 the!"alifations o# voters partoo o# the nat"re o# a grant orreo2nition o# the ri2ht o# s">ra2e, and, hene, o#a denial thereo# to those 0ho laed the re!"isite!"alifation and possessed an/ o# the stat"tor/dis!"alifations. In short, the histor/ o# setion *, 8rt. D o#the 6onstit"tion, sho0s be/ond do"bt than the sa3eon#erred H not 2"aranteed H the a"thorit/ to persons

havin2 the !"alifations presribed therein and none o#dis!"alifations to be speifed in ordinar/ la0s and,neessar/ i3pliation, denied s"h ri2ht to those lain2 an/said !"alifations, or *aving an/ o# the a#ore3entioneddis!"alifations.

This vie0 is #"rther bolstered b/ the #at that the *&*6onstit"tional 6onvention so"2ht the s"b3ission to aplebisite o# a ;partial a3end3ent; to said setion * o# 8rt. Do# the *&%5 6onstit"tion, b/ red"in2 the votin2 a2e #ro3t0ent/-one ('*) /ears to ei2hteen (*+) /ears, 0hih,ho0ever, did not 3aterialiBe on ao"nt o# the deision o#this 6o"rt in Tolentino v. ommission on &lections, 4) 2rantin2the 0rits, o# prohibition and in="ntion therein applied #or,"pon the 2ro"nd that, "nder the 6onstit"tion, all o# thea3end3ents adopted b/ the 6onvention sho"ld bes"b3itted in ;an eletion; or a sin2le eletion, not separatel/or in several or distint eletions, and that the proposeda3end3ent so"2ht to be s"b3itted to a plebisite 0as noteven a complete a3end3ent, b"t a ;partial a3end3ent; o#said setion *, -*ic* could +e amended furt*er, after its

rati9cation, had the sa3e taen plae, so that thea#ore3entioned partial a3end3ent 0as, #or le2al p"rposes,



no 3ore than a provisional or temporar" a3end3ent. Saidpartial a3end3ent 0as prediated "pon the 2enerall/aepted onte3porar/ onstr"tion that, "nder the *&%56onstit"tion, persons belo0 t0ent/-one ('*) /ears o# a2eo"ld not e9erise the ri2ht o# s">ra2e, 0itho"t a previo"sa3end3ent o# the 6onstit"tion.

Upon the other hand, the !"estion, 0hether *+-/ear-old

3e3bers o# barrio asse3blies 3a/ vote in barrio asse3bl/plebisites is, to sa/ the least, a debatable one. Indeed, theresee3s to be a onit bet0een the last para2raph o# saidsetion o# Rep. 8t No. %5&, 46 p"rs"ant to 0hih the;3a=orit/ vote o# all the barrio asse3bl/mem+ers; (0hihinl"de all barrio residents *+ /ears o# a2e or over, d"l/re2istered in the list o# barrio asse3bl/ 3e3bers) isneessar/ #or the approval, in an asse3bl/ plebisite, o# ;an/b"d2etar/, s"pple3ental appropriations or speial ta9ordinanes,; 0hereas, aordin2 to the para2raph preedin2the pen"lti3ate one o# said setion, 47 ;(a)ll d"l/ re2isteredbarrio asse3bl/ 3e3bers <uali9ed to vote; H 0ho, p"rs"antto setion * o# the sa3e 8t, 3"st be itiBens ;o# the7hilippines, t-ent"3one "ears of age or over , able to read and0rite,; and residents the barrio ;d"rin2 the si9 3onthsi33ediatel/ preedin2 eletion, d"l/ re2istered in the list o#voters; and ; other0ise dis!"alifed ...; H ="st lie theprovisions o# present and past eletion odes o# the7hilippines and 8rt. D o# the *&%5 6onstit"tion H ;3a/ votein the plebisite.;

I believe, ho0ever, that the apparent onit sho"ld resolvedin #avor o# the '*-/ear-old 3e3bers o# the asse3bl/, notonl/ bea"se this interpretation is in aord 0ith 8rt. D the6onstit"tion, b"t, also, bea"se provisions o# a 6onstit"tionH parti"larl/ o# a 0ritten and ri2id one, lie o"rs 2enerall/aorded a 3andator/ stat"s H "nless the intention to theontrar/ is 3ani#est, 0hih is not so as re2ards said 8rt. D H#or other0ise the/ 0o"ld not have been onsidereds"?ientl/ i3portant to be inl"ded in the <"nda3ental La0o# the land. 4@@esides, it 0o"ld be illo2ial, i# not abs"rd,believe that Rep"bli 8t No. %5& re!"ires, #or the most

important 3eas"res #or 0hih it de3ands H in addition to#avorable ation o# the +arrio council H the approval

o# +arrio assem+l" thro"2h a ple+iscite, lesser !"alifationsthan those presribed in dealin2 0ith ordinar/ 3eas"res #or0hih s"h plebisite need not be held.

It is si3ilarl/ inoneivable that those 0ho dra#ted the *&%56onstit"tion intended setion * o# 8rt. D thereo# toappl/ onl" to eletions o# pu+lic o)cers, not to ple+iscites #orthe ratifation o# a3end3ents to the <"nda3ental La0 or

revision thereo#, or o# an entirel/ ne0 6onstit"tion, andper3it the le2islat"re to re!"ire lesser !"alifations #or s"hratifation, not0ithstandin2 the #at that the ob=et thereo#3"h 3ore i3portant H i# not #"nda3ental, s"h as thebasi han2es introd"ed in the dra#t o# the revised6onstit"tion adopted b/ the *&* 6onstit"tional 6onvention,0hih a intended to be in #ore per3anentl/, or, at least, #or3an/ deades, and to a>et the 0a/ o# li#e o# the nation Hand, aordin2l/, de3ands 2reater e9periene and 3at"rit/on the part o# the eletorate than that re!"ired #or theeletion o# p"bli o?ers, 49 0hose avera2e ter3 ran2es #ro3' to /ears.

It is ad3itted that persons *5 /ears o# a2e or over, b"t belo0'* /ears, re2ardless o# 0hether or not the/ possessed theother !"alifations laid do0n in both the 6onstit"tion andthe present Eletion 6ode, ) and o# 0hether or not the/ aredis!"alifed "nder the provisions o# said 6onstit"tion and6ode, )1 or those o# Rep"bli 8t No. %5&, )2 havepartiipated and voted in the 6itiBensG 8sse3blies that havealle2edl/ ratifed the ne0 or revised 6onstit"tion dra#ted b/

the *&* 6onstit"tional 6onvention.

In #at, aordin2 to the latest o?ial data, the total n"3bero# re2istered voters '* /ears o# a2e or over in the entire7hilippines, available in an"ar/ *&%, 0as less than *'3illion. Pet, 7rola3ation No. **' states that *,&,5;3e3bers o# all the @aran2a/s (6itiBens 8sse3blies) voted#or the adoption o# the proposed 6onstit"tion, as a2ainst ...%,+& 0ho voted #or its re=etion,; 0hereas, on the!"estion 0hether or not the people still 0anted a plebisiteto be alled to rati#/ the ne0 6onstit"tion, ;... *,'&+,+*

ans0ered that there 0as no need #or a plebisite and that the



vote o# the @aran2a/s (6itiBens 8sse3blies) sho"ld beonsidered as a vote in a plebisite.; In other 0ords, it isoneded that the n"3ber o# people 0ho alle2edl/ voted atthe 6itiBensG 8sse3blies for e!ceeded t*e num+er ofregistered voters "nder the Eletion 6ode in #ore in an"ar/*&%.

It is th"s lear that the proeedin2s held in s"h 6itiBensG

8sse3blies H and 1e have 3ore to sa/ on this point ins"bse!"ent pa2es H 0ere #"nda3entall/ irre2"lar, in thatpersons lain2 the !"alifations presribed in setion * o#8rt. D o# the 6onstit"tion 0ere allo0ed to vote in said8sse3blies. 8nd, sine there is no 3eans b/ 0hih theinvalid votes o# those less than '* /ears o# a2e an beseparated or se2re2ated #ro3 those o# the !"alifed voters,the proeedin2s in the 6itiBensG 8sse3blies 3"st beonsidered n"ll and void. )3

It has been held that ;(t)he po0er to re=etan entire poll ... s*ould +e e!ercised ... in a ase 0here itisimpossi+le to asertain 0ith reasonable ertaint/ the tr"evote,; as 0here ;it is impossi+le to separate the le2al votes#ro3 the ille2al or sp"rio"s ... .; )4

In Csman v. ommission on &lections, et al., )) 1e held4

Several ir"3stanes, de#/in2 e9atdesription and dependent 3ainl/ on the #at"al3ilie" o# the parti"lar ontrovers/, have the

e>et o# destro/in2 the inte2rit/ anda"thentiit/ o# disp"ted eletion ret"rns and o#avoidin2 their prima facie val"e and harater. I# satis#atoril/ proven, altho"2h in a s"33ar/proeedin2, s"h ir"3stanes as alle2ed b/the a>eted or interested parties, sta3p theeletion ret"rns 0ith the indelible 3ar o# #alsit/and irre2"larit/, and, onse!"entl/, o#"nreliabilit/, and ="sti#/ their e9l"sion #ro3 theanvass.

Then, too, the *&%5 6onstit"tion re!"ires ;a 3a=orit/ o# thevotes ast; #or a proposed a3end3ent to the <"nda3entalLa0 to be ;valid; as part thereo#, and the ter3 ;votes ast;has a 0ell-settled 3eanin2.

The ter3 ;votes ast; ... 0as held in Smit* v.Renville ount" ommissioners, 5 N.1. &5, inn. *, to have been "sed as an e!"ivalent o#

;+allots ast.; )6

The 0ord ;ast; is defned as;to deposit #or3all/ or o?iall/.; )7

It see3s to "s that a vote is ast 0hena +allot is deposited indiatin2 a ;hoie.; ... The0ord ;ast; 3eans ;deposit (a +allot ) #or3all/ oro?iall/ ... .

... In si3ple 0ords, 0e 0o"ld defne a ;voteast; as the e9erise on a +allot o# the hoie o#the voter on the 3eas"re proposed. )@

In short, said 8rt. D envisa2es H 0ith the ter3 ;votes ast;H hoies 3ade on +allots H not orall/ or b/ raisin2 H b/the persons tain2 part in plebisites. This is b"t nat"ral andlo2ial, #or, sine the earl/ /ears o# the 83erian re2i3e, 0ehad adopted the 8"stralian @allot S/ste3, 0ith its 3a=orharateristis, na3el/,uniform o)cial +allots prepared and#"rnished b/ the $overn3ent and sere/ in the votin2, 0ith

the advanta2e o# eepin2 reords that per3it ="diial in!"ir/,0hen neessar/, into the a"ra/ o# the eletion ret"rns.8nd the *&%5 6onstit"tion has been onsistentl/ interpretedin all plebisites #or the ratifation re=etion o# proposeda3end3ents thereto, #ro3 *&%5 to *&. Fene, the vivavoce votin2 in the 6itiBensG 8sse3blies 0as and is n"ll andvoid a+ initio.

b. Do- s*ould t*e ple+iscite +e *eld/ EM&L& supervisionindispensa+le essential re<uisitesF



"st as essential as o3pliane 0ith said 8rt. D o# the *&6onstit"tion is that o# 8rt. thereo#, parti"larl/ its setions* and '. Indeed, setion * provides that ;(t)here shall bean independent 6o33ission on Eletions ... .; The point to bestressed here is the ter3 ;independent.; Indeed, 0h/ 0as theter3 "sedK

In the absene o# said onstit"tional provision as to the

independene o# the 6o33ission, 0o"ld it have beendepends "pon either 6on2ress or the "diiar/K The ans0er3"st be the ne2ative, bea"se the #"ntions o# the6o33ission H ;en#ore3ent and ad3inistration; o# eletionla0s H are neither le2islative nor ="diial in nat"re, and,hene, be/ond the feld alloated to either 6on2ress or o"rtso# ="stie. Said #"ntions are b/ their nat"reessentiall/ e!ecutive, #or 0hih reason, the 6o33ission0o"ld be "nder the ;ontrol; o# the 7resident, p"rs"ant tosetion *, para2raph (*) o# 8rt. DII o# the 6onstit"tion, i# 8rt. thereo# did not e9pliitl/ delare that it (the 6o33ission) is

an ;independent; bod/. In other 0ords, in a3endin2 theori2inal *&%5 6onstit"tion, b/ insertin2 therein said 8rt. , onthe 6o33ission on Eletions, the p"rpose 0as to 3ae said6o33ission independent principall" of t*e *ief &!ecutive.

8nd the reason there#or is, also, obvio"s. 7rior to the reationo# the 6o33ission on Eletions as a onstit"tional or2an,eletion la0s in the 7hilippines 0ere en#ored b/ the then:epart3ent o# the Interior, thro"2h its E9e"tive @"rea", oneo# the o?es "nder the s"pervision and ontrol o# said:epart3ent. The sa3e H lie other depart3ents o# theE9e"tive @ranh o# the $overn3ent H 0as, in t"rn, "nderthe ontrol o# the 6hie# E9e"tive, be#ore the adoption o# the*&%5 6onstit"tion, and had been H "ntil the abolition o# said:epart3ent, so3eti3e a2o H "nder the ontrol o# the7resident o# the 7hilippines, sine the e>etivit/ o# said<"nda3ental La0. Under the provisions thereo#, theE9e"tive o"ld so "se his po0er o# ontrol over the:epart3ent o# the Interior and its E9e"tive @"rea" as toplae the 3inorit/ part/ at s"h a 2reat, i# not deisive,disadvanta2e, as to deprive it, in e>et, o# the opport"nit/ to

de#eat the politial part/ in po0er, and, hene, to enable thesa3e to perpet"ate itsel# therein. To #orestall this possibilit/,

the ori2inal *&%5 6onstit"tion 0as a3ended b/ theestablish3ent o# the 6o33ission on Eletions as aonstit"tional bod/ independent primaril" of t*e $resident o#the 7hilippines.

The independene o# the 6o33ission 0as so"2ht to bestren2thened b/ the lon2 ter3 o# o?e o# its 3e3bers Hnine (&) /ears, e9ept those frst appointed )9 H the lon2est

"nder the 6onstit"tion, seond onl/ to that o# the 8"ditor$eneral 6C b/ providin2 that the/ 3a/ not be re3oved #ro3o?e e9ept b/ i3peah3ent, plain2 the3, in this respet,on the sa3e plane as the 7resident, the Die-7resident, the

"sties o# the S"pre3e 6o"rt and the 8"ditor $eneralC thatthe/ 3a/ not be reappointedC that their salaries, ;shall beneither inreased nor di3inished d"rin2 their ter3 o# o?e;Cthat the deisions the 6o33ission ;shall be s"b=et to revie0b/ the S"pre3e 6o"rt; onl/ 61C that ;(n)o pardon, parole, ors"spension sentene #or the violation o# an/ eletion la0 3a/be 2ranted 0itho"t the #avorable reo33endation o# the

6o33ission; 62C and, that its hair3an and 3e3bers ;shallnot, d"rin2 the ontin"ane in o?e, en2a2e in the pratieo# an/ pro#ession or intervene, diretl/ or indiretl/, in the3ana2e3ent or ontrol o# an/ private enterprise 0hih inan/0a/ 3a/ a>eted b/ the #"ntions o# their o?eC norshall the/, diretl/ or indiretl/, be fnaniall/ interested inan/ ontrat 0ith the $overn3ent or an/ s"bdivision orinstr"3entalit/ thereo#.; 63 Th"s, the #ra3ers o# thea3end3ent to the ori2inal 6onstit"tion o# *&%5 endeavoredto do ever/thin2 possible protet and ins"re theindependene o# eah 3e3ber o# the 6o33ission.

1ith respet to the #"ntions thereo# as a bod/, setion ' o#said 8rt. ordains that ;(t)he 6o33ission on Eletions shallhave e!clusive har2e o# the en#ore3ent and ad3inistrationall la0s relative to the ond"t o# eletions,; apart #ro3 s"hother ;#"ntions 0hih 3a/ be on#erred "pon it b/ la0.; It#"rther provides that the 6o33ission ;shall deide, savethose involvin2 the ri2ht to vote, all ad3inistrative !"estiona>etin2 eletions, inl"din2 the deter3ination o# then"3ber and loation o# pollin2 plaes, and the appoint3ent

o# eletion inspetors and o# other eletion o?ials.; 8nd, to#orests possible onits or #ritions bet0een the



6o33ission, on one hand, and the other o?es or a2enieso# the e9e"tive depart3ent, on the other, said setion 'post"lates that ;EaFll la0 en#ore3ent a2enies andinstr"3entalities o# the $overn3ent, 0hen so re<uired b/the 6o33ission, shall act as its deputies #or the p"rpose o#ins"rin2 #ree, orderl/, and honest eletions.; Not satisfed0ith this, it delares, in e>et, that ;(t)he deisions, orders,and r"lin2 o# the 6o33ission; shall not be s"b=et to revie0,

e9ept b/ the S"pre3e 6o"rt.

In aordane 0ith the letter and spirit o# said 8rt. o# the6onstit"tion, Rep. 8t No. %++, other0ise no0n as theEletion 6ode o# *&*, i3ple3ents the onstit"tional po0erso# the 6o33ission on Eletions and 2rants additional po0ersthereto, so3e o# 0hih are en"3erated in setions 5 and o# said 8t, !"oted belo0. 64oreover, said 8t ontains, interalia, detailed provisions re2"latin2 ontrib"tions and other(orr"pt) pratiesC the establish3ent o# eletion preintsCthe desi2nation and arran2e3ent o# pollin2 plaes, inl"din2

votin2 booths, to protet the sere/ o# the ballotC #or3ationo# lists o# voters, the identifation and re2istration o# voters,the proeedin2s there#or, as 0ell as #or the inl"sion in, ore9l"sion or anellation #ro3 said list and the p"bliationthereo#C the establish3ent o# 3"niipal, provinial and fleso# re2istered votersC the o3position and appoint3ent o#board o# eletion inspetorsC the parti"lars o# the o?ialballots to be "sed and the prea"tions to be taen to ins"rea"thentiit/ thereo#C the proed"re #or the astin2 o# votesCthe o"ntin2 o# votes b/ boards o# inspetorsC the r"les #orthe appreiation o# ballots and the preparation anddisposition o# eletion ret"rnsC the onstit"tion and operationo# 3"niipal, provinials and national boards o# anvassersCthe presentation o# the politial parties andMor theirandidates in eah eletion preintC the prola3ation o# theres"lts, inl"din2, in the ase o# eletion o# p"bli o?ers,eletion ontestsC and the ="risdition o# o"rts o# ="stie inases o# violation o# the provisions o# said Eletion 6ode andthe penalties #or s"h violations.

<e0 la0s 3a/ be #o"nd 0ith s"h 3eti"lo"s and elaborate

set o# provisions ai3ed at ;ins"rin2 #ree, orderl/, and honesteletion,; as envisa2ed in setion ' o# 8rt. o# the

6onstit"tion. Pet, none o# the #ore2oin2 onstit"tional andstat"tor/ provisions 0as #ollo0ed b/ the so-alled @aran2a/sor 6itiBensG 8sse3blies. 8nd no reasons have been 2iven, oreven soug*t to be 2iven there#or. In 3an/, i# not 3ost,instanes, the eletion 0ere held a viva voce, th"s deprivin2the eletorate o# the ri2ht to vote seretl/ H one o# the 3ost,#"nda3ental and ritial #eat"res o# o"r eletion la0s #ro3ti3e i33e3orial H parti"larl/ at a ti3e 0hen the sa3e 0as

o# utmost i3portane, o0in2 to the e!istence of Martial La-.

In Glen v. Gnau, 6) involvin2 the astin2 o# 3an/ votes,openl/, 0itho"t o3pl/in2 0ith the re!"ire3ents o# the la0pertinent thereto, it 0as held that the ;eletion o?ers;involved ;cannot +e too strongl" condemned; there#or andthat i# the/ ;o"ld le2all/ dispense 0ith s"h re!"ire3ent ...the/ o"ld 0ith e!"al propriet/ dispense 0ith all o#the3,including t*e one t*at t*e vote s*all +e +" secret+allot, or even +" +allotat all ... .;

oreover, "pon the #or3al presentation to the E9e"tive o#the proposed 6onstit"tion dra#ted b/ the *&* 6onstit"tional6onvention, or on :ee3ber *, *&', 7residential :eree No.% (on the validit/ o# 0hih H 0hih 0as ontested in theplebisite ases, as 0ell as in the *&' *a+eascorpus ases 66 H 1e need not, in the ase o# bar, e9pressan/ opinion) 0as iss"ed, allin2 a plebisite, to be held on

an"ar/ *5, *&%, at 0hih the proposed 6onstit"tion 0o"ldbe s"b3itted to the people #or ratifation or re=etionCdiretin2 the p"bliation o# said proposed 6onstit"tionC anddelarin2, inter alia, that ;(t)he provision o# the Eletion 6odeo# *&*, inso#ar as the/ are not inonsistent; 0ith saidderee H e9eptin2 those ;re2ardin2 ri2ht and obli2ations o#politial parties and andidates; H ;s*all appl" to theond"t o# the plebisite.; Indeed, setion ' o# said Eletion6ode o# *&* provides that ;(a)ll eletions o# p"bli o?erse9ept barrio o?ials and ple+iscites shall be ond"ted inthe 3anner provided b/ this 6ode.; $eneral Order No. ',dated an"ar/ , *&%, postponin2 "ntil #"rther notie, ;theplebisite shed"led to be held on an"ar/ *5, *&%,; said

nothin2 abo"t the proed"re to be #ollo0ed in plebisite totae plae at s"h notie, and no other order or deree has



been bro"2ht to O"r attention, e9pressl/ or i3pliedl/repealin2 the provisions o# 7residential :eree %, inso#ar assaid proed"re is onerned.

Upon the other hand, said $eneral Order No. ' e9pressl/s"spended ;the provisions o# Setion % o# 7residential :ereeNo. % inso#ar as the/ allo0 #ree p"bli dis"ssion o#proposed 6onstit"tion ... te3poraril/ s"spendin2 e>ets o#

7rola3ation No. *+* #or the p"rposes o# #ree open dabateon the proposed 6onstit"tion ... .; This speif 3ention o#the portions o# the derees or orders or instr"tionss"spended b/ $eneral Order No. ' neessaril/ i3pliesthat all other portions o# said derees, orders or instr"tionsH and, hene, the provisions o# 7residential :eree No. %o"tlinin2 the proed"re to be #ollo0ed in the plebisite #orratifation or re=etion o# the proposed 6onstit"tion Hre3ained in #ore, ass"3in2 that said :eree is valid.

It is lai3ed that b/ virt"e o# 7residential :eree No. +-8 Hthe te9t o# 0hih is !"oted belo0 67 H the E9e"tivedelared, inter alia, that the olletive vie0s e9pressed in the6itiBensG 8sse3blies ;shall be considered in the #or3"lationo# national poliies or pro2ra3s and, 0herever pratiable,shall be translated into onrete and speif deision;C thats"h 6itiBensG 8sse3blies ;shall onsider vital nationaliss"es ... lie the holdin2 o# the plebisite on the ne06onstit"tion ... and others in the #"t"re, 0hih shall serveas guide or +asis for action or deision b/ the national2overn3ent;C and that the 6itiBensG 8sse3blies ;shallond"t bet0een an"ar/ * and *5, *&%, a referendum oni3portant national iss"es, inl"din2 those speifed inpara2raph ' hereo#, and s"b3it the res"lts thereo# to the:epart3ent o# Loal $overn3ents and 6o33"nit/:evelop3ent i33ediatel/ therea#ter, ... .; 8s in 7residential:eree No. +, this :eree No. +-8 does not and annote9l"de the e9erise o# the onstit"tional s"pervisor/ po0ero# the 6o33ission on Eletions or its partiipation in theproeedin2s in said 8sse3blies, i# the sa3e had beenintended to onstit"te the ;eletion; or 7lebisite re!"ired8rt. D o# the *&%5 6onstit"tion. The provision o# :eree No.

+-8 diretin2 the i33ediate s"b3ission o# the res"lt thereo# to the :epart3ent o# Loal $overn3ents 6o33"nit/

:evelop3ent is not neessaril/ inonsistent 0ith, and 3"stbe s"bordinate to the onstit"tional po0er o# the 6o33issionon Eletions to e9erise its ;e9l"sive a"thorit/ over theen#ore3ent and ad3inistration o# all la0s to the ond"t o#eletions,; i# the proeedin2s in the 8sse3blies 0o"ldpartae o# the nat"re o# an ;eletion; or plebisite #or theratifation or re=etion o# the proposed 6onstit"tion.

1e are told that 7residential :eree No. + 0as #"rthera3ended b/ 7residential :eree No. +-@, dated *&%,orderin2 ;that i3portant national iss"es shall #ro3 ti3e toti3eC be re#erred to the @aran2a/s (6itiBens 8sse3blies) #orresol"tion in aordane 0ith 7residential :eree No. +-8dated an"ar/ 5, *&% and that the initial re#erend"3 inl"dethe 3atter o# ratifation o# the 6onstit"tion b/ the *&*6onstit"tional 6onvention; and that ;(t)he Seretar/ o# the:epart3ent o# Loal $overn3ents and 6o33"nit/:evelop3ent shall ins"re the i3ple3entation o# this order.;8s in the ase o# 7residential :erees Nos. + and +-8, the

#ore2oin2 diretives do not neessaril/ e9l"de e9erise o#the po0ers vested b/ the *&%5 6onstit"tion in the6o33ission on Eletions, even i# the E9e"tive had thea"thorit/ to repeal 8rt. o# o"r <"nda3ental La0 H 0hih hedoes not possess. 6op/ o# 7residential :eree No. +-@ isappended hereto as 8nne9 @ hereo#.

The point is that, s"h o# the @arrio 8sse3blies as 0ere heldtoo plae 0itho"t the intervention o# the 6o33ission onEletions, and 0itho"t o3pl/in2 0ith the provisions o# theEletion 6ode o# *&* or even o# those o# 7residential :ereeNo. %. 1hat is 3ore, the/ 0ere held "nder thes"pervision of t*e ver" o)cers and agencies of t*e &!ecutive(epartment soug*t to +e e!cluded there#ro3 b/ 8rt. o# the*&%5 6onstit"tion. 1orse still, said o?ers and a2enies o#the *&%5 6onstit"tion 0o"ld be #avored thereb/, o0in2 to thepratial indefnite e9tension o# their respetive ter3s o#o?e in onse!"ene o# setion & o# the Transitor/7rovisions, #o"nd in 8rt. DII o# the proposed 6onstit"tion,0itho"t an/ eletions there#or. 8nd the proed"re therein3ostl/ #ollo0ed is s"h that there is no reasona+le means of

c*ec#ing the a"ra/ o# the ret"rns fles b/ the o?ers 0hoond"ted said plebisites. This is another patent violation o#



8rt. o# the 6onstit"tion 0hih an hardl/ be santioned. 8nd,sine the provisions o# this artile #or3 part o#the fundamental she3e set #orth in the *&%5 6onstit"tion,as a3ended, to ins"re the ;#ree, orderl/, and honest;e9pression o# the peopleGs 0ill, the a#ore3entioned violationthereo# renders n"ll and void the ontested proeedin2s oralle2ed plebisite in the 6itiBensG 8sse3blies, inso#ar as thesa3e are lai3ed to have ratifed the revised 6onstit"tion

proposed b/ the *&* 6onstit"tional 6onvention. ;... EaFll t*eaut*orities agree that the le2al defnition o# an eletion, as0ell as that 0hih is "s"all/ and ordinaril/ "nderstood b/ theter3, is a hoosin2 or as eletion b/ those havin2 a ri2ht topartiipate (in the seletion) o# those 0ho shall fll theo?es, or of t*e adoption or re8ection of an" pu+lic measureaecting t*e territor" involved. *5 6/. '&C Le-is v.%o"nton, '5 6olo. +, 55 7a. %'C Saunders v. Da"nes, *%6al. *5C Seaman v. %aug*man, +' Io0a '*, N.1. *&*,** L.R.8. %5C State v. Dirs*, *'5 Ind. ', ' N.E. *', &L.R.8. *C @o"vierGs La0 :itionar/. 6@

ID

Das t*e proposed onstitution aforementioned+een approved +" a ma8orit" of t*e people initizens2 Assem+lies allegedl" *eldt*roug*out t*e $*ilippines/

Respondents 3aintain the a?r3ative, rel/in2 "pon7rola3ation No. **', the validit/ o# 0hih is preisel/

bein2 ontested b/ petitioners herein. Respondents lai3that said prola3ation is ;onl"sive; "pon this 6o"rt, or is,at least, entitled to #"ll #aith and redene, as an enrolled billCthat the proposed 6onstit"tion has been, in #at, ratifed,approved or adopted b/ the ;over0hel3in2; 3a=orit/ o# thepeopleC that 8rt. D o# the *&%5 6onstit"tion has th"s been;s"bstaniall/; o3plied 0ithC and that the 6o"rt re#rain #ro3passin2 "pon the validit/ o# 7rola3ation No. **', not onl/bea"se s"h !"estion is politial in nat"re, b"t, also,bea"se sho"ld the 6o"rt invalidate the prola3ation, the#or3er 0o"ld, in e>et, veto the ation o# the people in

0ho3 soverei2nt/ resides and #ro3 its po0er are derived.

The 3a=or a0 in this proess o# rationaliBation is that itass"3es, as a #at, the ver/ pre3ise on 0hih it isprediated, and 0hih, 3oreover, is ontested b/ thepetitioners. 8s the S"pre3e 6o"rt o# innessota has aptl/p"t it H

... ever" o?er "nder a onstit"tional2overn3ent 3"st at aordin2 to la0 and

s"b=et to its restritions, and ever"departure there#ro3 or disre2ard thereo# 3"sts"b=et hi3 to the restrainin2 and ontrollin2 o#the people, acting t*roug* t*e agenc" of t*e

8udiciar" for it must +e remem+ered t*at t*e people act t*roug* courts, as 0ell as thro"2hthe e9e"tive or the Le2islat"re. Onedepart3ent is ="st as representative as theother, and t*e 8udiciar" is t*e department -*ic*is c*arged -it* t*e special dut" of determiningt*e limitations -*ic* t*e la- places upon all

o)cial action. ... .

8ordin2l/, the iss"e boils do0ns to 0hether or not theE9e"tive ated 0ithin the li3its o# his a"thorit/ 0hen heertifed in 7rola3ation No. **' ;that the 6onstit"tionproposed b/ the nineteen h"ndred and sevent/-one (*&*)6onstit"tional 6onvention has been ratifed b/ anover0hel3in2 3a=orit/ o# all o# the votes ast b/ the3e3bers o# all the @aran2a/s (6itiBens 8sse3blies)thro"2ho"t the 7hilippines and has thereb/ o3e into e>et.;

In this onnetion, it is not lai3ed that the 6hie# E9e"tivehad personal no0led2e o# the data he ertifed in saidprola3ation. oreover, 8rt. o# the *&%5 6onstit"tion 0aspreisel/ inserted to plae +e"ond the E9e"tive the po0erto s"pervise or even e9erise an" a"thorit/ 0hatsoever over;all la0s relative to the ond"t o# eletions,; and, hene,0hether the eletions are #or the hoie or seletion o# p"blio?ers or #or the ratifation or re=etion o# an/ proposeda3end3ent, or revision o# the <"nda3ental La0, sine theproeedin2s #or the latter are, also, re#erred to in said 8rt. D

as ;eletions;.



The Soliitor $eneral stated, in his ar2"3ent be#ore this6o"rt, that he had been in#or3ed that there 0as in eah3"niipalit/ a 3"niipal assoiation o# presidents o# theitiBensG asse3blies #or eah barrio o# the 3"niipalit/C thatthe president o# eah s"h 3"niipal assoiation #or3ed parto# a provinial or it/ assoiation o# presidents o# s"h3"niipal assoiationsC that the president o# eah one o#these provinial or it/ assoiations in t"rn #or3ed part o# a

National 8ssoiation or <ederation o# 7residents o# s"h7rovinial or 6it/ 8ssoiationsC and that one <raniso 6r"B#ro3 7asi2, RiBal, as 7resident o# said National 8ssoiation or<ederation, reported to the 7resident o# the 7hilippines, in the3ornin2 o# an"ar/ *, *&%, the total res"lt o# the votin2 inthe itiBensG asse3blies all over the o"ntr/ #ro3 an"ar/ *to an"ar/ *5, *&%. The Soliitor $eneral #"rther inti3atedthat the said 3"niipal assoiations had reported the res"ltso# the itiBensG asse3blies in their respetive 3"niipalitiesto the orrespondin2 7rovinial 8ssoiation, 0hih, in t"rn,trans3itted the res"lts o# the votin2 in the to the :epart3ent

o# Loal $overn3ents and 6o33"nit/ :evelop3ent, 0hihtab"lated the res"lts o# the votin2 in the itiBensG asse3bliesthro"2ho"t the 7hilippines and then t"rned the3 over to r.<raniso 6r"B, as 7resident or atin2 7resident o# the National8ssoiation or <ederation, 0here"pon r. 6r"B, atin2 in aere3onial apait/, reported said res"lts (tab"lated b/ the:epart3ent o# $overn3ents and 6o33"nit/ :evelop3ent)to the 6hie# E9e"tive, 0ho, aordin2l/, iss"ed 7rola3ationNo. **'.

The reord sho0s, ho0ever, that r. 6r"B 0as not even amem+er o# an/ barrio o"nil sine *&', so that he o"ldpossibl/ have been a mem+er on an"ar/ *, *&%, o#a municipal assoiation o# presidents o# barrio or 0arditiBensG asse3blies, 3"h less o# a 7rovinial, 6it/ orNational 8ssoiation or <ederation o# $residents o# an/ s"hprovinial or it/ assoiations.

Seondl/, at the onl"sion o# the hearin2 o# these ases<ebr"ar/ *, *&%, and in the resol"tion o# this 6o"rt o# sa3edate, the Soliitor $eneral 0as ased to s"b3it, to2ether

0ith his notes on his oral ar2"3ent, a tr"e op/ o#a#ore3entioned report o# r. 6r"B to the 7resident and o#

;(p)rola3ation, deree, instr"tion, order, re2"lation orir"lar, i# an/, reatin2 or diretin2 or a"thoriBin2 reation,establish3ent or or2aniBation; o# said 3"niipal, provinialand national assoiations, b"t neither a op/ o# alle2edreport to the 7resident, nor a op/ o# an/ ;(p)rola3ation,deree, instr"tion, order, re2"lation or ir"lar,; has beens"b3itted to this 6o"rt. In the absene o# said report,;(p)rola3ation, deree, instr"tion,; et., 7rola3ation No.

**' is devoid o# an/factual and legal #o"ndation. Fene, theonl"sion set #orth in the dispositive portion o# said7rola3ation No. **', to the e>et that the proposed ne0or revised 6onstit"tion had been ratifed b/ 3a=orit/ o# thevotes ast b/ the people, an not possibl/ have an/ le2ale>et or val"e.

The theor/ that said prola3ation is ;onl"sive "pon 6o"rtis learl/ "ntenable. I# it 0ere, ats o# the E9e"tive andthose o# 6on2ress o"ld not possibl/ be ann"lled orinvalidated b/ o"rts o# ="stie. Pet, s"h is not the ase. In

#at, even a resol"tion o# 6on2ress delarin2 that a 2ivenperson has been eleted 7resident or Die-7resident o# the7hilippines as provided in t*e onstitution, 69 is notonl"sive "pon the o"rts. It is no more than primafacie evidene o# 0hat is attested to b/ said resol"tion. 7 I#assailed diretl/ in appropriate proeedin2s, s"h as aneletion protest, i# and 0hen a"thoriBed b/ la0, as it is in the7hilippines, the 6o"rt 3a/ reeive evidene and delare, inaordane there0ith, 0ho 0as d"l/ eleted to the o?einvolved. 71 I# prior to the reation o# the 7residentialEletoral Trib"nal, no s"h protest o"ld be fled, it0as not bea"se the resol"tion o# 6on2ress delarin2 0hohad been eleted 7resident or Die-7resident0as conclusive "pon o"rts o# ="stie, b"t bea"se there0as no la- per3ittin2 the flin2 o# s"h protest anddelarin2 -*at court or +od" 0o"ld hear and deide thesa3e. So, too, a delaration to the e>et that a 2ivena3end3ent to the 6onstit"tion or revised or ne06onstit"tion has been ratifed b/ a 3a=orit/ o# the votes astthere#or, ma" +e dul" assailed in o"rt and +e t*e o+8ect of

8udicial in<uir" , in direct proeedin2s there#or H s"h as theases at bar H and the iss"e raised therein ma" and s*ould+e decided in aordane 0ith the evidene presented.



The ase o# In re 6ona"2h/ 72 is s!"arel/ in point. ;8s the6onstit"tion stood #ro3 the or2aniBation o# the state; H o#innessota H ;all ta9es 0ere re!"ired to be raised "nder thes/ste3 no0n as the G2eneral propert/ ta9.G :issatis#ation0ith the res"lts o# this 3ethod and the develop3ent o# 3oresientif and satis#ator/ 3ethods o# raisin2 reven"eind"ed the Le2islat"re to s"b3it to the people ana3end3ent to the 6onstit"tion 0hih provided 3erel/ that

ta9es shall be "ni#or3 "pon the sa3e lass o# s"b=ets. Thisproposed a3end3ent 0as s"b3itted at the 2eneral eletionheld in Nove3ber, *&, and in d"e ti3e it 0as certi9ed b/the state anvassin2 board and prolai3ed b/ the $overnoras havin2 been le2all/ adopted. 8tin2 "pon the ass"3ptionthat the a3end3ent had beo3e a part o# the 6onstit"tion,the Le2islat"re enated stat"tes providin2 #or a State Ta96o33ission and a 3ort2a2e re2istr/ ta9, and the latterstat"te, "pon the sa3e theor/, 0as held onstit"tional; b/said 6o"rt. ;The distrit o"rt #o"nd that the a3end3ent hadno in #at been adopted, and on this appeal; the S"pre3e

6o"rt 0as ;re<uired to determine t*e correctness o# thatonl"sion.;

Re#errin2 to the e>et o# the certi9cation o# the State @oardo# 6anvassers reated b/ the Le2islat"re and o#the proclamation 3ade b/ the $overnor based thereon, the6o"rt held4 ;It 0ill be noted that this board does no 3orethan tab"late the reports reeived #ro3 the vario"s o"nt/board and add "p and erti#/ the res"lts. State v. ason, 51ash. '%, ++ 7a. *', & L.R.8. (U.S.) *''*. It is settled la0that the deisions o# eletion o?ers, and anvassin2 boardsare not conclusive and that t*e 9nal decision must rest -it*t*e courts, "nless the la0 delares that the deisions o# theboard shall be fnal; H and there is no s"h la0 in the asesat bar. ;... The orretness o# the onl"sion o# the stateboard rests "pon the orretness o# the ret"rns 3ade b/ theo"nt/ boards and it is inconceiva+le that it 0as intendedthat this state3ent o# res"lt sho"ld be 9nal and conclusiveregardless of t*e actual facts. The prola3ation o# the$overnor adds not*ing in the 0a/ o# onl"siveness to thele2al e>et o# the ation o# the anvassin2 board. Its p"rposeis to #or3all/ noti#/ the people o# the state o# the res"lt o# the

votin2 as #o"nd b/ the anvassin2 board. a3es on 6onst.6onv. (th Ed.) se. 5'%.;

In %ott v. 1artz , 73 the 6o"rt revie-ed the state3ent o#res"lts o# the eletion 3ade b/ the anvassin2 board, inorder that the tr"e res"lts o"ld be ="diiall/ deter3ined. 8ndso did the o"rt in Rice v. $almer . 74

Inas3"h as 8rt. o# the *&%5 6onstit"tion plaes "nder the;e9l"sive; har2e o# the 6o33ission on Eletions, ;theen#ore3ent and ad3inistration o# all la0s relative to theond"t o# eletions,; independentl" o# the E9e"tive,and t*ere is not even a certi9cation +" t*e ommission ins"pport o# the alle2ed res"lts o# the itiBensG asse3bliesrelied "pon in 7rola3ation No. **' apart #ro3 the #atthat on an"ar/ *, *&% neither the alle2ed president o# the<ederation o# 7rovinial or 6it/ @aran2a/s nor the:epart3ent o# Loal $overn3ents had ertifed to the7resident the alle2ed res"lt o# the itiBensG asse3blies allover the 7hilippines H it #ollo0s neessaril/ that, #ro3 aonstit"tional and le2al vie0point, 7rola3ation No. **'is not even prima facie evidene o# the alle2ed ratifation o#the proposed 6onstit"tion.

Re#errin2 parti"larl/ to the ases be#ore Us, it 0ill be notedthat, as pointed o"t in the dis"ssion o# the preedin2 topi,the ne0 or revised 6onstit"tion proposed b/ the *&*6onstit"tional 6onvention 0as not ratifed in aordane 0iththe provisions o# the *&%5 6onstit"tion. In #at, it *as not

even +een, rati9ed in accordance -it* said proposedonstitution, the 3ini3"3 a2e re!"ire3ent therein #or thee9erise o# the ri2ht o# s">ra2e bein2 eig*teen (*+) /ears,apart #ro3 the #at that 8rt. DI o# the proposed 6onstit"tionre!"ires ;seret; votin2, 0hih 0as not observed in 3an/, i#not 3ost, 6itiBensG 8sse3blies. @esides, +ot* the *&%56onstit"tion and the proposed 6onstit"tion re!"ire a;3a=orit/ o# the votes cast ; in an eletion or plebisite alled#or the ratifation o# an a3end3ent or revision o# the frst6onstit"tion or the e>etivit/ o# the proposed 6onstit"tion,and the phrase ;votes ast; has been onstr"ed to 3ean



;votes 3ade in 0ritin2 not orall/, as it 0as in 3an/ 6itiBensG8sse3blies. 7)

Even o"nsel #or $il . 7"/at and ose Ro/, as respondents inL-%*5, asserts openl/ that 8rt. D o# the 6onstit"tion hasnot been o3plied 0ith, and sine the alle2ed s"bstantialo3pliane 0ith the re!"ire3ents thereo# partaes o# thenat"re o# a de#ense set "p b/ the other respondents in these

ases, the b"rden o# provin2 s"h de#ense H 0hih, i# tr"e,sho"ld be 0ithin their pe"liar no0led2e H is learl/ ons"h respondents. 8ordin2l/, i# despite the e9tensive notesand do"3ents s"b3itted b/ the parties herein, the3e3bers o# the 6o"rt do not no0 or are not prepared to sa/0hether or not the 3a=orit/ o# the people or o# those 0hotoo part in the 6itiBensG 8sse3blies have assented to theproposed 6onstit"tion, the lo2ial step 0o"ld be to 2ive d"eo"rse to these ases, re!"ire the respondents to fle theirans0ers, and the plainti>s their repl/, and, therea#ter, toreeive the pertinent evidene and then proeed to the

deter3ination o# the iss"es raised thereb/. Other0ise, 0e0o"ld be plain2 "pon the petitioners the b"rden o#disprovin2 a de#ense set "p b/ the respondents, 0hohave not so far established the tr"th o# s"h de#ense.

Even 3ore i3portant, and deisive, than the #ore2oin2 is their"3stane that there is a3ple reason to believe that3an/, i# not 3ost, o# the people did not no0 that the6itiBensG 8sse3blies 0ere, at the ti3e the/ 0ere held,plebisites #or the ratifation or re=etion o# the proposed6onstit"tion. Fene, in O"r deision in the plebisite ases,1e said, inter alia4

ean0hile, or on :ee3ber *, *&', the7resident had iss"ed an order te3poraril/s"spendin2 the e>ets o# 7rola3ation No.*+*, #or the p"rpose o# #ree and open debateon the 7roposed 6onstit"tion. On :ee3ber '%,the 7resident anno"ned the postpone3ent o#the plebisite #or the ratifation or re=etion o#the 7roposed 6onstit"tion. No #or3al ation to

this e>et 0as taen "ntil an"ar/ , *&%, 0hen

$eneral Order No. ' 0as iss"ed, diretin2 ;thatthe plebisite shed"led to be held on an"ar/*5, *&%, be postponed "ntil #"rther notie.;Said $eneral Order No. ', 3oreover,;s"spended in the 3eanti3e; the ;order o#:ee3ber *, *&', te3poraril/ s"spendin2 thee>ets o# 7rola3ation No. *+* #or p"rposes o# #ree and open debate on the proposed

6onstit"tion.

?n vie- of t*ese events relative to t*e postponement of t*e aforementioned ple+iscite,t*e ourt deemed it 9t to refrain, for t*e time+eing, from deciding t*e aforementioned cases,for neit*er t*e date nor t*e conditions under-*ic* said ple+iscite -ould +e *eld -ere #no-nor announced o)ciall". T*en again, ongress-as, pursuant to t*e 6>47 onstitution,sc*eduled to meet in regular session on Januar"

;;, 6>H4, and since t*e main o+8ection to$residential (ecree 'o. H4 -as t*at t*e$resident does not *ave t*e legislative aut*orit" to call a ple+iscite and appropriate fundst*erefor, -*ic* ongress un<uestiona+l" coulddo, particularl" in vie- of t*e formal

postponement of t*e ple+iscite +" t*e $resident reportedl" after consultation -it*, amongot*ers, t*e leaders of ongress and t*eommission on &lections t*e ourt deemed it more imperative to defer its 9nal action ont*ese cases.

8nd, apparentl/, the parties in said ases entertained thesa3e belie#, #or, on :ee3ber '%, *&' H #o"r () da/s a#terthe last hearin2 o# said ases 76 H the 7resident anno"nedthe postponement o# the plebisite shed"led b/ 7residential:eree No. % to be held on an"ar/ *5, *&%, a#terons"ltation 0ith the 6o33ission on Eletions and theleaders o# 6on2ress, o0in2 to do"bts on the s"?ien/ o# theti3e available to translate the proposed 6onstit"tion into

so3e loal dialets and to o3pl/ 0ith so3e pre-eletoralre!"ire3ents, as 0ell as to a>ord the people a reasonable



opport"nit/ to be posted on the ontents and i3pliations o#said transendental do"3ent. On an"ar/ , *&%, $eneralOrder No. ' 0as iss"ed #or3all/, postponin2 said plebisite;"ntil #"rther notie.; Fo0 an said postponement bereoniled 0ith the theor/ that the proeedin2s in the6itiBensG 8sse3blies shed"led to be held #ro3 an"ar/ * to

an"ar/ *5, *&%, 0ere ;plebisites,; in e>et, accelerated,aordin2 to the theor/ o# the Soliitor $eneral, #or the

ratifation o# the proposed 6onstit"tionK I# said 8sse3blies0ere 3eant to be the plebisites or eletions envisa2ed in8rt. D o# the 6onstit"tion, 0hat, then, 0as the;plebisite; postponed b/ $eneral Order No. 'K Under theseir"3stanes, it 0as onl/ reasonable #or the people 0hoattended s"h asse3blies to believe that the sa3e 0ere notan ;eletion; or plebisite #or the ratifation or adoption o#said proposed 6onstit"tion.

8nd, this belie# is #"rther bolstered "p b/ the !"estionspropo"nded in the 6itiBensG 8sse3blies, na3el/4

*J :o /o" lie the Ne0 Soiet/K

'J :o /o" lie the re#or3s "nder 3artial la0K

%J :o /o" lie 6on2ress a2ain to hold sessionsK

J :o /o" lie the plebisite to be held laterK

5J (o "ou li#e t*e -a" $resident Marcos is

running t*e aairs of t*e government/ @"lletin Toda/, an"ar/ *, *&%C e3phasis an additional!"estion.J

J :o /o" approve o# the itiBens asse3blies asthe base o# pop"lar 2overn3ent to deideiss"es o# national interestsK

J :o /o" approve o# the ne0 6onstit"tionK

+J :o /o" 0ant a plebisite to be alled to rati#/

the ne0 6onstit"tionK

&J :o /o" 0ant the eletions to be held inNove3ber, *&% in aordane 0ith theprovisions o# the *&%5 6onstit"tionK

*J I# the eletions 0o"ld not be held, 0hen do/o" 0ant the ne9t eletions to be alledK

**J :o /o" 0ant 3artial la0 to ontin"eK

@"lletin Toda/, an"ar/ **, *&%J

To be2in 0ith, !"estions nos. *, ', %, , 5, , &, * and ** arenot proper in a plebisite #or the ratifation o# a proposed6onstit"tion or o# a proposed a3end3ent thereto. Seondl/,neither is the lan2"a2e o# !"estion No. H ;:o /o" approvethe ne0 6onstit"tionK; One approves ;o#; the at o# another0hih does not need s"h approval #or the e>etivit/ o# saidat, 0hih the frst person, ho0ever, fnds to be 2ood, 0isesatis#ator/. The approval o# the 3a=orit/ o# the votes ast inplebisite is, ho0ever, essential #or an a3end3ent to the6onstit"tion to be valid as part thereo#. Thirdl/, i# theproeedin2s in the 6itiBensG 8sse3blies onstit"ted aplebisite !"estion No. + 0o"ld have been "nneessar/ andi3proper, re2ardless o# 0hether !"estion No. 0ereans0ered a?r3ativel/ or ne2ativel/. I# the 3a=orit/ o# theans0ers to !"estion No. 0ere in the a?r3ative, theproposed 6onstit"tion 0o"ld have beo3e e>etive and noother plebisite o"ld be held therea#ter in onnetionthere0ith, even i# the 3a=orit/ o# the ans0ers to !"estion No.+ 0ere, also, in the a?r3ative. I# the 3a=orit/ o# the ans0ersto !"estion No. 0ere in the ne2ative, neither 3a/ anotherplebisite be held, even i# the 3a=orit/ o# the ans0ers to!"estion No. + 0ere in the a?r3ative. In either ase, not3ore than one plebisite o"ld be held #or the ratifation orre=etion o# the proposed 6onstit"tion. In short, the insertiono# said t0o (') !"estions H apart #ro3 the other !"estionsadverted to above H indiates stron2l/ that the proeedin2stherein did not partae o# the nat"re o# a plebisite oreletion #or the ratifation or re=etion o# the proposed6onstit"tion.



Indeed, I an not, in 2ood onsiene, delare that theproposed 6onstit"tion has been approved or adopted b/ thepeople in the itiBensG asse3blies all over the 7hilippines,0hen it is, to 3/ 3ind, a 3atter o# ="diial no0led2e thatthere have been no s"h itiBensG asse3blies in man" partso# anila and s"b"rbs, not to sa/, also, in other parts o# the7hilippines. In a letter o# $overnor E#ren @. 7as"al o# @ataan,dated an"ar/ *5, *&%, to the 6hie# E9e"tive, the #or3er

reported4

... This report inl"des a res"3ee (si) o# theativities 0e "ndertoo in e>etin2the referendum on the eleven !"estions /o"0anted o"r people consulted on and theS"33ar/ o# Res"lts thereo# #or eah3"niipalit/ and #or the 0hole provine.

999 999 999

... O"r initial plans and preparations, ho0ever,dealt onl/ on the ori2inal fve !"estions.6onse!"entl/, 0hen -e received an instructionon Januar" 6: to c*ange the !"estions, -eurgentl" suspended all sc*eduled itizens

Assem+l" meetings on t*at da" and alled alla/ors, 6hie#s o# O?es and other 2overn3ento?ials to another on#erene to dis"ss 0iththe3 the ne0 set o# 2"idelines and 3aterials tobe "sed.

n Januar" 66, ... anot*er instruction from t*etop -as received to inl"de the ori2inal fve!"estions a3on2 those to be dis"ssed andased in the 6itiBensG 8sse3bl/ 3eetin2s. 1iththis latest order,-e again *ad to ma#emodi9cations in our instructions to all those3ana2in2 and s"pervisin2 the holdin2 o# the6itiBensG 8sse3bl/ 3eetin2s thro"2ho"t theprovine. ... 8side #ro3 the oordinators 0e had#ro3 the O?e o# the $overnor, the splendid

ooperation and s"pport e9tended b/ al3ost all

government o)cials and emplo"ees in theprovine, parti"larl/ o# the :epart3ent o#Ed"ation, 76 and 786: personnel, provided "s0ith eno"2h hands to tro"ble shoot andi3ple3ent s"dden han2es in the instr"tionsan/ti3e and an/0here needed. ...

... 8s to o"r people, in 2eneral, their enth"siasti

partiipation sho0ed their pre#erene andreadiness to aept this ne0 3ethod o#2overn3ent to people consultation ins*aping "p 2overn3ent poliies.

Th"s, as late as an"ar/ *, *&%, the @ataan o?ials hadto suspend ;all shed"led 6itiBensG 8sse3bl/ 3eetin2s ...;and all all available o?ials ;... to discuss 0ith the3 t*ene- set of guidelines and 3aterials to be "sed ... .; Then, ;on

an"ar/ ** ... another instr"tion #ro3 the top 0as reeivedto inl"de the ori2inal fve !"estions a3on2 those

be discussed and ased in the 6itiBensG 8sse3bl/ 3eetin2s.1ith this latest order, 0e a2ain had to 3ae 3odifations ino"r instr"tions to all those 3ana2in2 and s"pervisin2holdin2 o# the 6itiBensG 8sse3bl/ 3eetin2s thro"2ho"tprovine. ... 8s to o"r people, in 2eneral, their enth"siastipartiipation sho0ed their pre#erene and readiness toaept the ne0 3ethod o# 2overn3ent topeople consultation in s*aping up 2overn3ent poliies.;

This o33"niation 3ani#estl/ sho0s4 *) that, as late a an"ar/ **, *&%, the @ataan o?ials had still todiscuss Hnot p"t into operation H 3eans and 0a/s to arr/ o"t thehan2in2 instr"tions #ro3 the top on ho0 to or2aniBe theitiBensG asse3blies, 0hat to do therein and even 0hat!"estions or topis to propo"nd or to"h in said asse3bliesC') that the asse3blies 0o"ld involve no 3orethan consultations or dialo2"es bet0een people and2overn3ent H not decisions be 3ade +" t*e peopleC and %)that said ons"ltations 0ere ai3ed onl/ at ;shapin2"p government policies; and, hene o"ld not, and did not,partae o# the nat"re o# a plebisite #or the ratifation or

re=etion o# a proposed a3end3ent o# a ne0 or revised



6onstit"tion #or the latter does not entail the #or3"lation o#a polic" of t*e Government , b"t the 3ain2 o# decision +"t*e people on the ne0 0a/ o# li#e, as a nation, the/ 0ish tohave, one the proposed 6onstit"tion shall have beenratifed.

I# this 0as the sit"ation in @ataan H one o# the provinesnearest to anila H as late as an"ar/ **, *&%, one an

easil/ i3a2ine the predia3ent o# the loal o?ials andpeople in the re3ote barrios in northern and so"thern L"Bon,in the @iol re2ion, in the Disa/an Islands and indanao. In#at, several 3e3bers o# the 6o"rt, inl"din2 those o# theiri33ediate #a3ilies and their ho"sehold, altho"2h d"l/re2istered voters in the area o# $reater anila, 0ere noteven noti9ed that itiBensG asse3blies 0o"ld be held in theplaes 0here their respetive residenes 0ere loated. In the7rohibition and 83end3ent ase, 77 attention 0as alled tothe ;dut" ast "pon the o"rt o# ta#ing 8udicial cognizance o#an/thin2 a>etin2 the e9istene and validit/ o# an/ la0 or

portion o# the6onstit"tion ... .; In line 0ith its o0n prono"ne3ent inanother ase, the <ederal S"pre3e 6o"rt o# the United Statesstressed, in %a#er v. arr , 7@ that ;a o"rt is not at libert/to s*ut its e"es to an o+vious mista#e, 0hen the validit" oft*e la- depends "pon the tr"th o# 0hat is delared.;

In the li2ht o# the #ore2oin2, I annot see ho0 the !"estion"nder onsideration an be ans0ered or resolved other0isethan in the ne2ative.

D

Dave t*e people ac<uiesced in t*e proposed onstitution/

It is "r2ed that the present $overn3ent o# the 7hilippines isno0 and has been r"n, sine an"ar/ *, *&*, "nder the6onstit"tion dra#ted b/ the *&* 6onstit"tional 6onventionCthat the politial depart3ent o# the $overn3ent hasreo2niBed said revised 6onstit"tionC that o"r #orei2nrelations are bein2 ond"ted "nder s"h ne0 or revised

6onstit"tionC that the Le2islative :epart3ent has reo2niBed

the sa3eC and that the people, in 2eneral, have, b/ their atsor o3issions, indiated their on#or3it/ thereto.

8s re2ards the so-alled politial or2ans o# the $overn3ent,2ather that respondents re#er 3ainl/ to the o?es "nder theE9e"tive :epart3ent. In a sense, the latter per#or3s so3e#"ntions 0hih, #ro3 a onstit"tional vie0point, are politisin nat"re, s"h as in reo2niBin2 a ne0 state or 2overn3ent,

in aeptin2 diplo3ati representatives aredited to o"r$overn3ent, and even in devisin2 ad3inistrative 3eans and0a/s to better arr/ into e>et. 8ts o# 6on2ress 0hihdefne the 2oals or ob=etives thereo#, b"t are eitheri3preise or silent on the parti"lar 3eas"res to be resortedto in order to ahieve the said 2oals or dele2ate the po0er todo so, e9pressl/ or i3pliedl/, to the E9e"tive. This,not0ithstandin2, the politial or2an o# a 2overn3ent thatp"rports to be rep"blian is essentiall/ the 6on2ress orLe2islative :epart3ent. 1hatever 3a/ be the #"ntionsalloated to the E9e"tive :epart3ent H speiall/ "nder a

0ritten, ri2id 6onstit"tion 0ith a rep"blian s/ste3 o#$overn3ent lie o"rs H the role o# that :epart3ent isinherentl/, basiall/ and #"nda3entall/ e9e"tive in nat"reH to ;tae are that the la0s be #aith#"ll/ e9e"ted,; in thelan2"a2e o# o"r *&%5 6onstit"tion. 79

6onse!"entl/, I a3 not prepared to onede that the ats theo?ers and o?es o# the E9e"tive :epart3ent, in line 0ith7rola3ation No. **', onnote a reo2nition thereo# o ana!"iesene thereto. 1hether the/ reo2niBed the proposed6onstit"tion or a!"iese thereto or not is so3ethin2 thatannot le2all/, 3"h less neessaril/ or even nor3all/, beded"ed #ro3 their ats in aordane there0ith, bea"sethe are +ound to obe/ and at in on#or3it/ 0ith the orderso# the 7resident, "nder 0hose ;ontrol; the/ are, pursuant tot*e 6>47 onstitution. The/ have absol"tel/ no ot*er c*oice,speiall/ in vie0 o# 7rola3ation No. *+* plain2 the7hilippines "nder artial La0. @esides, b/ virt"e o# the ver/derees, orders and instr"tions iss"ed b/ the 7residenttherea#ter, he had ass"3ed all po0ers o# $overn3ent Haltho"2h so3e !"estion his a"thorit/ to do so H and,onse!"entl/, there is hardl/ an/thin2 he has done sine theiss"ane o# 7rola3ation No. **', on an"ar/ *, *&% H



delarin2 that the 6onstit"tion proposed b/ the *&*6onstit"tional 6onvention has been ratifed b/ theover0hel3in2 3a=orit/ o# the people H that he o"ld not do"nder the a"thorit/ he lai3ed to have "nder artial La0,sine Septe3ber '*, *&', e9ept the po0er o# s"pervisionover in#erior o"rts and its personnel, 0hih said proposed6onstit"tion 0o"ld plae "nder the S"pre3e 6o"rt, and0hih the 7resident has not ostensibl/ e9erised, e9ept as

to so3e 3inor ro"tine 3atters, 0hih the :epart3ent o# "stie has ontin"ed to handle, this 6o"rt havin2 pre#erredto 3aintain the status <uo in onnetion there0ith pendin2fnal deter3ination o# these ases, in 0hih the e>etivit/ o#the a#ore3entioned 6onstit"tion is disp"ted.

Then, a2ain, a 2iven depart3ent o# the $overn3ent annot2enerall/ be said to have ;reo2niBed; its o-n ats.Reo2nition nor3all/ onnotes the ano0led23ent b/ apart/ o# the ats o# anot*er . 8ordin2l/, 0hen a s"bordinateo?er or o?e o# the $overn3ent o3plies 0ith the

o33ands o# a s"perior o?er or o?e, "nder 0hoses"pervision and ontrol he or it is, the #or3er3erel/ o+e"s the latter. Stritl/ speain2, and #ro3 a le2aland onstit"tional vie0point, there is no at o# reo2nitioninvolved therein. Indeed, the lo0er o?er or o?e, i# he or itated other0ise, 0o"ld ="st be 2"ilt/ o# ins"bordination.

Th"s, #or instane, the ase o# Ta"lor v. ommon-ealt* @ Hited b/ respondents herein in s"pport o# the theor/ o# thepeopleGs a!"iesene H involved a onstit"tion ordained in*&' and ;prolai3ed b/ a onvention d"l/ alled b/ a diretvote o# the people o# the state to revise and a3end the6onstit"tion o# *+&. The res"lt o# the 0or o# that6onvention has been reo2niBed, aepted and ated "ponas the onl" valid 6onstit"tion o# the State; b/ H

*. The ;$overnor o# the State in s0earin2 fdelit/ to it andprolai3in2 it, as direted thereb/;C

'. The ;Le2islat"re in its formal o)cial at adoptin2 a 8ointresolution, "l/ *5, *&', reo2niBin2 the 6onstit"tion

ordained b/ the 6onvention ...;C

%. The ;individ"al oaths o# its 3e3bers to s"pport it, and +"its *aving +een engaged for nearl" a "ear , in le2islatin2"nder it and p"ttin2 its provisions intooperation ...;C

. The ;="diiar/ in tain2 the oath presribed thereb/ tos"pport it and b/ en#orin2 its provisions ...;C and

5. The ;people in their pri3ar/ apait/ b/ peae#"ll/aeptin2 it and a!"iesin2 in it, b/ re2isterin2 as voters"nder it to the e9tent o# tho"sands thro"2ho"t the State, andb/ votin2, "nder its provisions, at a 2eneral eletion #or theirrepresentatives in the 6on2ress o# the United States.;

Note that the Ne0 6onstit"tion o# Dir2inia, dra#ted b/ aonvention 0hose 3e3bers 0ere eleted diretl/ b/ thepeople, 0as not s"b3itted to the people #or ratifation orre=etion thereo#. @"t, it 0as reo2niBed, not b/ theonvention itsel#, b"t b/ ot*er setors o# the $overn3ent,na3el/, the $overnorC the Le2islat"re H not 3erel/ b/individ"al ats o# its 3e3bers, b"t b/ formal 8ointresolution o# its t0o (') ha3bersC b/ the ="diiar/C and b/the people, in the vario"s 0a/s speifed above. 1hat is3ore, there 0as no martial la-. In the present ases,none o#the #ore2oin2 ats o# a!"iesene 0as present. 1orse still,there is 3artial la0, the strict enforcement o# 0hih 0asanno"ned s*ortl" +efore the alle2ed itiBensG asse3blies. Totop it all, in the Ta/lor ase, the e>etivit/ o# the ontesteda3end3ent 0as not ontested ="diiall/ "ntil abo"t one E6F

"ear a#ter the a3end3ent had been p"t into operationin all branhes o# the $overn3ent, and o3plied 0ith b/ thepeople 0ho partiipated in the eletions held p"rs"ant to theprovisions o# the ne0 6onstit"tion. In the ases "nderonsideration, the le2alit/ o# 7residential :eree No. %allin2 a plebisite to be held on an"ar/ *5, *&%, 0asi3p"2ned as earl/ as :ee3ber , *&', or fve (5)0ees +efore the shed"led plebisite, 0hereas the validit/o# 7rola3ation No. **' delarin2 on an"ar/ *, *&%, thatthe proposed 6onstit"tion had been ratifed H despite$eneral Order No. ', iss"ed on an"ar/ , *&', #or3all/

and o?iall/ s"spendin2 the plebisite "ntil #"rther notie H



0as i3p"2ned as earl/ as an"ar/ ', *&%, 0hen L-%*'0as fled, or t*ree E4F da"s a#ter the iss"ane o# 7rola3ationNo. **'.

It is #"rther alle2ed that a 3a=orit/ o# the 3e3bers o# o"rFo"se o# Representatives and Senate have a!"iesed in thene0 or revised 6onstit"tion, b/ flin2 0ritten state3entsoptin2 to serve in the 8d Interi3 8sse3bl/ established in the

Transitor/ 7rovisions o# said 6onstit"tion. Individ"al ats o#reo2nition b/ 3e3bers o# o"r le2islat"re, as 0ell as o# otherolle2iate bodies "nder the 2overn3ent, are invalid as atso# said le2islat"re or bodies, "nless its 3e3bers haveper#or3ed said ats in session dul" assem+led, or "nless thela0 provides other0ise, and there is no s"h la0 in the7hilippines. This is a 0ell-established priniple o#8d3inistrative La0 and o# the La0 o# 7"bli O?ers, and nopla"sible reason has been add"ed to 0arrant depart"rethere#ro3. @1

Indeed, i# the 3e3bers o# 6on2ress 0ere 2enerall/ a2reeableto the proposed 6onstit"tion, 0h/ did it beo3e neessar/ topadlo its pre3ises to prevent its 3eetin2 in session on

an"ar/ '', *&%, and therea#ter as provided in the *&%56onstit"tionK It is tr"e that, theoretiall/, the 3e3bers o#6on2ress, i# bent on dishar2in2 their #"ntions "nder said6onstit"tion, o"ld have 3et in an/ other plae, the b"ildin2in 0hih the/ per#or3 their d"ties bein2 i33aterial to thele2alit/ o# their o?ial ats. The #ore o# this ar2"3ent is,ho0ever, o>set or dissipated b/ the #at that, on or abo"t:ee3ber ', *&', i33ediatel/ a#ter a on#erene bet0eenthe E9e"tive, on the one hand, and 3e3bers o# 6on2ress,on the other, so3e o# 0ho3 e9pressed the 0ish to 3eet insession on an"ar/ '', *&%, as provided in the *&%56onstit"tion, a :ail/ E9press ol"3nist (7ri3itivo i=ares)attrib"ted to 7residential 8ssistant $"iller3o de De2a astate3ent to the e>et that ;Gertain 3e3bers o# the Senateappear to be 3issin2 the point in iss"eG 0hen the/reportedl/ insisted on ta#ing up 9rst t*e <uestion ofconvening ongress.; The :ail/ E9press o# thatdate, @2 lie0ise, headlined, on its #ront pa2e, a;Senatorial $lot 82ainst Gartial La0 $overn3entG :islosed;.

Then, in its iss"e o# :ee3ber '&, *&', the sa3e paper

i3p"ted to the E9e"tive an appeal ;to diverse 2ro"psinvolved in a conspirac" to "nder3ine; his po0ers; "nder3artial la0 to desist from provo#ing a onstit"tionalrisis ... -*ic* ma" result in t*e e!ercise +" me of aut*orit" ?*ave not e!ercised.;

No 3atter ho0 2ood the intention behind these state3ent3a/ have been, the idea i3plied therein 0as too lear

an ominous #or an/ 3e3ber o# 6on2ress 0ho tho"2ht o#or2aniBin2, holdin2 or tain2 part in a session o# 6on2ress,not to 2et the i3pression that he o"ld hardl/ do so 0itho"tinvitin2 or risin2 the appliation o# artial La0 to hi3. Underthese onditions, I do not #eel ="stifed in holdin2 that the#ail"re o# the 3e3bers o# 6on2ress to 3eet sine an"ar/ '',*&%, 0as d"e to their reo2nition, a!"iesene in oron#or3it/ 0ith the provisions o# the a#ore3entioned6onstit"tion, or its alle2ed ratifation.

<or the sa3e reasons, espeiall/ bea"se o# 7rola3ation No.

*+*, plain2 the entire 7hilippines "nder artial La0,neither a3 I prepared to delare that the peopleGs ination asre2ards 7rola3ation No. **', and their o3pliane 0ith an"3ber o# 7residential orders, derees andMor instr"tions Hso3e or 3an/ o# 0hih have ad3ittedl/ had sal"tar/ e>etsH iss"ed s"bse!"entl/ thereto a3o"nts, onstit"tes orattests to a ratifation, adoption or approval o# said7rola3ation No. **'. In the 0ords o# the 6hie# E9e"tive,;3artial la0 onnotes po-er of t*e gun, 3eant coercion b/the 3ilitar/, and compulsion and intimidation.; @3 The #ail"reto "se the 2"n a2ainst those 0ho compl" 0ith the orders o#the part/ 0ieldin2 the 0eapon does not detrat #ro3 theinti3idation that artial La0 neessaril/ onnotes. It 3a/reet the 2ood, reasonable and 0holeso3e attit"de o# theperson 0ho has the 2"n, either pointed at others, 0itho"tp"llin2 the tri22er, or 3erel/ ept in its holster, b"t not0itho"t 0arnin2 that he 3a/ or 0o"ld "se it i# he dee3ed itneessar/. Still, the inti3idation is there, and ination orobediene o# the people, "nder these onditions, is notneessaril/ an at o# on#or3it/ or a!"iesene. This isspeiall/ so 0hen 0e onsider that the 3asses are, b/ andlar2e, unfamiliar 0ith the parlia3entar/ s/ste3, the ne0#or3 o# 2overn3ent introd"ed in the proposed 6onstit"tion,



0ith the parti"larit/ that it is not even identical to thate9istin2 in En2land and other parts o# the 0orld, andthat even e!perienced la-"ers and social scientists fnd itdi?"lt to 2rasp the #"ll i3pliations o# so3e provisionsinorporated therein.

8s re2ards the appliabilit/ to these ases o# the ;enrolledbill; r"le, it is 0ell to re3e3ber that the sa3e re#ers to a

do"3ent ertifed to the 7resident H #or his ation "nderthe 6onstit"tion H b/ the Senate 7resident and the Speaero# the Fo"se o# Representatives, and attested to b/ theSeretar/ o# the Senate and the Seretar/ o# the Fo"se o#Representatives, onernin2 le2islative 3eas"res approvedb/ the t0o Fo"ses o# 6on2ress. The ar2"3ent o# the Soliitor$eneral is, ro"2hl/, this4 I# the enrolled bill is entitled to #"ll#aith and redene and, to this e9tent, it is onl"sive "ponthe 7resident and the ="diial branh o# the $overn3ent, 0h/sho"ld 7rola3ation No. **' 3erit less onsideration thanin enrolled billK

@e#ore ans0erin2 this !"estion, I 0o"ld lie to as the#ollo0in24 I#, instead o# bein2 ertifed b/ the a#ore3entionedo?ers o# 6on2ress, the so-alled enrolled bill 0ere ertifedb/, sa/, the 7resident o# the 8ssoiation o# S"2ar 7lantersandMor illers o# the 7hilippines, and the 3eas"re in !"estion0ere a proposed le2islation onernin2 S"2ar 7lantations andills sponsored b/ said 8ssoiation, 0hih even prepared thedra#t o# said le2islation, as 0ell as lobbied at"all/ #or itsapproval, #or 0hih reason the o?ers o# the 8ssoiation,parti"larl/, its a#ore3entioned president H 0hose honest/and inte2rit/ are "n!"estionable H 0ere present at thedeliberations in 6on2ress 0hen the sa3e approved theproposed le2islation, 0o"ld the enrolled bill r"le appl/theretoK S"rel/, the ans0er 0o"ld have to be in the ne2ative.1h/K Si3pl/, bea"se said 8ssoiation 7resident hasabsol"tel/ no o?ial a"thorit/ to per#or3 in onnetionthere0ith, and, hene, his ertifation is le2all/, as 2ood asnon-e9istent.

Si3ilarl/, a ertifation, i# an/, o# the Seretar/ o# the

:epart3ent o# Loal $overn3ents and 6o33"nit/

:evelop3ent abo"t the tab"lated res"lts o# the votin2 in the6itiBens 8sse3blies alle2edl/ *eld all over the 7hilippines Hand the reords do not sho0 that an/ s"h ertifation, tothe 7resident o# the 7hilippines or to the 7resident <ederationor National 8ssoiation o# presidents o# 7rovinial8ssoiations o# presidents o# 3"niipal assoiation presidentso# barrio or 0ard asse3blies o# itiBens H 0o"ld not, le2all/and onstit"tionall/, be 0orth the paper on 0hih it is

0ritten. 1h/K @ea"se said :epart3ent Seretar/ is not theo?er desi2nated b/ la0 to s"perintend plebisites oreletions held #or the ratifation or re=etion o# a proposeda3end3ent or revision o# the 6onstit"tion and, hene, totab"late the res"lts thereo#. 1orse still, it is the depart3ent0hih, aordin2 to 8rtile o# the 6onstit"tion,sho"ld not and 3"st not be all partiipate in said plebisite Hi# plebisite there 0as.

8#ter itin2 approvin2l/ its r"lin2 in Cnited States v.Sandoval, @4 the Fi2hest 6o"rt o# the United States that

o"rts ;0ill not stand impotent be#ore an obvio"s instane o#a manifestl" unaut*orized e!ercise of po-er .; @)

I annot honestl/ sa/, there#ore, that the people i3pliedl/ ore9pressl/ indiated their on#or3it/ to the proposed6onstit"tion.

DI

Are t*e $arties entitled to an" relief/

@e#ore atte3ptin2 to ans0er this !"estion, a #e0 0ords besaid abo"t the proed"re #ollo0ed in these fve (5) ases. Inthis onnetion, it sho"ld be noted that the 6o"rt has notdeided 0hether or not to 2ive d"e o"rse to the petitionsherein or to re!"ire the respondents to ans0er thereto.Instead, it has re!"ired the respondents to o33ent on therespetive petitions H 0ith three (%) 3e3bers o# the votin2to dis3iss the3 o"tri2ht H and then onsiders o33entsth"s s"b3itted b/ the respondents as 3otions to dis3iss, as0ell as set the sa3e #or hearin2. This 0as d"e to the

transendental nat"re o# the 3ain iss"e raised, the neessit/



o# deidin2 the sa3e 0ith "t3ost dispath, and the 3ainde#ense set "p b/ respondents herein, na3el/, the alle2edpolitial nat"re o# said iss"e, plain2 the sa3e, aordin2 torespondents, be/ond the a3bit o# ="diial in!"ir/ anddeter3ination. I# this de#ense 0as s"stained, the ases o"ldreadil/ be dis3issedC b"t, o0in2 to the i3portane o# the!"estions involved, a reasoned resol"tion 0as de3anded b/p"bli interest. 8t the sa3e ti3e, respondents had a"tioned

a2ainst a ="diial in!"ir/ into the 3erits o# the iss"es posedon ao"nt o# the 3a2nit"de o# the evil onse!"enes, it 0aslai3ed, 0hih 0o"ld res"lt #ro3 a deision thereon, i#adverse to the $overn3ent.

8s a 3atter o# #at, so3e o# those iss"es had been raised inthe plebisite ases, 0hih 0ere dis3issed as 3oot andaade3i, o0in2 to the iss"ane o# 7rola3ation No. **'s"bse!"entl/ to the flin2 o# said ases, altho"2h be#ore therendition o# ="d23ent therein. Still one o# the 3e3bers o# the6o"rt ("stie Qaldivar) 0as o# the opinion that the

a#ore3entioned iss"es sho"ld be settled in said ases, andhe, aordin2l/, fled an opinion passin2 "pon the 3eritsthereo#. On the other hand, three (%) 3e3bers o# the 6o"rt H

"sties @arredo, 8ntonio and Es2"erra H fled separateopinions #avorable to the respondents in the plebisite ases,

"stie @arredo holdin2 ;that the *&%5 6onstit"tion has protanto passed into histor/ and has been le2iti3atel/s"pplanted b/ the 6onstit"tion in #ore b/ virt"e o#7rola3ation **'.; @6 1hen the petitions at bar 0ere fled,the sa3e three (%) 3e3bers o# the 6o"rt, onse!"entl/,voted #or the dis3issal o# said petitions. The 3a=orit/ o# the

3e3bers o# the 6o"rt did not share, ho0ever, either vie0,believin2 that the 3ain !"estion that arose be#ore therendition o# said ="d23ent had not been s"?ientl/dis"ssed and ar2"ed as the nat"re and i3portane thereo#de3anded.

The parties in the ases at bar 0ere aordin2l/ 2iven ever/possible opport"nit/ to do so and to el"idate on and dis"sssaid !"estion. Th"s, apart #ro3 hearin2 the parties in oralar2"3ent #or fve (5) onse"tive da/s H 3ornin2 anda#ternoon, or a total o# e9atl/ ' ho"rs and %* 3in"tes Hthe respetive o"nsel fled e9tensive notes on their or

ar2"3ents, as 0ell as on s"h additional ar2"3ents as the/0ished to s"b3it, and repl/ notes or 3e3oranda, in additionto re=oinders thereto, aside #ro3 a siBeable n"3ber o#do"3ent in s"pport o# their respetive ontentions, or asre!"ired b/ the 6o"rt. The ar2"3ents, oral and 0ritten,s"b3itted have been so e9tensive and e9ha"stive, and thedo"3ents fled in s"pport thereo# so n"3ero"s and b"l/,that, #or all intents and p"rposes, the sit"ation is as i# H

disre2ardin2 #or3s H the petitions had been 2iven d"eo"rse and the ases had been s"b3itted #or deision.

8ordin2l/, the 3a=orit/ o# the 3e3bers o# the 6o"rtbelieve that the/ sho"ld e9press their vie0s on thea#ore3entioned iss"es as i# the sa3e 0ere bein2 deided onthe 3erits, and the/ have done so in their individ"al opinionattahed hereto. Fene, the res"3e o# the votes ast and thetenor o# the resol"tion, in the last pa2es hereo#, despite the#at that tehniall/ the 6o"rt has not, as /et, #or3all/ 2ivend"e o"rse to the petitions herein.

8nd, no0, here are m" vie0s on the relie#s so"2ht b/ theparties.

In L-%*5, it is lear that 0e sho"ld not iss"e the 0rito# mandamus pra/ed #or a2ainst $il . 7"/at and ose Ro/,7resident and 7resident 7ro Te3pore respetivel/ o# theSenate, it bein2 settled in o"r ="risdition, based "pon thetheor/ o# separation o# po0ers, that the ="diiar/ 0ill notiss"e s"h 0rit to the head o# a o-e!"al depart3ent, lie thea#ore3entioned o?ers o# the Senate.

In all other respets and 0ith re2ard to the other respondentin said ase, as 0ell as in ases L-%*', L-%*, L-%'%and L-%'+%, 3/ vote is that the petitions therein sho"ld be2iven d"e o"rse, there bein2 3ore than prima facie sho0in2that the proposed 6onstit"tion has not been ratifed inaordane 0ith 8rtile D o# the *&%5 6onstit"tion, eitherstritl/, s"bstantiall/, or has been a!"iesed in b/ thepeople or 3a=orit/ thereo#C that said proposed 6onstit"tionis not in force and e>etC and that the *&%5 6onstit"tion is

still the <"nda3ental La0 o# the Land, 0itho"t pre="die to



the s"b3ission o# said proposed 6onstit"tion to the people ata plebisite #or its ratifation or re=etion in aordane 0ith8rtiles D, and D o# the *&%5 6onstit"tion and theprovisions o# the Revised Eletion 6ode in #ore at the ti3e o# s"h plebisite.

7erhaps others 0o"ld #eel that 3/ position in these asesoverloos 0hat the/ 3i2ht onsider to be the de3ands o#

;="diial states3anship,; 0hatever 3a/ be the 3eanin2 o#s"h phrase. I a3 a0are o# this possibilit/, i# not probabilit/Cb"t ;="diial states3anship,; tho"2h consistent 0ith R"le o#La0, cannot prevailover the latter. 83on2 onsistent ends oronsistent val"es, there al0a/s is a hierarh/, a r"le o#priorit/.

1e 3"st realiBe that the Ne0 Soiet/ has 3an/ahieve3ents 0hih 0o"ld have been ver/ di?"lt, i# noti3possible, to ao3plish "nder the old dispensation. @"t, inand for t*e 8udiciar", statesmans*ip sho"ld not prevail over

the R"le o# La0. Indeed, t*e primac" of t*e la- or of t*e Ruleof La- and fait*ful ad*erence t*ereto are +asic, fundamentaland essential parts of statesmans*ip itself .

Resume of t*e Votes ast and t*e ourt2s Resolution

8s earlier stated, a#ter the s"b3ittal b/ the 3e3bers o# the6o"rt o# their individ"al opinions andMor on"rrenes asappended hereto, the 0riter 0ill no0 3ae, 0ith theon"rrene o# his ollea2"es, a res"3e or s"33ar/ o# thevotes ast b/ eah o# the3.

It sho"ld be stated that b/ virt"e o# the vario"s approahesand vie0s e9pressed d"rin2 the deliberations, it 0as a2reedto s/nthesiBe the basi iss"es at bar in broad 2eneral ter3sin fve !"estions #or p"rposes o# tain2 the votes. It 0as#"rther a2reed o# o"rse that eah 3e3ber o# the 6o"rt0o"ld e9po"nd in his individ"al opinion andMor on"rrenehis o0n approah to the stated iss"es and deal 0ith the3and state (or not) his opinion thereon sin2l/ or =ointl/ and0ith s"h priorit/, !"alifations and 3odifations as he 3a/

dee3 proper, as 0ell as dis"ss thereon other related iss"es0hih he 3a/ onsider vital and relevant to the ases at bar.

The fve !"estions th"s a2reed "pon as reetin2 the basiiss"es herein involved are the #ollo0in24

*. Is the iss"e o# the validit/ o# 7rola3ation No. **' a ="stiiable, or politial and there#ore non-="stiiable,

!"estionK

'. Fas the 6onstit"tion proposed b/ the *&* 6onstit"tional6onvention been ratifed validl/ (0ith s"bstantial, i# not strit,o3pliane) on#or3abl/ to the appliable onstit"tional andstat"tor/ provisionsK

%. Fas the a#ore3entioned proposed 6onstit"tion a!"iesedin (0ith or 0itho"t valid ratifation) b/ the peopleK

. 8re petitioners entitled to relie#K and

5. Is the a#ore3entioned proposed 6onstit"tion in #oreK

The res"lts o# the votin2, pre3ised on the individ"al vie0se9pressed b/ the 3e3bers o# the 6o"rt in their respetopinions andMor on"rrenes, are as #ollo0s4

*. On the frst iss"e involvin2 the politial-!"estion dotrine "sties aalintal, Qaldivar, 6astro, <ernando, Teehaneeand 3/sel#, or si9 () 3e3bers o# the 6o"rt, hold that the

iss"e o# the validit/ o# 7rola3ation No. **' presents a ="stiiable and non-politial !"estion. "sties aalintal and6astro did not vote s!"arel/ on this !"estion, b"t, onl/in#erentiall/, in their dis"ssion o# the seond !"estion.

"stie @arredo !"alifed his vote, statin2 that ;inas3"h as itis lai3ed there has been approval b/ the people, the 6o"rt3a/ in!"ire into the !"estion o# 0hether or not there hasat"all/ been s"h an approval, and, in the a?r3ative, the6o"rt sho"ld eep hands-o> o"t o# respet to the peopleGs0ill, b"t, in ne2ative, the 6o"rt 3a/ deter3ine #ro3 both#at"al and le2al an2les 0hether or not 8rtile D o# the *&%5

6onstit"tion been o3plied 0ith.; "sties aasiar, 8ntonio,



Es2"erra, or three (%) 3e3bers o# the 6o"rt hold that theiss"e is politial and ;be/ond the a3bit o# ="diial in!"ir/.;

'. On the seond !"estion o# validit/ o# the ratifation, "sties aalintal, Qaldivar, 6astro, <ernando, Teehaneeand 3/sel#, or si9 () 3e3bers o# the 6o"rt also hold thatthe 6onstit"tion proposed b/ the *&* 6onstit"tional6onvention 0as not validl/ ratifed in aordane 0ith 8rtile

D, setion * o# the *&%5 6onstit"tion, 0hih provides onl/one 0a/ #or ratifation, i.e., ;in an eletion or plebisite heldin aordane 0ith la0 and partiipated in onl/ b/ !"alifedand d"l/ re2istered voters. @7

"stie @arredo !"alifed his vote, statin2 that ;(8)s to0hether or not the *&% 6onstit"tion has been validl/ ratifedp"rs"ant to 8rtile D, I still 3aintain that in the li2ht o#traditional onepts re2ardin2 the 3eanin2 and intent o# said8rtile, the re#erend"3 in the 6itiBensG 8sse3blies, speiall/in the 3anner the votes therein 0ere ast, reported and

anvassed, #alls short o# the re!"ire3ents thereo#. In vie0,ho0ever, o# the #at that I have no 3eans o# re#"sin2 toreo2niBe as a ="d2e that #at"all/ there 0as votin2 and thatthe 3a=orit/ o# the votes 0ere #or onsiderin2 as approvedthe *&% 6onstit"tion 0itho"t the neessit/ o# the "s"al #or3o# plebisite #ollo0ed in past ratifations, I a3 onstrained tohold that, in the politial sense, i# not in the orthodo9 le2alsense, the people 3a/ be dee3ed to have ast their#avorable votes in the belie# that in doin2 so the/ did the partre!"ired o# the3 b/ 8rtile D, hene, it 3a/ be said that inits politial aspet, 0hih is 0hat o"nts 3ost, a#ter all, said

8rtile has been s"bstantiall/ o3plied 0ith, and, in e>et,the *&% 6onstit"tion has been onstit"tionall/ ratifed.;

"sties aasiar, 8ntonio and Es2"erra, or three (%)3e3bers o# the 6o"rt hold that "nder their vie0 there hasbeen in e>et s"bstantial o3pliane 0ith the onstit"tionalre!"ire3ents #or valid ratifation.

%. On the third !"estion o# a!"iesene b/ the <ilipinopeople in the a#ore3entioned proposed 6onstit"tion, no

3a=orit/ vote has been reahed b/ the 6o"rt.

<o"r () o# its 3e3bers, na3el/, "sties @arredo, aasiar,8ntonio and Es2"erra hold that ;the people have alread/aepted the *&% 6onstit"tion.;

T0o (') 3e3bers o# the 6o"rt, na3el/, "stie Qaldivar and3/sel# hold that there an be no #ree e9pression, and therehas even been no e9pression, b/ the people !"alifed to voteall over the 7hilippines, o# their aeptane or rep"diation o#

the proposed 6onstit"tion "nder artial La0. "stie<ernando states that ;(I)# it is oneded that the dotrinestated in so3e 83erian deisions to the e>et thatindependentl/ o# the validit/ o# the ratifation, a ne06onstit"tion one aepted a!"iesed in b/ the people 3"stbe aorded reo2nition b/ the 6o"rt, I a3 not at this sta2eprepared to state that s"h dotrine alls #or appliation invie0 o# the shortness o# ti3e that has elapsed and thedi?"lt/ o# asertainin2 0hat is the 3ind o# the people in theabsene o# the #reedo3 o# debate that is a ono3itant#eat"re o# 3artial la0.; @@

Three (%) 3e3bers o# the 6o"rt e9press their la o#no0led2e andMor o3petene to r"le on the !"estion.

"sties aalintal and 6astro are =oined b/ "stie Teehaneein their state3ent that ;Under a re2i3e o# 3artial la0, 0iththe #ree e9pression o# opinions thro"2h the "s"al 3ediavehile restrited, (the/) have no 3eans o# no0in2, to thepoint o# ="diial ertaint/, 0hether the people have aeptedthe 6onstit"tion.; @9

. On the #o"rth !"estion o# relie#, si9 () 3e3bers o# the6o"rt, na3el/, "sties aalintal, 6astro, @arredo, aasiar,8ntonio and Es2"erra voted to :ISISS the petition. "stieaalintal and 6astro so voted on the stren2th o# their vie0that ;(T)he e>etivit/ o# the said 6onstit"tion, in the fnalanal/sis, is the basi and "lti3ate !"estion posed b/ theseases to resolve 0hih onsiderations other than ="diial, anthere#ore be/ond the o3petene o# this 6o"rt, 9 arerelevant and "navoidable.; 91



<o"r () 3e3bers o# the 6o"rt, na3el/, "sties Qaldivar,<ernando, Teehanee and 3/sel# voted to den/ respondentsG3otion to dis3iss and to 2ive d"e o"rse to the petitions.

5. On the f#th !"estion o# 0hether the ne0 6onstit"tion o#*&% is in #ore4

<o"r () 3e3bers o# the 6o"rt, na3el/, "sties

@arredo, aasiar, 8ntonio and Es2"erra holdthat it is in #ore b/ virt"e o# the peopleGsaeptane thereo#C

<o"r () 3e3bers o# the 6o"rt, na3el/, "stiesaalintal, 6astro, <ernando and Teehanee astno vote thereon on the pre3ise stated in theirvotes on the third !"estion that the/ o"ld notstate 0ith ="diial ertaint/ 0hether the peoplehave aepted or not aepted the 6onstit"tionCand

T0o (') 3e3bers o# the 6o"rt, na3el/, "stieQaldivar and 3/sel# voted that the 6onstit"tionproposed b/ the *&* 6onstit"tional 6onventionis not in #oreC

0ith the res"lt that there are not eno"2h votes to delarethat the ne0 6onstit"tion is not in #ore.

866OR:IN$LP, b/ virt"e o# the 3a=orit/ o# si9 () votes o#

"sties aalintal, 6astro, @arredo, aasiar, 8ntonio andEs2"erra 0ith the #o"r () dissentin2 votes o# the 6hie# "stie and "sties Qaldivar, <ernando and Teehanee, all thea#ore3entioned ases are hereb/ dis3issed. This bein2 thevote o# the 3a=orit/, there is no #"rther ="diial obstale tothe ne0 6onstit"tion bein2 onsidered in #ore and e>et.

It is so ordered.

Documents

Javellana vs Exec Sec 1973