Beruflich Dokumente
Kultur Dokumente
——o0o——
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* EN BANC.
784
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785
786
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legislature cannot limit the judicial power to resolve presidential and vice-
presidential election contests and our rule-making power connected thereto.
Constitutional Law; Courts; Supreme Court; The conferment of
additional jurisdiction to the Supreme Court, with the duty characterized as
an “awesome” task, includes the means necessary to carry it into effect
under the doctrine of necessary implication.—The conferment of additional
jurisdiction to the Supreme Court, with the duty characterized as an
“awesome” task, includes the means necessary to carry it into effect under
the doctrine of necessary implication. We cannot overemphasize that the
abstraction of the PET from the explicit grant of power to the Supreme
Court, given our abundant experience, is not unwarranted. A plain reading
of Article VII, Section 4, paragraph 7, readily reveals a grant of authority to
the Supreme Court sitting en banc. In the same vein, although the method
by which the Supreme Court exercises this authority is not specified in the
provision, the grant of power does not contain any limitation on the
Supreme Court’s exercise thereof. The Supreme Court’s method of deciding
presidential and vice-presidential election contests, through the PET, is
actually a derivative of the exercise of the prerogative conferred by the
aforequoted constitutional provision. Thus, the subsequent directive in the
provision for the Supreme Court to “promulgate its rules for the purpose.”
Senate Electoral Tribunal; House of Representatives Electoral
Tribunal; The different electoral tribunals, with the Supreme Court
functioning as the Presidential Electoral Tribunal (PET), are constitutional
bodies.—Particularly cogent are the discussions of the Constitutional
Commission on the parallel provisions of the SET and the HRET. The
discussions point to the inevitable conclusion that the different electoral
tribunals, with the Supreme Court functioning as the PET, are constitutional
bodies, independent of the three departments of government—Executive,
Legislative, and Judiciary—but not separate therefrom.
787
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788
PET. Thus, a microscopic view, like the petitioner’s, should not constrict an
absolute and constitutional grant of judicial power.
Same; Pleadings and Practice; Baseless Petitions.—One final note.
Although this Court has no control over contrary people and naysayers, we
reiterate a word of caution against the filing of baseless petitions which only
clog the Court’s docket. The petition in the instant case belongs to that
classification.
NACHURA, J.:
Confronting us is an undesignated petition1 filed by Atty. Romulo
B. Macalintal (Atty. Macalintal), that questions the constitution of
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“The Supreme Court, sitting en banc, shall be the sole judge of all
contests relating to the election, returns, and qualifications of the President
or Vice-President, and may promulgate its rules for the purpose.”
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789
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790
I
WHETHER x x x PETITIONER HAS LOCUS STANDI TO FILE THE
INSTANT PETITION.
II
WHETHER x x x THE CREATION OF THE PRESIDENTIAL
ELECTORAL TRIBUNAL IS UNCONSTITUTIONAL FOR BEING A
VIOLATION OF PARAGRAPH 7, SECTION 4 OF ARTICLE VII OF THE
1987 CONSTITUTION.
III
WHETHER x x x THE DESIGNATION OF MEMBERS OF THE
SUPREME COURT AS MEMBERS OF THE PRESIDENTIAL
ELECTORAL TRIBUNAL IS UNCONSTITUTIONAL FOR BEING A
VIOLATION OF SECTION 12, ARTICLE VIII OF THE 1987
CONSTITUTION.6
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791
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792
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“The difficulty of determining locus standi arises in public suits. Here, the
plaintiff who asserts a “public right” in assailing an allegedly illegal official action,
does so as a representative of the general public. He may be a person who is affected
no differently from any other person. He could be suing as a “stranger,” or in the
category of a “citizen,” or “taxpayer.” In either case, he has to adequately show that
he is entitled to seek judicial protection. In other words, he has to make out a
sufficient interest in the vindication of the public order and the securing of relief as
a” citizen” or “taxpayer.”
xxxx
However, to prevent just about any person from seeking judicial interference in
any official policy or act with which he disagreed with, and thus hinders the
activities of governmental agencies engaged in public service, the United States
Supreme Court laid down the more stringent “direct injury” test in Ex Parte Levitt,
later reaffirmed in Tileston v. Ullman. The same Court ruled that for a private
individual to invoke the judicial power to determine the validity of an executive or
legislative action, he must show that he has sustained a direct injury as a result
of that action, and it is not sufficient that he has a general interest common to
all members of the public.
This Court adopted the “direct injury” test in our jurisdiction. In People v. Vera,
it held that the person who impugns the validity of a statute must have “a personal
and substantial interest in the case such that he has sustained, or will sustain
direct injury as a result.” The Vera doctrine was upheld in a litany of cases, such
as, Custodio v. President of the Senate, Manila Race Horse Trainers’ Association v.
De la Fuente, Pascual v. Secretary of Public Works and Anti-Chinese League of the
Philippines v. Felix.
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12 G.R. Nos. 171396, 171409, 171485, 171483, 171400, 171489, and 171424,
May 3, 2006, 489 SCRA 160, 216-221. (Citations omitted.)
793
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“2. x x x Since the creation and continued operation of the PET involves
the use of public funds and the issue raised herein is of
794
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13 Poe v. Macapagal-Arroyo, P.E.T. Case No. 002, March 29, 2005, 454 SCRA
142.
14 Cruz, Philippine Political Law, 1998 ed., p. 263.
15 G.R. Nos. 161434, 161634, and 161824, March 3, 2004, 424 SCRA 277, 324-
325. (Emphasis supplied.)
795
“Petitioners Tecson, et al., in G.R. No. 161434, and Velez, in G.R. No.
161634, invoke the provisions of Article VII, Section 4, paragraph 7, of the
1987 Constitution in assailing the jurisdiction of the COMELEC when it
took cognizance of SPA No. 04-003 and in urging the Supreme Court to
instead take on the petitions they directly instituted before it. The
Constitutional provision cited reads:
“The Supreme Court, sitting en banc, shall be the sole judge of all
contests relating to the election, returns, and qualifications of the
President or Vice-President, and may promulgate its rules for the
purpose.”
The provision is an innovation of the 1987 Constitution. The omission in
the 1935 and the 1973 Constitution to designate any tribunal to be the sole
judge of presidential and vice-presidential contests, has constrained this
Court to declare, in Lopez vs. Roxas, as “not (being) justiciable”
controversies or disputes involving contests on the elections, returns and
qualifications of the President or Vice-President. The constitutional lapse
prompted Congress, on 21 June 1957, to enact Republic Act No. 1793, “An
Act Constituting an Independent Presidential Electoral Tribunal to Try,
Hear and Decide Protests Contesting the Election of the President-Elect
and the Vice-President-Elect of the Philippines and Providing for the
Manner of Hearing the Same.” Republic Act 1793 designated the Chief
Justice and the Associate Justices of the Supreme Court to be the members
of the tribunal. Although the subsequent adoption of the parliamentary
form of government under the 1973 Constitution might have implicitly
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affected Republic Act No. 1793, the statutory set-up, nonetheless, would
now be deemed revived under the present Section 4, paragraph 7, of the
1987 Constitution.”
796
“G.R. Nos. 161434 and 161634 invoke the Court’s exclusive jurisdiction
under the last paragraph of Section 4, Article VII of the 1987 Constitution. I
agree with the majority opinion that these petitions should be dismissed
outright for prematurity. The Court has no jurisdiction at this point of time
to entertain said petitions.
The Supreme Court, as a Presidential Electoral Tribunal (PET), the
Senate Electoral Tribunal (SET) and House of Representatives Electoral
Tribunal (HRET) are electoral tribunals, each specifically and exclusively
clothed with jurisdiction by the Constitution to act respectively as “sole
judge of all contests relating to the election, returns, and qualifications” of
the President and Vice-President, Senators, and Representatives. In a litany
of cases, this Court has long recognized that these electoral tribunals
exercise jurisdiction over election contests only after a candidate has already
been proclaimed winner in an election. Rules 14 and 15 of the Rules of the
Presidential Electoral Tribunal provide that, for President or Vice-President,
election protest or quo warranto may be filed after the proclamation of the
winner.”17
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16 Id., at p. 363.
17 Id., at pp. 431-432.
18 Atty. Macalintal v. Commission on Elections, 453 Phil. 586; 405 SCRA 614
(2003).
797
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798
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798 SUPREME COURT REPORTS ANNOTATED
Macalintal vs. Presidential Electoral Tribunal
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799
In other words, the court must harmonize them, if practicable, and must
lean in favor of a construction which will render every word operative,
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rather than one which may make the words idle and nugatory.”
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800
“The 1987 Constitution has fully restored the separation of powers of the
three great branches of government. To recall the words of Justice Laurel in
Angara v. Electoral Commission, “the Constitution has blocked but with
deft strokes and in bold lines, allotment of power to the executive, the
legislative and the judicial departments of the government.” Thus, the 1987
Constitution explicitly provides that “[t]he legislative power shall be vested
in the Congress of the Philippines” [Art. VI, Sec. 1], “[t]he executive power
shall be vested in the President of the Philippines” [Art. VII, Sec. 1], and
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“[t]he judicial power shall be vested in one Supreme Court and in such
lower courts as may be established by law” [Art. VIII, Sec. 1]. These
provisions not only establish a separation of powers by actual division but
also confer plenary legislative, executive and judicial powers subject only to
limitations provided in the Constitution. For as the Supreme Court in
Ocampo v. Cabangis pointed out “a grant of the legislative power means
a grant of all legislative power; and a grant of the judicial power means
a grant of all the judicial power which may be exercised under the
government.”
The Court could not have been more explicit then on the plenary
grant and exercise of judicial power. Plainly, the abstraction of the
Supreme Court acting as a Presidential Electoral Tribunal from the
unequivocal grant of jurisdiction in the last paragraph of Section 4,
Article VII of the Constitution is sound and tenable.
The mirabile dictu of the grant of jurisdiction to this Court, albeit
found in the Article on the executive branch of government, and the
constitution of the PET, is evident in the discussions of the
Constitutional Commission. On the exercise of this Court’s judicial
power as sole judge of presidential and vice-presidential election
contests, and to promulgate its rules
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25 G.R. No. 88211, September 15, 1989, 177 SCRA 668, 688-689. (Emphasis
supplied, citations omitted.)
801
MR. NOLLEDO. x x x.
With respect to Sections 10 and 11 on page 8, I understand that the
Committee has also created an Electoral Tribunal in the Senate and a
Commission on Appointments which may cover membership from both
Houses. But my question is: It seems to me that the committee report does
not indicate which body should promulgate the rules that shall govern the
Electoral Tribunal and the Commission on Appointments. Who shall then
promulgate the rules of these bodies?
MR. DAVIDE. The Electoral Tribunal itself will establish and
promulgate its rules because it is a body distinct and independent
already from the House, and so with the Commission on Appointments
also. It will have the authority to promulgate its own rules.27
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802
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803
804
Before the passage of that republic act, in case there was any contest
between two presidential candidates or two vice-presidential candidates, no
one had jurisdiction over it. So, it became necessary to create a
Presidential Electoral Tribunal. What we have done is to
constitutionalize what was statutory but it is not an infringement on the
separation of powers because the power being given to the Supreme
Court is a judicial power.31
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805
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806
807
“FR. BERNAS.x x x.
x x x. So it became necessary to create a Presidential Electoral Tribunal.
What we have done is to constitutionalize what was statutory but it is not an
infringement on the separation of powers because the power being given to
the Supreme Court is a judicial power.”34
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808
Clearly, petitioner’s bete noire of the PET and the exercise of its
power are unwarranted. His arguments that: (1) the Chief Justice and
Associate Justices are referred to as “Chairman” and “Members,”
respectively; (2) the PET uses a different seal; (3) the Chairman is
authorized to appoint personnel; and (4) additional compensation is
allocated to the “Members,” in order to bolster his claim of infirmity
in the establishment of the PET, are too superficial to merit further
attention by the Court.
Be that as it may, we hasten to clarify the structure of the PET as
a legitimate progeny of Section 4, Article VII of the Constitution,
composed of members of the Supreme Court, sitting en banc. The
following exchange in the 1986 Constitutional Commission should
provide enlightenment:
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809
Electoral Tribunal, was promulgated on June 21, 1957, at least three famous
election contests were presented and two of them ended up in withdrawal by
the protestants out of sheer frustration because of the delay in the resolution
of the cases. I am referring to the electoral protest that was lodged by former
President Carlos P. Garcia against our “kabalen” former President Diosdado
Macapagal in 1961 and the vice-presidential election contest filed by the late
Senator Gerardo Roxas against Vice-President Fernando Lopez in 1965.
MR. CONCEPCION. I cannot answer for what the protestants had in
mind. But when that protest of Senator Roxas was withdrawn, the results
were already available. Senator Roxas did not want to have a decision
adverse to him. The votes were being counted already, and he did not get
what he expected so rather than have a decision adverse to his protest, he
withdrew the case.
xxxx
MR. SUAREZ. I see. So the Commission would not have any
objection to vesting in the Supreme Court this matter of resolving
presidential and vice-presidential contests?
MR. CONCEPCION. Personally, I would not have any objection.
MR. SUAREZ. Thank you.
Would the Commissioner not consider that violative of the doctrine of
separation of powers?
MR. CONCEPCION. I think Commissioner Bernas explained that this
is a contest between two parties. This is a judicial power.
MR. SUAREZ. We know, but practically the Committee is giving to
the judiciary the right to declare who will be the President of our country,
which to me is a political action.
MR. CONCEPCION. There are legal rights which are enforceable
under the law, and these are essentially justiciable questions.
MR. SUAREZ. If the election contest proved to be long,
burdensome and tedious, practically all the time of the Supreme Court
sitting en banc would be occupied with it considering that they will be
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810
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811
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812
MR. MAAMBONG. x x x.
My questions will be very basic so we can go as fast as we can. In the
case of the electoral tribunal, either of the House or of the Senate, is it
correct to say that these tribunals are constitutional creations? I will
distinguish these with the case of the Tanodbayan and the Sandiganbayan
which are created by mandate of the Constitution but they are not
constitutional creations. Is that a good distinction?
xxxx
MR. MAAMBONG. Could we, therefore, say that either the Senate
Electoral Tribunal or the House Electoral Tribunal is a constitutional body?
MR. AZCUNA. It is, Madam President.
MR. MAAMBONG. If it is a constitutional body, is it then subject to
constitutional restrictions?
MR. AZCUNA. It would be subject to constitutional restrictions
intended for that body.
MR. MAAMBONG. I see. But I want to find out if the ruling in the
case of Vera v. Avelino, 77 Phil. 192, will still be applicable to the present
bodies we are creating since it ruled that the electoral tribunals are not
separate departments of the government. Would that ruling still be valid?
MR. AZCUNA. Yes, they are not separate departments because the
separate departments are the legislative, the
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nal, 250 Phil. 390; 168 SCRA 391 (1988); Robles v. House of Representatives Electoral
Tribunal, G.R. No. 86647, February 5, 1990, 181 SCRA 780.
813
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814
ity, pursuant to law, over a limited number of cases which were previously
within the exclusive jurisdiction of courts of first instance.
In all of these instances, the court (court of first instance or
municipal court) is only one, although the functions may be distinct and,
even, separate. Thus the powers of a court of first instance, in the exercise
of its jurisdiction over ordinary civil cases, are broader than, as well as
distinct and separate from, those of the same court acting as a court of land
registration or a probate court, or as a court of juvenile and domestic
relations. So too, the authority of the municipal court of a provincial capital,
when acting as such municipal court, is, territorially more limited than that
of the same court when hearing the aforementioned cases which are primary
within the jurisdiction of courts of first instance. In other words, there is
only one court, although it may perform the functions pertaining to several
types of courts, each having some characteristics different from those of the
others.
Indeed, the Supreme Court, the Court of Appeals and courts of first
instance, are vested with original jurisdiction, as well as with appellate
jurisdiction, in consequence of which they are both trial courts and,
appellate courts, without detracting from the fact that there is only one
Supreme Court, one Court of Appeals, and one court of first instance,
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By the same token, the PET is not a separate and distinct entity
from the Supreme Court, albeit it has functions peculiar only to the
Tribunal. It is obvious that the PET was constituted in
implementation of Section 4, Article VII of the
815
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43 Supra note 4.
44 Javellana v. Executive Secretary, et al., 151-A Phil. 36, 131; 50 SCRA 30
(1973).
816
tice. With the advent of the 1987 Constitution, judicial power was
expanded to include “the duty of the courts of justice to settle actual
controversies involving rights which are legally demandable and
enforceable, and to determine whether or not there has been a grave
abuse of discretion amounting to lack or excess of jurisdiction on the
part of any branch or instrumentality of the Government.”45 The
power was expanded, but it remained absolute.
The set up embodied in the Constitution and statutes
characterizes the resolution of electoral contests as essentially an
exercise of judicial power.
At the barangay and municipal levels, original and exclusive
jurisdiction over election contests is vested in the municipal or
metropolitan trial courts and the regional trial courts, respectively.
At the higher levels—city, provincial, and regional, as well as
congressional and senatorial—exclusive and original jurisdiction is
lodged in the COMELEC and in the House of Representatives and
Senate Electoral Tribunals, which are not, strictly and literally
speaking, courts of law. Although not courts of law, they are,
nonetheless, empowered to resolve election contests which involve,
in essence, an exercise of judicial power, because of the explicit
constitutional empowerment found in Section 2(2), Article IX-C (for
the COMELEC) and Section 17, Article VI (for the Senate and
House Electoral Tribunals) of the Constitution. Besides, when the
COMELEC, the HRET, and the SET decide election contests, their
decisions are still subject to judicial review—via a petition for
certiorari filed by the proper party—if there is a showing that the
decision was rendered with grave abuse of discretion tantamount to
lack or excess of jurisdiction.46
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817
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818
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Petition dismissed.
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819
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