=ace o= t5e /etition& o$ attac5e* to it& an* i= so attac5e*& t5e /etition m7st state t5e=act o= s7c5 attac5ment.FT5e essence o= amen*ments *i$ectl4 /$o/ose* b4 t5e/eo/le t5$o75 initiative 7/on a /etition is t5at t5e enti$e /$o/osal on its =ace is a/etition b4 t5e /eo/le. T5is means tBo essential elements m7st be /$esent. ;i$st&t5e /eo/le m7st a7t5o$ an* t57s sin t5e enti$e /$o/osal. No aent o$
$e/$esentative can sin on t5ei$ be5al=. Secon*& as an initiative 7/on a /etition& t5e/$o/osal m7st be embo*ie* in a /etition. T5ese essential elements a$e /$esent onl4i= t5e =7ll teHt o= t5e /$o/ose* amen*ments is $st s5oBn to t5e /eo/le B5o eH/$esst5ei$ assent b4 sinin s7c5 com/lete /$o/osal in a /etition. T57s& an amen*ment is*i$ectl4 /$o/ose* b4 t5e /eo/le t5$o75 initiative 7/on a /etition onl4 i= t5e/eo/le sin on a /etition t5at contains t5e =7ll teHt o= t5e /$o/ose* amen*ments.
T5e =7ll teHt o= t5e /$o/ose* amen*ments ma4 be eit5e$ B$itten on t5e =ace o= t5e/etition& o$ attac5e* to it. )= so attac5e*& t5e /etition m7st state t5e =act o= s7c5attac5ment. T5is is an ass7$ance t5at eve$4 one o= t5e seve$al millions o=sinato$ies to t5e /etition 5a* seen t5e =7ll teHt o= t5e /$o/ose* amen*mentsbe=o$e sinin. Ot5e$Bise& it is /54sicall4 im/ossible& iven t5e time const$aint& to/$ove t5at eve$4 one o= t5e millions o= sinato$ies 5a* seen t5e =7ll teHt o= t5e/$o/ose* amen*ments be=o$e sinin.
16#
OL. "0"& OCTO(ER %"& %006
16#
Lambino vs. Commission on Elections
Same Same Same T5e =$ame$s o= t5e Constit7tion *i$ectl4 bo$$oBe* t5e conce/t
o= /eo/le<s initiative =$om t5e Unite* States B5e$e va$io7s State constit7tionsinco$/o$ate an initiative cla7se A sinat7$e $eI7i$ement Bo7l* be meaninless i=t5e /e$son s7//l4in t5e sinat7$e 5as not $st seen B5at it is t5at 5e o$ s5e issinin.FT5e =$ame$s o= t5e Constit7tion *i$ectl4 bo$$oBe* t5e conce/t o= /eo/le<sinitiative =$om t5e Unite* States B5e$e va$io7s State constit7tions inco$/o$ate aninitiative cla7se. )n almost all States B5ic5 alloB initiative /etitions& t5e 7nben*in$eI7i$ement is t5at t5e /eo/le m7st $st see t5e =7ll teHt o= t5e /$o/ose*amen*ments be=o$e t5e4 sin to sini=4 t5ei$ assent& an* t5at t5e /eo/le m7st sinon an initiative /etition t5at contains t5e =7ll teHt o= t5e /$o/ose* amen*ments. T5e$ationale =o$ t5is $eI7i$ement 5as been $e/eate*l4 eH/laine* in seve$al *ecisions o=va$io7s co7$ts. T57s& in Ca/e::7to v. State (allot Commission& t5e S7/$eme Co7$t o= Massac57setts& aJ$me* b4 t5e ;i$st Ci$c7it Co7$t o= A//eals& *ecla$e*K A sinat7$e$eI7i$ement Bo7l* be meaninless i= t5e /e$son s7//l4in t5e sinat7$e 5as not$st seen B5at it is t5at 5e o$ s5e is sinin. ;7$t5e$& an* mo$e im/o$tantl4& looseinte$/$etation o= t5e s7bsc$i/tion $eI7i$ement can /ose a sinicant /otential =o$=$a7*. A /e$son /e$mitte* to *esc$ibe o$all4 t5e contents o= an initiative /etition to a/otential sine$& Bit5o7t t5e sine$ 5avin act7all4 eHamine* t5e /etition& co7l*easil4 mislea* t5e sine$ b4& =o$ eHam/le& omittin& *oBn/la4in& o$ even atl4mis$e/$esentin& /o$tions o= t5e /etition t5at mi5t not be to t5e sine$<s liin.
$e=e$en*7m /etition cannot I7estion 5is sinat7$e on t5e $o7n* t5at 5e *i* not7n*e$stan* t5e nat7$e o= t5e act. T5e Lambino G$o7/ I7otes an a7t5o$it4 t5atcites a /$o/ose* c5ane attac5e* to t5e /etition sine* b4 t5e /eo/le. Even t5ea7t5o$it4 t5e Lambino G$o7/ I7otes $eI7i$es t5at t5e /$o/ose* c5ane m7st beattac5e* to t5e /etition. T5e same a7t5o$it4 t5e Lambino G$o7/ I7otes $eI7i$es t5e
/eo/le to sin on t5e /etition itsel=. )n*ee*& it is basic in Ame$ican 7$is/$7*encet5at t5e /$o/ose* amen*ment m7st be inco$/o$ate* Bit5& o$ attac5e* to& t5einitiative /etition sine* b4 t5e /eo/le. )n t5e /$esent initiative& t5e LambinoG$o7/<s /$o/ose* c5anes Be$e not inco$/o$ate* Bit5& o$ attac5e* to& t5e sinat7$es5eets. T5e Lambino G$o7/<s citation o= Co$/7s 27$is Sec7n*7m /7lls t5e $7 =$om7n*e$ t5ei$ =eet.
Same Same Same Lo$ollin T5e$e is lo$ollin B5en t5e initiative /etitioninco$/o$ates an 7n$elate* s7bect matte$ in t5e same /etition Un*e$ Ame$ican
7$is/$7*ence& t5e eect o= lo$ollin is to n7lli=4 t5e enti$e /$o/osi8
16"
OL. "0"& OCTO(ER %"& %006
16"
Lambino vs. Commission on Elections
tion an* not onl4 t5e 7n$elate* s7bect matte$.FT5e Lambino G$o7/<s initiatives/$ins anot5e$ s7$/$ise on t5e /eo/le B5o sine* t5e sinat7$e s5eets. T5e/$o/ose* c5anes man*ate t5e inte$im Pa$liament to mae =7$t5e$ amen*ments o$$evisions to t5e Constit7tion. T5e /$o/ose* Section !?!@& A$ticle Q))) on T$ansito$4P$ovisions& /$ovi*esK Section !?!@. ,it5in =o$t48ve *a4s =$om $atication o= t5ese
amen*ments& t5e inte$im Pa$liament s5all convene to /$o/ose amen*ments to& o$$evisions o=& t5is Constit7tion consistent Bit5 t5e /$inci/les o= local a7tonom4&*ecent$ali:ation an* a st$on b7$ea7c$ac4. D7$in t5e o$al a$7ments& Att4. Lambinostate* t5at t5is /$ovision is a s7$/l7sae an* t5e Co7$t an* t5e /eo/le s5o7l*sim/l4 ino$e it. ;a$ =$om bein a s7$/l7sae& t5is /$ovision invali*ates t5e LambinoG$o7/<s initiative. Section !?!@ is a s7bect matte$ totall4 7n$elate* to t5e s5i=t =$omt5e (icame$al8P$esi*ential to t5e Unicame$al8Pa$liamenta$4 s4stem. Ame$ican
7$is/$7*ence on initiatives o7tlaBs t5is as lo$ollinFB5en t5e initiative /etitioninco$/o$ates an 7n$elate* s7bect matte$ in t5e same /etition. T5is /7ts t5e /eo/lein a *ilemma since t5e4 can ansBe$ onl4 eit5e$ 4es o$ no to t5e enti$e /$o/osition&=o$cin t5em to sin a /etition t5at eectivel4 contains tBo /$o/ositions& one o=
B5ic5 t5e4 ma4 n* 7nacce/table. Un*e$ Ame$ican 7$is/$7*ence& t5e eect o=lo$ollin is to n7lli=4 t5e enti$e /$o/osition an* not onl4 t5e 7n$elate* s7bectmatte$.
Same Same Same Same Lo$ollin con=7ses an* even *eceives t5e /eo/le.FLo$ollin con=7ses an* even *eceives t5e /eo/le. )n 37te Ai$ Alasa v. McAl/ine&6- P.%* 11#& 11! ?1-"@& t5e S7/$eme Co7$t o= Alasa Ba$ne* aainstina*ve$tence& stealt5 an* =$a7* in lo$ollinK ,5eneve$ a bill becomes laB
Same Same Same An initiative t5at at5e$s sinat7$es =$om t5e /eo/le Bit5o7t$st s5oBin to t5e /eo/le t5e =7ll teHt o= t5e /$o/ose* amen*ments is most liel4 a*ece/tion& an* can o/e$ate as a iantic =$a7* on t5e /eo/le.FT5e sinat7$es5eets *o not eH/lain t5is *isc$imination aainst t5e Senato$s. T5e 6.# million/eo/le B5o sine* t5e sinat7$e s5eets co7l* not 5ave noBn t5at t5ei$ sinat7$esBo7l* be 7se* to *isc$iminate aainst t5e Senato$s. T5e4 co7l* not 5ave noBn
t5at t5ei$ sinat7$es Bo7l* be 7se* to limit& a=te$ #0 27ne %010& t5e inte$imPa$liament<s c5oice o= P$ime Ministe$ onl4 to membe$s o= t5e eHistin +o7se o=Re/$esentatives. An initiative t5at at5e$s sinat7$es =$om t5e /eo/le Bit5o7t $sts5oBin to t5e /eo/le t5e =7ll teHt o= t5e /$o/ose* amen*ments is most liel4 a*ece/tion& an* can o/e$ate as a iantic =$a7* on t5e /eo/le. T5at is B54 t5eConstit7tion $eI7i$es t5at an initiative m7st be *i$ectl4 /$o/ose* b4 t5e /eo/le H HH in a /etitionFmeanin t5at t5e /eo/le m7st sin on a /etition t5at contains t5e=7ll teHt o= t5e /$o/ose* amen*ments. On so vital an iss7e as amen*in t5e nation<s=7n*amental laB& t5e B$itin o= t5e teHt o= t5e /$o/ose* amen*ments cannot be5i**en =$om t5e /eo/le 7n*e$ a ene$al o$ s/ecial /oBe$ o= atto$ne4 to 7nname*&=aceless& an* 7nelecte* in*ivi*7als. T5e Constit7tion ent$7sts to t5e /eo/le t5e/oBe$ to *i$ectl4 /$o/ose amen*ments to t5e Constit7tion. T5is Co7$t t$7sts t5eBis*om o= t5e /eo/le even i= t5e membe$s o= t5is Co7$t *o not /e$sonall4 noB t5e/eo/le B5o sin t5e /etition. +oBeve$& t5is t$7st emanates =$om a =7n*amentalass7m/tionK t5e =7ll teHt o= t5e /$o/ose* amen*ment is $st s5oBn to t5e /eo/lebe=o$e t5e4 sin t5e /etition& not a=te$ t5e4 5ave sine* t5e /etition.
Same Same Same Amen*ment an* Revision& Distin7is5e* ,o$*s an*P5$ases T5e =$ame$s o= t5e Constit7tion inten*e*& an* B$ote& a clea$ *istinctionbetBeen amen*ment an* $evision o= t5e Constit7tion.FT5e$e can be no mistae
t5e Constit7tion clea$l4 Bit55ol* =$om t5e /eo/le t5e /oBe$ to /$o/ose $evisions tot5e Constit7tion& t5e /eo/le cannot /$o/ose $evisions even as t5e4 a$e em/oBe$e*to /$o/ose amen*ments.
Same Same Same A /o/7la$ clamo$& even one bace* b4 6.# million sinat7$es&cannot 7sti=4 a *eviation =$om t5e s/ecic mo*es /$esc$ibe* in t5e
16
OL. "0"& OCTO(ER %"& %006
16
Lambino vs. Commission on Elections
Constit7tion itsel=.FSimila$l4& in t5is 7$is*iction t5e$e can be no *is/7te t5at a/eo/le<s initiative can onl4 /$o/ose amen*ments to t5e Constit7tion since t5eConstit7tion itsel= limits initiatives to amen*ments. T5e$e can be no *eviation =$omt5e constit7tionall4 /$esc$ibe* mo*es o= $evisin t5e Constit7tion. A /o/7la$ clamo$&even one bace* b4 6.# million sinat7$es& cannot 7sti=4 a *eviation =$om t5es/ecic mo*es /$esc$ibe* in t5e Constit7tion itsel=.
Same Same Same Revision b$oa*l4 im/lies a c5ane t5at alte$s a basic /$inci/lein t5e constit7tion& lie alte$in t5e /$inci/le o= se/a$ation o= /oBe$s o$ t5e s4stem
o= c5ecs8an*8balances& an* t5e$e is also $evision i= t5e c5ane alte$s t5es7bstantial enti$et4 o= t5e constit7tion& as B5en t5e c5ane aects s7bstantial/$ovisions o= t5e constit7tion Amen*ment b$oa*l4 $e=e$s to a c5ane t5at a**s&$e*7ces& o$ *eletes Bit5o7t alte$in t5e basic /$inci/le involve* Revision ene$all4aects seve$al /$ovisions o= t5e constit7tion& B5ile amen*ment ene$all4 aectsonl4 t5e s/ecic /$ovision bein amen*e*.FCo7$ts 5ave lon $econi:e* t5e*istinction betBeen an amen*ment an* a $evision o= a constit7tion. One o= t5eea$liest cases t5at $econi:e* t5e *istinction *esc$ibe* t5e =7n*amental *ie$encein t5is manne$K T5e ve$4 te$m constit7tion im/lies an inst$7ment o= a /e$manentan* abi*in nat7$e& an* t5e /$ovisions containe* t5e$ein =o$ its $evision in*icate t5eBill o= t5e /eo/le t5at t5e 7n*e$l4in /$inci/les 7/on B5ic5 it $ests& as Bell as t5e
s7bstantial enti$et4 o= t5e inst$7ment& s5all be o= a lie /e$manent an* abi*innat7$e. On t5e ot5e$ 5an*& t5e sinicance o= t5e te$m amen*ment im/lies s7c5an a**ition o$ c5ane Bit5in t5e lines o= t5e o$iinal inst$7ment as Bill eect anim/$ovement& o$ bette$ ca$$4 o7t t5e /7$/ose =o$ B5ic5 it Bas =$ame*. ?Em/5asiss7//lie*@ Revision b$oa*l4 im/lies a c5ane t5at alte$s a basic /$inci/le in t5econstit7tion& lie alte$in t5e /$inci/le o= se/a$ation o= /oBe$s o$ t5e s4stem o=c5ecs8an*8balances. T5e$e is also $evision i= t5e c5ane alte$s t5e s7bstantialenti$et4 o= t5e constit7tion& as B5en t5e c5ane aects s7bstantial /$ovisions o= t5e
Same Same Same T5e I7antitative test ass B5et5e$ t5e /$o/ose* c5ane is so
eHtensive in its /$ovisions as to c5ane *i$ectl4 t5e s7bstantial enti$et4< o= t5econstit7tion b4 t5e *eletion o$ alte$ation o= n7me$o7s eHistin /$ovisionsFt5eco7$t eHamines onl4 t5e n7mbe$ o= /$ovisions aecte* an*
16
16
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
*oes not consi*e$ t5e *e$ee o= c5ane T5e I7alitative test inI7i$es into t5eI7alitative eects o= t5e /$o/ose* c5ane in t5e constit7tionFt5e main inI7i$4 isB5et5e$ t5e c5ane Bill accom/lis5 s7c5 =a$ $eac5in c5anes in t5e nat7$e o= o7$basic ove$nmental /lan as to amo7nt to a $evision.F)n Cali=o$nia B5e$e t5einitiative cla7se alloBs amen*ments b7t not $evisions to t5e constit7tion 7st lie ino7$ Constit7tion& co7$ts 5ave *evelo/e* a tBo8/a$t testK t5e I7antitative test an*t5e I7alitative test. T5e I7antitative test ass B5et5e$ t5e /$o/ose* c5ane is soeHtensive in its /$ovisions as to c5ane *i$ectl4 t5e s7bstantial enti$et4< o= t5econstit7tion b4 t5e *eletion o$ alte$ation o= n7me$o7s eHistin /$ovisions. T5e co7$teHamines onl4 t5e n7mbe$ o= /$ovisions aecte* an* *oes not consi*e$ t5e *e$eeo= t5e c5ane. T5e I7alitative test inI7i$es into t5e I7alitative eects o= t5e
/$o/ose* c5ane in t5e constit7tion. T5e main inI7i$4 is B5et5e$ t5e c5ane Billaccom/lis5 s7c5 =a$ $eac5in c5anes in t5e nat7$e o= o7$ basic ove$nmental /lanas to amo7nt to a $evision. ,5et5e$ t5e$e is an alte$ation in t5e st$7ct7$e o=ove$nment is a /$o/e$ s7bect o= inI7i$4. T57s& a c5ane in t5e nat7$e o= t5ebasic ove$nmental /lan incl7*es c5ane in its =7n*amental =$ameBo$ o$ t5e=7n*amental /oBe$s o= its ($anc5es. A c5ane in t5e nat7$e o= t5e basicove$nmental /lan also incl7*es c5anes t5at eo/a$*i:e t5e t$a*itional =o$m o=ove$nment an* t5e s4stem o= c5ec an* balances.
Same Same Same Un*e$ bot5 t5e I7antitative an* I7alitative tests& t5e LambinoG$o7/<s initiative is a $evision an* not me$el4 an amen*ment A c5ane in t5e
st$7ct7$e o= ove$nment is a $evision o= t5e Constit7tion& as B5en t5e t5$ee $eatco8eI7al b$anc5es o= ove$nment in t5e /$esent Constit7tion is $e*7ce* into tBo As5i=t =$om t5e /$esent (icame$al8P$esi*ential s4stem to a Unicame$al8Pa$liamenta$4s4stem is a $evision o= t5e Constit7tionFme$in t5e leislative an* eHec7tiveb$anc5es is a $a*ical c5ane in t5e st$7ct7$e o= t5e ove$nment.FUn*e$ bot5 t5eI7antitative an* I7alitative tests& t5e Lambino G$o7/<s initiative is a $evision an*not me$el4 an amen*ment. 7antitativel4& t5e Lambino G$o7/<s /$o/ose* c5anesove$5a7l tBo a$ticlesFA$ticle ) on t5e Leislat7$e an* A$ticle )) on t5e EHec7tiveF
aectin a total o= 10" /$ovisions in t5e enti$e Constit7tion. 7alitativel4& t5e/$o/ose* c5anes alte$ s7bstantiall4 t5e basic /lan o= ove$nment& =$om/$esi*ential to /a$liamenta$4& an* =$om a bicame$al to a 7nicame$al leislat7$e. Ac5ane in t5e st$7ct7$e o= ove$nment is a $evision o= t5e Constit7tion& as B5en t5et5$ee $eat co8eI7al b$anc5es o= ove$nment in t5e /$esent Constit7tion a$e
$e*7ce* into tBo. T5is alte$s t5e se/a$ation o= /oBe$s in t5e Constit7tion. A s5i=t=$om t5e /$esent (icame$al8P$esi*ential s4stem to a Unicame$al8Pa$liamenta$4s4stem is a $evision o= t5e Constit7tion. Me$8
16-
OL. "0"& OCTO(ER %"& %006
16-
Lambino vs. Commission on Elections
in t5e leislative an* eHec7tive b$anc5es is a $a*ical c5ane in t5e st$7ct7$e o=ove$nment.
Same Same Same (4 an4 leal test an* 7n*e$ an4 7$is*iction& a s5i=t =$om a(icame$al8P$esi*ential to a Unicame$al8Pa$liamenta$4 s4stem& involvin t5e abolitiono= t5e OJce o= t5e P$esi*ent an* t5e abolition o= one c5ambe$ o= Con$ess& isbe4on* *o7bt a $evision& not a me$e amen*ment.F T5e abolition alone o= t5e OJceo= t5e P$esi*ent as t5e loc7s o= EHec7tive PoBe$ alte$s t5e se/a$ation o= /oBe$s an*t57s constit7tes a $evision o= t5e Constit7tion. LieBise& t5e abolition alone o= onec5ambe$ o= Con$ess alte$s t5e s4stem o= c5ecs8an*8balances Bit5in t5eleislat7$e an* constit7tes a $evision o= t5e Constit7tion. (4 an4 leal test an*7n*e$ an4 7$is*iction& a s5i=t =$om a (icame$al8P$esi*ential to a Unicame$al8
Pa$liamenta$4 s4stem& involvin t5e abolition o= t5e OJce o= t5e P$esi*ent an* t5eabolition o= one c5ambe$ o= Con$ess& is be4on* *o7bt a $evision& not a me$eamen*ment. On t5e =ace alone o= t5e Lambino G$o7/<s /$o/ose* c5anes& it is$ea*il4 a//a$ent t5at t5e c5anes Bill $a*icall4 alte$ t5e =$ameBo$ o= ove$nmentas set =o$t5 in t5e Constit7tion.
Same Same Same T5e eH/$ess intent o= t5e =$ame$s an* t5e /lain lan7ae o= t5eConstit7tion cont$a*ict t5e Lambino G$o7/<s t5eo$4Fan4 t5eo$4 a*vocatin t5at a/$o/ose* c5ane involvin a $a*ical st$7ct7$al c5ane in ove$nment *oes notconstit7te a $evision 7stl4 *ese$ves $eection.FT5e eH/$ess intent o= t5e =$ame$san* t5e /lain lan7ae o= t5e Constit7tion cont$a*ict t5e Lambino G$o7/<s t5eo$4.
t5eo$4 a*vocatin t5at a /$o/ose* c5ane involvin a $a*ical st$7ct7$al c5ane inove$nment *oes not constit7te a $evision 7stl4 *ese$ves $eection.
Same Same Same ,5e$e t5e /$o/ose* c5ane a//lies onl4 to a s/ecic /$ovisiono= t5e Constit7tion Bit5o7t aectin an4 ot5e$ section o$ a$ticle& t5e c5ane ma4ene$all4 be consi*e$e* an amen*ment an* not a $evision.F,e can vis7ali:e
amen*ments an* $evisions as a s/ect$7m& at one en* $een =o$ amen*ments an* att5e ot5e$ en* $e* =o$ $evisions. ToBa$*s t5e mi**le o= t5e s/ect$7m& colo$s =7se an**iJc7lties a$ise in *ete$minin B5et5e$ t5e$e is an amen*ment o$ $evision. T5e/$esent initiative is in*is/7tabl4 locate* at
10
10
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Electionst5e =a$ en* o= t5e $e* s/ect$7m B5e$e $evision beins. T5e /$esent initiative sees a$a*ical ove$5a7l o= t5e eHistin se/a$ation o= /oBe$s amon t5e t5$ee co8eI7al*e/a$tments o= ove$nment& $eI7i$in =a$8$eac5in amen*ments in seve$al sectionsan* a$ticles o= t5e Constit7tion. ,5e$e t5e /$o/ose* c5ane a//lies onl4 to as/ecic /$ovision o= t5e Constit7tion Bit5o7t aectin an4 ot5e$ section o$ a$ticle&t5e c5ane ma4 ene$all4 be consi*e$e* an amen*ment an* not a $evision. ;o$eHam/le& a c5ane $e*7cin t5e votin ae =$om 1 4ea$s to 1" 4ea$s is anamen*ment an* not a $evision. Simila$l4& a c5ane $e*7cin ;ili/ino oBne$s5i/ o=mass me*ia com/anies =$om 100 /e$cent to 60 /e$cent is an amen*ment an* not a$evision. Also& a c5ane $eI7i$in a collee *e$ee as an a**itional I7alication =o$
election to t5e P$esi*enc4 is an amen*ment an* not a $evision.
Same Same Same T5e$e can be no He* $7le on B5et5e$ a c5ane is anamen*ment o$ a $evisionFa c5ane in a sinle Bo$* o= one sentence o= t5eConstit7tion ma4 be a $evision an* not an amen*ment.FT5e$e can be no He* $7leon B5et5e$ a c5ane is an amen*ment o$ a $evision. A c5ane in a sinle Bo$* o=one sentence o= t5e Constit7tion ma4 be a $evision an* not an amen*ment. ;o$eHam/le& t5e s7bstit7tion o= t5e Bo$* $e/7blican Bit5 mona$c5ic o$ t5eoc$aticin Section 1& A$ticle )) o= t5e Constit7tion $a*icall4 ove$5a7ls t5e enti$e st$7ct7$e o=ove$nment an* t5e =7n*amental i*eoloical basis o= t5e Constit7tion. T57s& eac5s/ecic c5ane Bill 5ave to be eHamine* case8b48case& *e/en*in on 5oB it aects
ot5e$ /$ovisions& as Bell as 5oB it aects t5e st$7ct7$e o= ove$nment& t5e ca$e=7ll4c$a=te* s4stem o= c5ecs8an*8balances& an* t5e 7n*e$l4in i*eoloical basis o= t5eeHistin Constit7tion.
Same Same Same Since a $evision o= a constit7tion aects basic /$inci/les& o$seve$al /$ovisions o= a constit7tion& a *elibe$ative bo*4 Bit5 $eco$*e* /$ocee*insis best s7ite* to 7n*e$tae a $evision.FSince a $evision o= a constit7tion aectsbasic /$inci/les& o$ seve$al /$ovisions o= a constit7tion& a *elibe$ative bo*4 Bit5$eco$*e* /$ocee*ins is best s7ite* to 7n*e$tae a $evision. A $evision $eI7i$es
5a$moni:in not onl4 seve$al /$ovisions& b7t also t5e alte$e* /$inci/les Bit5 t5oset5at $emain 7nalte$e*. T57s& constit7tions no$mall4 a7t5o$i:e *elibe$ative bo*ieslie constit7ent assemblies o$ constit7tional conventions to 7n*e$tae $evisions. Ont5e ot5e$ 5an*& constit7tions alloB /eo/le<s initiatives& B5ic5 *o not 5ave He* an*i*entiable *elibe$ative bo*ies o$ $eco$*e* /$ocee*ins& to 7n*e$tae onl4
amen*ments an* not $evisions.11
OL. "0"& OCTO(ER %"& %006
11
Lambino vs. Commission on Elections
Same Same Same Stat7to$4 Const$7ction T5e basic $7le in stat7to$4 const$7ctionis t5at i= a late$ laB is i$$econcilabl4 inconsistent Bit5 a /$io$ laB& t5e late$ laB
/$evails.F)n t5e /$esent initiative& t5e Lambino G$o7/<s /$o/ose* Section % o= t5e T$ansito$4 P$ovisions statesK Section %. U/on t5e eH/i$ation o= t5e te$m o= t5einc7mbent P$esi*ent an* ice P$esi*ent& Bit5 t5e eHce/tion o= Sections 1& %& #& !& "&6 an* o= A$ticle ) o= t5e 1- Constit7tion B5ic5 s5all 5e$eb4 be amen*e* an*Sections 1 an* %! B5ic5 s5all be *elete*& all ot5e$ Sections o= A$ticle ) a$e 5e$eb4$etaine* an* $en7mbe$e* seI7entiall4 as Section %& a* se$iatim 7/ to %6& 7nlesst5e4 a$e inconsistent Bit5 t5e Pa$liamenta$4 s4stem o= ove$nment& in B5ic5 case&t5e4 s5all be amen*e* to con=o$m Bit5 a 7nicame$al /a$liamenta$4 =o$m o=ove$nment H H H H ?Em/5asis s7//lie*@ T5e basic $7le in stat7to$4 const$7ction ist5at i= a late$ laB is i$$econcilabl4 inconsistent Bit5 a /$io$ laB& t5e late$ laB/$evails. T5is $7le also a//lies to const$7ction o= constit7tions. +oBeve$& t5e
Lambino G$o7/<s *$a=t o= Section % o= t5e T$ansito$4 P$ovisions t7$ns on its 5ea* t5is$7le o= const$7ction b4 statin t5at in case o= s7c5 i$$econcilable inconsistenc4& t5eea$lie$ /$ovision s5all be amen*e* to con=o$m Bit5 a 7nicame$al /a$liamenta$4=o$m o= ove$nment. T5e eect is to =$ee:e t5e tBo i$$econcilable /$ovisions 7ntilt5e ea$lie$ one s5all be amen*e*& B5ic5 $eI7i$es a =7t7$e se/a$ate constit7tionalamen*ment.
Same Same Same A s5i=t =$om t5e /$esent (icame$al8P$esi*ential to a Unicame$al8Pa$liamenta$4 s4stem $eI7i$es 5a$moni:in seve$al /$ovisions in man4 a$ticles o=t5e Constit7tion Revision o= t5e Constit7tion t5$o75 a /eo/le<s initiative Bill onl4$es7lt in $oss abs7$*ities in t5e Constit7tion.F NoB& B5at 7nicame$al/a$liamenta$4 =o$m o= ove$nment *o t5e Lambino G$o7/<s /$o/ose* c5anes $e=e$
onl4 =o$ amen*ments. A s5i=t =$om t5e /$esent (icame$al8P$esi*ential to aUnicame$al8Pa$liamenta$4 s4stem $eI7i$es 5a$moni:in seve$al /$ovisions in man4a$ticles o= t5e Constit7tion. Revision o= t5e Constit7tion t5$o75 a /eo/le<s initiativeBill onl4 $es7lt in $oss abs7$*ities in t5e Constit7tion.
1%
1%
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
Same Same Same )nitiative an* Re=e$en*7m Act ?R.A. No. 6#"@ 27*icial RevieB T5e$e is no nee* to $evisit t5e Co7$t<s $7lin in Santiao v. Commission on Elections&%0 SCRA 106 ?1--@& *ecla$in R.A. No. 6#" incom/lete& ina*eI7ate o$ Bantinin essential te$ms an* con*itions to cove$ t5e s4stem o= initiative to amen* t5e
Constit7tionFan aJ$mation o$ $eve$sal o= Santiao Bill not c5ane t5e o7tcome o=t5e /$esent /etition T5e Co7$t m7st avoi* $evisitin a $7lin involvin t5econstit7tionalit4 o= a stat7te i= t5e case be=o$e t5e Co7$t can be $esolve* on someot5e$ $o7n*s.FT5e /$esent /etition Ba$$ants *ismissal =o$ =ail7$e to com/l4 Bit5t5e basic $eI7i$ements o= Section %& A$ticle Q)) o= t5e Constit7tion on t5e con*7ctan* sco/e o= a /eo/le<s initiative to amen* t5e Constit7tion. T5e$e is no nee* to$evisit t5is Co7$t<s $7lin in Santiao *ecla$in RA 6#" incom/lete& ina*eI7ate o$Bantin in essential te$ms an* con*itions to cove$ t5e s4stem o= initiative toamen* t5e Constit7tion. An aJ$mation o$ $eve$sal o= Santiao Bill not c5ane t5eo7tcome o= t5e /$esent /etition. T57s& t5is Co7$t m7st *ecline to $evisit SantiaoB5ic5 eectivel4 $7le* t5at RA 6#" *oes not com/l4 Bit5 t5e $eI7i$ements o= t5e
Constit7tion to im/lement t5e initiative cla7se on amen*ments to t5e Constit7tion. T5is Co7$t m7st avoi* $evisitin a $7lin involvin t5e constit7tionalit4 o= a stat7te i= t5e case be=o$e t5e Co7$t can be $esolve* on some ot5e$ $o7n*s. S7c5 avoi*anceis a loical conseI7ence o= t5e Bell8settle* *oct$ine t5at co7$ts Bill not /ass 7/ont5e constit7tionalit4 o= a stat7te i= t5e case can be $esolve* on some ot5e$ $o7n*s.
Same Same Same Same Section "?b@ o= RA 6#" $eI7i$es t5at t5e /eo/le m7stsin t5e /etition as sinato$ies.FEven t5en& t5e /$esent initiative violates Section"?b@ o= RA 6#" B5ic5 $eI7i$es t5at t5e /etition =o$ an initiative on t5e 1-Constit7tion m7st 5ave at least tBelve /e$ cent7m ?1%V@ o= t5e total n7mbe$ o=$eiste$e* vote$s as sinato$ies. Section "?b@ o= RA 6#" $eI7i$es t5at t5e /eo/lem7st sin t5e /etition H H H as sinato$ies. T5e 6.# million sinato$ies *i* not sin
Same Same Same Same T5e Lambino G$o7/<s lo$ollin initiative also violatesSection 10?a@ o= RA 6#" statin& No /etition emb$acin mo$e t5an one ?1@ s7bects5all be s7bmitte* to t5e electo$ate H H H.FT5e Lambino G$o7/<s lo$ollininitiative also violates Section 10?a@ o= RA 6#" statin& No /etition emb$acinmo$e t5an one ?1@ s7bect s5all be s7bmitte* to t5e electo$ate H H H. T5e /$o/ose*Section !?!@ o= t5e T$ansito$4 P$ovisions& man*atin t5e inte$im Pa$liament to/$o/ose =7$t5e$ amen*ments o$ $evisions to t5e Constit7tion& is a s7bect matte$totall4 7n$elate* to t5e s5i=t in t5e =o$m o= ove$nment. Since t5e /$esent initiativeemb$aces mo$e t5an one s7bect matte$& RA 6#" /$o5ibits s7bmission o= t5e
initiative /etition to t5e electo$ate. T57s& even i= RA 6#" is vali*& t5e LambinoG$o7/<s initiative Bill still =ail.
Same Same Same Ce$tio$a$i Commission on Elections ;o$ =olloBin t5e Co7$t<s$7lin& no $ave ab7se o= *isc$etion is att$ib7table to t5e COMELEC.F)n *ismissint5e Lambino G$o7/<s initiative /etition& t5e COMELEC en banc me$el4 =olloBe* t5isCo7$t<s $7lin in Santiao an* Peo/le<s )nitiative =o$ Re=o$m& Mo*e$ni:ation an*Action ?P)RMA@ v. COMELEC. ;o$ =olloBin t5is Co7$t<s $7lin& no $ave ab7se o=*isc$etion is att$ib7table to t5e COMELEC. On t5is $o7n* alone& t5e /$esent /etitionBa$$ants o7t$i5t *ismissal. T57s& t5is Co7$t s5o7l* $eite$ate its 7nanimo7s $7lin inP)RMAK T5e Co7$t $7le*& $st& b4 a 7nanimo7s vote& t5at no $ave ab7se o=
*isc$etion co7l* be att$ib7te* to t5e /7blic $es/on*ent COMELEC in *ismissin t5e/etition le* b4 P)RMA t5e$ein& it a//ea$in t5at it onl4 com/lie* Bit5 t5e*is/ositions in t5e Decisions o= t5is Co7$t in G.R. No. 1%#%"& /$om7late* on Ma$c51-& 1--& an* its Resol7tion o= 27ne 10& 1--.
Same Same Same A $evolvin8*oo$ constit7tion *oes not a77$ Bell =o$ t5e $7le o= laB in t5e co7nt$4.FT5e Constit7tion& as t5e =7n*amental laB o= t5e lan*& *ese$vest5e 7tmost $es/ect an* obe*ience o= all t5e citi:ens o= t5is nation. No one cant$iviali:e t5e Constit7tion b4 cavalie$l4 amen*in o$ $evisin it in blatant violation o=t5e clea$l4 s/ecie* mo*es o= amen*ment an* $evision lai* *oBn in t5eConstit7tion itsel=. To alloB s7c5 c5ane in t5e =7n*amental laB is to set a*$i=t t5eConstit7tion in 7nc5a$te$e* Bate$s& to be tosse* an* t7$ne* b4 eve$4 *ominant
/olitical $o7/ o= t5e *a4. )= t5is Co7$t alloBs to*a4 a cavalie$ c5ane in t5eConstit7tion o7tsi*e t5e constit7tionall4 /$esc$ibe* mo*es& tomo$$oB t5e neB*ominant /olitical $o7/ t5at comes Bill *eman* its oBn set o= c5anes in t5e samecavalie$ an* 7nconstit7tional =as5ion. A $evolvin8*oo$ constit7tion *oes not a77$Bell =o$ t5e $7le o= laB in t5is co7nt$4.
tion& 7n*e$ an4 7ise& to $e=7se en=o$cement o= an4 nal *ecision o= t5is Co7$t. T5e$e=7sal o= t5e /oll bo*4 to act on t5e Lambino Petition Bas its onl4 $eco7$se. An4ot5e$ mo*e o= action Bo7l* a//ea$ not onl4 /$es7m/t7o7s& b7t also contem/t7o7s.)t Bo7l* 5ave constit7te* *eance o= t5e Co7$t an* Bo7l* 5ave s7$el4 been st$7c*oBn as $ave ab7se o= *isc$etion an* cont7macio7s *is$ea$* o= t5e s7/$emac4 o=t5is Co7$t as t5e nal a$bite$ o= 7sticiable cont$ove$sies.
PUNO& 2.& Dissentin O/inionK
Constit7tional LaB Amen*ments an* Revisions o= t5e Constit7tion Peo/le<s)nitiative Plea*ins an* P$actice Pa$ties T5e$e is no nee* =o$ t5e mo$e t5an siH ?6@million sinato$ies to eHec7te se/a$ate *oc7ments to a7t5o$i:e /etitione$s to let5e /etition =o$ initiative in t5ei$ be5al=.FO//osito$s8inte$veno$s conten* t5at/etitione$s Lambino an* A7menta*o a$e not t5e /$o/e$ /a$ties to le t5e instant/etition as t5e4 Be$e not a7t5o$i:e* b4 t5e sinato$ies in t5e /etition =o$ initiative.
T5e a$7ment *ese$ves scant attention. T5e Constit7tion $eI7i$es t5at t5e /etition=o$ initiative s5o7l* be le* b4 at least tBelve /e$ cent ?1%V@ o= all $eiste$e*vote$s& o= B5ic5 eve$4 leislative *ist$ict m7st be $e/$esente* b4 at least t5$ee /e$cent ?#V@ o= all t5e $eiste$e* vote$s t5e$ein. T5e /etition =o$ initiative le* b4Lambino an* A7menta*o be=o$e t5e COMELEC Bas accom/anie* b4 vol7mino7ssinat7$e s5eets B5ic5 /$ima =acie s5oB t5e intent o= t5e sinato$ies to s7//o$t t5e
lin o= sai* /etition. State* above t5ei$ sinat7$es in t5e sinat7$e s5eets is t5e=olloBinK H H H M4 sinat7$e 5e$ein B5ic5 s5all =o$m /a$t o= t5e /etition =o$ initiativeto amen* t5e Constit7tion sinies m4 s7//o$t =o$ t5e lin t5e$eo=. T5e$e is t57sno nee* =o$ t5e mo$e t5an siH ?6@ million sinato$ies to eHec7te se/a$ate *oc7mentsto a7t5o$i:e /etitione$s to le t5e /etition =o$ initiative in t5ei$ be5al=.
Same Same Same Same Same An4 /e$son a$ieve* b4 t5e act o$ inaction o=t5e $es/on*ent t$ib7nal& boa$* o$ oJce$ ma4 le a /etition =o$ ce$tio$a$i o$man*am7s be=o$e t5e a//$o/$iate co7$t.FNeit5e$ is it necessa$4 =o$ sai*sinato$ies to a7t5o$i:e Lambino an* A7menta*o to le t5e /etition =o$ ce$tio$a$ian* man*am7s be=o$e t5is Co7$t. R7le 6" o= t5e 1-- R7les o= Civil P$oce*7$e
/e$son a$ieve* t5e$eb4 ma4 le a ve$ie* /etition in t5e /$o/e$ co7$t H H H H.SEC. #. Petition =o$ man*am7s.F,5en an4 t$ib7nal& co$/o$ation& boa$*& oJce$ o$/e$son 7nlaB=7ll4 nelects t5e /e$=o$mance o= an act B5ic5 t5e laB s/ecicall4enoins as a *7t4 $es7ltin =$om an oJce& t$7st& o$ station H H H an* t5e$e is no ot5e$/lain& s/ee*4 an* a*eI7ate $eme*4 in t5e o$*ina$4 co7$se o= laB& t5e /e$sona$ieve* t5e$eb4 ma4 le a ve$ie* /etition in t5e /$o/e$ co7$t H H H H. T57s& an4/e$son a$ieve* b4 t5e act o$ inaction o= t5e $es/on*ent t$ib7nal& boa$* o$ oJce$ma4 le a /etition =o$ ce$tio$a$i o$ man*am7s be=o$e t5e a//$o/$iate co7$t.Ce$tainl4& Lambino an* A7menta*o& as amon t5e /$o/onents o= t5e /etition =o$initiative *ismisse* b4 t5e COMELEC& 5ave t5e stan*in to le t5e /etition at ba$.
Same Same Same )nitiative an* Re=e$en*7m Act ?R.A. No. 6#"@ 27*mentsSta$e Decisis ,o$*s an* P5$ases T5e latin /5$ase sta$e *ecisis et non I7ietamove$e means stan* b4 t5e t5in an* *o not *ist7$b t5e calm T5e *oct$ine o=sta$e *ecisis sta$te* Bit5 t5e Enlis5 Co7$ts an* late$ mi$ate* to t5e Unite* States.FT5e latin /5$ase sta$e *ecisis et non I7ieta move$e means stan* b4 t5e t5inan* *o not *ist7$b t5e calm. T5e *oct$ine sta$te* Bit5 t5e Enlis5 Co7$ts.(lacstone obse$ve* t5at at t5e beinnin o= t5e 1t5 cent7$4& it is an establis5e*$7le to abi*e b4 =o$me$ /$ece*ents B5e$e t5e same /oints come aain in litiation.As t5e $7le evolve*& ea$l4 limits to its a//lication Be$e $econi:e*K ?1@ it Bo7l* notbe =olloBe* i= it Be$e /lainl4 7n$easonable ?%@ B5e$e co7$ts o= eI7al a7t5o$it4*evelo/e* conictin *ecisions an*& ?#@ t5e bin*in =o$ce o= t5e *ecision Bas t5e
act7al /$inci/le o$ /$inci/les necessa$4 =o$ t5e *ecision not t5e Bo$*s o$ $easonin7se* to $eac5 t5e *ecision. T5e *oct$ine mi$ate* to t5e Unite* States. )t Bas$econi:e* b4 t5e =$ame$s o= t5e U.S. Constit7tion. Acco$*in to +amilton& st$ict$7les an* /$ece*ents a$e necessa$4 to /$event a$bit$a$4 *isc$etion in t5e co7$ts.Ma*ison a$ee* b7t st$esse* t5at H H H once t5e /$ece*ent vent7$es into t5e $ealmo= alte$in o$ $e/ealin t5e laB& it s5o7l* be $eecte*. P$o=. Consovo4 Bell note*t5at +amilton an* Ma*ison *isa$ee abo7t t5e co7nte$vailin /olic4 consi*e$ationst5at Bo7l* alloB a 7*e to aban*on a /$ece*ent. +e a**e* t5at t5ei$ i*eas $eveala *ee/ inte$nal conict betBeen t5e conc$eteness $eI7i$e* b4 t5e $7le o= laB an*t5e eHibilit4 *eman*e* in e$$o$ co$$ection. )t is t5is inte$nal conict t5at t5eS7/$eme Co7$t 5as attem/te* to *eal Bit5 =o$ ove$ tBo cent7$ies.
Same Same Same Same Same Same Same TBo st$ains o= sta$e *ecisis 5avebeen isolate* b4 leal sc5ola$sFt5e $st& noBn as ve$tical sta$e *ecisis *eals Bit5t5e *7t4 o= loBe$ co7$ts to a//l4 t5e *ecisions o= t5e 5i5e$
co7$ts to cases involvin t5e same =acts& an* t5e secon*& noBn as 5o$i:ontal sta$e*ecisis $eI7i$es t5at 5i5 co7$ts m7st =olloB t5ei$ oBn /$ece*ents e$tical sta$e
*ecisis 5as been vieBe* as an obliation& B5ile 5o$i:ontal sta$e *ecisis& 5as beenvieBe* as a /olic4& im/osin c5oice b7t not a comman*.F TBo cent7$ies o=Ame$ican case laB Bill con$m P$o=. Consovo4<s obse$vation alt5o75 sta$e *ecisis*evelo/e* its oBn li=e in t5e Unite* States. TBo st$ains o= sta$e *ecisis 5ave beenisolate* b4 leal sc5ola$s. T5e $st& noBn as ve$tical sta$e *ecisis *eals Bit5 t5e*7t4 o= loBe$ co7$ts to a//l4 t5e *ecisions o= t5e 5i5e$ co7$ts to cases involvint5e same =acts. T5e secon*& noBn as 5o$i:ontal sta$e *ecisis $eI7i$es t5at 5i5co7$ts m7st =olloB its oBn /$ece*ents. P$o=. Consovo4 co$$ectl4 obse$ves t5atve$tical sta$e *ecisis 5as been vieBe* as an obliation& B5ile 5o$i:ontal sta$e*ecisis& 5as been vieBe* as a /olic4& im/osin c5oice b7t not a comman*. )n*ee*&sta$e *ecisis is not one o= t5e /$ece/ts set in stone in o7$ Constit7tion.
Same Same Same Same Same Same Same )t is also inst$7ctive to *istin7is5t5e tBo in*s o= 5o$i:ontal sta$e *ecisisFconstit7tional sta$e *ecisis an* stat7to$4sta$e *ecisisFt5e *istinction bein im/o$tant =o$ co7$ts eno4 mo$e eHibilit4 in$e=7sin to a//l4 sta$e *ecisis in constit7tional litiations.F)t is also inst$7ctive to*istin7is5 t5e tBo in*s o= 5o$i:ontal sta$e *ecisisFconstit7tional sta$e *ecisis an*stat7to$4 sta$e *ecisis. Constit7tional sta$e *ecisis involves 7*icial inte$/$etationso= t5e Constit7tion B5ile stat7to$4 sta$e *ecisis involves inte$/$etations o= stat7tes.
T5e *istinction is im/o$tant =o$ co7$ts eno4 mo$e eHibilit4 in $e=7sin to a//l4sta$e *ecisis in constit7tional litiations. 27stice ($an*eis< vieB on t5e bin*in eecto= t5e *oct$ine in constit7tional litiations still 5ol*s sBa4 to*a4. )n soot5in /$ose&($an*eis state*K Sta$e *ecisis is not . . . a 7nive$sal an* ineHo$able comman*. T5e
$7le o= sta$e *ecisis is not ineHible. ,5et5e$ it s5all be =olloBe* o$ *e/a$te* =$om&is a I7estion enti$el4 Bit5in t5e *isc$etion o= t5e co7$t& B5ic5 is aain calle* 7/on toconsi*e$ a I7estion once *eci*e*. )n t5e same vein& t5e vene$able 27stice;$an=7$te$ o/ine*K t5e 7ltimate to7c5stone o= constit7tionalit4 is t5e Constit7tionitsel= an* not B5at Be 5ave sai* abo7t it. )n cont$ast& t5e a//lication o= sta$e*ecisis on 7*icial inte$/$etation o= stat7tes is mo$e ineHible. As 27stice StevenseH/lainsK a=te$ a stat7te 5as been const$7e*& eit5e$ b4 t5is Co7$t o$ b4 a consistentco7$se o= *ecision b4 ot5e$ =e*e$al 7*es an* aencies& it acI7i$es a meanin t5ats5o7l* be as clea$ as i= t5e 7*icial loss 5a* been *$a=te* b4 t5e Con$ess itsel=.
Same Same Same Same Same Same Same Reasons =o$ ;olloBin an* Re=7sint5e Sta$e Decisis R7le.F)n ene$al& co7$ts =olloB t5e sta$e *ecisis $7le =o$ anensemble o= $easons& vi:.K ?1@ it leitimi:es 7*icial instit7tions ?%@ it /$omotes
an* 7nconstit7tional 5ol*ins ?%@ it cannot accommo*ate c5anin social an*/olitical 7n*e$stan*ins ?#@ it leaves t5e /oBe$ to ove$t7$n ba* constit7tional laBsolel4 in t5e 5an*s o= Con$ess an*& ?!@ activist 7*es can *ictate t5e /olic4 =o$=7t7$e co7$ts B5ile 7*es t5at $es/ect sta$e *ecisis a$e st7c a$eein Bit5 t5em.
Same Same Same Same Same Same Same An eHamination o= *ecisions onsta$e *ecisis in mao$ co7nt$ies Bill s5oB t5at co7$ts a$e a$ee* on t5e =acto$s t5ats5o7l* be consi*e$e* be=o$e ove$t7$nin /$io$ $7lins& vi:.& Bo$abilit4& $eliance&inte$venin *evelo/ments in t5e laB an* c5anes in =act& asi*e =$om t5e =act t5atco7$ts /7t in t5e balance t5e =olloBin *ete$minantsFcloseness o= t5e votin& aeo= t5e /$io$ *ecision an* its me$its.FAn eHamination o= *ecisions on sta$e *ecisis inmao$ co7nt$ies Bill s5oB t5at co7$ts a$e a$ee* on t5e =acto$s t5at s5o7l* be
consi*e$e* be=o$e ove$t7$nin /$io$ $7lins. T5ese a$e Bo$abilit4& $eliance&inte$venin *evelo/ments in t5e laB an* c5anes in =act. )n a**ition& co7$ts /7t int5e balance t5e =olloBin *ete$minantsK closeness o= t5e votin& ae o= t5e /$io$*ecision an* its me$its. T5e lea*in case in *eci*in B5et5e$ a co7$t s5o7l* =olloBt5e sta$e *ecisis $7le in constit7tional litiations is Planne* Pa$ent5oo* v. Case4. )testablis5e* a !8/$one* test. T5e co7$t s5o7l* ?1@ *ete$mine B5et5e$ t5e $7le 5as/$ove* to be intole$able sim/l4 in *e=4in /$actical Bo$abilit4 ?%@ consi*e$ B5et5e$t5e $7le is s7bect to a in* o= $eliance t5at Bo7l* len* a s/ecial 5a$*s5i/ to t5econseI7ences o= ove$$7lin an* a** ineI7it4 to t5e cost o= $e/7*iation ?#@*ete$mine B5et5e$ $elate* /$inci/les o= laB 5ave so =a$ *evelo/e* as to 5ave t5eol* $7le no mo$e t5an a $emnant o= an aban*one* *oct$ine an*& ?!@ n* o7t
B5et5e$ =acts 5ave so c5ane* o$ come to be seen *ie$entl4& as to 5ave $obbe*t5e ol* $7le o= sinicant a//lication o$ 7stication.
Same Same Same Same )n enactin R.A. 6#"& it is *a4li5t l7mino7s t5atCon$ess inten*e* t5e sai* laB to im/lement t5e $i5t o= t5e /eo/le& t5$7 initiative&to /$o/ose amen*ments to t5e Constit7tion b4 *i$ect action.F Let 7s $eeHamine t5evali*it4 o= t5e vieB o= t5e siH ?6@ 7stices t5at R.A. 6#" is ins7Jcient to im/lementSection %& A$ticle Q)) o= t5e 1- Constit7tion alloBin amen*ments to t5eConstit7tion to be *i$ectl4 /$o/ose* b4 t5e /eo/le t5$o75 initiative. ,5en laBs a$ec5allene* as 7nconstit78
tional& co7$ts a$e co7nsele* to ive li=e to t5e intent o= leislato$s. )n enactin R.A.6#"& it is *a4li5t l7mino7s t5at Con$ess inten*e* t5e sai* laB to im/lement t5e$i5t o= t5e /eo/le& t5$7 initiative& to /$o/ose amen*ments to t5e Constit7tion b4*i$ect action.
Same Same Same Same R.A. 6#" clea$l4 eH/$esse* t5e leislative /olic4 =o$ t5e
/eo/le to /$o/ose amen*ments to t5e Constit7tion b4 *i$ect action& an* t5e =actt5at t5e leislat7$e ma4 5ave omitte* ce$tain *etails in im/lementin t5e /eo/le<sinitiative in R.A. 6#"& *oes not 7sti=4 t5e concl7sion t5at& e$o& t5e laB isins7JcientFB5at Be$e omitte* Be$e me$e *etails an* not =7n*amental /oliciesB5ic5 Con$ess alone can an* 5as *ete$mine*.FT5e t$ae*4 is t5at B5ileconce*in t5is intent& t5e siH ?6@ 7stices& neve$t5eless& $7le* t5at H H H R.A. No.6#" is incom/lete& ina*eI7ate& o$ Bantin in essential te$ms an* con*itions inso=a$as initiative on amen*ments to t5e Constit7tion is conce$ne* =o$ t5e =olloBin$easonsK ?1@ Section % o= t5e Act *oes not s7est an initiative on amen*ments tot5e Constit7tion ?%@ t5e Act *oes not /$ovi*e =o$ t5e contents o= t5e /etition =o$initiative on t5e Constit7tion an* ?#@ B5ile t5e Act /$ovi*es s7btitles =o$ National
)nitiative an* Re=e$en*7m ?S7btitle ))@ an* =o$ Local )nitiative an* Re=e$en*7m?S7btitle )))@& no s7btitle is /$ovi*e* =o$ initiative on t5e Constit7tion. To sa4 t5eleast& t5ese allee* omissions a$e too Bea a $eason to t5$ottle t5e $i5t o= t5esove$ein /eo/le to amen* t5e Constit7tion t5$o75 initiative. R.A. 6#" clea$l4eH/$esse* t5e leislative /olic4 =o$ t5e /eo/le to /$o/ose amen*ments to t5eConstit7tion b4 *i$ect action. T5e =act t5at t5e leislat7$e ma4 5ave omitte* ce$tain*etails in im/lementin t5e /eo/le<s initiative in R.A. 6#"& *oes not 7sti=4 t5econcl7sion t5at& e$o& t5e laB is ins7Jcient. ,5at Be$e omitte* Be$e me$e *etailsan* not =7n*amental /olicies B5ic5 Con$ess alone can an* 5as *ete$mine*.)m/lementin *etails o= a laB can be *eleate* to t5e COMELEC an* can be t5es7bect o= its $7le8main /oBe$. Un*e$ Section %?1@& A$ticle )Q8C o= t5e Constit7tion&
t5e COMELEC 5as t5e /oBe$ to en=o$ce an* a*ministe$ all laBs an* $e7lations$elative to t5e con*7ct o= initiatives. )ts $7le8main /oBe$ 5as lon been$econi:e* b4 t5is Co7$t. )n $7lin R.A. 6#" ins7Jcient b7t Bit5o7t st$iin it *oBnas 7nconstit7tional& t5e siH ?6@ 7stices =aile* to ive *7e $econition to t5ein*e=easible $i5t o= t5e sove$ein /eo/le to amen* t5e Constit7tion.
Same Same Same Same Amen*ment an* Revision& Distin7is5e* ,o$*s an*P5$ases T5e Bo$*s sim/le an* s7bstantial a$e not s7bect to an4 acc7$ateI7antitative o$ I7alitative test ,e stan* on 7nsa=e $o7n* i= Be 7se sim/lea$it5metic to *ete$mine B5et5e$ t5e /$o/ose* c5anes a$e sim/le
o$ s7bstantial.FT5e Bo$*s sim/le an* s7bstantial a$e not s7bect to an4acc7$ate I7antitative o$ I7alitative test. Obvio7sl4& $el4in on t5e I7antitative test&o//osito$s8inte$veno$s asse$t t5at t5e amen*ments Bill $es7lt in some one 57n*$e*?100@ c5anes in t5e Constit7tion. Usin t5e same test& 5oBeve$& it is also a$7ablet5at /etitione$s see to c5ane basicall4 onl4 tBo ?%@ o7t o= t5e ei5teen ?1@
Same Same Same Same Same T5e /$o/ose* c5anes Bill not c5ane t5e=7n*amental nat7$e o= o7$ state as a *emoc$atic an* $e/7blican state.F No$ cant5is Co7$t be s7$e=oote* i= it a//lies t5e I7alitative test to *ete$mine B5et5e$ t5esai* c5anes a$e sim/le o$ s7bstantial as to amo7nt to a $evision o= t5eConstit7tion. T5e Bell8$ea$*e* /olitical scientist& Ga$ne$& sa4s t5at a oo*constit7tion s5o7l* contain at least t5$ee ?#@ sets o= /$ovisionsK t5e constit7tion o=libe$t4 B5ic5 sets =o$t5 t5e =7n*amental $i5ts o= t5e /eo/le an* im/oses ce$tainlimitations on t5e /oBe$s o= t5e ove$nment as a means o= sec7$in t5e eno4mento= t5ese $i5ts t5e constit7tion o= ove$nment B5ic5 *eals Bit5 t5e =$ameBo$ o=ove$nment an* its /oBe$s& la4in *oBn ce$tain $7les =o$ its a*minist$ation an*
*enin t5e electo$ate an*& t5e constit7tion o= sove$eint4 B5ic5 /$esc$ibes t5emo*e o$ /$oce*7$e =o$ amen*in o$ $evisin t5e constit7tion. )t is /lain t5at t5e/$o/ose* c5anes Bill basicall4 aect onl4 t5e constit7tion o= ove$nment. T5econstit7tions o= libe$t4 an* sove$eint4 $emain 7naecte*. )n*ee*& t5e /$o/ose*c5anes Bill not c5ane t5e =7n*amental nat7$e o= o7$ state as H H H a *emoc$atican* $e/7blican state. )t is sel=8evi*ent t5at a 7nicame$al8/a$liamenta$4 =o$m o=ove$nment Bill not mae o7$ State an4 less *emoc$atic o$ an4 less $e/7blican inc5a$acte$. +ence& neit5e$ Bill t5e 7se o= t5e I7alitative test $esolve t5e iss7e o=B5et5e$ t5e /$o/ose* c5anes a$e sim/le o$ s7bstantial.
11
OL. "0"& OCTO(ER %"& %006
11
Lambino vs. Commission on Elections
Same Same Same Same Same O7$ Constit7tions ca$$ie* t5e t$a*itional*istinction betBeen amen*ment an* $evision& i.e.& amen*ment means
c5ane& incl7*in com/leH c5anes B5ile $evision means com/lete c5ane&incl7*in t5e a*o/tion o= an enti$el4 neB covenant.FO7$ Constit7tions *i* nota*o/t an4 I7antitative o$ I7alitative test to *ete$mine B5et5e$ an amen*ment issim/le o$ s7bstantial. No$ *i* t5e4 /$ovi*e t5at s7bstantial amen*ments a$ebe4on* t5e /oBe$ o= t5e /eo/le to /$o/ose to c5ane t5e Constit7tion. )nstea*& o7$
Constit7tions ca$$ie* t5e t$a*itional *istinction betBeen amen*ment an*$evision& i.e.& amen*ment means c5ane& incl7*in com/leH c5anes B5ile$evision means com/lete c5ane& incl7*in t5e a*o/tion o= an enti$el4 neBcovenant. T5e leal *ictiona$ies eH/$ess t5is t$a*itional *ie$ence betBeenamen*ment an* $evision. (lac<s LaB Dictiona$4 *enes amen*ment as a=o$mal $evision o$ a**ition /$o/ose* o$ ma*e to a stat7te& constit7tion& /lea*in&o$*e$& o$ ot5e$ inst$7ment s/ecicall4& a c5ane ma*e b4 a**ition& *eletion& o$co$$ection. (lac<s also $e=e$s to amen*ment as t5e /$ocess o= main s7c5 a$evision. Revision& on t5e ot5e$ 5an*& is *ene* as a $eeHamination o$ ca$e=7l$evieB =o$ co$$ection o$ im/$ovement. )n /a$liamenta$4 laB& it is *esc$ibe* as aene$al an* t5o$o75 $eB$itin o= a ove$nin *oc7ment& in B5ic5 t5e enti$e*oc7ment is o/en to amen*ment. Simila$l4& (allentine<s LaB Dictiona$4 *enesamen*mentFas a co$$ection o$ $evision o= a B$itin to co$$ect e$$o$s o$ bette$to state its inten*e* /7$/ose an* amen*ment o= constit7tion as a /$ocess o=/$o/osin& /assin& an* $ati=4in amen*ments to t5e H H H constit7tion. )n cont$ast&$evision& B5en a//lie* to a stat7te ?o$ constit7tion@& contem/lates t5e $e8eHamination o= t5e same s7bect matte$ containe* in t5e stat7te ?o$ constit7tion@&an* t5e s7bstit7tion o= a neB& an* B5at is believe* to be& a still mo$e /e$=ect $7le.
Same Same Same Same Same Stat7to$4 Const$7ction )t is =amilia$ lea$nin&5oBeve$& t5at o/inions in a constit7tional convention& es/eciall4 i= inconcl7sive o=an iss7e& a$e o= ve$4 limite* val7e as eH/lainin *o7bt=7l /5$ases& an* a$e an 7nsa=e7i*e ?to t5e intent o= t5e /eo/le@ since t5e constit7tion *e$ives its =o$ce as a
=7n*amental laB& not =$om t5e action o= t5e convention b7t =$om t5e /oBe$s ?o= t5e/eo/le@ B5o 5ave $atie* an* a*o/te* it.F T5e o//osito$s8inte$veno$s B5o /e**let5e above /$o/osition $el4 on t5e o/inions o= some Commissione$s eH/$esse* in t5eco7$se o= t5e *ebate on 5oB to =$ame t5e amen*mentW$evision /$ovisions o= t5e1- Constit7tion. )t is =amilia$ lea$nin& 5oBeve$& t5at o/inions in a constit7tionalconvention& es/eciall4 i= inconcl7sive o= an iss7e& a$e o= ve$4 limite* val7e aseH/lainin *o7bt=7l /5$ases& an* a$e an 7nsa=e 7i*e ?to t5e intent o= t5e /eo8
1%
1%
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
/le@ since t5e constit7tion *e$ives its =o$ce as a =7n*amental laB& not =$om t5eaction o= t5e convention b7t =$om t5e /oBe$s ?o= t5e /eo/le@ B5o 5ave $atie* an*a*o/te* it. Debates in t5e constit7tional convention a$e o= val7e as s5oBin t5evieBs o= t5e in*ivi*7al membe$s& an* as in*icatin t5e $easons =o$ t5ei$ votes& b7t
t5e4 ive 7s no li5t as to t5e vieBs o= t5e la$e mao$it4 B5o *i* not tal& m7c5less o= t5e mass o= o7$ =elloB citi:ens B5ose votes at t5e /olls ave t5at inst$7mentt5e =o$ce o= =7n*amental laB.< )n*ee*& a ca$e=7l /e$7sal o= t5e *ebates o= t5eConstit7tional Commissione$s can lieBise lea* to t5e concl7sion t5at t5e$e Bas noaban*onment o= t5e t$a*itional *istinction betBeen amen*ment an* $evision.
;o$ *7$in t5e *ebates& some o= t5e commissione$s $e=e$$e* to t5e conc7$$ino/inion o= =o$me$ 27stice ;eliH . Antonio in 2avellana v. T5e EHec7tive Sec$eta$4&t5at st$esse* t5e t$a*itional *istinction betBeen amen*ment an* $evision.
Same Same Same Same Same Same )t is a$7able t5at B5en t5e =$ame$s o= t5e1- Constit7tion 7se* t5e Bo$* $evision& t5e4 5a* in min* t5e $eB$itin o= t5eB5ole Constit7tion& o$ t5e total ove$5a7l o= t5e Constit7tionFan4t5in less is anamen*ment o$ 7st a c5ane o= s/ecic /$ovisions onl4.F)t is a$7able t5atB5en t5e =$ame$s o= t5e 1- Constit7tion 7se* t5e Bo$* $evision& t5e4 5a* inmin* t5e $eB$itin o= t5e B5ole Constit7tion& o$ t5e total ove$5a7l o= t5eConstit7tion. An4t5in less is an amen*ment o$ 7st a c5ane o= s/ecic/$ovisions onl4& t5e intention bein not t5e c5ane o= t5e enti$e Constit7tion& b7t
onl4 t5e im/$ovement o= s/ecic /a$ts o$ t5e a**ition o= /$ovisions *eeme*essential as a conseI7ence o= neB con*itions o$ t5e elimination o= /a$ts al$ea*4consi*e$e* obsolete o$ 7n$es/onsive to t5e nee*s o= t5e times. Un*e$ t5is vieB&s7bstantial amen*ments a$e still amen*ments an* t57s can be /$o/ose* b4 t5e/eo/le via an initiative.
Same Same Same Same Same Same T5e constit7tion *oes not *e$ive its =o$ce=$om t5e convention B5ic5 =$ame* it& b7t =$om t5e /eo/le B5o $atie* it& t5e intentto be a$$ive* at is t5at o= t5e /eo/le& an* it is not to be s7//ose* t5at t5e4 5avelooe* =o$ an4 *a$ o$ abst$7se meanin in t5e Bo$*s em/lo4e*& b7t $at5e$ t5att5e4 5ave acce/te* t5em in t5e sense most obvio7s to t5e common 7n*e$stan*in&an* $atie* t5e inst$7ment in t5e belie= t5at t5at Bas t5e sense *esine* to beconve4e* A constit7tion is not to be inte$/$ete* on na$$oB o$ tec5nical /$inci/les&b7t libe$all4 an* on b$oa* ene$al lines& to accom/lis5 t5e obect o= itsestablis5ment an* ca$$4 o7t t5e $eat /$inci/les o= ove$nmentFnot to *e=eatt5em.FAs Be cannot be 7i*e* Bit5 ce$taint4 b4 t5e inconcl7sive o/inions o= t5eCommissione$s on t5e *ie$ence
1#
OL. "0"& OCTO(ER %"& %006
1#
Lambino vs. Commission on Elections
betBeen sim/le an* s7bstantial amen*ments o$ B5et5e$ s7bstantialamen*ments amo7ntin to $evision a$e cove$e* b4 /eo/le<s initiative& it be5ooves7s to =olloB t5e ca$*inal $7le in inte$/$etin Constit7tions& i.e.& const$7e t5em to iveeect to t5e intention o= t5e /eo/le B5o a*o/te* it. T5e ill7st$io7s Coole4 eH/lainsits $ationale Bell& vi:.K H H H t5e constit7tion *oes not *e$ive its =o$ce =$om t5e
convention B5ic5 =$ame* it& b7t =$om t5e /eo/le B5o $atie* it& t5e intent to bea$$ive* at is t5at o= t5e /eo/le& an* it is not to be s7//ose* t5at t5e4 5ave looe*=o$ an4 *a$ o$ abst$7se meanin in t5e Bo$*s em/lo4e*& b7t $at5e$ t5at t5e4 5aveacce/te* t5em in t5e sense most obvio7s to t5e common 7n*e$stan*in& an*$atie* t5e inst$7ment in t5e belie= t5at t5at Bas t5e sense *esine* to be
conve4e*. T5ese /$ocee*ins t5e$e=o$e a$e less concl7sive o= t5e /$o/e$const$7ction o= t5e inst$7ment t5an a$e leislative /$ocee*ins o= t5e /$o/e$const$7ction o= a stat7te since in t5e latte$ case it is t5e intent o= t5e leislat7$e Besee& B5ile in t5e =o$me$ Be a$e en*eavo$in to a$$ive at t5e intent o= t5e /eo/let5$o75 t5e *isc7ssion an* *elibe$ations o= t5ei$ $e/$esentatives. T5e 5isto$4 o= t5ecallin o= t5e convention& t5e ca7ses B5ic5 le* to it& an* t5e *isc7ssions an* iss7esbe=o$e t5e /eo/le at t5e time o= t5e election o= t5e *eleates& Bill sometimes beI7ite as inst$7ctive an* satis=acto$4 as an4t5in to be at5e$e* =o$m t5e/$ocee*ins o= t5e convention. Co$olla$il4& a constit7tion is not to be inte$/$ete* onna$$oB o$ tec5nical /$inci/les& b7t libe$all4 an* on b$oa* ene$al lines& toaccom/lis5 t5e obect o= its establis5ment an* ca$$4 o7t t5e $eat /$inci/les o=ove$nmentFnot to *e=eat t5em. One o= t5ese $eat /$inci/les is t5e sove$eint4 o= t5e /eo/le.
Same Same Same Same Same Same T5e a$7ment t5at t5e /eo/le t5$o75initiative cannot /$o/ose s7bstantial amen*ments to c5ane t5e Constit7tion t7$nssove$eint4 on its 5ea*.FT5e en* $es7lt is Section %& A$ticle Q)) o= t5e 1-Constit7tion B5ic5 eH/$esse* t5e $i5t o= t5e sove$ein /eo/le to /$o/oseamen*ments to t5e Constit7tion b4 *i$ect action o$ t5$o75 initiative. To t5ateHtent& t5e *eleate* /oBe$ o= Con$ess to amen* o$ $evise t5e Constit7tion 5as tobe a*7ste* *oBnBa$*. T57s& Section 1& A$ticle ) o= t5e 1- Constit7tion 5as to be$eminte* an* noB /$ovi*esK T5e leislative /oBe$ s5all be veste* in t5e Con$esso= t5e P5ili//ines B5ic5 s5all consist o= a Senate an* a +o7se o= Re/$esentatives&
eHce/t to t5e eHtent $ese$ve* to t5e /eo/le b4 t5e /$ovision on initiative an*$e=e$en*7m. P$escin*in =$om t5ese baseline /$emises& t5e a$7ment t5at t5e/eo/le t5$o75 initiative cannot /$o/ose s7bstantial amen*ments to c5ane t5eConstit7tion t7$ns sove$eint4 on its 5ea*. At t5e ve$4 least& t5e s7bmissionconst$icts t5e *emoc$atic s/ace =o$ t5e eHe$cise o= t5e *i$ect sove$eint4 o= t5e/eo/le. )t also *eni$ates t5e
1!
1!
SUPREME COURT REPORTS ANNOTATEDLambino vs. Commission on Elections
sove$ein /eo/le B5o t5e4 claim can onl4 be t$7ste* Bit5 t5e /oBe$ to /$o/osesim/le b7t not s7bstantial amen*ments to t5e Constit7tion. Acco$*in to Sinco&t5e conce/t o= sove$eint4 s5o7l* be st$ictl4 7n*e$stoo* in its leal meanin as itBas o$iinall4 *evelo/e* in laB. Leal sove$eint4& 5e eH/laine*& is t5e /ossessiono= 7nlimite* /oBe$ to mae laBs. )ts /ossesso$ is t5e leal sove$ein. )t im/lies t5e
oine* t5e mino$it4 o= ve ?"@ 7stices. +e o/ine* Bit5o7t an4 eI7ivocation t5at R.A.6#" Bas a s7Jcient laB.
Same Same Same Same Same Same Un*e$ an4 alc5em4 o= laB& a *ea*loce*vote o= siH ?6@ is not a mao$it4 an* a non8mao$it4 cannot B$ite a $7le Bit5/$ece*ential val7e.F)t o75t to be be4on* *ebate t5at t5e siH ?6@ 7stices B5o
vote* t5at R.A. 6#" is an ins7Jcient laB =aile* to establis5 a *oct$ine t5at co7l*se$ve as a /$ece*ent. Un*e$ an4 alc5em4 o= laB& a *ea*loce* vote o= siH ?6@ is nota mao$it4 an* a non8mao$it4 cannot B$ite a $7le Bit5 /$ece*ential val7e.
Same Same Same Same Same Same )n t5e Unite* States& an aJ$mance in t5e;e*e$al S7/$eme Co7$t 7/on eI7al *ivision o= o/inion is not an a7t5o$it4 =o$ t5e
*ete$mination o= ot5e$ cases& eit5e$ in t5at Co7$t o$ in t5e in=e$io$ =e*e$al co7$ts.F T5e 7$is/$7*ence t5at an eI7all4 *ivi*e* Co7$t can neve$ set a /$ece*ent is Bell8settle*. T57s& in t5e Unite* States& an aJ$mance in t5e ;e*e$al S7/$eme Co7$t7/on eI7al *ivision o= o/inion is not an a7t5o$it4 =o$ t5e *ete$mination o= ot5e$cases& eit5e$ in t5at Co7$t o$ in t5e in=e$io$ =e*e$al co7$ts. )n Neil v. (ie$s& B5ic5Bas a 5abeas co$/7s state /$ocee*in b4 a state /$isone$& t5e U.S. S7/$eme Co7$t5el* t5at its eI7all4 *ivi*e* aJ$mance o= /etitione$<s state co7$t conviction Bas notan act7al a*7*ication ba$$in s7bseI7ent consi*e$ation b4 t5e *ist$ict co7$t on5abeas co$/7s. )n *isc7ssin t5e non8bin*in eect o= an eI7al *ivision $7lin& t5eCo7$t $evieBe* t5e 5isto$4 o= cases eH/licatin t5e *is/osition aJ$me* b4 aneI7all4 *ivi*e* Co7$tK )n t5is li5t& Be $evieB o7$ cases eH/licatin t5e *is/osition
aJ$me* b4 an eI7all4 *ivi*e* Co7$t. On B5at Bas a//a$entl4 t5e $st occasion o= an eI7al *ivision& T5e Antelo/e& 10 ,5eat& 66& 6 L. E*. %6 ?1%"@& t5e Co7$t sim/l4aJ$me* on t5e /oint o= *ivision Bit5o7t m7c5 *isc7ssion. )*.& at 1%681%. ;ace*Bit5 a simila$ *ivision *7$in t5e neHt Te$m& t5e Co7$t aain aJ$me*& C5ie= 27sticeMa$s5all eH/lainin t5at t5e /$inci/les o= laB B5ic5 5ave been a$7e*& cannot besettle* b7t t5e 7*ment is aJ$me*& t5e co7$t bein *ivi*e* in o/inion 7/on it.Ettin v. (an o= Unite* States& 11 ,5eat. "-& & 6 L. E*. !1- ?1%6@. As Bas late$elabo$ate* in s7c5 cases& it is t5e a//ellant o$ /etitione$ B5o ass t5e Co7$t toove$t7$n a loBe$ co7$t<s *ec$ee. )= t5e 7*es a$e *ivi*e*& t5e $eve$sal cannot be5a*& =o$ no o$*e$ can be ma*e. T5e 7*ment o= t5e co7$t beloB& t5e$e=o$e& stan*sin =7ll =o$ce. )t is in*ee*& t5e settle* /$actice in s7c5 case to ente$ a 7*ment o=
aJ$mance b7t t5is is onl4 t5e most convenient mo*e o= eH/$essin t5e =act t5att5e ca7se is nall4 *is/ose* o= in con=o$mit4 Bit5 t5e action o= t5e co7$t beloB& an*t5at t5at co7$t can /$ocee* to en=o$ce its 7*ment. T5e leal eect Bo7l* be t5esame
16
16
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
i= t5e a//eal& o$ B$it o= e$$o$& Be$e *ismisse*. D7$ant v. EsseH Co.& ,all. 10& 11%&1- L. E*. 1"! ?16-@. No$ is an aJ$mance b4 an eI7all4 *ivi*e* Co7$t entitle* to/$ece*ential Bei5t. O5io eH $el. Eaton v. P$ice& #6! U.S. %6#& %6!& 0 S. Ct. 1!6#&1!6!& ! L. E*. %* 10 ?1-60@. H H H T5is *oct$ine establis5e* in Neil 5as not beenove$t7$ne* an* 5as been cite* Bit5 a//$oval in a n7mbe$ o= s7bseI7ent cases& an*5as been a//lie* in va$io7s state 7$is*ictions.
Same Same Same Same Same Same Same T5e /$evailin *oct$ine is t5at& t5eaJ$mance b4 an eI7all4 *ivi*e* co7$t me$el4 *is/oses o= t5e /$esent cont$ove$s4as betBeen t5e /a$ties an* settles no iss7e o= laBFt5e aJ$mance leaves 7nsettle*t5e /$inci/le o= laB /$esente* b4 t5e case an* is not entitle* to /$ece*ential Bei5to$ val7e.FA=te$ a to7$ o= t5ese cases& Be can sa=el4 concl7*e t5at t5e /$evailin
*oct$ine is t5at& t5e aJ$mance b4 an eI7all4 *ivi*e* co7$t me$el4 *is/oses o= t5e/$esent cont$ove$s4 as betBeen t5e /a$ties an* settles no iss7e o= laB t5eaJ$mance leaves 7nsettle* t5e /$inci/le o= laB /$esente* b4 t5e case an* is notentitle* to /$ece*ential Bei5t o$ val7e. )n ot5e$ Bo$*s& t5e *ecision onl4 5as $es
7*icata an* not sta$e *ecisis eect. )t is not concl7sive an* bin*in 7/on ot5e$/a$ties as $es/ects t5e cont$ove$sies in ot5e$ actions.
Same Same Same Same Re/7blicanism St$i//e* o= its abst$actions& *emoc$ac4is all abo7t B5o 5as t5e sove$ein $i5t to mae *ecisions =o$ t5e /eo/le an* o7$Constit7tion clea$l4 an* cateo$icall4 sa4s it is no ot5e$ t5an t5e /eo/le t5emselves=$om B5om all ove$nment a7t5o$it4 emanatesFt5is $i5t o= t5e /eo/le to mae*ecisions is t5e essence o= sove$eint4& an* it cannot $eceive an4 minimalist
inte$/$etation =$om t5is Co7$t.FT5e $st /$inci/le ent5$one* b4 bloo* in o7$Constit7tion is t5e sove$eint4 o= t5e /eo/le. ,e o75t to be conce$ne* Bit5 t5is$st /$inci/le& i.e.& t5e in5e$ent $i5t o= t5e sove$ein /eo/le to *eci*e B5et5e$ toamen* t5e Constit7tion. St$i//e* o= its abst$actions& *emoc$ac4 is all abo7t B5o 5ast5e sove$ein $i5t to mae *ecisions =o$ t5e /eo/le an* o7$ Constit7tion clea$l4an* cateo$icall4 sa4s it is no ot5e$ t5an t5e /eo/le t5emselves =$om B5om allove$nment a7t5o$it4 emanates. T5is $i5t o= t5e /eo/le to mae *ecisions is t5eessence o= sove$eint4& an* it cannot $eceive an4 minimalist inte$/$etation =$om t5isCo7$t. )= t5e$e is an4 /$inci/le in t5e Constit7tion t5at cannot be *il7te* an* is non8neotiable& it is t5is sove$ein $i5t o= t5e /eo/le to *eci*e.
a /etition o= at least tBelve /e$ cent7m o= t5e total n7mbe$ o= $eiste$e* vote$s& o=B5ic5 eve$4 leislative *ist$ict m7st be $e/$esente* b4 at least t5$ee /e$ cent7m o=t5e $eiste$e* vote$s t5e$ein. Evi*entl4& =o$ t5e /eo/le to /$o/ose amen*ments tot5e Constit7tion& t5e4 m7st& in t5e $st instance& noB eHactl4 B5at t5e4 a$e/$o/osin. )t is not eno75 t5at t5e4 me$el4 /ossess a ene$al i*ea o= t5e /$o/ose*
c5anes& as t5e Constit7tion s/eas o= a *i$ect /$o/osal b4 t5e /eo/le.Same Same Same T5e $eI7i$ement o= settin =o$t5 t5e com/lete teHt o= t5e/$o/ose* c5anes in t5e /etition =o$ initiative is a sa=e7a$* aainst =$a7* an**ece/tion.FT5e $eI7i$ement o= settin =o$t5 t5e com/lete teHt o= t5e /$o/ose*c5anes in t5e /etition =o$ initiative is a sa=e7a$* aainst =$a7* an* *ece/tion. )=t5e B5ole teHt o= t5e /$o/ose* c5anes is containe* in o$ attac5e* to t5e /etition&inte$calations an* $i*e$s ma4 be *7l4 avoi*e*. Onl4 t5en can Be be ass7$e* t5at t5e/$o/ose* c5anes a$e t$7l4 o= t5e /eo/le an* t5at t5e sinato$ies 5ave been =7ll4a//$ise* o= its im/lications. )= a stat7to$4 /$ovision is essential to 7a$* aainst=$a7*& co$$7/tion o$ *ece/tion in t5e initiative an* $e=e$en*7m /$ocess& s7c5/$ovision m7st be vieBe* as an in*is/ensable $eI7i$ement an* =ail7$e to
s7bstantiall4 com/l4 t5e$eBit5 is =atal. T5e =ail7$e o= /etitione$s in t5is case tocom/l4 Bit5 t5e =7ll teHt $eI7i$ement $es7ltantl4 $en*e$e* t5ei$ /etition =o$ initiative=atall4 *e=ective.
Same Same Same Lo$ollin One8S7bect One8Title R7le T5e one s7bect $7le& as$elatin to an initiative to amen* t5e Constit7tion& 5as t5e same obect an* /7$/oseas t5e one s7bect8one bill $7le embo*ie* in A$ticle )& Section %6?1@ o= t5eConstit7tion As a//lie* to t5e initiative /$ocess& t5e one s7bect $7le is essentiall4*esine* to /$event s7$/$ise an* =$a7* on t5e electo$ate.FT5e /etition =o$ initiativeis lieBise i$$et$ievabl4 in$m beca7se it violates t5e one s7bect $7le 7n*e$ Section10?a@ o= R.A. 6#"K SEC. 10. P$o5ibite* Meas7$es.FT5e =olloBin cannot be t5es7bect o= an initiative o$
1-
OL. "0"& OCTO(ER %"& %006
1-
Lambino vs. Commission on Elections
$e=e$en*7m /etitionK ?a@ No /etition emb$acin mo$e t5an one s7bect s5all bes7bmitte* to t5e electo$ate H H H T5e one s7bect $7le& as $elatin to an initiative to
amen* t5e Constit7tion& 5as t5e same obect an* /7$/ose as t5e one s7bect8onebill $7le embo*ie* in A$ticle )& Section %6?1@ o= t5e Constit7tion. To elabo$ate& t5eone s7bect8one bill $7le Bas *esine* to *o aBa4 Bit5 t5e /$actice o= inse$tin tBoo$ mo$e 7n$elate* /$ovisions in one bill& so t5at t5ose =avo$in one /$ovision Bo7l*be com/elle* to a*o/t t5e ot5e$s. (4 t5is /$ocess o= lo8$ollin& t5e a*o/tion o= bot5/$ovisions co7l* be accom/lis5e* an* ens7$e*& B5en neit5e$& i= stan*in alone&co7l* s7ccee* on its oBn me$its. As a//lie* to t5e initiative /$ocess& t5e one s7bect$7le is essentiall4 *esine* to /$event s7$/$ise an* =$a7* on t5e electo$ate. )t is
Same Same Same )t is not *iJc7lt to see t5at B5ile t5e /$o/ose* c5anes a//ea$
to $elate onl4 to a s5i=t in t5e =o$m o= ove$nment& it act7all4 sees to aect ot5e$s7bects t5at a$e not $easonabl4 e$mane to t5e constit7tional alte$ation t5at is/7$/o$te*l4 so75t.FT5e /$o/ose* c5anes to t5e Constit7tion cove$ ot5e$ s7bectst5at a$e be4on* t5e main /$o/osal es/o7se* b4 t5e /etitione$s. A/a$t =$om a s5i=t=$om t5e /$esi*ential to a /a$liamenta$4 =o$m o= ove$nment& t5e /$o/ose* c5anesincl7*e t5e abolition o= one +o7se o= Con$ess& an* t5e convenin o= a constit7entassembl4 to /$o/ose a**itional amen*ments to t5e Constit7tion. Also incl7*e*Bit5in its te$ms is an omnib7s *ecla$ation t5at t5ose constit7tional /$ovisions 7n*e$A$ticles ) an* ))& B5ic5 a$e inconsistent Bit5 t5e 7nicame$al8/a$liamenta$4 =o$m o= ove$nment& s5all be *eeme* amen*e* to con=o$m t5e$eto. )t is not *iJc7lt to seet5at B5ile t5e /$o/ose* c5anes a//ea$ to $elate onl4 to a s5i=t in t5e =o$m o=
ove$nment& it act7all4 sees to aect ot5e$ s7bects t5at a$e not $easonabl4e$mane to t5e constit7tional alte$ation t5at is /7$/o$te*l4 so75t. ;o$ one& a s5i=tto a /a$liamenta$4 s4stem o= ove$nment *oes not necessa$il4 $es7lt in t5ea*o/tion o= a 7nicame$al leislat7$e. A /a$liamenta$4 s4stem can eHist in man4*ie$ent 54b$i* =o$ms o= ove$nment& B5ic5 ma4 o$ ma4 not emb$ace7nicame$alism. )n ot5e$ Bo$*s& t5e s5i=t =$om /$esi*ential to /a$liamenta$4 st$7ct7$ean* =$om a bicame$al to a 7nicame$al leislat7$e is neit5e$ t5e ca7se no$ eect o=t5e ot5e$.
Same Same Same T5e *istinction betBeen t5e tBo te$msFamen*ment an*$evisionFis not as sinicant in t5e conteHt o= t5e /ast constit7tions& as it s5o7l*be noB 7n*e$ t5e 1- Constit7tion since 7n*e$ t5e
1-0
1-0
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
/ast constit7tions& it Bas Con$ess alone& actin eit5e$ as a constit7ent assembl4 o$b4 callin o7t a constit7tional convention& t5at eHe$cise* a7t5o$it4 to eit5e$ amen*
o$ $evise t5e Constit7tion t5$o75 t5e /$oce*7$es t5e$ein *esc$ibe*.FT5e =o$eoint$a*itional eH/osition o= t5e *ie$ence betBeen amen*ment an* $evision 5as in*ee*7i*e* 7s t5$o75o7t o7$ constit7tional 5isto$4. +oBeve$& t5e *istinction betBeent5e tBo te$ms is not& to m4 min*& as sinicant in t5e conteHt o= o7$ /astconstit7tions& as it s5o7l* be noB 7n*e$ t5e 1- Constit7tion. T5e $eason =o$ t5is isa//a$ent. Un*e$ o7$ /ast constit7tions& it Bas Con$ess alone& actin eit5e$ as aconstit7ent assembl4 o$ b4 callin o7t a constit7tional convention& t5at eHe$cise*a7t5o$it4 to eit5e$ amen* o$ $evise t5e Constit7tion t5$o75 t5e /$oce*7$es t5e$ein
*esc$ibe*. Alt5o75 t5e *istinction betBeen t5e tBo te$ms Bas t5eo$eticall4$econi:e* 7n*e$ bot5 t5e 1-#" an* 1-# Constit7tions& t5e nee* to 5i5li5t t5e*ie$ence Bas not as mate$ial beca7se it Bas onl4 Con$ess t5at co7l* eectconstit7tional c5anes b4 c5oosin betBeen t5e tBo mo*alities. +oBeve$& it is*ie$ent noB 7n*e$ t5e 1- Constit7tion. A/a$t =$om /$ovi*in =o$ t5e tBo mo*es
o= eit5e$ Con$ess constit7tin itsel= as a constit7ent assembl4 o$ callin o7t =o$ aconstit7tional convention& a t5i$* mo*e Bas int$o*7ce* =o$ /$o/osin c5anes to t5eConstit7tion. T5is mo*e $e=e$s to t5e /eo/le<s $i5t to /$o/ose amen*ments to t5e=7n*amental laB t5$o75 t5e lin o= a /etition =o$ initiative.
Same Same Same T5e /$o/ose* c5anes Bill 5ave se$io7s I7alitativeconseI7ences on t5e Constit7tion.F)t ma4 t57s be conce*e* t5at& I7antitativel4&t5e c5anes es/o7se* b4 t5e /$o/onents in t5is case Bill aect onl4 tBo ?%@ o7t o=t5e ei5teen ?1@ a$ticles o= t5e 1- Constit7tion& namel4& A$ticle ) ?LeislativeDe/a$tment@ an* A$ticle )) ?EHec7tive De/a$tment@& as Bell as /$ovisions t5at Billens7$e t5e smoot5 t$ansition =$om a /$esi*ential8bicame$al s4stem to a/a$liamenta$487nicame$al st$7ct7$e o= ove$nment. T5e I7antitative eect o= t5e
/$o/ose* c5anes is neit5e$ b$oa* no$ eHtensive an* Bill not aect t5e s7bstantialenti$et4 o= t5e 1- Constit7tion. +oBeve$& it is m4 o/inion t5at t5e /$o/ose*c5anes Bill 5ave se$io7s I7alitative conseI7ences on t5e Constit7tion. T5einitiative /etition& i= s7ccess=7l& Bill 7n*o7bte*l4 alte$& not onl4 o7$ basicove$nmental /lan& b7t also $e*ene o7$ $i5ts as citi:ens in $elation toove$nment. T5e /$o/ose* c5anes Bill set into motion a $i//le eect t5at Billst$ie at t5e ve$4 =o7n*ation o= o7$ basic constit7tional /lan. )t is t5e$e=o$e anim/e$missible constit7tional $evision t5at ma4 not be eecte* t5$o75 a /eo/le<sinitiative.
Same Same Same T5e s5i=t =$om /$esi*ential to /a$liamenta$4 =o$m o=ove$nment cannot be $ea$*e* as an4t5in b7t a *$astic c5ane. )t Bill
1-1
OL. "0"& OCTO(ER %"& %006
1-1
Lambino vs. Commission on Elections
$eI7i$e a total ove$5a7l o= o7$ ove$nmental st$7ct7$e an* involve a $eo$ientation int5e ca$*inal *oct$ines t5at ove$n o7$ constit7tional set87/.F)n t5e /$o/ose*
$es7ltin ove$nmental =$ameBo$ a$e nonet5eless $a*icall4 *ie$ent.ConseI7entl4& t5e s5i=t =$om /$esi*ential to /a$liamenta$4 =o$m o= ove$nmentcannot be $ea$*e* as an4t5in b7t a *$astic c5ane. )t Bill $eI7i$e a total ove$5a7lo= o7$ ove$nmental st$7ct7$e an* involve a $eo$ientation in t5e ca$*inal *oct$inest5at ove$n o7$ constit7tional set87/. As eH/laine* b4 ;$. 2oaI7in (e$nas& S.2.& a
sBitc5 =$om t5e /$esi*ential s4stem to a /a$liamenta$4 s4stem Bo7l* be a $evisionbeca7se o= its ove$8all im/act on t5e enti$e constit7tional st$7ct7$e. )t cannot& b4an4 stan*a$*& be *eeme* as a me$e constit7tional amen*ment.
Same Same Same T5e incl7sion o= a /$o/osal to convene a constit7ent assembl4lieBise s5oBs t5e intention o= t5e /$o/onents to eect even mo$e =a$$eac5inc5anes in o7$ =7n*amental laB T5e /$o/osal to convene a constit7ent assembl4&B5ic5 b4 its te$ms is man*ato$4& Bill /$acticall4 eo/a$*i:e t5e =7t7$e o= t5e enti$eConstit7tion an* /lace it on s5a4 $o7n*s.FT5e incl7sion o= a /$o/osal to convenea constit7ent assembl4 lieBise s5oBs t5e intention o= t5e /$o/onents to eecteven mo$e =a$8$eac5in c5anes in o7$ =7n*amental laB. )= t5e o$iinal intent Be$eto sim/l4 s5i=t t5e =o$m o= ove$nment to t5e /a$liamenta$4 s4stem& t5en t5e$e
Bo7l* 5ave been no nee* =o$ t5e callin o7t o= a constit7ent assembl4 to /$o/ose=7$t5e$ amen*ments to t5e Constit7tion. )t s5o7l* be note* t5at& once convene*& aconstit7ent assembl4 can *o aBa4 an* $e/lace an4 constit7tional /$ovision B5ic5ma4 not even 5ave a bea$in on t5e s5i=t to a /a$liamenta$4 s4stem o= ove$nment.
T5e incl7sion o= s7c5 a /$o/osal $eveals t5e /$o/onents< /lan to consi*e$ all/$ovisions o= t5e constit7tion& eit5e$ to *ete$mine B5ic5 o= its /$ovisions s5o7l* bealte$e* o$ s7//$esse* o$ B5et5e$ t5e B5ole *oc7ment s5o7l* be $e/lace* Bit5 anenti$el4 neB one. ConseI7entl4& it is not t$7e t5at onl4 A$ticles ) an* )) a$ecove$e* b4 t5e allee* /eo/le<s initiative. T5e /$o/osal to convene a constit7entassembl4& B5ic5 b4 its te$ms is man*ato$4& Bill /$acticall4 eo/a$*i:e t5e =7t7$e o=t5e enti$e Constit7tion an*
1-%
1-%
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
/lace it on s5a4 $o7n*s. T5e /lan o= t5e /$o/onents& as $eecte* in t5ei$ /$o/ose*c5anes& oes be4on* t5e s5i=tin o= ove$nment =$om t5e /$esi*ential to t5e/a$liamenta$4 s4stem. )n*ee*& it co7l* even eHten* to t5e =7n*amental nat7$e o=
o7$ state as a *emoc$atic an* $e/7blican state.
Same Same Same T5e voice an* Bill o= o7$ /eo/le cannot be an4 clea$e$ B5ent5e4 limite* /eo/le<s initiative to me$e amen*ments o= t5e =7n*amental laB an*eHcl7*e* $evisions in its sco/e A$ticle Q)) on amen*ments an* $evisions is calle* aconstit7tion o= sove$eint4 beca7se it *enes t5e constit7tional meanin o=sove$eint4 o= t5e /eo/leFit is t5$o75 t5ese /$ovisions t5at t5e sove$ein/eo/le 5ave alloBe* t5e eH/$ession o= t5ei$ sove$ein Bill an* 5ave canali:e* t5ei$
/oBe$s B5ic5 Bo7l* ot5e$Bise be /lena$4.FO7$ /eo/le too 5ave s/oen B5en t5e4ove$B5elminl4 $atie* t5e 1- Constit7tion& Bit5 t5e /$ovisions on amen*mentsan* $evisions 7n*e$ A$ticle Q)). T5e voice an* Bill o= o7$ /eo/le cannot be an4clea$e$ B5en t5e4 limite* /eo/le<s initiative to me$e amen*ments o= t5e=7n*amental laB an* eHcl7*e* $evisions in its sco/e. )n t5is $ea$*& t5e tas o= t5e
Co7$t is to ive eect to t5e /eo/le<s voice& as eH/$esse* 7neI7ivocall4 t5$o75 t5eConstit7tion. A$ticle Q)) on amen*ments an* $evisions is calle* a constit7tion o=sove$eint4 beca7se it *enes t5e constit7tional meanin o= sove$eint4 o= t5e/eo/le. )t is t5$o75 t5ese /$ovisions t5at t5e sove$ein /eo/le 5ave alloBe* t5eeH/$ession o= t5ei$ sove$ein Bill an* 5ave canali:e* t5ei$ /oBe$s B5ic5 Bo7l*ot5e$Bise be /lena$4. (4 a//$ovin t5ese /$ovisions& t5e sove$ein /eo/le 5ave*eci*e* to limit t5emselves an* =7t7$e ene$ations in t5e eHe$cise o= t5ei$ sove$ein/oBe$. T5e4 a$e t57s bo7n* b4 t5e constit7tion an* a$e /oBe$less& B5ateve$ t5ei$n7mbe$s& to c5ane o$ t5Ba$t its man*ates& eHce/t t5$o75 t5e means /$esc$ibe*b4 t5e Constit7tion itsel=.
Same Same Same ,5ile Section 1 o= A$ticle Q)) ma4 be consi*e$e* as a /$ovision
*eleatin t5e sove$ein /oBe$s o= amen*ment an* $evision to Con$ess& Section %&in cont$ast& is a sel=8limitation on t5at sove$ein /oBe$ )n c5oosin to eHe$cise sel=8limitation& t5e$e is no absence o$ lac o= even a =$action o= t5e sove$ein /oBe$ o=t5e /eo/le since sel=8limitation itsel= is an eH/$ession o= t5at sove$ein /oBe$.F)t ist57s mis/lace* to a$7e t5at t5e /eo/le ma4 /$o/ose $evisions to t5e Constit7tiont5$o75 /eo/le<s initiative beca7se t5ei$ $e/$esentatives& B5ose /oBe$ is me$el4*eleate*& ma4 *o so. ,5ile Section 1 o= A$ticle Q)) ma4 be consi*e$e* as a/$ovision *eleatin t5e sove$ein /oBe$s o= amen*ment an* $evision to Con$ess&Section %& in cont$ast& is a sel=8limitation on t5at sove$ein /oBe$. )n t5e Bo$*s o=Coole4K H H H Alt5o75 b4 t5ei$ constit7tions t5e /eo/le 5ave *eleate* t5e eHe$ciseo= sove$ein /oBe$s to t5e seve$al *e8
1-#
OL. "0"& OCTO(ER %"& %006
1-#
Lambino vs. Commission on Elections
/a$tments& t5e4 5ave not t5e$eb4 *iveste* t5emselves o= t5e sove$eint4. T5e4$etain in t5ei$ oBn 5an*s& so =a$ as t5e4 5ave t5o75t it nee*=7l to *o so& a /oBe$ tocont$ol t5e ove$nments t5e4 c$eate& an* t5e t5$ee *e/a$tments a$e $es/onsible to
an* s7bect to be o$*e$e*& *i$ecte*& c5ane* o$ abolis5e* b4 t5em. (7t t5is cont$olan* *i$ection m7st be eHe$cise* in t5e leitimate mo*e /$evio7sl4 a$ee* 7/on. T5evoice o= t5e /eo/le& actin in t5ei$ sove$ein ca/acit4& can be o= leal =o$ce onl4B5en eH/$esse* at t5e times an* 7n*e$ t5e con*itions B5ic5 t5e4 t5emselves 5ave/$esc$ibe* an* /ointe* o7t b4 t5e Constit7tion& o$ B5ic5& consistentl4 Bit5 t5eConstit7tion& 5ave been /$esc$ibe* an* /ointe* o7t =o$ t5em b4 stat7te an* i= b4an4 /o$tion o= t5e /eo/le& 5oBeve$ la$e& an attem/t s5o7l* be ma*e to inte$=e$eBit5 t5e $e7la$ Bo$in o= t5e aencies o= ove$nment at an4 ot5e$ time o$ in an4
ot5e$ mo*e t5an as alloBe* b4 eHistin laB& eit5e$ constit7tional o$ stat7to$4& itBo7l* be $evol7tiona$4 in c5a$acte$& an* m7st be $esiste* an* $e/$esse* b4 t5eoJce$s B5o& =o$ t5e time bein& $e/$esent leitimate ove$nment. ?)talics s7//lie*@ConseI7entl4& t5e$e is 5e$e no case o= t5e s/$in $isin above its so7$ce. No$ is itone B5e$e t5e /eo/le<s sove$ein /oBe$ 5as been $eleate* to a lesse$ /lane t5an
t5at o= Con$ess. )n c5oosin to eHe$cise sel=8limitation& t5e$e is no absence o$ laco= even a =$action o= t5e sove$ein /oBe$ o= t5e /eo/le since sel=8limitation itsel= isan eH/$ession o= t5at sove$ein /oBe$. T5e /eo/le 5ave c5osen to *eleate an*limit t5ei$ sove$ein /oBe$ b4 vi$t7e o= t5e Constit7tion an* a$e bo7n* b4 t5e/a$amete$s t5at t5e4 t5emselves 5ave o$*aine*. Ot5e$Bise& i= t5e /eo/le c5oose to*e=4 t5ei$ sel=8im/ose* constit7tional $est$aints& Be Bill be =ace* Bit5 a$evol7tiona$4 sit7ation.
Same Same Same Even as Be aJ$m& 5oBeve$& t5at as/ect o= *i$ect *emoc$ac4&Be s5o7l* not =o$et t5at& $st an* =o$emost& Be a$e a constit7tional *emoc$ac4.F)t5as $e/eate*l4 been em/5asi:e* t5at o7$s is a *emoc$atic an* $e/7blican state.Even as Be aJ$m& 5oBeve$& t5at as/ect o= *i$ect *emoc$ac4& Be s5o7l* not =o$et
t5at& $st an* =o$emost& Be a$e a constit7tional *emoc$ac4. To 7/5ol* *i$ect*emoc$ac4 at t5e eH/ense o= t5e =7n*amental laB is to sanction& not aconstit7tional& b7t an eHt$a8constit7tional $eco7$se. T5is is clea$l4 be4on* t5e/oBe$s o= t5e Co7$t B5o& b4 sove$ein man*ate& is t5e 7a$*ian an* ee/e$ o= t5eConstit7tion.
SANDOAL8GUT)ERRE& 2.& Dissentin O/inionK
Constit7tional LaB Amen*ments an* Revisions o= t5e Constit7tion Peo/le<s)nitiative Re/7blicanism Ca7tion s5o7l* be eHe$cise* in c5oosin one<s battlec$4&lest it *oes mo$e 5a$m t5an oo* to one<s ca7se.FoH /o/7li
1-!
1-!
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
voH DeiFt5e voice o= t5e /eo/le is t5e voice o= Go*. Ca7tion s5o7l* be eHe$cise* inc5oosin one<s battlec$4& lest it *oes mo$e 5a$m t5an oo* to one<s ca7se. )n itso$iinal conteHt& t5e com/lete ve$sion o= t5is Latin /5$ase means eHactl4 t5eo//osite o= B5at it is =$eI7entl4 taen to mean. )t o$iinate* =$om a 5ol4 man& t5e
mon Alc7in& B5o a*vise* C5a$lemane& nec a7*ien*i I7i solent *ice$e voH /o/7livoH Dei I77m t7m7lt7ositas v7li sem/e$ insaniae /$oHima sit& meanin& An*t5ose /eo/le s5o7l* not be listene* to B5o ee/ on sa4in& T5e voice o= t5e /eo/leis t5e voice o= Go*&< since t5e $ioto7sness o= t5e c$oB* is alBa4s ve$4 close toma*ness. Pe$5a/s& it is b4 /$ovi*ence t5at t5e t$7e meanin o= t5e Latin /5$ase is$eveale* 7/on /etitione$s an* t5ei$ alliesFt5at t5e4 ma4 $eect 7/on t5e since$it4an* a7t5enticit4 o= t5ei$ /eo/le<s initiative.
Same Same Same Same +isto$4 5as been a Bitness to co7ntless iniI7itiescommitte* in t5e name o= Go* A=te$ a t5o$o75 consi*e$ation o= t5e /etitions& )5ave come to $eali:e t5at man& Bit5 5is inen7it4 an* a$$oance& 5as /e$=ecte* t5ec$a=t o= imitatin t5e voice o= Go*.F+isto$4 5as been a Bitness to co7ntlessiniI7ities committe* in t5e name o= Go*. ,a$s Be$e Bae*& *es/otism tole$ate*
an* o//$essions 7stie*Fall t5ese t$ans/i$e* as man boaste* o= Go*<s im/$imat7$. To*a4& /etitione$s an* t5ei$ allies 57m t5e same $all4in call& convincin t5is Co7$tt5at t5e /eo/le<s initiative is t5e voice o= t5e /eo/le an*& t5e$e=o$e& t5e voice o=Go*. A=te$ a t5o$o75 consi*e$ation o= t5e /etitions& ) 5ave come to $eali:e t5atman& Bit5 5is inen7it4 an* a$$oance& 5as /e$=ecte* t5e c$a=t o= imitatin t5e voiceo= Go*. )t is aainst t5is in* o= eni7s t5at t5e Co7$t m7st 7a$* itsel=.
Same Same Same 27*icial RevieB T5e Resol7tion o= $es/on*ent COMELEC*en4in *7e co7$se to t5e /etition =o$ initiative on t5e basis o= a case ?Santiao@*eci*e* b4 t5is Co7$t cannot& in an4 Ba4& be c5a$acte$i:e* as ca/$icio7s o$B5imsical& /atent an* $oss& o$ a$bit$a$4 an* *es/otic.F 27$is/$7*ence teac5est5at an act o= a co7$t o$ t$ib7nal ma4 onl4 be consi*e$e* as committe* in $ave
ab7se o= *isc$etion B5en t5e same Bas /e$=o$me* in a ca/$icio7s o$ B5imsicaleHe$cise o= 7*ment. T5e ab7se o= *isc$etion m7st be so /atent an* $oss as toamo7nt to an evasion o= a /ositive *7t4 o$ to a vi$t7al $e=7sal to /e$=o$m a *7t4enoine* b4 laB& o$ to act at all in contem/lation o= laB& as B5e$e t5e /oBe$ iseHe$cise* in an a$bit$a$4 an* *es/otic manne$ b4 $eason o= /assion o$ /e$sonal5ostilit4. T5e Resol7tion o= $es/on*ent COMELEC *en4in *7e co7$se to t5e /etition=o$ initiative on t5e basis o= a case ?Santiao@ *eci*e* b4 t5is Co7$t cannot& in an4Ba4& be c5a$acte$i:e* as ca/$icio7s o$ B5imsical& /atent an* $oss& o$a$bit$a$4 an* *es/otic. On t5e cont$a$4& it Bas t5e most /$78
1-"
OL. "0"& OCTO(ER %"& %006
1-"
Lambino vs. Commission on Elections
*ent co7$se to tae. )t m7st be st$esse* t5at in Santiao& t5is Co7$t /e$manentl4enoins $es/on*ent COMELEC =$om ente$tainin o$ tain coni:ance o= an4/etition =o$ initiative on amen*ments to t5e Constit7tion 7ntil a s7Jcient laB s5all5ave been vali*l4 enacte*. )t bein a =act t5at Con$ess 5as not enacte* as7Jcient laB& $es/on*ent COMELEC 5as no alte$native b7t to a*5e$e to Santiao.
Ot5e$Bise& it is v7lne$able to a citation =o$ contem/t.
Same Same Same S7/$eme Co7$t 27*ments Sta$e Decisis T5e$e is consi*e$ablelite$at7$e abo7t B5et5e$ t5is *oct$ine o= sta$e *ecisis is a oo* o$ ba* one& b7t t5e*oct$ine is 7s7all4 7stie* b4 a$7ments B5ic5 =oc7s on t5e *esi$abilit4 o= stabilit4an* ce$taint4 in t5e laB an* also b4 notions o= 7stice an* =ai$ness.FT5e maHimsta$e *ecisis et non I7ieta move$e t$anslates stan* b4 t5e *ecisions an* *ist7$bnot B5at is settle*. As 7se* in o7$ 7$is/$7*ence& it means t5at once t5is Co7$t
5as lai* *oBn a /$inci/le o= laB as a//licable to a ce$tain state o= =acts& it Bo7l*a*5e$e to t5at /$inci/le an* a//l4 it to all =7t7$e cases in B5ic5 t5e =acts a$es7bstantiall4 t5e same as in t5e ea$lie$ cont$ove$s4. T5e$e is consi*e$able lite$at7$eabo7t B5et5e$ t5is *oct$ine o= sta$e *ecisis is a oo* o$ ba* one& b7t t5e *oct$ine is7s7all4 7stie* b4 a$7ments B5ic5 =oc7s on t5e *esi$abilit4 o= stabilit4 an*
ce$taint4 in t5e laB an* also b4 notions o= 7stice an* =ai$ness. 27stice (enaminCa$*o:o in 5is t$eatise& T5e Nat7$e o= t5e 27*icial P$ocess state*K )t Bill not *o to*eci*e t5e same I7estion one Ba4 betBeen one set o= litiants an* t5e o//ositeBa4 betBeen anot5e$. )= a $o7/ o= cases involves t5e same /oint& t5e /a$tieseH/ect t5e same *ecision. )t Bo7l* be a $oss in7stice to *eci*e alte$nate cases ono//osite /$inci/les. )= a case Bas *eci*e* aainst me 4este$*a4 B5en ) Bas a*e=en*ant& ) s5all loo =o$ t5e same 7*ment to*a4 i= ) am /lainti. To *eci*e*ie$entl4 Bo7l* $aise a =eelin o= $esentment an* B$on in m4 b$east it Bo7l* bean in=$inement& mate$ial an* mo$al& o= m4 $i5ts.< A*5e$ence to /$ece*ent m7stt5en be t5e $7le $at5e$ t5an t5e eHce/tion i= litiants a$e to 5ave =ait5 in t5e even85an*e* a*minist$ation o= 7stice in t5e co7$ts.
Same Same Same Same Same Same )t is =7n*amental 7$is/$7*ential /olic4t5at /$io$ a//licable /$ece*ent 7s7all4 m7st be =olloBe* even t5o75 t5e case& i=consi*e$e* aneB& mi5t be *eci*e* *ie$entl4 b4 t5e c7$$ent 7stices& an* t5is/olic4 is base* on t5e ass7m/tion t5at ce$taint4& /$e*ictabilit4 an* stabilit4 in t5elaB a$e t5e mao$ obectives o= t5e leal s4stem& i.e.& t5at /a$ties s5o7l* be able to$e7late t5ei$ con*7ct an* ente$ into $elations5i/s Bit5 $easonable ass7$ance o= t5eove$nin $7les o= laB.FAlt5o75
1-6
1-6
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
t5e *oct$ine o= sta$e *ecisis *oes not /$event $e8eHaminin an*& i= nee* be&ove$$7lin /$io$ *ecisions& )t is H H H a =7n*amental 7$is/$7*ential /olic4 t5at /$io$a//licable /$ece*ent 7s7all4 m7st be =olloBe* even t5o75 t5e case& i= consi*e$e*aneB& mi5t be *eci*e* *ie$entl4 b4 t5e c7$$ent 7stices. T5is /olic4 H H H is base*on t5e ass7m/tion t5at ce$taint4& /$e*ictabilit4 an* stabilit4 in t5e laB a$e t5e mao$obectives o= t5e leal s4stem i.e.& t5at /a$ties s5o7l* be able to $e7late t5ei$con*7ct an* ente$ into $elations5i/s Bit5 $easonable ass7$ance o= t5e ove$nin
$7les o= laB. Acco$*inl4& a /a$t4 7$in ove$$7lin a /$ece*ent =aces a $i5tl4one$o7s tas& t5e *iJc7lt4 o= B5ic5 is $o75l4 /$o/o$tional to a n7mbe$ o= =acto$s&incl7*in t5e ae o= t5e /$ece*ent& t5e nat7$e an* eHtent o= /7blic an* /$ivate$eliance on it& an* its consistenc4 o$ inconsistenc4 Bit5 ot5e$ $elate* $7les o= laB.+e$e& /etitione$s =aile* to *isc5a$e t5ei$ tas.
Same Same Same Same Same Same Santiao v. COMELEC& %0 SCRA 106?1--@& Bas *eci*e* b4 t5is Co7$t on Ma$c5 1-& 1-- o$ mo$e t5an nine ?-@ 4ea$s
ove$nmental =o$m an* sc5eme Bo7l* /$obabl4 be inte$/$ete* as a $evision an*s5o7l* be ac5ieve* t5$o75 t5e mo$e t5o$o75 /$ocess o= *elibe$ation. Alt5o75& at$st lance& /etitione$s< /$o/ose* c5anes a//ea$ to cove$ isolate* an* s/ecic/$ovisions onl4& 5oBeve$& 7/on ca$e=7l sc$7tin4& it becomes clea$ t5at t5e /$o/ose*c5anes Bill alte$ t5e ve$4 st$7ct7$e o= o7$ ove$nment an* c$eate m7lti=a$io7s
$amications. )n ot5e$ Bo$*s& t5e /$o/ose* c5anes Bill 5ave a *omino eect o$&mo$e a//$o/$iatel4& $i//le eect on ot5e$ /$ovisions o= t5e Constit7tion.
Same Same Same Same Se/a$ation o= PoBe$s T5e *oct$ine o= se/a$ation o=/oBe$s is so inte$Boven in t5e =ab$ic o= o7$ Constit7tion t5at an4 c5ane aectins7c5 *oct$ine m7st necessa$il4 be a $evision.FA s5i=t =$om a /$esi*ential to a/a$liamenta$4 =o$m o= ove$nment aects t5e Bell8ens5$ine* *oct$ine o= se/a$ationo= /oBe$s o= ove$nment& embo*ie* in o7$ Constit7tion& b4 /$ovi*in =o$ anEHec7tive& Leislative an* 27*icia$4 ($anc5es. )n a Pa$liamenta$4 =o$m o=ove$nment& t5e EHec7tive ($anc5 is to a ce$tain *e$ee& *e/en*ent on t5e *i$ect o$in*i$ect s7//o$t o= t5e Pa$liament& as eH/$esse* t5$o75 a vote o= con*ence. Tom4 min*& t5is *oct$ine o= se/a$ation o= /oBe$s is so inte$Boven in t5e =ab$ic o= o7$
Same Same Same )nitiative an* Re=e$en*7m Act ?R.A. No. 6#"@ R.A. No. 6#" is
not t5e enablin laB contem/late* b4 t5e Constit7tion.FR.A. No. 6#" *oes nots/eci=4 t5e /$oce*7$e 5oB initiative on t5e Constit7tion ma4 be accom/lis5e*. T5isis not t5e enablin laB contem/late* b4 t5e Constit7tion. As /ointe* o7t b4o//osito$8inte$veno$ Alte$native LaB G$o7/s )nc.& since t5e /$om7lation o= t5eDecision in Santiao& va$io7s bills 5ave been int$o*7ce* in bot5 +o7ses o= Con$ess/$ovi*in =o$ a com/lete an* a*eI7ate /$ocess =o$ /eo/le<s initiative.
Same Same Same T5e /5$ase *i$ectl4 /$o/ose* b4 t5e /eo/le eHcl7*es an4/e$son actin as $e/$esentative o$ aent o= t5e 1%V o= t5e total n7mbe$ o=$eiste$e* vote$s T5e /lea t5at t5e Co7$t s5o7l* 5ea$ an* 5ee* t5e /eo/le<svoice is baseless an* mislea*inFt5e$e is no /eo/le<s voice to be 5ea$* an*
5ee*e* as t5e /etition =o$ initiative is not t$7l4 t5ei$s& b7t onl4 o= /etitione$sLambino an* A7menta*o an* t5ei$ allies.FPetitione$s Lambino an* A7menta*o5ave no a7t5o$it4 B5atsoeve$ to le t5e /etition as $e/$esentatives o= t5e allee*6.# million $eiste$e* vote$s. S7c5 act o= $e/$esentation is constit7tionall4/$osc$ibe*. To $e/eat& Section % st$ictl4 $eI7i$es t5at amen*ments to t5eConstit7tion s5all be *i$ectl4 /$o/ose* b4 t5e /eo/le t5$o75 initiative 7/on a/etition o= at least tBelve /e$ cent7m o= t5e total n7mbe$ o= $eiste$e* vote$s.Obvio7sl4& t5e /5$ase *i$ectl4 /$o/ose* b4 t5e /eo/le eHcl7*es an4 /e$son actin
as $e/$esentative o$ aent o= t5e 1%V o= t5e total n7mbe$ o= $eiste$e* vote$s. T5eConstit7tion 5as bestoBe* 7/on t5e /eo/le t5e $i5t to *i$ectl4 /$o/oseamen*ments to t5e Constit7tion. S7c5 $i5t cannot be 7s7$/e* b4 an4one 7n*e$ t5e7ise o= bein t5e /eo/le<s $e/$esentative. Sim/l4 /7t& Section % *oes not $econi:eacts o= $e/$esentation. ;o$ it is onl4 t5e /eo/le ?com/$isin t5e minim7m o= 1%V
o= t5e total n7mbe$ o= $eiste$e* vote$s& o= B5ic5 eve$4 leislative *ist$ict m7st be$e/$esente* b4 at least t5$ee /e$ cent7m o= t5e $eiste$e* vote$s t5e$ein@ B5o a$et5e /$o/e$ /a$ties to initiate a /etition /$o/osin amen*ments to t5e Constit7tion.e$il4& t5e /etition le* Bit5 t5e COMELEC b4 5e$ein /etitione$s Lambino an*A7menta*o is not a /eo/le<s initiative. Necessa$il4& it m7st =ail. Co$olla$il4& t5e /leat5at t5is Co7$t s5o7l* 5ea$ an* 5ee* t5e /eo/le<s voice is baseless an*mislea*in. T5e$e is no /eo/le<s voice to be 5ea$* an* 5ee*e* as t5is /etition =o$initiative is not t$7l4 t5ei$s& b7t onl4 o= /etitione$s Lambino an* A7menta*o an*t5ei$ allies.
Same Same Same Consi*e$in t5e /olitical scena$io in o7$ co7nt$4 to*a4& it is m4vieB t5at t5e so8calle* /eo/le<s initiative to amen* o7$ Constit7tion =$om bicame$al8
/$esi*ential to 7nicame$al8/a$liamenta$4 is act7all4 not1--
OL. "0"& OCTO(ER %"& %006
1--
Lambino vs. Commission on Elections
an initiative o= t5e /eo/le& b7t an initiative o= some o= o7$ /oliticians.F)n ne&consi*e$in t5e /olitical scena$io in o7$ co7nt$4 to*a4& it is m4 vieB t5at t5e so8
calle* /eo/le<s initiative to amen* o7$ Constit7tion =$om bicame$al8/$esi*ential to7nicame$al8/a$liamenta$4 is act7all4 not an initiative o= t5e /eo/le& b7t an initiativeo= some o= o7$ /oliticians. )t 5as not been s5oBn b4 /etitione$s& *7$in t5e o$ala$7ments in t5is case& t5at t5e 6.# million $eiste$e* vote$s B5o aJHe* t5ei$sinat7$es 7n*e$stoo* B5at t5e4 sine*. )n =act& /etitione$s a*mitte* t5at t5eConstit7tional /$ovisions so75t to be amen*e* an* t5e /$o/ose* amen*mentsBe$e not eH/laine* to all t5ose $eiste$e* vote$s. )n*ee*& t5e$e Bill be no means o=noBin& to t5e /oint o= 7*icial ce$taint4& B5et5e$ t5e4 $eall4 7n*e$stoo* B5at/etitione$s an* t5ei$ $o7/ ase* t5em to sin.
Same Same Same Let 7s not $e/eat t5e mistae committe* b4 t5is Co7$t in
2avellana v. T5e EHec7tive Sec$eta$4& "0 SCRA #0 ?1-#@. T5e Co7$t t5en $7le* t5atT5is bein t5e vote o= t5e mao$it4& t5e$e is no =7$t5e$ 7*icial obstacle to t5e neBConstit7tion bein consi*e$e* in =o$ce an* eect& alt5o75 it 5a* notice t5at t5eConstit7tion /$o/ose* b4 t5e 1-1 Constit7tional Convention Bas not vali*l4 $atie*b4 t5e /eo/le in acco$*ance Bit5 t5e 1-#" Constit7tion.FLet 7s not $e/eat t5emistae committe* b4 t5is Co7$t in 2avellana v. T5e EHec7tive Sec$eta$4& "0 SCRA#0 ?1-#@. T5e Co7$t t5en $7le* t5at T5is bein t5e vote o= t5e mao$it4& t5e$e is no=7$t5e$ 7*icial obstacle to t5e neB Constit7tion bein consi*e$e* in =o$ce an*
eect& alt5o75 it 5a* notice t5at t5e Constit7tion /$o/ose* b4 t5e 1-1Constit7tional Convention Bas not vali*l4 $atie* b4 t5e /eo/le in acco$*ance Bit5t5e 1-#" Constit7tion. T5e Co7$t concl7*e*& amon ot5e$s& t5at t5e viva vocevotin in t5e Citi:ens< Assemblies Bas an* is n7ll an* voi* ab initio. T5at Bas*7$in ma$tial laB B5en /e$5a/s mao$it4 o= t5e 7stices Be$e sca$e* o= t5e *ictato$.
L7cil4 at /$esent& Be a$e not 7n*e$ a ma$tial laB $eime. T5e$e is& t5e$e=o$e& no$eason B54 t5is Co7$t s5o7l* alloB itsel= to be 7se* as a leitimi:in a7t5o$it4 b4t5e so8calle* /eo/le<s initiative =o$ t5ose B5o Bant to /e$/et7ate t5emselves in/oBe$.
CORONA& 2.& Dissentin O/inionK
Constit7tional LaB Amen*ments an* Revisions o= t5e Constit7tion Peo/le<s)nitiative S7/$eme Co7$t 27*ments Res 27*icata T5e$e is no i*entit4 o= /a$ties inSantiao v. Commission on Elections& %0 SCRA 106 ?1--@ an* t5e instant case.FRes 7*icata is t5e $7le t5at a nal 7*ment $en*e$e* b4 a co7$t o= com/etent
7$is*iction on t5e me$its is concl7sive as to t5e $i5ts o= t5e /a$ties an* t5ei$/$ivies an*& as to t5em& constit7tes an absol7te ba$ to a s7bseI7ent actioninvolvin t5e same claim& *eman* o$
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SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
ca7se o= action. )t 5as t5e =olloBin $eI7isitesK ?1@ t5e =o$me$ 7*ment o$ o$*e$m7st be nal ?%@ it m7st 5ave been $en*e$e* b4 a co7$t 5avin 7$is*iction o= t5es7bect matte$ an* o= t5e /a$ties ?#@ it m7st be a 7*ment o$ o$*e$ on t5e me$itsan* ?!@ t5e$e m7st be i*entit4 o= /a$ties& o= s7bect matte$& an* o= ca7se o= actionbetBeen t5e $st an* secon* actions. T5e$e is no i*entit4 o= /a$ties in Santiao an*t5e instant case. ,5ile t5e COMELEC Bas also t5e $es/on*ent in Santiao& t5e/etitione$s in t5at case an* t5ose in t5is case a$e *ie$ent. Mo$e sinicantl4& t5e$eis no i*entit4 o= ca7ses o= action in t5e tBo cases. Santiao involve* amen*mentsto Sections ! an* o= A$ticle )& Section ! o= A$ticle )) an* Section o= A$ticle Q o=t5e Constit7tion B5ile t5e /$esent /etition sees to amen* Sections 1to o= A$ticle) an* Sections 1 to ! o= t5e 1- Constit7tion. Clea$l4& t5e$e=o$e& t5e COMELEC
committe* $ave ab7se o= *isc$etion B5en it $7le* t5at t5e /$esent /etition =o$initiative Bas ba$$e* b4 Santiao an*& on t5at $o7n*& *ismisse* t5e /etition.
Same Same Same T5e Co7$t cannot 7nnecessa$il4 an* 7n$easonabl4 $est$ain t5e/eo/le<s $i5t to *i$ectl4 /$o/ose c5anes to t5e Constit7tion b4 *ecla$in a laBina*eI7ate sim/l4 =o$ lac o= a s7b85ea*in an* ot5e$ $ammatical b7t insinicantomissions.F,5ile t5e leislat7$e is a7t5o$i:e* to establis5 /$oce*7$es =o$*ete$minin t5e vali*it4 an* s7Jcienc4 o= a /etition to amen* t5e constit7tion& t5at
/$oce*7$e cannot 7nnecessa$il4 $est$ict t5e initiative /$ivilee. )n t5e same vein&t5is Co7$t cannot 7nnecessa$il4 an* 7n$easonabl4 $est$ain t5e /eo/le<s $i5t to*i$ectl4 /$o/ose c5anes to t5e Constit7tion b4 *ecla$in a laB ina*eI7ate sim/l4=o$ lac o= a s7b85ea*in an* ot5e$ $ammatical b7t insinicant omissions.Ot5e$Bise& t5e constit7tional intent to em/oBe$ t5e /eo/le Bill be seve$el4
emasc7late*& i= not $en*e$e* ill7so$4.Same Same Same Re/7blicanism )= Con$ess an* a constit7tional convention&bot5 o= B5ic5 a$e me$e $e/$esentative bo*ies& can /$o/ose c5anes to t5eConstit7tion& t5e$e is no $eason B54 t5e s7/$eme bo*4 /olitic itsel=Ft5e /eo/leFma4 not *o so *i$ectl4.F)= Con$ess an* a constit7tional convention& bot5 o= B5ic5a$e me$e $e/$esentative bo*ies& can /$o/ose c5anes to t5e Constit7tion& t5e$e isno $eason B54 t5e s7/$eme bo*4 /olitic itsel=Ft5e /eo/leFma4 not *o so *i$ectl4.Reso$t to initiative to amen* t5e constit7tion o$ enact a stat7te is an eHe$cise o=*i$ect *emoc$ac4 as o//ose* to $e/$esentative *emoc$ac4. T5e s4stem o=initiative alloBs citi:ens to *i$ectl4 /$o/ose constit7tional amen*ments =o$ t5eene$al electo$ate to a*o/t o$ $eect at t5e /olls& /a$tic7la$l4 in a /lebiscite. ,5ile
$e/$esentative ove$nment Bas envisione* to $ene an* enla$e t5e /7blic vieBs&b4 /assin t5em t5$o75 t5e me*i7m o= a c5osen bo*4 o= citi:ens& B5ose Bis*omma4
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OL. "0"& OCTO(ER %"& %006
%01
Lambino vs. Commission on Elections
best *isce$n t5e t$7e inte$est o= t5ei$ co7nt$4& an* B5ose /at$iotism an* love o= 7stice Bill be least liel4 to sac$ice it to tem/o$a$4 o$ /a$tial consi*e$ations& t5eeHe$cise o= *i$ect *emoc$ac4 t5$o75 initiative $ese$ves *i$ect laBmain /oBe$to t5e /eo/le b4 /$ovi*in t5em a met5o* to mae neB laBs via t5e constit7tion& o$alte$nativel4 b4 enactin stat7tes. Eo$ts o= t5e $e/$esente* to cont$ol t5ei$$e/$esentatives t5$o75 initiative 5ave been *esc$ibe* as c7$in t5e /$oblems o=*emoc$ac4 Bit5 mo$e *emoc$ac4.
CALLE2O& SR.& 2.& Se/a$ate Conc7$$in O/inionK
Constit7tional LaB Amen*ments an* Revisions o= t5e Constit7tion Peo/le<s)nitiative 27*icial RevieB Ce$tio$a$i )t is a t$avest4 =o$ t5e Co7$t to *ecla$e t5e acto= t5e COMELEC in *en4in *7e co7$se to t5e /etition =o$ initiative as ca/$icio7s&*es/otic& o//$essive o$ B5imsical eHe$cise o= 7*ment as is eI7ivalent to lac o=
7$is*iction.F)n t5e /$esent case& it a//ea$s =$om t5e assaile* Resol7tion o= t5eCOMELEC t5at it *enie* t5e /etition =o$ initiative solel4 in obe*ience to t5e man*ateo= t5is Co7$t in Santiao v. Commission on Elections. )n sai* case& t5e Co7$t En (anc/e$manentl4 enoine* t5e COMELEC =$om ente$tainin o$ tain coni:ance o= an4
Same Same Same Same Same Given t5at a clea$ mao$it4 o= t5e membe$s o= t5eCo7$t& ei5t 27stices& conc7$$e* in t5e *ecision in Santiao v. Commission onElections& %0 SCRA 106 ?1--@& t5e /$ono7ncement t5e$ein t5at RA 6#" isincom/lete& ina*eI7ate& o$ Bantin in essential te$ms an* con*itions inso=a$ asinitiative on amen*ments to t5e Constit7tion is conce$ne* constit7tes a *enitive
$7lin on t5e matte$.FSantiao Bas conc7$$e* in& Bit5o7t an4 $ese$vation& b4 ei5t 27stices& o$ t5e mao$it4 o= t5e membe$s o= t5e Co7$t& B5o act7all4 too /a$t in t5e*elibe$ations t5e$eon. On t5e ot5e$ 5an*& ve 27stices& B5ile votin =o$ t5e *ismissalo= t5e Deln /etition on t5e $o7n* o= ins7Jcienc4& *issente* =$om t5e mao$it4o/inion as t5e4 maintaine* t5e vieB t5at RA 6#" Bas s7Jcient to im/lement t5es4stem o= initiative. Given t5at a clea$ mao$it4 o= t5e membe$s o= t5e Co7$t& ei5t
27stices& conc7$$e* in t5e *ecision in Santiao& t5e /$ono7ncement t5e$ein t5at RA6#" is incom/lete& ina*eI7ate& o$ Bantin in essential te$ms an* con*itionsinso=a$ as initiative on amen*ments to t5e Constit7tion is conce$ne* constit7tes a*enitive $7lin on t5e matte$. )n t5e Resol7tion *ate* 27ne 10& 1--& t5e motions=o$ $econsi*e$ation o= t5e Santiao *ecision Be$e *enie* Bit5 nalit4 as onl4 siH
27stices& o$ less t5an t5e mao$it4& vote* to $ant t5e same. T5e Resol7tioneH/$essl4 state* t5at t5e motion =o$ $econsi*e$ation =aile* to /e$s7a*e t5e$eI7isite mao$it4 o= t5e Co7$t to mo*i=4 o$ $eve$se t5e Decision o= 1- Ma$c5 1-.)n ne& t5e /$ono7ncement in Santi8
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OL. "0"& OCTO(ER %"& %006
%0#
Lambino vs. Commission on Elections
ao as embo*ie* in t5e Decision o= Ma$c5 1-& 1-- $emains t5e *enitive $7lin ont5e matte$.
Same Same Same Same Same Sta$e Decisis Ten ?10@ 4ea$s a=te$ Santiao an*absent t5e occ7$$ence o= an4 com/ellin s7/e$venin event& i.e.& /assae o= a laBto im/lement t5e s4stem o= initiative 7n*e$ Section %& A$ticle Q)) o= t5eConstit7tion& t5at Bo7l* Ba$$ant t5e $e8eHamination o= t5e $7lin t5e$ein& itbe5ooves t5e Co7$t to a//l4 to t5e /$esent case t5e sal7ta$4 an* Bell8$econi:e**oct$ine o= sta$e *ecisis.FT5e $es/ective eH/lanato$4 notes o= t5e sai* Senate an*+o7se bills 7ni=o$ml4 $econi:e t5at t5e$e is& to *ate& no laB to ove$n t5e /$ocessb4 B5ic5 constit7tional amen*ments a$e int$o*7ce* b4 t5e /eo/le *i$ectl4 t5$o75
t5e s4stem o= initiative. Ten ?10@ 4ea$s a=te$ Santiao an* absent t5e occ7$$ence o=an4 com/ellin s7/e$venin event& i.e.& /assae o= a laB to im/lement t5e s4stemo= initiative 7n*e$ Section %& A$ticle Q)) o= t5e Constit7tion& t5at Bo7l* Ba$$ant t5e$eeHamination o= t5e $7lin t5e$ein& it be5ooves t5e Co7$t to a//l4 to t5e /$esentcase t5e sal7ta$4 an* Bell8$econi:e* *oct$ine o= sta$e *ecisis. As ea$lie$ s5oBn&Con$ess an* ot5e$ ove$nment aencies 5ave& in =act& abi*e* b4 Santiao. T5eCo7$t can *o no less Bit5 $es/ect to its oBn $7lin.
Same Same Same Same Same Same Pa$ties s5o7l* not be enco7$ae* to see$e8eHamination o= *ete$mine* /$inci/les an* s/ec7late on 7ct7ation o= t5e laB Bit5eve$4 c5ane in t5e eH/o7n*e$s o= it.FCont$a$4 to t5e stance taen b4 /etitione$s&t5e vali*it4 o$ constit7tionalit4 o= a laB cannot be ma*e to *e/en* on t5e in*ivi*7alo/inions o= t5e membe$s B5o com/ose itFt5e S7/$eme Co7$t& as an instit7tion& 5as
al$ea*4 *ete$mine* RA 6#" to be incom/lete& ina*eI7ate& o$ Bantin in essentialte$ms an* con*itions inso=a$ as initiative on amen*ments to t5e Constit7tion isconce$ne* an* t5e$e=o$e t5e same $emains to be so $ea$*less o= an4 c5ane int5e Co7$t<s com/osition. )n*ee*& it is vital t5at t5e$e be stabilit4 in t5e co7$ts ina*5e$in to *ecisions *elibe$atel4 ma*e a=te$ am/le consi*e$ation. Pa$ties s5o7l*not be enco7$ae* to see $e8eHamination o= *ete$mine* /$inci/les an* s/ec7lateon 7ct7ation o= t5e laB Bit5 eve$4 c5ane in t5e eH/o7n*e$s o= it.
Same Same Same T5e Constit7tion $eceive* its =o$ce =$om t5e eH/$ess Bill o= t5e/eo/le& an* in eH/$essin t5at Bill& t5e ;ili/ino /eo/le 5ave inco$/o$ate* t5e$ein t5emet5o* an* manne$ b4 B5ic5 t5e same can be amen*e* an* $evise*& an* B5en t5eelecto$ate 5ave inco$/o$ate* into t5e =7n*amental laB t5e /a$tic7la$ manne$ in
B5ic5 t5e same ma4 be alte$e* o$ c5ane*& t5en an4 co7$se B5ic5 *is$ea$*s t5ateH/$ess Bill is a *i$ect violation o= t5e =7n*amental laB.FT5e Constit7tion is t5e=7n*amental laB o= t5e state& containin t5e /$inci/les 7/on B5ic5 t5e ove$nmentis =o7n*e*& an* $e7latin
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SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Electionst5e *ivision o= sove$ein /oBe$s& *i$ectin to B5at /e$sons eac5 o= t5ose /oBe$s isto be con*e* an* t5e manne$ in B5ic5 it is to be eHe$cise*. T5e P5ili//ines 5as=olloBe* t5e Ame$ican constit7tional leal s4stem in t5e sense t5at t5e te$mconstit7tion is iven a mo$e $est$icte* meanin& i.e.& as a B$itten o$anicinst$7ment& 7n*e$ B5ic5 ove$nmental /oBe$s a$e bot5 con=e$$e* an*ci$c7msc$ibe*. T5e Constit7tion $eceive* its =o$ce =$om t5e eH/$ess Bill o= t5e/eo/le. An ove$B5elmin 16&6%%&111& o7t o= %1&"&%16 votes cast *7$in t5e/lebiscite& o$ 6.#0V $atie* t5e /$esent Constit7tion on ;eb$7a$4 %& 1-. )neH/$essin t5at Bill& t5e ;ili/ino /eo/le 5ave inco$/o$ate* t5e$ein t5e met5o* an*manne$ b4 B5ic5 t5e same can be amen*e* an* $evise*& an* B5en t5e electo$ate
5ave inco$/o$ate* into t5e =7n*amental laB t5e /a$tic7la$ manne$ in B5ic5 t5esame ma4 be alte$e* o$ c5ane*& t5en an4 co7$se B5ic5 *is$ea$*s t5at eH/$essBill is a *i$ect violation o= t5e =7n*amental laB.
Same Same Same Amen*ment an* Revision& Distin7is5e* ,o$*s an*P5$ases Consi*e$in t5e encom/assin sco/e an* *e/t5 o= t5e c5anes t5at Bo7l*be eecte*& not to mention t5at t5e Constit7tion<s basic /lan an* s7bstance o= at$i/a$tite s4stem o= ove$nment an* t5e /$inci/le o= se/a$ation o= /oBe$s
7n*e$l4in t5e same Bo7l* be alte$e*& i= not enti$el4 *est$o4e*& t5e$e can be noot5e$ concl7sion t5an t5at t5e /$o/osition o= /etitione$s Lambino& et al. Bo7l*constit7te a $evision o= t5e Constit7tion $at5e$ t5an an amen*ment.FConsi*e$int5e encom/assin sco/e an* *e/t5 o= t5e c5anes t5at Bo7l* be eecte*& not tomention t5at t5e Constit7tion<s basic /lan an* s7bstance o= a t$i/a$tite s4stem o=
ove$nment an* t5e /$inci/le o= se/a$ation o= /oBe$s 7n*e$l4in t5e same Bo7l*be alte$e*& i= not enti$el4 *est$o4e*& t5e$e can be no ot5e$ concl7sion t5an t5at t5e/$o/osition o= /etitione$s Lambino& et al. Bo7l* constit7te a $evision o= t5eConstit7tion $at5e$ t5an an amen*ment o$ s7c5 an a**ition o$ c5ane Bit5in t5elines o= t5e o$iinal inst$7ment as Bill eect an im/$ovement o$ bette$ ca$$4 o7t t5e/7$/ose =o$ B5ic5 it Bas =$ame*. As 5as been s5oBn& t5e eect o= t5e a*o/tion o=t5e /etitione$s< /$o/osition& $at5e$ t5an to Bit5in t5e lines o= t5e o$iinalinst$7ment constit7te an im/$ovement o$ bette$ ca$$4 o7t t5e /7$/ose =o$ B5ic5 itBas =$ame*& is to s7bstantiall4 alte$ t5e /7$/ose an* to attain obectives clea$l4be4on* t5e lines o= t5e Constit7tion as noB cast.
Same Same Same )nitiative an* Re=e$en*7m Act ?R.A. No. 6#"@ Deleation o=
PoBe$ T5e laB man*ates 7/on t5e election $eist$a$ to /e$sonall4 ve$i=4 t5esinat7$es& a solemn an* im/o$tant *7t4 im/ose* on t5e election $eist$a$ B5ic5 5ecannot *eleate to an4 ot5e$ /e$son& even to ba$ana4 oJcials.FT5e laB man*ates7/on t5e election $eist$a$ to /e$sonall4 ve$i=4
%0"
OL. "0"& OCTO(ER %"& %006
%0"
Lambino vs. Commission on Electionst5e sinat7$es. T5is is a solemn an* im/o$tant *7t4 im/ose* on t5e election$eist$a$ B5ic5 5e cannot *eleate to an4 ot5e$ /e$son& even to ba$ana4 oJcials.+ence& a ve$ication o= sinat7$es ma*e b4 /e$sons ot5e$ t5an t5e election$eist$a$s 5as no leal eect. )n /atent violation o= t5e laB& seve$al ce$ticationss7bmitte* b4 /etitione$s s5oBe* t5at t5e ve$ication o= sinat7$es Bas ma*e& notb4 t5e election $eist$a$s& b7t b4 ba$ana4 oJcials.
Same Same Same Same T5e$e is not5in in RA 6#"& as Bell as in COMELECResol7tion No. %#00& $antin t5at it is vali* to im/lement t5e =o$me$ stat7te& t5ata7t5o$i:es t5e COMELEC to con*7ct an4 in* o= 5ea$in& B5et5e$ =7ll8bloBn o$ t$ial8
t4/e 5ea$in& s7mma$4 5ea$in o$ a*minist$ative 5ea$in& on a /etition =o$ initiative.FAcco$*in to t5e *issentin o/inion& t5e s7Jcienc4 o= t5e /etition =o$ initiativean* its com/liance Bit5 t5e $eI7i$ements o= RA 6#" on initiative an* itsim/lementin $7les is a I7estion t5at s5o7l* be $esolve* b4 t5e COMELEC at t5e$st instance. )t t57s $eman*s t5e case to t5e COMELEC =o$ =7$t5e$ /$ocee*ins. Tom4 min*& t5e $eman* o= t5e case to t5e COMELEC is not Ba$$ante*. T5e$e is not5inin RA 6#"& as Bell as in COMELEC Resol7tion No. %#00& $antin t5at it is vali* toim/lement t5e =o$me$ stat7te& t5at a7t5o$i:es t5e COMELEC to con*7ct an4 in* o=
5ea$in& B5et5e$ =7ll8bloBn o$ t$ial8t4/e 5ea$in& s7mma$4 5ea$in o$ a*minist$ative5ea$in& on a /etition =o$ initiative.
Same Same Same Same T5e $eman* o= t5e case to t5e COMELEC =o$ $ece/tion o= evi*ence o= t5e /a$ties on t5e contentio7s =act7al iss7es is& in eect& anamen*ment o= t5e aboveI7ote* $7les o= t5e COMELEC b4 t5is Co7$t B5ic5 t5e Co7$t
is not em/oBe$e* to *o.FClea$l4& =olloBin t5e =o$eoin /$oce*7$al $7les& t5eCOMELEC is not a7t5o$i:e* to con*7ct an4 in* o= 5ea$in to $eceive an4 evi*ence=o$ o$ aainst t5e s7Jcienc4 o= t5e /etition =o$ initiative. Rat5e$& t5e =o$eoin $7les$eI7i$e o= t5e COMELEC to *ete$mine t5e s7Jcienc4 o$ ins7Jcienc4 o= t5e /etition=o$ initiative on its =ace. An* it 5as al$ea*4 been s5oBn& b4 t5e anneHes s7bmitte*b4 t5e /etitione$s t5emselves& t5ei$ /etition is& on its =ace& ins7Jcient in =o$m an*s7bstance. T5e $eman* o= t5e case to t5e COMELEC =o$ $ece/tion o= evi*ence o= t5e/a$ties on t5e contentio7s =act7al iss7es is& in eect& an amen*ment o= t5eaboveI7ote* $7les o= t5e COMELEC b4 t5is Co7$t B5ic5 t5e Co7$t is not em/oBe$e*to *o.
Same Same Same Same Political 7estions Even i= t5e /$esent /etition involvest5e act& not o= a ove$nmental bo*4& b7t o= /7$/o$te*l4 mo$e t5an siH million$eiste$e* vote$s B5o 5ave sinie* t5ei$ assent to t5e /$o/osal to amen* t5eConstit7tion& t5e same still constit7tes a 7sticiable cont$ove$s4& 5ence& a non8/olitical I7estion.FEven i= t5e /$esent /etition involves t5e act&
%06
%06
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
not o= a ove$nmental bo*4& b7t o= /7$/o$te*l4 mo$e t5an siH million $eiste$e*vote$s B5o 5ave sinie* t5ei$ assent to t5e /$o/osal to amen* t5e Constit7tion&t5e same still constit7tes a 7sticiable cont$ove$s4& 5ence& a non8/olitical I7estion.
T5e$e is no *o7bt t5at t5e Constit7tion& 7n*e$ A$ticle Q))& 5as eH/licitl4 /$ovi*e* =o$t5e manne$ o$ met5o* to eect amen*ments t5e$eto& o$ $evision t5e$eo=. T5eI7estion& t5e$e=o$e& o= B5et5e$ t5e$e 5as been com/liance Bit5 t5e te$ms o= t5eConstit7tion is =o$ t5e Co7$t to /ass 7/on.
Same Same Same Same ) st$onl4 tae eHce/tion to t5e vieB t5at t5e /eo/le& int5ei$ sove$ein ca/acit4& can *is$ea$* t5e Constit7tion altoet5e$.FT5e$e is no
*en4in t5at t5e P5ili//ines is a *emoc$atic an* $e/7blican State. Sove$eint4$esi*es in t5e /eo/le an* all ove$nment a7t5o$it4 emanates =$om t5em. +oBeve$&) n* to be ten7o7s t5e asseve$ation t5at t5e a$7ment t5at t5e /eo/le t5$o75initiative cannot /$o/ose s7bstantial amen*ments to c5ane t5e Constit7tion t7$nssove$eint4 in its 5ea*. At t5e ve$4 least& t5e s7bmission const$icts t5e *emoc$atics/ace =o$ t5e eHe$cise o= t5e *i$ect sove$eint4 o= t5e /eo/le. )n eect& it ist5eo$i:e* t5at *es/ite t5e 7nambi7o7s teHt o= Section %& A$ticle Q)) o= t5eConstit7tion Bit55ol*in t5e /oBe$ to $evise it =$om t5e s4stem o= initiative& t5e
/eo/le& in t5ei$ sove$ein ca/acit4& can convenientl4 *is$ea$* t5e sai* /$ovision. )st$onl4 tae eHce/tion to t5e vieB t5at t5e /eo/le& in t5ei$ sove$ein ca/acit4& can*is$ea$* t5e Constit7tion altoet5e$. S7c5 a vieB *i$ectl4 cont$avenes t5e=7n*amental constit7tional t5eo$4 t5at B5ile in*ee* t5e 7ltimate sove$eint4 is int5e /eo/le& =$om B5om s/$ins all leitimate a7t5o$it4 nonet5eless& b4 t5e
Constit7tion B5ic5 t5e4 establis5& t5e4 not onl4 tie 7/ t5e 5an*s o= t5ei$ oJcialaencies& b7t t5ei$ oBn 5an*s as Bell an* neit5e$ t5e oJce$s o= t5e state& no$ t5eB5ole /eo/le as an a$eate bo*4& a$e at libe$t4 to tae action in o//osition to t5is=7n*amental laB. T5e Constit7tion& it s5o7l* be $emembe$e*& is t5e /$otecto$ o=t5e /eo/le& /lace* on 7a$* b4 t5em to save t5e $i5ts o= t5e /eo/le aainst in7$4b4 t5e /eo/le. T5is is t5e essence o= constit7tionalismK T5$o75 constit7tionalismBe /lace* limits on bot5 o7$ /olitical instit7tions an* o7$selves& 5o/in t5at*emoc$acies& 5isto$icall4 alBa4s t7$b7lent& c5aotic an* even *es/otic& mi5t noBbecome $est$aine*& /$inci/le*& t5o75t=7l an* 7st. So Be bo7n* o7$selves ove$ to alaB t5at Be ma*e an* /$omise* to ee/. An* t5o75 a ove$nment o= laBs *i* not*is/lace ove$nance b4 men& it *i* mean t5at noB men& *emoc$atic men& Bo7l* t$4to live b4 t5ei$ Bo$*.
Same Same Same )t is =o$ t5e /$otection o= mino$ities t5at constit7tions a$e=$ame*Fsometimes constit7tions m7st be inte$/ose* =o$ t5e /$otection o=mao$ities even aainst t5emselves.F)n*is/7tabl4& t5e iss7es /ose* in
%0
OL. "0"& OCTO(ER %"& %006
%0
Lambino vs. Commission on Electionst5e /$esent case a$e o= t$anscen*ental im/o$tance. Acco$*inl4& ) 5ave a//$oac5e*an* $a//le* Bit5 t5em Bit5 =7ll a//$eciation o= t5e $es/onsibilities involve* in t5e/$esent case& an* 5ave iven to its consi*e$ation t5e ea$nest attention B5ic5 itsim/o$tance *eman*s. ) 5ave so75t to maintain t5e s7/$emac4 o= t5e Constit7tionat B5ateve$ 5a:a$*. ) s5a$e t5e conce$n o= C5ie= 27stice Da4 in 9oe5le$ v. +illK it is=o$ t5e /$otection o= mino$ities t5at constit7tions a$e =$ame*. Sometimesconstit7tions m7st be inte$/ose* =o$ t5e /$otection o= mao$ities even aainstt5emselves. Constit7tions a$e a*o/te* in times o= /7blic $e/ose& B5en sobe$ $eason5ol*s 5e$ cita*el& an* a$e *esine* to c5ec t5e s7$in /assions in times o=/o/7la$ eHcitement. (7t i= co7$ts co7l* be coe$ce* b4 /o/7la$ mao$ities into a
*is$ea$* o= t5ei$ /$ovisions& constit7tions Bo7l* become me$e $o/es o= san*&< an*t5e$e Bo7l* be an en* o= social sec7$it4 an* o= constit7tional =$ee*om. T5e ca7se o=tem/e$ance can s7stain no in7$4 =$om t5e loss o= t5is amen*ment B5ic5 Bo7l* beat all com/a$able to t5e in7$4 to $e/7blican instit7tions B5ic5 a violation o= t5econstit7tion Bo7l* inict. T5at la$e an* $es/ectable class o= mo$al $e=o$me$s B5ic5so 7stl4 *eman*s t5e obse$vance an* en=o$cement o= laB& cannot ao$* to tae its$st $e=o$mato$4 ste/ b4 a violation o= t5e constit7tion. +oB can it consistentl4*eman* o= ot5e$s obe*ience to a constit7tion B5ic5 it violates itsel= T5e /eo/le
can in a s5o$t time $e8enact t5e amen*ment. )n t5e manne$ o= a $eat mo$al $e=o$m&t5e loss o= a =eB 4ea$s is not5in. T5e constit7tion is t5e /alla*i7m o= $e/7blican=$ee*om. T5e 4o7n men comin =o$Ba$* 7/on t5e stae o= /olitical action m7st bee*7cate* to vene$ate it t5ose al$ea*4 7/on t5e stae m7st be ta75t to obe4 it.,5ateve$ inte$est ma4 be a*vance* o$ ma4 s7e$& B5oeve$ o$ B5ateve$ ma4 be
vote* 7/ o$ vote* *oBn&< no sac$ileio7s 5an* m7st be lai* 7/on t5e constit7tion.ACUNA& 2.& Se/a$ate O/inionK
Constit7tional LaB Amen*ments an* Revisions o= t5e Constit7tion Peo/le<s)nitiative Constit7ent PoBe$s ,5en Con$ess acts 7n*e$ A$ticle Q))& B5ic5 is t5eConstit7tion o= Sove$eint4& it acts not as a leislat7$e eHe$cisin leislative /oBe$sb7t as a constit7ent bo*4 eHe$cisin constit7ent /oBe$s.FConstit7tions 5ave t5$ee/a$tsFt5e Constit7tion o= Libe$t4& B5ic5 states t5e =7n*amental $i5ts o= t5e/eo/le t5e Constit7tion o= Gove$nment& B5ic5 establis5es t5e st$7ct7$e o=ove$nment& its b$anc5es an* t5ei$ o/e$ation an* t5e Constit7tion o= Sove$eint4&
B5ic5 /$ovi*es 5oB t5e Constit7tion ma4 be c5ane*. A$ticle Q)) is t5eConstit7tion o= Sove$eint4. As a $es7lt& t5e /oBe$s t5e$ein /$ovi*e* a$e calle*constit7ent /oBe$s. So B5en Con$ess acts 7n*e$ t5is /$ovision& it acts not as aleislat7$e eHe$cisin leislative /oBe$s. )t acts as a constit7ent bo*4 eHe$cisinconstit7ent /oB8
%0
%0
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
e$s. T5e $7les& t5e$e=o$e& ove$nin t5e eHe$cise o= leislative /oBe$s *o not a//l4&o$ *o not a//l4 st$ictl4& to t5e actions taen 7n*e$ A$ticle Q)).
Same Same Same Same )nitiative an* Re=e$en*7m Act ?R.A. No. 6#"@ SinceA$ticle Q)) states t5at Con$ess s5all /$ovi*e =o$ t5e im/lementation o= t5e eHe$ciseo= t5e /eo/le<s $i5t *i$ectl4 to /$o/ose amen*ments to t5e Constit7tion t5$o75initiative& t5e act o= Con$ess /7$s7ant t5e$eto is not st$ictl4 a leislative action b7t/a$taes o= a constit7ent act T5e /$ovisions o= Re/7blic Act No. 6#" $elatin to t5e/$oce*7$e =o$ /$o/osin amen*ments to t5e Constit7tion& can an* s5o7l* be
7/5el*& *es/ite s5o$tcomins /e$5a/s in leislative 5ea*ins an* stan*a$*s.FAcco$*inl4& since A$ticle Q)) states t5at Con$ess s5all /$ovi*e =o$ t5eim/lementation o= t5e eHe$cise o= t5e /eo/le<s $i5t *i$ectl4 to /$o/oseamen*ments to t5e Constit7tion t5$o75 initiative& t5e act o= Con$ess /7$s7antt5e$eto is not st$ictl4 a leislative action b7t /a$taes o= a constit7ent act. As a$es7lt& Re/7blic Act No. 6#"& t5e act t5at /$ovi*es =o$ t5e eHe$cise o= t5e /eo/le o=t5e $i5t to /$o/ose a laB o$ amen*ments to t5e Constit7tion is& Bit5 $es/ect to t5e$i5t to /$o/ose amen*ments to t5e Constit7tion& a constit7ent meas7$e& not a
me$e leislative one. T5e conseI7ence o= t5is s/ecial c5a$acte$ o= t5e enactment&inso=a$ as it $elates to /$o/osin amen*ments to t5e Constit7tion& is t5at t5e$eI7i$ements =o$ stat7to$4 enactments& s7c5 as s7Jcienc4 o= stan*a$*s an* t5elie& *o not an* s5o7l* not st$ictl4 a//l4. As lon as t5e$e is a s7Jcient an* clea$intent to /$ovi*e =o$ t5e im/lementation o= t5e eHe$cise o= t5e $i5t& it s5o7l* be
s7staine*& as it is sim/l4 a com/liance o= t5e man*ate /lace* on Con$ess b4 t5eConstit7tion. Seen in t5is li5t& t5e /$ovisions o= Re/7blic Act No. 6#" $elatin tot5e /$oce*7$e =o$ /$o/osin amen*ments to t5e Constit7tion& can an* s5o7l* be7/5el*& *es/ite s5o$tcomins /e$5a/s in leislative 5ea*ins an* stan*a$*s.
Same Same Same Same Same ) conc7$ in t5e vieB t5at Santiao v. Commissionon Elections& %0 SCRA 106 ?1--@& s5o7l* be $e8eHamine* an*& a=te$ *oin so& t5att5e /$ono7ncement t5e$ein $ea$*in t5e ins7Jcienc4 o$ ina*eI7ac4 o= t5emeas7$e to s7stain a /eo/le<s initiative to amen* t5e Constit7tion s5o7l* be$econsi*e$e* in =avo$ o= alloBin t5e eHe$cise o= t5is sove$ein $i5t.F;o$ t5is$eason& ) conc7$ in t5e vieB t5at Santiao v. Comelec s5o7l* be $e8eHamine* an*&a=te$ *oin so& t5at t5e /$ono7ncement t5e$ein $ea$*in t5e ins7Jcienc4 o$
ina*eI7ac4 o= t5e meas7$e to s7stain a /eo/le<s initiative to amen* t5eConstit7tion s5o7l* be $econsi*e$e* in =avo$ o= alloBin t5e eHe$cise o= t5issove$ein $i5t. An* a//l4in t5e *oct$ine state* in Sena$illos v. +e$mosisima&/enne* b4 27stice 2.(.L. Re4es& in $elation to A$ticle o= t5e Civil Co*e& t5at a*ecision o= t5is Co7$t inte$/$etin a laB
%0-
OL. "0"& OCTO(ER %"& %006
%0-
Lambino vs. Commission on Elections
=o$ms /a$t o= t5e laB inte$/$ete* as o= t5e time o= its enactment& Re/7blic Act No.6#" s5o7l* be *eeme* s7Jcient an* a*eI7ate =$om t5e sta$t.
Same Same Same T5e $eason B54 $evisions a$e not alloBe* t5$o75 *i$ect/$o/osals b4 t5e /eo/le t5$o75 initiative is a /$actical one& namel4& t5e$e is no oneto *$a=t s7c5 eHtensive c5anes& since 6.# million /eo/le cannot conceivabl4 come7/ Bit5 a sinle eHtensive *oc7ment t5$o75 a *i$ect /$o/osal =$om eac5 o= t5em.FRevisions a$e c5anes t5at aect t5e enti$e Constit7tion an* not me$e /a$ts o= it.
t5$o75 initiative is a /$actical one& namel4& t5e$e is no one to *$a=t s7c5 eHtensivec5anes& since 6.# million /eo/le cannot conceivabl4 come 7/ Bit5 a sinleeHtensive *oc7ment t5$o75 a *i$ect /$o/osal =$om eac5 o= t5em. Someone Bo7l*5ave to *$a=t it an* t5at is not a7t5o$i:e* as it Bo7l* not be a *i$ect /$o/osal =$omt5e /eo/le. S7c5 in*i$ect /$o/osals can onl4 tae t5e =o$m o= /$o/osals =$omCon$ess as a Constit7ent Assembl4 7n*e$ A$ticle Q))& o$ a Constit7tionalConvention c$eate* 7n*e$ t5e same /$ovision. ;7$t5e$mo$e& t5e$e is a nee* =o$ s7c5*elibe$ative bo*ies =o$ $evisions beca7se t5ei$ /$ocee*ins an* *ebates a$e *7l4
an* oJciall4 $eco$*e*& so t5at =7t7$e cases o= inte$/$etations can be /$o/e$l4 ai*e*b4 $eso$t to t5e $eco$* o= t5ei$ /$ocee*ins.
Same Same Same A$ticle ))) on 27*icial De/a$tment cannot stan* as is& in a/a$liamenta$4 s4stem& =o$ 7n*e$ s7c5 a s4stem& t5e Pa$liament is s7/$eme& an*t57s t5e Co7$t<s /oBe$ to *ecla$e its act a $ave ab7se o= *isc$etion an* t57s voi*
Bo7l* be an anomal4.FEven a c7$so$4 $ea*in o= t5e /$o/ose* c5anes containe*in t5e /etition =o$ initiative 5e$ein involve* Bill s5oB on its =ace t5at t5e /$o/ose*c5anes constit7te a $evision o= t5e Constit7tion. T5e /$o/osal is to c5ane t5es4stem o= ove$nment =$om t5at B5ic5 is bicame$al8/$esi*ential to one t5at is7nicame$al8/a$liamenta$4. ,5ile /7$/o$te*l4 onl4 A$ticles )& ))& an* Q))) a$einvolve*& t5e =act is& as t5e /etition an* teHt o= t5e /$o/ose* c5anes t5emselvesstate& eve$4 /$ovision o= t5e Constit7tion Bill 5ave to be eHamine* to see i= t5e4con=o$m to t5e nat7$e o= a 7nicame$al8/a$liamenta$4 =o$m o= ove$nment an*c5ane* acco$*inl4 i= t5e4 *o not so con=o$m to it. ;o$ eHam/le& A$ticle ))) on
27*icial De/a$tment cannot stan* as is& in a /a$liamenta$4 s4stem& =o$ 7n*e$ s7c5 as4stem& t5e Pa$liament is s7/$eme& an* t57s t5e Co7$t<s /oBe$ to *ecla$e its act a
$ave ab7se o= *isc$etion an* t57s voi* Bo7l* be an anomal4.Same Same Same ;o$ t5e /$o/ose* c5anes can be se/a$ate* an* a$e& in m4vieB& se/a$able in nat7$e& a 7nicame$al leislat7$e is one& an* a /a$liamenta$4 =o$mo= ove$nment is anot5e$Ft5e $st is a me$e amen*ment an*
%10
%10
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
contains onl4 one s7bect matte$ B5ile t5e secon* is clea$l4 a $evision t5at aectseve$4 a$ticle an* eve$4 /$ovision in t5e Constit7tion to an eHtent not even t5e/$o/onents co7l* at /$esent =7ll4 a$tic7late.FNeit5e$ *oes it com/l4 Bit5 Re/7blicAct No. 6#"& B5ic5 states in Section 10 t5at not mo$e t5an one s7bect s5all be/$o/ose* as an amen*ment o$ amen*ments to t5e Constit7tion. T5e /etition 5e$einBo7l* /$o/ose at t5e ve$4 least tBo s7bectsFa 7nicame$al leislat7$e an* a/a$liamenta$4 =o$m o= ove$nment. Aain& =o$ t5is clea$ an* /atent violation o= t5eve$4 act t5at /$ovi*es =o$ t5e eHe$cise o= t5e /oBe$& t5e /$o/ose* initiative cannotlie. T5is *oes not mean& 5oBeve$& t5at all is lost =o$ /etitione$s. ;o$ t5e /$o/ose*
c5anes can be se/a$ate* an* a$e& in m4 vieB& se/a$able in nat7$eFa 7nicame$alleislat7$e is one a /a$liamenta$4 =o$m o= ove$nment is anot5e$. T5e $st is a me$eamen*ment an* contains onl4 one s7bect matte$. T5e secon* is clea$l4 a $evisiont5at aects eve$4 a$ticle an* eve$4 /$ovision in t5e Constit7tion to an eHtent noteven t5e /$o/onents co7l* at /$esent =7ll4 a$tic7late. Petitione$s Lambino& et al.t57s o abo7t /$o/osin c5anes t5e nat7$e an* eHtent o= B5ic5 t5e4 *o not as 4etnoB eHactl4 B5at. T5e /$o/osal& t5e$e=o$e& containe* in t5e /etition =o$ initiative&$ea$*in a c5ane in t5e leislat7$e =$om a bicame$al o$ tBo8c5ambe$ bo*4 to t5at
o= a 7nicame$al o$ one8c5ambe$ bo*4& is s7stainable. T5e teHt o= t5e c5anesnee*e* to ca$$4 it o7t a$e /e$=7ncto$4 an* ministe$ial in nat7$e. Once it is limite* tot5is /$o/osal& t5e c5anes a$e sim/l4 one o= *eletion an* inse$tions& t5e Bo$*ins o= B5ic5 a$e /$acticall4 a7tomatic an* non8*isc$etiona$4.
T)NGA& 2.& Se/a$ate O/inionK
Constit7tional LaB Amen*ments an* Revisions o= t5e Constit7tion Peo/le<s)nitiative S7/$eme Co7$t 27*ments T5e Co7$t 5as lon been min*=7l o= t5e $7let5at it necessitates a mao$it4& an* not me$el4 a /l7$alit4& in o$*e$ t5at a *ecisioncan stan* as /$ece*ent.F) a$ee Bit5 27stice P7no t5at Santiao v. COMELEC an*P)RMA v. COMELEC 5a* not acI7i$e* val7e as /$ece*ent an* s5o7l* be $eve$se* inan4 case. ) a** t5at t5e Co7$t 5as lon been min*=7l o= t5e $7le t5at it necessitatesa mao$it4& an* not me$el4 a /l7$alit4& in o$*e$ t5at a *ecision can stan* as/$ece*ent. T5at /$inci/le 5as in=o$me* t5e membe$s o= t5is Co7$t as t5e4*elibe$ate* an* vote* 7/on contentio7s /etitions& even i= t5is consi*e$ation is not
7ltimatel4 $eecte* on t5e nal *$a=t $elease* =o$ /$om7lation.
Same Same Same Same Same T5e c7$io7s tBist to Santiao v. COMELEC& %0SCRA 106 ?1--@& an* P)RMA v. COMELEC& G.R. No. 1%-"!& %# Se/tembe$ 1--& ist5at =o$ all t5e *eni$ation 5ea/e* 7/on Re/. Act No. 6#" in t5ose cases& t5e Co7$t*i* not invali*ate an4 /$ovision o= t5e
%11
OL. "0"& OCTO(ER %"& %006
%11Lambino vs. Commission on Elections
stat7teFeven i= R.A. No. 6#" is t$7l4 ina*eI7ate& t5e Co7$t in Santiao s5o7l*not 5ave sim/l4 let t5e ins7Jcienc4 stan* iven t5at it Bas not min*e* toinvali*ate t5e laB itsel=.FT5e c7$io7s tBist to Santiao an* P)RMA is t5at =o$ all t5e*eni$ation 5ea/e* 7/on Re/. Act No. 6#" in t5ose cases& t5e Co7$t *i* notinvali*ate an4 /$ovision o= t5e stat7te. All t5e Co7$t sai* t5en Bas t5at t5e laB Basina*eI7ate. Since t5is ina*eI7ate laB Bas not ann7lle* b4 t5e Co7$t& o$$e/eale* b4 Con$ess& it $emaine* /a$t o= t5e stat7te boos. ) maintain t5at even i=Re/. Act No. 6#" is t$7l4 ina*eI7ate& t5e Co7$t in Santiao s5o7l* not 5ave
sim/l4 let t5e ins7Jcienc4 stan* iven t5at it Bas not min*e* to invali*ate t5e laBitsel=. A$ticle - o= t5e Civil Co*e /$ovi*es t5at no 7*e o$ co7$t s5all *ecline to$en*e$ 7*ment b4 $eason o= t5e silence& obsc7$it4 o$ ins7Jcienc4 o= t5e laBs. AseH/laine* b4 t5e Co7$t $ecentl4 in Re4es v. Lim& A$ticle - calls =o$ t5e a//licationo= eI7it4& B5ic5& in t5e $eve$e* 27stice Ca$*o:o<s Bo$*s& lls t5e o/en s/aces int5e laB.< Ce$tainl4& an4 co7$t t5at $e=7ses to $7le on an action /$emise* on Re/.Act No. 6#" on t5e $o7n* t5at t5e laB is ina*eI7ate Bo7l* 5ave been =o7n* in
$ave ab7se o= *isc$etion. T5e /$evio7s =ail7$e b4 t5e Co7$t to ll t5e o/en s/acesin Santiao =7$t5e$ 5i5li5ts t5at *ecision<s stat7s as an 7n=o$t7nate abe$$ation.
Same Same Same Same Same T5e $7lin in Santiao is e$$oneo7s& illoical& an*s5o7l* not be /e$/et7ate*.FSantiao establis5e* a tenet t5at t5e S7/$eme Co7$tma4 aJ$m a laB as constit7tional& 4et *ecla$e its /$ovisions as ina*eI7ate to
accom/lis5 t5e leislative /7$/ose& t5en ba$$e* t5e en=o$cement o= t5e laB. T5at$7lin is e$$oneo7s& illoical& an* s5o7l* not be /e$/et7ate*.
Same Same Same Ce$tio$a$i Commission on Elections (4 an4 meas7$e& t5eCOMELEC<s =ail7$e to /e$=o$m its eHec7tive an* a*minist$ative =7nctions 7n*e$ Re/.Act No. 6#" constit7tes $ave ab7se o= *isc$etion.FRe/. Act No. 6#" is a laB$elative to t5e con*7ct o= a /lebiscite. T5e /$ima$4 tas o= t5e COMELEC 7n*e$ Re/.Act No. 6#" is to en=o$ce an* a*ministe$ t5e sai* laB& =7nctions t5at a$e essentiall4eHec7tive an* a*minist$ative in nat7$e. Even t5e s7bseI7ent *7t4 o= t5e COMELECo= *ete$minin t5e s7Jcienc4 o= t5e /etitions a=te$ t5e4 5ave been le* isa*minist$ative in c5a$acte$. (4 an4 meas7$e& t5e COMELEC<s =ail7$e to /e$=o$m itseHec7tive an* a*minist$ative =7nctions 7n*e$ Re/. Act No. 6#" constit7tes $aveab7se o= *isc$etion.
Same Same Same Stat7tes One8S7bect& One8Title R7le ;o$ as lon as it can beestablis5e* t5at an initiative /etition emb$aces a sinle ene$al s7bect& t5e /etitionma4 be alloBe* no matte$ t5e n7mbe$ o= constit7tional /$ovisions /$o/ose* =o$amen*ment i= t5e amen*ments a$e e$mane to t5e
%1%
%1%
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
s7bect o= t5e /etition.FT5e /$ece*ents ove$nin t5e one8s7bect& one8title $7le7n*e$ t5e Constit7tion s5o7l* a//l4 as Bell in t5e inte$/$etation o= Section 10 o=Re/. Act No. 6#". ;o$ as lon as it can be establis5e* t5at an initiative /etitionemb$aces a sinle ene$al s7bect& t5e /etition ma4 be alloBe* no matte$ t5en7mbe$ o= constit7tional /$ovisions /$o/ose* =o$ amen*ment i= t5e amen*mentsa$e e$mane to t5e s7bect o= t5e /etition. (ot5 t5e SiaB n (a4an an* t5eLambino initiative /etitions eH/$essl4 /$o/ose t5e c5anin o= t5e =o$m o=ove$nment =$om bicame$al8/$esi*ential to 7nicame$al8/a$liamenta$4. S7c5 a
/$o/osal ma4 st$ie as com/$e5ensive& necessitatin as it Bill t5e $eo$ani:ation o=t5e eHec7tive an* leislative b$anc5es o= ove$nment& neve$t5eless it inel7ctabl4encom/asses onl4 a sinle ene$al s7bect still.
Same Same Same Same Con$ess ma4 not $est$ict t5e $i5t to initiative on$o7n*s t5at a$e not /$ovi*e* =o$ in t5e Constit7tion.F) am not even enti$el4com=o$table Bit5 t5e t5eo$etical 7n*e$/innins o= Section 10. T5e Constit7tionin*7bitabl4 $ants t5e /eo/le t5e $i5t to see amen*ment o= t5e c5a$te$ t5$o75
initiative& an* man*ates Con$ess to /$ovi*e =o$ t5e im/lementation o= t5eeHe$cise o= t5is $i5t. )n *oin so& Con$ess ma4 not $est$ict t5e $i5t to initiativeon $o7n*s t5at a$e not /$ovi*e* =o$ in t5e Constit7tion. )= =o$ eHam/le t5eim/lementin laB also /$ovi*es t5at ce$tain /$ovisions o= t5e Constit7tion ma4 notbe amen*e* t5$o75 initiative& t5at /$o5ibition s5o7l* not be s7staine*. Con$ess is
tase* Bit5 t5e im/lementation& an* not t5e $est$iction o= t5e $i5t to initiative.Same Same Same )= t5e absence o= a $eco$* o= *elibe$ations stan*s as so se$io7sa aB as to invali*ate o$ const$ict /$ocesses B5ic5 c5ane a constit7tion o$ its/$ovisions& t5en t5e enti$e initiative /$ocess a7t5o$i:e* b4 t5e Constit7tion s5o7l*be sca$let8ma$e* as Bell.FD7$in t5e 5ea$in on t5e /etitions& t5e a$7ment Bas$aise* t5at /$ovisions o= t5e Constit7tion amen*e* t5$o75 initiative Bo7l* not 5avet5e benet o= a $e=e$ence so7$ce =$om t5e $eco$* o= a *elibe$ative bo*4 s7c5 asCon$ess o$ a constit7tional convention. )t Bas s7bmitte* t5at t5is consi*e$ationin7ence* t5e Constit7tional Commission as it *$a=te* Section %& A$ticle Q))& B5ic5eH/$essl4 /$ovi*e* t5at onl4 amen*ments& an* not $evisions& ma4 be t5e s7bect o=initiative /etitions. T5is a$7ment clea$l4 /$ocee*s =$om a /$emise t5at acco$*s
s7/$eme val7e to t5e $eco$* o= *elibe$ations o= a constit7tional convention o$commission in t5e inte$/$etation o= t5e c5a$te$. 3et i= t5e absence o= a $eco$* o=*elibe$ations stan*s as so se$io7s a aB as to invali*ate o$ const$ict /$ocessesB5ic5 c5ane a constit7tion o$ its /$ovisions& t5en t5e enti$e initiative /$ocessa7t5o$i:e* b4 t5e Constit7tion s5o7l* be sca$let8ma$e* as Bell.
%1#
OL. "0"& OCTO(ER %"& %006
%1#
Lambino vs. Commission on Elections
Same Same Same Stat7to$4 Const$7ction T5e /$o/e$ inte$/$etation o= aconstit7tion *e/en*s mo$e on 5oB it Bas 7n*e$stoo* b4 t5e /eo/le a*o/tin it t5ant5e =$ame$s< 7n*e$stan*in t5e$eo=Ft5e constit7tional $eco$* is 5a$*l4 t5e RosettaStone t5at 7nlocs t5e meanin o= t5e Constit7tion.FEven i= t5e$e is nee* to $e=e$to eHt$insic so7$ces in ai* o= constit7tional inte$/$etation& t5e constit7tional $eco$**oes not /$ovi*e t5e eHcl7sive o$ *enitive ansBe$ on 5oB to inte$/$et t5e/$ovision. T5e intent o= a constit7tional convention is not cont$ollin b4 itsel=& an*B5ile t5e 5isto$ical *isc7ssion on t5e oo$ o= t5e constit7tional convention isval7able& it is not necessa$il4 *ecisive. T5e Co7$t 5as even 5el* in e$a v. Avelino
t5at t5e /$ocee*ins o= t5e constit7tional convention a$e less concl7sive o= t5e/$o/e$ const$7ction o= t5e =7n*amental laB t5an a$e leislative /$ocee*ins o= t5e/$o/e$ const$7ction o= a stat7te& since in t5e latte$ case it is t5e intent o= t5eleislat7$e t5at co7$ts see& B5ile in t5e =o$me$ co7$ts a$e en*eavo$in to a$$ive att5e intent o= t5e /eo/le t5$o75 t5e *isc7ssions an* *elibe$ations o= t5ei$$e/$esentatives. T5e /$o/e$ inte$/$etation o= a constit7tion *e/en*s mo$e on 5oBit Bas 7n*e$stoo* b4 t5e /eo/le a*o/tin it t5an t5e =$ame$s< 7n*e$stan*int5e$eo=. )= t5e$e is =ea$ in t5e absence o= a constit7tional $eco$* as 7i*e =o$
inte$/$etation o= an4 amen*ments a*o/te* via initiative& s7c5 absence Bo7l* not/$ecl7*e t5e co7$ts =$om inte$/$etin s7c5 amen*ments in a manne$ consistent Bit55oB co7$ts ene$all4 const$7e t5e Constit7tion. ;o$ eHam/le& $eliance Bill be /lace*on t5e ot5e$ /$ovisions o= t5e Constit7tion to a$$ive at a 5a$moni:e* an* 5olisticconstit7tional =$ameBo$. T5e constit7tional $eco$* is 5a$*l4 t5e Rosetta Stone t5at
7nlocs t5e meanin o= t5e Constit7tion.Same Same Same T5e initiative /$ocess involves /a$tici/ato$4 *emoc$ac4 at itsmost elementalFB5e$ein t5e conseI7ential *ebate Bo7l* not be conne* to t5ea77st 5alls o= Con$ess o$ t5e 5alloBe* c5ambe$s o= t5is Co7$t& as it Bo7l* s/illove$ to t5e /7blic sI7a$es an* toBn 5alls& t5e aca*emic 4a$*s an* t5e )nte$netbloos/5e$e& t5e *inin a$eas in t5e 5omes o= t5e aX7ent an* t5e im/ove$is5e*alie.FAn* even s5o7l* t5e COMELEC n* t5e initiative /etitions s7Jcient& t5ematte$ o= B5et5e$ t5e Constit7tion s5o7l* be amen*e* Bo7l* still *e/en* on t5ec5oice o= t5e electo$ate. T5e o//osito$s a$e clea$l4 I7eas4 abo7t some o= t5eamen*ments /$o/ose*& o$ t5e im/7te* motives be5in* t5e amen*ments. A$e=e$en*7m& s5o7l* t5e COMELEC n* t5e /etitions as s7Jcient& Bo7l* alloB t5em
to conve4 t5ei$ 7neasiness to t5e /7blic at la$e& as Bell as =o$ t5e /$o/onents o=t5e amen*ment to *e=en* t5ei$ /$o/osal. T5e cam/ain /e$io* alone Bo7l* alloBt5e /7blic to be involve* in t5e sinicant *elibe$ation on t5e co7$se o7$ nations5o7l* tae& Bit5 t5e ens7in net benet o= a mo$e in=o$me*& mo$e /oliticall4 aBa$e/o/7lace. An* o= co7$se& t5e c5oice on B5et5e$ t5e Constit7tion s5o7l*
%1!
%1!
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
be amen*e* Bo7l* lie *i$ectl4 Bit5 t5e /eo/le. T5e initiative /$ocess involves/a$tici/ato$4 *emoc$ac4 at its most elemental B5e$ein t5e conseI7ential *ebateBo7l* not be conne* to t5e a77st 5alls o= Con$ess o$ t5e 5alloBe* c5ambe$s o=t5is Co7$t& as it Bo7l* s/ill ove$ to t5e /7blic sI7a$es an* toBn 5alls& t5e aca*emic4a$*s an* t5e )nte$net bloos/5e$e& t5e *inin a$eas in t5e 5omes o= t5e aX7entan* t5e im/ove$is5e* alie.
Same Same Same S7/$eme Co7$t T5e biases Be s5o7l* en=o$ce as maist$atesa$e t5ose o= t5e Constit7tion an* t5e elements o= *emoc$ac4 on B5ic5 o7$ $7le o=
laB is =o7n*e*F*i$ect *emoc$ac4& as embo*ie* in t5e initiative /$ocess& is b7t ac7lmination o= t5e evol7tion ove$ t5e cent7$ies o= *emoc$atic $i5ts o= c5oice an*sel=8ove$nance.FT5e biases Be s5o7l* en=o$ce as maist$ates a$e t5ose o= t5eConstit7tion an* t5e elements o= *emoc$ac4 on B5ic5 o7$ $7le o= laB is =o7n*e*.Di$ect *emoc$ac4& as embo*ie* in t5e initiative /$ocess& is b7t a c7lmination o= t5eevol7tion ove$ t5e cent7$ies o= *emoc$atic $i5ts o= c5oice an* sel=8ove$nance. T5e$eeme$ence o= t5e At5enian *emoc$atic i*eal a=te$ cent7$ies o= t4$annical $7lesa$$ive* ve$4 sloBl4& t5e benets /a$cele* o7t at $st onl4 to =avo$e* classes. T5e
Mana Ca$ta $ante* limite* $i5ts to sel=8*ete$mination an* sel=8ove$nance onl4to a =eB Enlis5 nobles t5e Ame$ican Constit7tion Bas o$iinall4 inten*e* to ive ameanin=7l voice onl4 to =$ee men& mostl4 Ca7casian& B5o met t5e /$o/e$t485ol*in$eI7i$ements set b4 t5e states =o$ votin.
Same Same Same T5e initiative /$ocess s5o7l* be acnoBle*e* as t5e /7$est
im/lement o= *emoc$atic $7le 7n*e$ laB.F(4 alloBin t5e sove$ein /eo/le to*i$ectl4 /$o/ose an* enact constit7tional amen*ments& t5e initiative /$ocess s5o7l*be acnoBle*e* as t5e /7$est im/lement o= *emoc$atic $7le 7n*e$ laB. T5is $i5t$ante* to ove$ siHt4 million ;ili/inos cannot be *enie* b4 t5e votes o= less t5anei5t maist$ates =o$ $easons t5at bea$ no coitation on t5e Constit7tion.
C+)CO8NAAR)O& 2.& Dissentin O/inionK
Constit7tional LaB Amen*ments an* Revisions o= t5e Constit7tion Peo/le<s)nitiative ,5ile it is b7t /$o/e$ to acco$* $eat $es/ect an* $eve$ence to t5e
P5ili//ine Constit7tion o= 1- =o$ bein t5e s7/$eme laB o= t5e lan*& Be s5o7l* notlose si5t o= t5e t$7t5 t5at t5e$e is an 7ltimate a7t5o$it4 to B5ic5 t5e Constit7tion isalso s7bo$*inateFt5e Bill o= t5e /eo/le )= t5e Constit7tion is t5e eH/$ession o= t5eBill o= t5e sove$ein /eo/le& t5en& in t5e event t5at t5e /eo/le c5ane t5ei$ Bill& som7st t5e Constit7tion be $evise* o$ amen*e* to $eect s7c5 c5ane.F,5ile it is b7t/$o/e$ to acco$* $eat $e8
%1"
OL. "0"& OCTO(ER %"& %006
%1"Lambino vs. Commission on Elections
s/ect an* $eve$ence to t5e P5ili//ine Constit7tion o= 1- =o$ bein t5e s7/$emelaB o= t5e lan*& Be s5o7l* not lose si5t o= t5e t$7t5 t5at t5e$e is an 7ltimatea7t5o$it4 to B5ic5 t5e Constit7tion is also s7bo$*inateFt5e Bill o= t5e /eo/le. Noless t5an its ve$4 $st /a$a$a/5& t5e P$eamble& eH/$essl4 $econi:es t5at t5eConstit7tion came to be beca7se it Bas o$*aine* an* /$om7late* b4 t5e sove$ein;ili/ino /eo/le. )t is a /$inci/le $eite$ate* 4et aain in A$ticle ))& Section 1& o= t5eConstit7tion& B5ic5 eH/licitl4 *ecla$es t5at t5e P5ili//ines is a *emoc$atic an*$e/7blican State. Sove$eint4 $esi*es in t5e /eo/le an* all ove$nment a7t5o$it4
emanates =$om t5em. T57s& t5e $esol7tion o= t5e iss7es an* cont$ove$sies $aise* b4t5e instant Petition s5o7l* be 7i*e* acco$*inl4 b4 t5e =o$eoin /$inci/le. )= t5eConstit7tion is t5e eH/$ession o= t5e Bill o= t5e sove$ein /eo/le& t5en& in t5e eventt5at t5e /eo/le c5ane t5ei$ Bill& so m7st t5e Constit7tion be $evise* o$ amen*e* to$eect s7c5 c5ane. Res7ltantl4& t5e $i5t to $evise o$ amen* t5e Constit7tionin5e$entl4 $esi*es in t5e sove$ein /eo/le B5ose Bill it is s7//ose* to eH/$ess an*embo*4. T5e Constit7tion itsel=& 7n*e$ A$ticle Q))& /$ovi*es =o$ t5e means b4 B5ic5t5e $evision o$ amen*ment o= t5e Constit7tion ma4 be /$o/ose* an* $atie*.
Same Same Same T5e $i5t o= t5e sove$ein /eo/le to *i$ectl4 /$o/oseamen*ments to t5e Constit7tion t5$o75 initiative is mo$e s7/e$io$ t5an t5e /oBe$t5e4 *eleate* to Con$ess o$ to a constit7tional convention to amen* o$ $evise t5eConstit7tion.F)t is m4 ea$nest o/inion t5at t5e $i5t o= t5e sove$ein /eo/le to*i$ectl4 /$o/ose amen*ments to t5e Constit7tion t5$o75 initiative is mo$e s7/e$io$
t5an t5e /oBe$ t5e4 *eleate* to Con$ess o$ to a constit7tional convention toamen* o$ $evise t5e Constit7tion. T5e initiative /$ocess ives t5e sove$ein /eo/let5e voice to eH/$ess t5ei$ collective Bill& an* B5en t5e /eo/le s/ea& Be m7st be$ea*4 to listen. A$ticle Q))& Section % o= t5e Constit7tion $econi:es an* 7a$anteest5e sove$ein /eo/le<s $i5t to initiative& $at5e$ t5an limits it. T5e enablin laBB5ic5 Con$ess 5as been tase* to enact m7st ive li=e to t5e sai* /$ovision an*mae t5e eHe$cise o= t5e $i5t to initiative /ossible& not $e7late& limit& o$ $est$ict itin an4 Ba4 t5at Bo7l* $en*e$ t5e /eo/le<s o/tion o= $eso$tin to initiative to amen*t5e Constit7tion mo$e st$inent& *iJc7lt& an* less =easible& as com/a$e* to t5e ot5e$constit7tional means to amen* o$ $evise t5e Constit7tion. )n =act& it is Bo$t5$ecallin t5at 7n*e$ A$ticle )& Section 1 o= t5e Constit7tion& t5e leislative /oBe$ o=Con$ess is limite* to t5e eHtent $ese$ve* to t5e /eo/le b4 t5e /$ovisions oninitiative an* $e=e$en*7m.
Same Same Same S7/$eme Co7$t 27*ments A=te$ a ca$e=7l $ea*in o= Santiaov. Commission on Elections& %0 SCRA 106 ?1--@& ) believe in ea$nest t5at t5e/e$manent in7nction act7all4 iss7e* b4 t5is Co7$t aainst
%16
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SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
t5e COMELEC /e$tains onl4 to t5e /etition =o$ initiative le* b4 2es7s S. Deln& an*not to all s7bseI7ent /etitions =o$ initiative to amen* t5e Constit7tion.FT5eCOMELEC 5a* in*ee* committe* $ave ab7se o= *isc$etion B5en it s7mma$il4*ismisse* Lambino an* A7menta*o<s /etition =o$ initiative enti$el4 on t5e basis o=t5e Santiao case B5ic5& allee*l4& /e$manentl4 enoine* it =$om ente$tainin o$tain coni:ance o= an4 /etition =o$ initiative to amen* t5e Constit7tion in t5eabsence o= a s7Jcient laB. A=te$ a ca$e=7l $ea*in& 5oBeve$& o= t5e Santiao case& )believe in ea$nest t5at t5e /e$manent in7nction act7all4 iss7e* b4 t5is Co7$taainst t5e COMELEC /e$tains onl4 to t5e /etition =o$ initiative le* b4 2es7s S.
Deln& an* not to all s7bseI7ent /etitions =o$ initiative to amen* t5e Constit7tion.
Same Same Same )nitiative an* Re=e$en*7m Act ?R.A. No. 6#"@ T5e *ecla$ationo= t5e Co7$t t5at Re/7blic Act No. 6#" is ins7Jcient o$ ina*eI7ate act7all4 ave$ise to mo$e I7estions $at5e$ t5an ansBe$s& *7e to t5e =act t5at t5e$e 5as neve$been a 7*icial /$ece*ent B5e$ein t5e Co7$t invali*ate* a laB =o$ ins7Jcienc4 o$ina*eI7ac4.FT5e *ecla$ation o= t5e Co7$t t5at Re/7blic Act No. 6#" is ins7Jciento$ ina*eI7ate act7all4 ave $ise to mo$e I7estions $at5e$ t5an ansBe$s& *7e to t5e
RA 6#" Bas not& an* lost si5t o= B5at RA 6#" Bas.FT5e *ecision in Santiao=oc7se* on B5at it /e$ceive* to be =atal aBs in t5e *$a=tin o= t5e laB& in t5e=ailins o= t5e Ba4 t5e laB Bas st$7ct7$e*& to come to t5e concl7sion t5at t5e laBBas ina*eI7ate. T5e Co7$t itsel= $econi:e* t5e leislato$s< intent& b7t *is$ea$*e*t5is intent. T5e laB Bas =o7n* Bantin. T5e Co7$t t5en saB t5e incl7sion o= t5eConstit7tion in RA 6#" as an a=te$t5o75t. +oBeve$& it Bas incl7*e*& an* it s5o7l*not be eHcl7*e* b4 t5e Co7$t via a st$aine* anal4sis o= t5e laB. T5e *iJc7ltconst$7ction o= t5e laB s5o7l* not se$ve to =$7st$ate t5e intent o= t5e =$ame$s o= t5e
1- Constit7tionK to ive t5e /eo/le t5e /oBe$ to /$o/ose amen*ments as t5e4saB t. )t is a basic /$ece/t in stat7to$4 const$7ction t5at t5e intent o= t5eleislat7$e is t5e cont$ollin =acto$ in t5e inte$/$etation o= a stat7te. T5e intent o=t5e leislat7$e Bas clea$& an* 4et RA 6#" Bas *ecla$e* ina*eI7ate. )t Bas nots/ecicall4 st$7c *oBn o$ *ecla$e* 7nconstit7tional& me$el4 incom/lete. T5e Co7$t=oc7se* on B5at RA 6#" Bas not& an* lost si5t o= B5at RA 6#" Bas.
Same Same Same S7/$eme Co7$t 27*ments A 7*ment m7st be *istin7is5e*=$om an o/inionFt5e latte$ is an in=o$mal eH/$ession o= t5e vieBs o= t5e co7$t an*cannot /$evail aainst its nal o$*e$ o$ *ecisionFan* B5ile t5e tBo ma4 becombine* in one inst$7ment& t5e o/inion =o$ms no /a$t o= t5e 7*ment ,e o=tenenco7nte$ in 7*icial *ecisions la/ses& n*ins& loose statements an* ene$alities
B5ic5 *o not bea$ on t5e iss7es o$ a$e a//a$entl4 o//ose* to t5e ot5e$Bise so7n*an* consi*e$e* $es7lt $eac5e* b4 t5e co7$t as eH/$esse* in t5e *is/ositive /a$t& socalle*& o= t5e *ecision.FA 7*ment m7st be *istin7is5e* =$om an o/inion. T5elatte$ is an in=o$mal eH/$ession o= t5e vieBs o= t5e co7$t an* cannot /$evail aainstits nal o$*e$ o$ *ecision. ,5ile t5e tBo ma4 be combine* in one inst$7ment& t5eo/inion =o$ms no /a$t o= t5e 7*ment. So t5e$e is a *istinction betBeen t5e n*insan* concl7sions o= a co7$t an* its 27*ment. ,5ile t5e4 ma4 constit7te its *ecisionan* amo7nt to t5e $en*ition o= a 7*ment& t5e4 a$e not t5e 7*ment itsel=. )t is notin=$eI7ent t5at t5e $o7n*s o= a *ecision =ail to $eect t5e eHact vieBs o= t5e co7$t&es/eciall4 t5ose o= conc7$$in 7stices in a colleiate co7$t. ,e o=ten enco7nte$ in
7*icial *ecisions la/ses& n*ins& loose statements an* ene$alities B5ic5 *o notbea$ on t5e iss7es o$ a$e a//a$entl4 o//ose* to t5e ot5e$Bise so7n* an*consi*e$e* $es7lt $eac5e* b4 t5e co7$t as eH/$esse* in t5e *is/ositive /a$t& socalle*& o= t5e *ecision.
Same Same Same Stat7to$4 Const$7ction ,5en t5e$e a$e $a4 a$eas inleislation& es/eciall4 in matte$s t5at /e$tain to t5e sove$ein /eo/le<s /olitical$i5ts& co7$ts m7st lean mo$e toBa$*s a mo$e libe$al inte$/$etation =avo$in t5e/eo/le<s $i5t to eHe$cise t5ei$ sove$ein /oBe$.F)n t5is case& t5e Lambino /etitionis not conce$ne* Bit5 $eB$itin t5e enti$e Constit7tion. )t
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%1
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
Bas neve$ its intention to $evise t5e B5ole Constit7tion. )t me$el4 conce$ns itsel=Bit5 amen*in a =eB /$ovisions in o7$ =7n*amental c5a$te$. ,5en t5e$e a$e $a4a$eas in leislation& es/eciall4 in matte$s t5at /e$tain to t5e sove$ein /eo/le<s/olitical $i5ts& co7$ts m7st lean mo$e toBa$*s a mo$e libe$al inte$/$etation =avo$int5e /eo/le<s $i5t to eHe$cise t5ei$ sove$ein /oBe$.
SPEC)AL C))L ACT)ONS in t5e S7/$eme Co7$t. Ce$tio$a$i. T5e =acts a$e state* in t5e o/inion o= t5e Co7$t.
Ca$los P. Me*ina& Am/a$ita S. Sta. Ma$ia& Gilbe$t . Semb$ano& Melencio S. Sta.Ma$ia& Giovanni ;. allente& Ra4 Pa7lo 2. Santiao an* Ma. Nina Te$esa . C5an8Gon:aa =o$ o//osito$s One oice& et al.
Ma$lon 2. Man7el =o$ movant8inte$veno$ Alte$native LaB G$o7/s& )nc. )ba$$a M. G7tie$$e: ))) an* Rossel4nn 2a4e G. De la C$7: =o$ inte$veno$s Lo$etaAnn P. Rosales& et al.
%1-
OL. "0"& OCTO(ER %"& %006
%1-
Lambino vs. Commission on Elections
M.M. La:a$o Z Associates =o$ inte$veno$s P5ilconsa an* Est$ella.
T5ese a$e consoli*ate* /etitions on t5e Resol7tion *ate* #1 A77st %006 o= t5eCommission on Elections ?COMELEC@ *en4in *7e co7$se to an initiative /etitionto amen* t5e 1- Constit7tion.
Antece*ent ;acts
On 1" ;eb$7a$4 %006& /etitione$s in G.R. No. 1!1"#& namel4 Ra7l L. Lambino an*E$ico (. A7menta*o ?Lambino G$o7/@& Bit5 ot5e$ $o7/s1 an* in*ivi*7als&commence* at5e$in sinat7$es =o$ an initiative /etition to c5ane t5e 1-Constit7tion. On %" A77st %006& t5e Lambino G$o7/ le* a /etition Bit5 t5eCOMELEC to 5ol* a /lebiscite t5at Bill $ati=4 t5ei$ initiative /etition 7n*e$ Section"?b@ an* ?c@%
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1 )ncl7*in SiaB n (a4an an* Union o= Local A7t5o$ities o= t5e P5ili//ines ?ULAP@.
% T5is /$ovision statesK ReI7i$ements.FH H H H?b@ A /etition =o$ an initiative on t5e 1- Constit7tion m7st 5ave at least tBelve/e$ cent7m ?1%V@ o= t5e total n7mbe$ o= $eiste$e* vote$s as sinato$ies& o= B5ic5eve$4 leislative *ist$ict m7st be $e/$esente* b4 at least
! Sections 1& %& #& !& "& 6 an* o= A$ticle ) Bill be c5ane* t57sKSection 1. ?1@ T5e leislative an* eHec7tive /oBe$s s5all be veste* in a 7nicame$alPa$liament B5ic5 s5all be com/ose* o= as man4 membe$s as ma4 be /$ovi*e* b4laB& to be a//o$tione* amon t5e /$ovinces& $e/$esentative *ist$icts& an* cities inacco$*ance Bit5 t5e n7mbe$ o= t5ei$ $es/ective in5abitants& Bit5 at least t5$ee57n*$e* t5o7san* in5abitants /e$ *ist$ict& an* on t5e basis o= a 7ni=o$m an*/$o$essive $atio. Eac5 *ist$ict s5all com/$ise& as =a$ as /$acticable& conti7o7s&com/act an* a*acent te$$ito$4& an* eac5 /$ovince m7st 5ave at least one membe$.
inconsistent Bit5 Section 1 5e$eo=& in B5ic5 case t5e4 s5all be *eeme* amen*e* soas to con=o$m to a 7nicame$al Pa$liamenta$4 S4stem o= ove$nment /$ovi*e*5oBeve$ t5at an4 an* all $e=e$ences t5e$ein to Con$ess& Senate& +o7se o=Re/$esentatives an* +o7ses o= Con$ess s5all be c5ane* to $ea* Pa$liamentt5at an4 an* all $e=e$ences t5e$ein to Membe$s o= Con$ess& Senato$s o$Membe$s o= t5e +o7se o= Re/$esentatives s5all be c5ane* to $ea* asMembe$s o= Pa$liament an* an4 an* all $e=e$ences to t5e P$esi*ent an* o$Actin P$esi*ent s5all be c5ane* to $ea* P$ime Ministe$.
Sec. %. Amen*ments to t5is Constit7tion ma4 lieBise be *i$ectl4 /$o/ose* b4 t5e/eo/le t5$o75 initiative& 7/on a /etition o= at least tBelve /e$ cent7m o= t5e totaln7mbe$ o= $eiste$e* vote$s& o= B5ic5 eve$4 leislative *ist$ict m7st be $e/$esente*b4 at least t5$ee /e$ cent7m o= t5e $eiste$e* vote$s t5e$ein. H H H.
*en4in *7e co7$se to t5ei$ /etition since Santiao is not a bin*in /$ece*ent.Alte$nativel4& t5e Lambino G$o7/ claims t5at Santiao bin*s onl4 t5e /a$ties to t5atcase& an* t5ei$ /etition *ese$ves coni:ance as an eH/$ession o= t5e Bill o= t5esove$ein /eo/le.
amen*ments to t5e Constit7tion 7ntil a s7Jcient laB s5all 5ave been vali*l4enacte* to /$ovi*e =o$ t5e im/lementation o= t5e s4stem.
T57s& even i= t5e sinat7$es in t5e instant Petition a//ea$ to meet t5e $eI7i$e*minim7m /e$ cent7m o= t5e total n7mbe$ o= $eiste$e* vote$s& o= B5ic5 eve$4leislative *ist$ict is $e/$esente* b4 at least t5$ee /e$ cent7m o= t5e $eiste$e*vote$s t5e$ein& still t5e Petition cannot be iven *7e co7$se since t5e S7/$eme Co7$tcateo$icall4 *ecla$e* R.A. No. 6#" as ina*eI7ate to cove$ t5e s4stem o= initiativeon amen*ments to t5e Constit7tion.
T5is Commission is not 7nmin*=7l o= t5e t$anscen*ental im/o$tance o= t5e $i5t o=t5e /eo/le 7n*e$ a s4stem o= initiative. +oBeve$& neit5e$ can Be t7$n a blin* e4e to
t5e /$ono7ncement o= t5e +i5 Co7$t t5at in t5e absence o= a vali* enablin laB&t5is $i5t o= t5e /eo/le $emains not5in b7t an em/t4 $i5t& an* t5at t5isCommission is /e$manentl4 enoine* =$om ente$tainin o$ tain coni:ance o= an4/etition =o$ initiative on amen*ments to t5e Constit7tion.
Consi*e$in t5e =o$eoin& ,e a$e t5e$e=o$e const$aine* not to ente$tain o$ ive *7eco7$se to t5e instant Petition.
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SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
tion *es/ite t5e /e$manent in7nction in Santiao. T5e Co7$t t$eate* t5e (ina4G$o7/<s /etition as an o//osition8in8inte$vention.
1. ,5et5e$ t5e Lambino G$o7/<s initiative /etition com/lies Bit5 Section %& A$ticleQ)) o= t5e Constit7tion on amen*ments to t5e Constit7tion t5$o75 a /eo/le<sinitiative
%. ,5et5e$ t5is Co7$t s5o7l* $evisit its $7lin in Santiao *ecla$in RA 6#"incom/lete& ina*eI7ate o$ Bantin in essential te$ms an* con*itions to im/lementt5e initiative cla7se on /$o/osals to amen* t5e Constit7tion an*
#. ,5et5e$ t5e COMELEC committe* $ave ab7se o= *isc$etion in *en4in *7eco7$se to t5e Lambino G$o7/<s /etition.
T5e R7lin o= t5e Co7$t
T5e$e is no me$it to t5e /etition.
T5e Lambino G$o7/ mise$abl4 =aile* to com/l4 Bit5 t5e basic $eI7i$ements o= t5eConstit7tion =o$ con*7ctin a /eo/le<s initiative.
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1% T5is /$ovision statesK Amen*ments to t5is Constit7tion ma4 lieBise be *i$ectl4/$o/ose* b4 t5e /eo/le t5$o75 initiative 7/on a /etition o= at least tBelve /e$cent7m o= t5e total n7mbe$ o= $eiste$e* vote$s& o= B5ic5 eve$4 leislative *ist$ictm7st be $e/$esente* b4 at least t5$ee /e$ cent7m o= t5e $eiste$e* vote$s t5e$ein.No amen*ment 7n*e$ t5is section s5all be a7t5o$i:e* Bit5in ve 4ea$s =olloBin t5e$atication o= t5is Constit7tion no$ o=tene$ t5an once eve$4 ve 4ea$s.
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SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
T57s& t5e$e is even no nee* to $evisit Santiao& as t5e /$esent /etition Ba$$ants*ismissal base* alone on t5e Lambino G$o7/<s la$in =ail7$e to com/l4 Bit5 t5ebasic $eI7i$ements o= t5e Constit7tion. ;o$ =olloBin t5e Co7$t<s $7lin in Santiao&no $ave ab7se o= *isc$etion is att$ib7table to t5e Commission on Elections.
1. T5e )nitiative Petition Does Not Com/l4 Bit5 Section %&A$ticle Q)) o= t5eConstit7tion on Di$ect P$o/osal b4 t5e Peo/le
Section %& A$ticle Q)) o= t5e Constit7tion is t5e ove$nin constit7tional /$ovisiont5at alloBs a /eo/le<s initiative to /$o/ose amen*ments to t5e Constit7tion. T5issection statesK
Sec. %. Amen*ments to t5is Constit7tion ma4 lieBise be *i$ectl4 /$o/ose* b4 t5e/eo/le t5$o75 initiative 7/on a /etition o= at least tBelve /e$ cent7m o= t5e totaln7mbe$ o= $eiste$e* vote$s o= B5ic5 eve$4 leislative *ist$ict m7st be $e/$esente*b4 at least t5$ee /e$ cent7m o= t5e $eiste$e* vote$s t5e$ein. H H H H ?Em/5asiss7//lie*@
MR. RODR)GOK Let 7s loo at t5e mec5anics. Let 7s sa4 some vote$s Bant to
/$o/ose a constit7tional amen*ment. )s t5e *$a=t o= t5e /$o/ose* constit7tionalamen*ment $ea*4 to be s5oBn to t5e /eo/le B5en t5e4 a$e ase* to sin
MR. SUAREK T5at can be $easonabl4 ass7me*& Ma*am P$esi*ent.
MR. RODR)GOK ,5at *oes t5e s/onso$ mean T5e *$a=t is $ea*4 an* s5oBn to t5embe=o$e t5e4 sin. NoB& B5o /$e/a$es t5e *$a=t
MR. SUAREK T5e /eo/le t5emselves& Ma*am P$esi*ent.
MR. RODR)GOK No& beca7se be=o$e t5e4 sin t5e$e is al$ea*4 a *$a=t s5oBn to t5eman* t5e4 a$e ase* B5et5e$ o$ not t5e4 Bant to /$o/ose t5is constit7tionalamen*ment.
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OL. "0"& OCTO(ER %"& %006
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Lambino vs. Commission on Elections
MR. SUAREK As it is envisione*& an4 ;ili/ino can /$e/a$e t5at /$o/osal an* /ass ita$o7n* =o$ sinat7$e.1# ?Em/5asis s7//lie*@
Clea$l4& t5e =$ame$s o= t5e Constit7tion inten*e* t5at t5e *$a=t o= t5e /$o/ose*constit7tional amen*ment s5o7l* be $ea*4 an* s5oBn to t5e /eo/le be=o$et5e4 sin s7c5 /$o/osal. T5e =$ame$s /lainl4 state* t5at be=o$e t5e4 sin t5e$e isal$ea*4 a *$a=t s5oBn to t5em. T5e =$ame$s also envisione* t5at t5e /eo/les5o7l* sin on t5e /$o/osal itsel= beca7se t5e /$o/onents m7st /$e/a$e t5at/$o/osal an* /ass it a$o7n* =o$ sinat7$e.
T5e essence o= amen*ments *i$ectl4 /$o/ose* b4 t5e /eo/le t5$o75 initiative7/on a /etition is t5at t5e enti$e /$o/osal on its =ace is a /etition b4 t5e /eo/le.
T5is means tBo essential elements m7st be /$esent. ;i$st& t5e /eo/le m7st a7t5o$an* t57s sin t5e enti$e /$o/osal. No aent o$ $e/$esentative can sin on t5ei$be5al=. Secon*& as an initiative 7/on a /etition& t5e /$o/osal m7st be embo*ie* in a/etition.
amen*ments is $st s5oBn to t5e /eo/le B5o eH/$ess t5ei$ assent b4 sinin s7c5com/lete /$o/osal in a /etition. T57s& an amen*ment is *i$ectl4 /$o/ose* b4 t5e/eo/le t5$o75 initiative 7/on a /etition onl4 i= t5e /eo/le sin on a /etition t5atcontains t5e =7ll teHt o= t5e /$o/ose* amen*ments.
T5e =7ll teHt o= t5e /$o/ose* amen*ments ma4 be eit5e$ B$itten on t5e =ace o= t5e/etition& o$ attac5e* to it. )= so attac5e*& t5e /etition m7st state t5e =act o= s7c5attac5ment. T5is is an ass7$ance t5at eve$4 one o= t5e seve$al millions o=sinato$ies to t5e /etition 5a* seen t5e =7ll teHt o= t5e /$o/ose* amen*mentsbe=o$e sinin. Ot5e$Bise& it is /54sicall4 im/ossible& iven t5e time const$aint& to/$ove t5at eve$4 one o= t5e millions o= sinato$ies 5a* seen t5e =7ll teHt o= t5e/$o/ose* amen*ments be=o$e sinin.
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1# ) RECORD& //. #8#.
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SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
T5e =$ame$s o= t5e Constit7tion *i$ectl4 bo$$oBe*1! t5e conce/t o= /eo/le<sinitiative =$om t5e Unite* States B5e$e va$io7s State constit7tions inco$/o$ate aninitiative cla7se. )n almost all States1" B5ic5 alloB initiative /etitions& t5e7nben*in $eI7i$ement is t5at t5e /eo/le m7st $st see t5e =7ll teHt o= t5e /$o/ose*amen*ments be=o$e t5e4 sin to sini=4 t5ei$ assent& an* t5at t5e /eo/le m7st sinon an initiative /etition t5at contains t5e =7ll teHt o= t5e /$o/ose* amen*ments.16
MR. SARM)ENTOK Ma*am P$esi*ent& ) am 5a//4 t5at t5e Committee on Amen*mentsan* T$ansito$4 P$ovisions *eci*e* to $etain t5e s4stem o= initiative as a mo*e o=amen*in t5e Constit7tion. ) ma*e a s7$ve4 o= Ame$ican constit7tions an* )*iscove$e* t5at 1# States /$ovi*e =o$ a s4stem o= initiative as a mo*e o= amen*in
commonl4 a$e *esc$ibe* in simila$ te$ms. H H H ?T5e /7$/ose o= t5e =7ll teHt$eI7i$ement is to /$ovi*e s7Jcient in=o$mation so t5at $eiste$e* vote$s canintellientl4 eval7ate B5et5e$ to sin t5e initiative /etition.@ H H H ?/7blication o==7ll teHt o= amen*e* constit7tional /$ovision $eI7i$e* beca7se it is essential =o$ t5eelecto$ to 5ave H H H t5e section B5ic5 is /$o/ose* to be a**e* to o$ s7bt$acte*=$om. )= 5e is to vote intellientl4& 5e m7st 5ave t5is noBle*e. Ot5e$Bise in man4instances 5e Bo7l* be $eI7i$e* to vote in t5e *a$.@ ?Em/5asis s7//lie*@
Mo$eove$& an initiative sine$ m7st be in=o$me* at t5e time o= sinin o= t5e nat7$ean* eect o= t5at B5ic5 is /$o/ose* an* =ail7$e to *o so is *ece/tive an*mislea*in B5ic5 $en*e$s t5e initiative voi*.1-
Section %& A$ticle Q)) o= t5e Constit7tion *oes not eH/$essl4 state t5at t5e /etitionm7st set =o$t5 t5e =7ll teHt o= t5e /$o/ose* amen*ments. +oBeve$& t5e *elibe$ationso= t5e =$ame$s o= o7$ Constit7tion clea$l4 s5oB t5at t5e =$ame$s inten*e* to a*o/t
t5e $elevant Ame$ican 7$is/$7*ence on /eo/le<s initiative. )n /a$tic7la$& t5e*elibe$ations o= t5e Constit7tional Commission eH/licitl4 $eveal t5at t5e =$ame$sinten*e* t5at t5e /eo/le m7st $st see t5e =7ll teHt o= t5e /$o/ose* amen*mentsbe=o$e t5e4 sin& an* t5at t5e /eo/le m7st sin on a /etition containin s7c5 =7llteHt. )n*ee*& Section "?b@ o= Re/7blic Act No. 6#"& t5e )nitiative an* Re=e$en*7mAct t5at t5e Lambino G$o7/ invoes as vali*& $eI7i$es t5at t5e /eo/le m7st sin t5e/etition H H H as sinato$ies.
T5e Lambino G$o7/ *i* not attac5 to t5ei$ /$esent /etition Bit5 t5is Co7$t a co/4 o=t5e /a/e$ t5at t5e /eo/le sine* as t5ei$ initiative /etition. T5e Lambino G$o7/s7bmitte* to t5is Co7$t a co/4 o= a
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1- St7m/= v. LaB& #- P. %* 1%0& 1%! ?1--%@.
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OL. "0"& OCTO(ER %"& %006
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Lambino vs. Commission on Electionssinat7$e s5eet%0 a=te$ t5e o$al a$7ments o= %6 Se/tembe$ %006 B5en t5e4 le*t5ei$ Memo$an*7m on 11 Octobe$ %006. T5e sinat7$e s5eet Bit5 t5is Co7$t *7$int5e o$al a$7ments Bas t5e sinat7$e s5eet attac5e*%1 to t5e o//osition ininte$vention le* on Se/tembe$ %006 b4 inte$veno$ Att4. Pete 7i$ino87a*$a.
T5e sinat7$e s5eet attac5e* to Att4. 7a*$a<s o//osition an* t5e sinat7$e s5eetattac5e* to t5e Lambino G$o7/<s Memo$an*7m a$e t5e same. ,e $e/$o*7ce beloBt5e sinat7$e s5eet in =7llK
PROPOS)T)ONK DO 3OU APPROE O; T+E AMENDMENT O; ART)CLES ) AND )) O; T+E 1- CONST)TUT)ON& C+ANG)NG T+E ;ORM O; GOERNMENT ;ROM T+EPRESENT ()CAMERAL8PRES)DENT)AL TO A UN)CAMERAL8PARL)AMENTAR3 S3STEM O;GOERNMENT& )N ORDER TO AC+)EE GREATER E;;)C)ENC3& S)MPL)C)T3 ANDECONOM3 )N GOERNMENT AND PRO)D)NG AN ART)CLE Q))) AS TRANS)TOR3PRO)S)ONS ;OR T+E ORDERL3 S+);T ;ROM ONE S3STEM TO ANOT+ER
COMM)SS)ON ON C+ARTER C+ANGE T+ROUG+ PEOPLE<S )N)T)AT)E ANDRE;ERENDUM AS A MODE O; AMEND)NG T+E 1- CONST)TUT)ON
,+EREAS& t5e$e is a nee* =o$ t5e Union o= Local A7t5o$ities o= t5e P5ili//ines?ULAP@ to a*o/t a common stan* on t5e a//$oac5 to s7//o$t t5e /$o/osals o= t5ePeo/le<s Cons7ltative Commission on C5a$te$ C5ane
,+EREAS& s7bect to t5e $atication o= its instit7tional membe$s an* t5e =ail7$e o=Con$ess to amen* t5e Constit7tion as a constit7ent assembl4& ULAP 5as7nanimo7sl4 a$ee* to /7$s7e t5e constit7tional $e=o$m aen*a t5$o75 Peo/le<s)nitiative an* Re=e$en*7m Bit5o7t /$e7*ice to ot5e$ /$amatic means to /7$s7e t5esame
,+ERE;ORE& (E )T RESOLED AS )T )S +ERE(3 RESOLED& T+AT ALL T+E MEM(ER8LEAGUES O; T+E UN)ON O; LOCAL AUT+OR)T)ES O; T+E P+)L)PP)NES ?ULAP@SUPPORT T+E PORPOSALS ?S)C@ O; T+E PEOPLE<S CONSULATAT)E ?S)C@COMM)SS)ON ON C+ARTER C+ANGE T+ROUG+ PEOPLE<S )N)T)AT)E ANDRE;ERENDUM AS A MODE O; AMEND)NG T+E 1- CONST)TUT)ON
DONE& *7$in t5e ULAP National EHec7tive (oa$* s/ecial meetin 5el* on 1! 2an7a$4 %006 at t5e Cent7$4 Pa$ +otel& Manila.%# ?)talics s7//lie*@
)t is onl4 in t5ei$ Consoli*ate* Re/l4 to t5e O//osition8in8)nte$ventions t5at t5eLambino G$o7/ $st claime* t5at t5e4 ci$c7late* t5e /etition =o$ initiative le* Bit5t5e COMELEC& t57sK
T5e$e is /e$s7asive a7t5o$it4 to t5e eect t5at ?B@5e$e t5e$e is not ?sic@ =$a7*& asine$ B5o *i* not $ea* t5e meas7$e attac5e* to a $e=e$en*7m /etition cannot
I7estion 5is sinat7$e on t5e $o7n* t5at 5e *i* not 7n*e$stan* t5e nat7$e o= t5eact. % C2S. S1%5. Mo. State v. S7llivan& %%!& S.,. #%& %# Mo. "!6. T57s& t5e$eiste$e* vote$s B5o sine* t5e sinat7$e s5eets ci$c7late* toet5e$ Bit5 t5e/etition =o$ initiative le* Bit5 t5e COMELEC beloB& a$e /$es7me* to vote$s B5osine* t5e sinat7$e s5eets ci$c7late* toet5e$ Bit5 t5e /etition =o$ initiative le*Bit5 t5e COMELEC beloB& a$e /$es7me* to 5ave 7n*e$stoo* t5e /$o/ositioncontaine* in t5e /etition. ?Em/5asis s7//lie*@
T5e Lambino G$o7/ cites as a7t5o$it4 Co$/7s 27$is Sec7n*7m& statin t5at a sine$B5o *i* not $ea* t5e meas7$e attac5e* to a $e=e$en*7m /etition cannot I7estion5is sinat7$e on t5e $o7n* t5at 5e *i* not 7n*e$stan* t5e nat7$e o= t5e act. T5eLambino
G$o7/ I7otes an a7t5o$it4 t5at cites a /$o/ose* c5ane attac5e* to t5e /etitionsine* b4 t5e /eo/le. Even t5e a7t5o$it4 t5e Lambino G$o7/ I7otes $eI7i$es t5att5e /$o/ose* c5ane m7st be attac5e* to t5e /etition. T5e same a7t5o$it4 t5eLambino G$o7/ I7otes $eI7i$es t5e /eo/le to sin on t5e /etition itsel=.
)n*ee*& it is basic in Ame$ican 7$is/$7*ence t5at t5e /$o/ose* amen*ment m7st be
,it5 onl4 100&000 /$inte* co/ies o= t5e /etition& it Bo7l* be /54sicall4 im/ossible=o$ all o$ a $eat mao$it4 o= t5e 6.# million sinato$ies to 5ave seen t5e /etitionbe=o$e t5e4 sine* t5e sinat7$e s5eets. T5e inesca/able concl7sion is t5at t5eLambino G$o7/ =aile* to s5oB to t5e 6.# million sinato$ies t5e =7ll teHt o= t5e/$o/ose* c5anes. )= eve$& not mo$e t5an one million sinato$ies saB t5e /etitionbe=o$e t5e4 sine* t5e sinat7$e s5eets.
)n an4 event& t5e Lambino G$o7/<s sinat7$e s5eets *o not contain t5e =7ll teHt o=t5e /$o/ose* c5anes& eit5e$ on t5e =ace o= t5e sinat7$e s5eets& o$ as attac5mentBit5 an in*ication in t5e sinat7$e s5eet o= s7c5 attac5ment. Petitione$ Att4.Lambino a*mitte* t5is *7$in t5e o$al a$7ments& an* t5is a*mission bin*s t5eLambino G$o7/. T5is =act is also obvio7s =$om a me$e $ea*in o= t5e sinat7$e s5eet.
T5is omission is =atal. T5e =ail7$e to so incl7*e t5e teHt o= t5e /$o/ose* c5anes int5e sinat7$e s5eets $en*e$s t5e initiative voi* =o$ non8com/liance Bit5 t5econstit7tional $eI7i$ement t5at t5e amen*ment m7st be *i$ectl4 /$o/ose* b4 t5e/eo/le t5$o75 initiative 7/on a /etition. T5e sinat7$e s5eet is not t5e /etitionenvisione* in t5e initiative cla7se o= t5e Constit7tion.
;o$ s7$e& t5e $eat mao$it4 o= t5e 6.# million /eo/le B5o sine* t5e sinat7$es5eets *i* not see t5e =all teHt o= t5e /$o/ose* c5anes
be 5el* *7$in t5e %00 local elections i= t5e /$o/ose* c5anes Be$e $atie* be=o$e
t5e %00 local elections. +oBeve$& t5e teHt o= t5e /$o/ose* c5anes belies t5is. T5e /$o/ose* Section "?%@& A$ticle Q))) on T$ansito$4 P$ovisions& as =o7n* in t5eamen*e* /etition& statesK
Section "?%@. T5e inte$im Pa$liament s5all /$ovi*e =o$ t5e election o= t5e membe$so= Pa$liament& B5ic5 s5all be s4nc5$oni:e* an* 5el* sim7ltaneo7sl4 Bit5 t5eelection o= all local ove$nment oJcials. H H H H ?Em/5asis s7//lie*@
D7$in t5e o$al a$7ments& Att4. Lambino state* t5at t5is /$ovision is a s7$/l7saean* t5e Co7$t an* t5e /eo/le s5o7l* sim/l4 ino$e it. ;a$ =$om bein a s7$/l7sae&t5is /$ovision invali*ates t5e Lambino G$o7/<s initiative.
Section !?!@ is a s7bect matte$ totall4 7n$elate* to t5e s5i=t =$om t5e (icame$al8P$esi*ential to t5e Unicame$al8Pa$liamenta$4 s4stem. Ame$ican 7$is/$7*ence on
initiatives o7tlaBs t5is as lo$ollinFB5en t5e initiative /etition inco$/o$ates an7n$elate* s7bect matte$ in t5e same /etition. T5is /7ts t5e /eo/le in a *ilemmasince t5e4 can ansBe$ onl4 eit5e$ 4es o$ no to t5e enti$e /$o/osition& =o$cin t5emto sin a /etition t5at eectivel4 contains tBo /$o/ositions& one o= B5ic5 t5e4 ma4n* 7nacce/table.
Un*e$ Ame$ican 7$is/$7*ence& t5e eect o= lo$ollin is to n7lli=4 t5e enti$e/$o/osition an* not onl4 t5e 7n$elate* s7bect matte$. T57s& in ;ine v. ;i$estone&%-t5e S7/$eme Co7$t o= ;lo$i*a *ecla$e*K
Combinin m7lti/le /$o/ositions into one /$o/osal constit7tes lo$ollin& B5ic5& i= o7$ 7*icial $es/onsibilit4 is to mean an4t5in& Be cannot /e$mit. T5e ve$4b$oa*ness o= t5e /$o/ose* amen*ment amo7nts to lo$ollin beca7se t5eelecto$ate cannot noB B5at it is votin onFt5e amen*ment<s /$o/onents<sim/listic eH/lanation $eveals onl4 t5e ti/ o= t5e icebe$& H H H H T5e ballot m7stive t5e electo$ate =ai$ notice o= t5e /$o/ose* amen*ment bein vote* on. H H H H
T5e ballot lan7ae in t5e instant case =ails to *o t5at. T5e ve$4 b$oa*ness o= t5e/$o/osal maes it im/ossible to state B5at it Bill aect an* eect an* violates t5e$eI7i$ement t5at /$o/ose* amen*ments emb$ace onl4 one s7bect. ?Em/5asiss7//lie*@
Lo$ollin con=7ses an* even *eceives t5e /eo/le. )n 37te Ai$ Alasa v. McAl/ine�
T5e sinat7$e s5eets *o not eH/lain t5is *isc$imination aainst t5e Senato$s. T5e6.# million /eo/le B5o sine* t5e sinat7$e s5eets co7l* not 5ave noBn t5at t5ei$sinat7$es Bo7l* be 7se* to *isc$iminate aainst t5e Senato$s. T5e4 co7l* not 5avenoBn t5at t5ei$ sinat7$es Bo7l* be 7se* to limit& a=te$ #0 27ne %010& t5e inte$imPa$liament<s c5oice o= P$ime Ministe$ onl4 to membe$s o= t5e eHistin +o7se o=Re/$esentatives.
An initiative t5at at5e$s sinat7$es =$om t5e /eo/le Bit5o7t $st s5oBin to t5e/eo/le t5e =7ll teHt o= t5e /$o/ose* amen*ments is most liel4 a *ece/tion& an* cano/e$ate as a iantic =$a7* on t5e /eo/le. T5at is B54 t5e Constit7tion $eI7i$es t5atan initiative m7st be *i$ectl4 /$o/ose* b4 t5e /eo/le H H H in a /etitionFmeanint5at t5e /eo/le m7st sin on a /etition t5at contains t5e =7ll teHt o= t5e /$o/ose*amen*ments. On so vital an iss7e as amen*in t5e nation<s =7n*amental laB& t5eB$itin o= t5e teHt o= t5e /$o/ose* amen*ments cannot be 5i**en =$om t5e /eo/le7n*e$ a ene$al o$ s/ecial /oBe$ o= atto$ne4 to 7nname*& =aceless& an* 7nelecte*in*ivi*7als.
T5e Constit7tion ent$7sts to t5e /eo/le t5e /oBe$ to *i$ectl4 /$o/ose amen*mentsto t5e Constit7tion. T5is Co7$t t$7sts t5e Bis*om o= t5e /eo/le even i= t5e membe$s
A /eo/le<s initiative to c5ane t5e Constit7tion a//lies onl4 to an amen*ment o= t5eConstit7tion an* not to its $evision. )n cont$ast& Con$ess o$ a constit7tionalconvention can /$o/ose bot5 amen*ments an* $evisions to t5e Constit7tion. A$ticleQ)) o= t5e Constit7tion /$ovi*esK
T5e /eo/le ma4& a=te$ ve 4ea$s =$om t5e *ate o= t5e last /lebiscite 5el*& *i$ectl4/$o/ose amen*ments to t5is Consti8
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SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
t7tion t5$7 initiative 7/on /etition o= at least ten /e$cent o= t5e $eiste$e* vote$s.
T5is com/letes t5e blans a//ea$in in t5e o$iinal Committee Re/o$t No. . T5is/$o/osal Bas s7este* on t5e t5eo$4 t5at t5is matte$ o= initiative& B5ic5 cameabo7t beca7se o= t5e eHt$ao$*ina$4 *evelo/ments t5is 4ea$& 5as to be se/a$ate*=$om t5e t$a*itional mo*es o= amen*in t5e Constit7tion as embo*ie* in Section 1.
T5e committee membe$s =elt t5at t5is s4stem o= initiative s5o7l* be limite* toamen*ments to t5e Constit7tion an* s5o7l* not eHten* to t5e $evision o= t5e enti$eConstit7tion& so Be $emove* it =$om t5e o/e$ation o= Section 1 o= t5e /$o/ose*A$ticle on Amen*ment o$ Revision. H H H H
H H H HMS. AU)NOK ) am se$io7sl4 bot5e$e* b4 /$ovi*in t5is /$ocess o= initiative as ase/a$ate section in t5e A$ticle on Amen*ment. ,o7l* t5e s/onso$ be amenable toacce/tin an amen*ment in te$ms o= $ealinin Section % as anot5e$ s7b/a$a$a/5?c@ o= Section 1& instea* o= settin it 7/ as anot5e$ se/a$ate section as i= it Be$e asel=8eHec7tin /$ovision
MR. SUAREK ,e Bo7l* be amenable eHce/t t5at& as Be cla$ie* a B5ile ao& t5is/$ocess o= initiative is limite* to t5e matte$ o= amen*ment an* s5o7l* not eH/an*into a $evision B5ic5 contem/lates a total ove$5a7l o= t5e Constit7tion. T5at Bas t5esense t5at Bas conve4e* b4 t5e Committee.
MS. AU)NOK )n ot5e$ Bo$*s& t5e Committee Bas attem/tin to *istin7is5 t5ecove$ae o= mo*es ?a@ an* ?b@ in Section 1 to incl7*e t5e /$ocess o= $evisionB5e$eas& t5e /$ocess o= initiation to amen*& B5ic5 is iven to t5e /7blic& Bo7l* onl4a//l4 to amen*ments
MR. SUAREK T5at is $i5t. T5ose Be$e t5e te$ms envisione* in t5e Committee.
MR. MAAM(ONGK M4 $st I7estionK Commissione$ Davi*e<s /$o/ose* amen*menton line 1 $e=e$s to amen*ments. Does it not cove$ t5e Bo$* $evision as *ene*b4 Commissione$ Pa*illa B5en 5e ma*e t5e *istinction betBeen t5e Bo$*samen*ments an* $evision
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OL. "0"& OCTO(ER %"& %006
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Lambino vs. Commission on Elections
MR. DA)DEK No& it *oes not& beca7se amen*ments an* $evision s5o7l* becove$e* b4 Section 1. So inso=a$ as initiative is conce$ne*& it can onl4 $elate toamen*ments not $evision.
MR. MAAM(ONGK T5an 4o7.#1 ?Em/5asis s7//lie*@
T5e$e can be no mistae abo7t it. T5e =$ame$s o= t5e Constit7tion inten*e*& an*B$ote& a clea$ *istinction betBeen amen*ment an* $evision o= t5e Constit7tion.
T5is 5as been t5e consistent $7lin o= state s7/$eme co7$ts in t5e Unite* States. T57s& in Mc;a**en v. 2o$*an&#% t5e S7/$eme Co7$t o= Cali=o$nia $7le*K
T5e initiative /oBe$ $ese$ve* b4 t5e /eo/le b4 amen*ment to t5e Constit7tion H HH a//lies onl4 to t5e /$o/osin an* t5e a*o/tin o$ $eectin o= laBs an*amen*ments to t5e Constit7tion< an* *oes not /7$/o$t to eHten* to a constit7tional$evision. H H H H )t is t57s clea$ t5at a $evision o= t5e Constit7tion ma4 beaccom/lis5e* onl4 t5$o75 $atication b4 t5e /eo/le o= a $evise* constit7tion/$o/ose* b4 a convention calle* =o$ t5at /7$/ose as o7tline* 5e$einabove.ConseI7entl4 i= t5e sco/e o= t5e /$o/ose* initiative meas7$e ?5e$eina=te$ te$me*t5e meas7$e<@ noB be=o$e 7s is so b$oa* t5at i= s7c5 meas7$e became laB as7bstantial $evision o= o7$ /$esent state Constit7tion Bo7l* be eecte*& t5en t5emeas7$e ma4 not /$o/e$l4 be s7bmitte* to t5e electo$ate 7ntil an* 7nless it is $sta$ee* 7/on b4 a constit7tional convention& an* t5e B$it so75t b4 /etitione$s5o7l* iss7e. H H H H ?Em/5asis s7//lie*@
#% 1-6 P.%* & -0 ?1-!@. See also LoBe v. 9eislin& 1#0 O$.A//. 1& % P.%* -1?1--!@.
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SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
LieBise& t5e S7/$eme Co7$t o= O$eon $7le* in +olmes v. A//linK##
)t is Bell establis5e* t5at B5en a constit7tion s/ecies t5e manne$ in B5ic5 it ma4be amen*e* o$ $evise*& it can be alte$e* b4 t5ose B5o =avo$ amen*ments& $evision&o$ ot5e$ c5ane onl4 t5$o75 t5e 7se o= one o= t5e s/ecie* means. T5econstit7tion itsel= $econi:es t5at t5e$e is a *ie$ence betBeen an amen*ment an*a $evision an* it is obvio7s =$om an eHamination o= t5e meas7$e 5e$e in I7estiont5at it is not an amen*ment as t5at te$m is ene$all4 7n*e$stoo* an* as it is 7se* inA$ticle )& Section 1. T5e *oc7ment a//ea$s to be base* in la$e /a$t on t5e $evisiono= t5e constit7tion *$a=te* b4 t5e Commission =o$ Constit7tional Revision<a7t5o$i:e* b4 t5e 1-61 Leislative Assembl4& H H H an* s7bmitte* to t5e 1-6#Leislative Assembl4. )t =aile* to $eceive in t5e Assembl4 t5e tBo8t5i$*<s mao$it4vote o= bot5 5o7ses $eI7i$e* b4 A$ticle Q))& Section %& an* 5ence =aile* o= a*o/tion&H H H.
,5ile *ie$in =$om t5at *oc7ment in mate$ial $es/ects& t5e meas7$e s/onso$e* b4t5e /laintis is& neve$t5eless& a t5o$o75 ove$5a7lin o= t5e /$esent constit7tion H HH.
To call it an amen*ment is a misnome$.
,5et5e$ it be a $evision o$ a neB constit7tion& it is not s7c5 a meas7$e as can bes7bmitte* to t5e /eo/le t5$o75 t5e initiative. )= a $evision& it is s7bect to t5e$eI7i$ements o= A$ticle Q))& Section %?1@ i= a neB constit7tion& it can onl4 be/$o/ose* at a convention calle* in t5e manne$ /$ovi*e* in A$ticle Q))& Section 1. HH H H
Simila$l4& in t5is 7$is*iction t5e$e can be no *is/7te t5at a /eo/le<s initiative canonl4 /$o/ose amen*ments to t5e Constit7tion since t5e Constit7tion itsel= limitsinitiatives to amen*ments. T5e$e can be no *eviation =$om t5e constit7tionall4/$esc$ibe* mo*es o= $evisin t5e Constit7tion. A /o/7la$ clamo$& even one bace*b4 6.# million sinat7$es& cannot 7sti=4 a *eviation =$om t5e s/ecic mo*es/$esc$ibe* in t5e Constit7tion itsel=.
As t5e S7/$eme Co7$t o= Ola5oma $7le* in )n $e )nitiative Petition No. #6!K#!
)t is a =7n*amental /$inci/le t5at a constit7tion can onl4 be $evise* o$ amen*e* int5e manne$ /$esc$ibe* b4 t5e inst$7ment itsel=& an* t5at an4 attem/t to $evise aconstit7tion in a manne$ ot5e$ t5an t5e one /$ovi*e* in t5e inst$7ment is almostinva$iabl4 t$eate* as eHt$a8constit7tional an* $evol7tiona$4. H H H H ,5ile it is7nive$sall4 conce*e* t5at t5e /eo/le a$e sove$ein an* t5at t5e4 5ave /oBe$ toa*o/t a constit7tion an* to c5ane t5ei$ oBn Bo$ at Bill& t5e4 m7st& in *oin so&act in an o$*e$l4 manne$ an* acco$*in to t5e settle* /$inci/les o= constit7tionallaB. An* B5e$e t5e /eo/le& in a*o/tin a constit7tion& 5ave /$esc$ibe* t5e met5o*b4 B5ic5 t5e /eo/le ma4 alte$ o$ amen* it& an attem/t to c5ane t5e =7n*amentallaB in violation o= t5e sel=8im/ose* $est$ictions& is 7nconstit7tional. H H H H?Em/5asis s7//lie*@
T5is Co7$t& B5ose membe$s a$e sBo$n to *e=en* an* /$otect t5e Constit7tion&cannot s5i$ =$om its solemn oat5 an* *7t4 to ins7$e com/liance Bit5 t5e clea$comman* o= t5e Constit7tionFt5at a /eo/le<s initiative ma4 onl4 amen*& neve$$evise& t5e Constit7tion.
)n Cali=o$nia B5e$e t5e initiative cla7se alloBs amen*ments b7t not $evisions to t5econstit7tion 7st lie in o7$ Constit7tion& co7$ts 5ave *evelo/e* a tBo8/a$t testK t5eI7antitative test an* t5e I7alitative test. T5e I7antitative test ass B5et5e$ t5e/$o/ose* c5ane is so eHtensive in its /$ovisions as to c5ane *i$ectl4 t5es7bstantial enti$et4< o= t5e constit7tion b4 t5e *eletion o$ alte$ation o= n7me$o7seHistin /$ovisions.#6 T5e co7$t eHamines onl4 t5e n7mbe$ o= /$ovisions aecte*an* *oes not consi*e$ t5e *e$ee o= t5e c5ane.
T5e I7alitative test inI7i$es into t5e I7alitative eects o= t5e /$o/ose* c5ane int5e constit7tion. T5e main inI7i$4 is B5et5e$ t5e c5ane Bill accom/lis5 s7c5 =a$$eac5in c5anes in t5e nat7$e o= o7$ basic ove$nmental /lan as to amo7nt to a$evision.# ,5et5e$ t5e$e is an alte$ation in t5e st$7ct7$e o= ove$nment is a
/$o/e$ s7bect o= inI7i$4. T57s& a c5ane in t5e nat7$e o= t5e basic ove$nmental/lan incl7*es c5ane in its =7n*amental =$ameBo$ o$ t5e =7n*amental /oBe$s o=its ($anc5es.# A c5ane in t5e nat7$e o= t5e basic ove$nmental /lan alsoincl7*es c5anes t5at eo/a$*i:e t5e t$a*itional =o$m o= ove$nment an* t5es4stem o= c5ec an* balances.#-
>>>>>>>>>>>>>>>
#6 Ama*o$ alle4 2oint Union +i5 Sc5ool Dist$ict v. State (oa$* o= EI7ali:ation& "#P.%* 1%1& 1%6 ?1-@.
# )*.
# Leislat7$e o= t5e State o= Cali=o$nia v. EU& "! Cal.#* !-%& "0- ?1--1@.
#- Cali=o$nia Association o= Retail Tobacconists v. State& 10- Cal. A//.!t5 -%& #6?%00#@.
%"# Lambino vs. Commission on Elections& "0" SCRA 160?%006@
Un*e$ bot5 t5e I7antitative an* I7alitative tests& t5e Lambino G$o7/<s initiative is a$evision an* not me$el4 an amen*ment. 7antitativel4& t5e Lambino G$o7/<s/$o/ose* c5anes ove$5a7l tBo a$ticles 8 A$ticle ) on t5e Leislat7$e an* A$ticle ))on t5e EHec7tiveFaectin a total o= 10" /$ovisions in t5e enti$e Constit7tion.!07alitativel4& t5e /$o/ose* c5anes alte$ s7bstantiall4 t5e basic /lan o=ove$nment& =$om /$esi*ential to /a$liamenta$4& an* =$om a bicame$al to a7nicame$al leislat7$e.
A c5ane in t5e st$7ct7$e o= ove$nment is a $evision o= t5e Constit7tion& as B5ent5e t5$ee $eat co8eI7al b$anc5es o= ove$nment in t5e /$esent Constit7tion a$e$e*7ce* into tBo. T5is alte$s t5e se/a$ation o= /oBe$s in t5e Constit7tion. A s5i=t=$om t5e /$esent (icame$al8P$esi*ential s4stem to a Unicame$al8Pa$liamenta$4
s4stem is a $evision o= t5e Constit7tion. Me$in t5e leislative an* eHec7tiveb$anc5es is a $a*ical c5ane in t5e st$7ct7$e o= ove$nment.
(4 an4 leal test an* 7n*e$ an4 7$is*iction& a s5i=t =$om a (icame$al8P$esi*ential toa Unicame$al8Pa$liamenta$4 s4stem& involvin t5e abolition o= t5e OJce o= t5eP$esi*ent an* t5e abolition o= one c5ambe$ o= Con$ess& is be4on* *o7bt a $evision&
not a me$e amen*ment. On t5e =ace alone o= t5e Lambino G$o7/<s /$o/ose*c5anes& it is $ea*il4 a//a$ent t5at t5e c5anes Bill $a*icall4 alte$ t5e =$ameBo$ o=ove$nment as set =o$t5 in t5e Constit7tion. ;at5e$ 2oaI7in (e$nas& S.2.& a lea*inmembe$ o= t5e Constit7tional Commission& B$itesK
An amen*ment envisaes an alte$ation o= one o$ a =eB s/ecic an* se/a$able/$ovisions. T5e 7i*in o$iinal intention o= an amen*ment is to im/$ove s/ecic/a$ts o$ to a** neB /$ovisions *eeme* necessa$4 to meet neB con*itions o$ tos7//$ess s/ecic /o$tions t5at ma4 5ave become obso8
lete o$ t5at a$e 7*e* to be *ane$o7s. )n $evision& 5oBeve$& t5e 7i*in o$iinalintention an* /lan contem/lates a $e8eHamination o= t5e enti$e *oc7ment& o$ o=/$ovisions o= t5e *oc7ment B5ic5 5ave ove$8all im/lications =o$ t5e enti$e*oc7ment& to *ete$mine 5oB an* to B5at eHtent t5e4 s5o7l* be alte$e*. T57s& =o$
instance a sBitc5 =$om t5e /$esi*ential s4stem to a /a$liamenta$4 s4stem Bo7l* bea $evision beca7se o= its ove$8all im/act on t5e enti$e constit7tional st$7ct7$e. SoBo7l* a sBitc5 =$om a bicame$al s4stem to a 7nicame$al s4stem be beca7se o= itseect on ot5e$ im/o$tant /$ovisions o= t5e Constit7tion.!1?Em/5asis s7//lie*@
)n A*ams v. G7nte$!% an initiative /etition /$o/ose* t5e amen*ment o= t5e ;lo$i*aState constit7tion to s5i=t =$om a bicame$al to a 7nicame$al leislat7$e. T5e iss7et7$ne* on B5et5e$ t5e initiative Bas *e=ective an* 7na7t5o$i:e* B5e$e t5e/$o/ose* amen*ment Bo7l* H H H aect seve$al ot5e$ /$ovisions o= t5eConstit7tion. T5e S7/$eme Co7$t o= ;lo$i*a& st$iin *oBn t5e initiative as o7tsi*et5e sco/e o= t5e initiative cla7se& $7le* as =olloBsK
T5e /$o/osal 5e$e to amen* Section 1 o= A$ticle ))) o= t5e 1-6 Constit7tion to/$ovi*e =o$ a Unicame$al Leislat7$e aects not onl4 man4 ot5e$ /$ovisions o= t5eConstit7tion b7t /$ovi*es =o$ a c5ane in t5e =o$m o= t5e leislative b$anc5 o=ove$nment& B5ic5 5as been in eHistence in t5e Unite* States Con$ess an* in all o= t5e states o= t5e nation& eHce/t one& since t5e ea$liest *a4s. )t Bo7l* be *iJc7lt tovis7ali:e a mo$e $evol7tiona$4 c5ane. T5e conce/t o= a +o7se an* a Senate isbasic in t5e Ame$ican =o$m o= ove$nment. )t Bo7l* not onl4 $a*icall4 c5ane t5eB5ole /atte$n o= ove$nment in t5is state an* tea$ a/a$t t5e B5ole =ab$ic o= t5eConstit7tion& b7t Bo7l* even aect t5e /54sical =acilities necessa$4 to ca$$4 onove$nment.
H H H H
,e concl7*e Bit5 t5e obse$vation t5at i= s7c5 /$o/ose* amen*ment Be$e a*o/te*b4 t5e /eo/le at t5e Gene$al Election an* i= t5e Leislat7$e at its neHt sessions5o7l* =ail to s7bmit =7$t5e$ amen*ments to $evise an* cla$i=4 t5e n7me$o7sinconsistencies an* conicts B5ic5 Bo7l* $es7lt& o$ i= a=te$
s7bmission o= a//$o/$iate amen*ments t5e /eo/le s5o7l* $e=7se to a*o/t t5em&sim/le c5aos Bo7l* /$evail in t5e ove$nment o= t5is State. T5e same $es7lt Bo7l*obtain =$om an amen*ment& =o$ instance& o= Section 1 o= A$ticle & to /$ovi*e =o$onl4 a S7/$eme Co7$t an* Ci$c7it Co7$ts8an* t5e$e co7l* be ot5e$ eHam/les too
n7me$o7s to *etail. T5ese eHam/les /oint 7ne$$inl4 to t5e ansBe$.
T5e /7$/ose o= t5e lon an* a$*7o7s Bo$ o= t5e 57n*$e*s o= men an* Bomen an*man4 sessions o= t5e Leislat7$e in b$inin abo7t t5e Constit7tion o= 1-6 Bas toeliminate inconsistencies an* conicts an* to ive t5e State a Bo$able& acco$*ant&5omoeno7s an* 7/8to8*ate *oc7ment. All o= t5is co7l* *isa//ea$ ve$4 I7icl4 i= BeBe$e to 5ol* t5at it co7l* be amen*e* in t5e manne$ /$o/ose* in t5e initiative/etition 5e$e.!# ?Em/5asis s7//lie*@
T5e $ationale o= t5e A*ams *ecision a//lies Bit5 $eate$ =o$ce to t5e /$esent/etition. T5e Lambino G$o7/<s initiative not onl4 sees a s5i=t =$om a bicame$al to a7nicame$al leislat7$e& it also sees to me$e t5e eHec7tive an* leislative
*e/a$tments. T5e initiative in A*ams *i* not even to7c5 t5e eHec7tive *e/a$tment.
)n A*ams& t5e S7/$eme Co7$t o= ;lo$i*a en7me$ate* 1 sections o= t5e ;lo$i*aConstit7tion t5at Bo7l* be aecte* b4 t5e s5i=t =$om a bicame$al to a 7nicame$alleislat7$e. )n t5e Lambino G$o7/<s /$esent initiative& no less t5an 10" /$ovisions o=t5e Constit7tion Bo7l* be aecte* base* on t5e co7nt o= Associate 27stice Romeo 2.Calleo& S$.!! T5e$e is no *o7bt t5at t5e Lambino G$o7/<s /$esent initiative sees =a$mo$e $a*ical c5anes in t5e st$7ct7$e o= ove$nment t5an t5e initiative in A*ams.
T5e Lambino G$o7/ t5eo$i:es t5at t5e *ie$ence betBeen amen*ment an*$evision is onl4 one o= /$oce*7$e& not o= s7bstance. T5e Lambino G$o7/ /osits t5atB5en a *elibe$ative bo*4 *$a=ts an* /$o/oses c5anes to t5e Constit7tion&
s7bstantive c5anes a$e calle* $evisions beca7se membe$s o= t5e *elibe$ativebo*4 Bo$ =7ll8time on t5e c5anes. +oBeve$& t5e same s7bstantive c5anes& B5en/$o/ose* t5$o75 an initiative& a$e calle* amen*8
--. ,it5 t5is *istinction in min*& Be note t5at t5e constit7tional /$ovisionseH/$essl4 /$ovi*e =o$ bot5 amen*ment an* $evision B5en it s/eas o= leislato$san* constit7tional *eleates& B5ile t5e same /$ovisions eH/$essl4 /$ovi*e onl4 =o$amen*ment B5en it s/eas o= t5e /eo/le. )t Bo7l* seem t5at t5e a//a$ent*istinction is base* on t5e act7al eH/e$ience o= t5e /eo/le& t5at on one 5an* t5ecommon /eo/le in ene$al a$e not eH/ecte* to Bo$ =7ll8time on t5e matte$ o=co$$ectin t5e constit7tion beca7se t5at is not t5ei$ occ7/ation& /$o=ession o$vocation B5ile on t5e ot5e$ 5an*& t5e leislato$s an* constit7tional convention*eleates a$e eH/ecte* to Bo$ =7lltime on t5e same matte$ beca7se t5at is t5ei$occ7/ation& /$o=ession o$ vocation. T57s& t5e *ie$ence betBeen t5e Bo$*s$evision an* amen*ment /e$tain onl4 to t5e /$ocess o$ /$oce*7$e o= comin 7/Bit5 t5e co$$ections& =o$ /7$/oses o= inte$/$etin t5e constit7tional /$ovisions.
100. State* ot5e$Bise& t5e *ie$ence betBeen amen*ment an* $evision cannot$easonabl4 be in t5e s7bstance o$ eHtent o= t5e co$$ection. H H H H ?Un*e$linin int5e o$iinal bol*=acin s7//lie*@
T5e Lambino G$o7/ in eect a$7es t5at i= Con$ess o$ a constit7tional convention5a* *$a=te* t5e same /$o/ose* c5anes t5at t5e Lambino G$o7/ B$ote in t5e/$esent initiative& t5e c5anes Bo7l* constit7te a $evision o= t5e Constit7tion. T57s&t5e Lambino G$o7/ conce*es t5at t5e /$o/ose* c5anes in t5e /$esent initiativeconstit7te a $evision i= Con$ess o$ a constit7tional convention 5a* *$a=te* t5ec5anes. +oBeve$& since t5e Lambino G$o7/ as /$ivate in*ivi*7als *$a=te* t5e/$o/ose* c5anes& t5e c5anes a$e me$el4 amen*ments to t5e Constit7tion. T5eLambino G$o7/ t$iviali:es t5e se$io7s matte$ o= c5anin t5e =7n*amental laB o= t5elan*.
;$om t5e =o$eoin it a//ea$s t5at A$ticle )& Section 1& a7t5o$i:es t5e 7se o= t5einitiative as a means o= amen*in t5e O$eon Constit7tion& b7t it contains no simila$sanction =o$ its 7se as a means o= $evisin t5e constit7tion. H H H H
)t t5en $evieBe* A$ticle Q))& section %& $elatin to $evisions& an* sai*K )t is t5e onl4section o= t5e constit7tion B5ic5 /$ovi*es t5e means =o$ constit7tional $evision an*
it eHcl7*es t5e i*ea t5at an in*ivi*7al& t5$o75 t5e initiative& ma4 /lace s7c5 ameas7$e be=o$e t5e electo$ate. H H H H
Acco$*inl4& Be $eect Mabon<s a$7ment t5at A$ticle Q))& section %& *oes not a//l4to constit7tional $evisions /$o/ose* b4 initiative. ?Em/5asis s7//lie*@
,e can vis7ali:e amen*ments an* $evisions as a s/ect$7m& at one en* $een =o$amen*ments an* at t5e ot5e$ en* $e* =o$ $evisions. ToBa$*s t5e mi**le o= t5es/ect$7m& colo$s =7se an* *iJc7lties a$ise in *ete$minin B5et5e$ t5e$e is an
amen*ment o$ $evision. T5e /$esent initiative is in*is/7tabl4 locate* at t5e =a$ en*o= t5e $e* s/ect$7m B5e$e $evision beins. T5e /$esent initiative sees a $a*icalove$5a7l o= t5e eHistin se/a$ation o= /oBe$s amon t5e t5$ee co8eI7al*e/a$tments o= ove$nment& $eI7i$in =a$8$eac5in amen*ments in seve$al sectionsan* a$ticles o= t5e Constit7tion.
,5e$e t5e /$o/ose* c5ane a//lies onl4 to a s/ecic /$ovision o= t5e Constit7tionBit5o7t aectin an4 ot5e$ section o$ a$ticle& t5e c5ane ma4 ene$all4 beconsi*e$e* an amen*ment an* not a $evision. ;o$ eHam/le& a c5ane $e*7cin t5evotin ae =$om 1 4ea$s to 1" 4ea$s! is an amen*ment an* not a $evision.Simila$l4& a c5ane
>>>>>>>>>>>>>>>
! Section 1& A$ticle o= t5e Constit7tion.
%"-
OL. "0"& OCTO(ER %"& %006
%"-
Lambino vs. Commission on Elections$e*7cin ;ili/ino oBne$s5i/ o= mass me*ia com/anies =$om 100 /e$cent to 60/e$cent is an amen*ment an* not a $evision.! Also& a c5ane $eI7i$in a collee*e$ee as an a**itional I7alication =o$ election to t5e P$esi*enc4 is an amen*mentan* not a $evision.!-
Pa$liamenta$4 s4stem o= ove$nment& in B5ic5 case& t5e4 s5all be amen*e* tocon=o$m Bit5 a 7nicame$al /a$liamenta$4 =o$m o= ove$nment H H H H ?Em/5asiss7//lie*@
T5e basic $7le in stat7to$4 const$7ction is t5at i= a late$ laB is i$$econcilabl4inconsistent Bit5 a /$io$ laB& t5e late$ laB /$evails. T5is $7le also a//lies toconst$7ction o= constit7tions. +oBeve$& t5e Lambino G$o7/<s *$a=t o= Section % o=t5e T$ansito$4 P$ovisions t7$ns on its 5ea* t5is $7le o= const$7ction b4 statin t5at incase o= s7c5 i$$econcilable inconsistenc4& t5e ea$lie$ /$ovision s5all be amen*e* tocon=o$m Bit5 a 7nicame$al /a$liamenta$4 =o$m o= ove$nment. T5e eect is to=$ee:e t5e tBo i$$econcilable /$ovisions 7ntil t5e ea$lie$ one s5all be amen*e*&B5ic5 $eI7i$es a =7t7$e se/a$ate constit7tional amen*ment.
Reali:in t5e abs7$*it4 o= t5e nee* =o$ s7c5 an amen*ment& /etitione$ Att4. Lambino$ea*il4 conce*e* *7$in t5e o$al a$7ments t5at t5e $eI7i$ement o= a =7t7$eamen*ment is a s7$/l7sae. )n s5o$t& Att4. Lambino Bants to $einstate t5e $7le o=stat7to$4 const$7ction so t5at t5e late$ /$ovision a7tomaticall4 /$evails in case o=i$$econcilable inconsistenc4. +oBeve$& it is not as sim/le as t5at.
T5e i$$econcilable inconsistenc4 envisione* in t5e /$o/ose* Section % o= t5e T$ansito$4 P$ovisions is not betBeen a /$ovision in A$ticle ) o= t5e 1- Constit7tionan* a /$ovision in t5e /$o/ose* c5anes. T5e inconsistenc4 is betBeen a /$ovisionin A$ticle ) o= t5e 1- Constit7tion an* t5e Pa$liamenta$4 s4stem o=ove$nment& an* t5e
%61
OL. "0"& OCTO(ER %"& %006
%61
Lambino vs. Commission on Elections
inconsistenc4 s5all be $esolve* in =avo$ o= a 7nicame$al /a$liamenta$4 =o$m o=ove$nment.
T5is *$ives 5ome t5e /oint t5at t5e /eo/le<s initiative is not meant =o$ $evisions o=t5e Constit7tion b7t onl4 =o$ amen*ments. A s5i=t =$om t5e /$esent (icame$al8P$esi*ential to a Unicame$al8Pa$liamenta$4 s4stem $eI7i$es 5a$moni:in seve$al
/$ovisions in man4 a$ticles o= t5e Constit7tion. Revision o= t5e Constit7tion t5$o75a /eo/le<s initiative Bill onl4 $es7lt in $oss abs7$*ities in t5e Constit7tion.
)n s7m& t5e$e is no *o7bt B5atsoeve$ t5at t5e Lambino G$o7/<s initiative is a$evision an* not an amen*ment. T57s& t5e /$esent initiative is voi* an*7nconstit7tional beca7se it violates Section %& A$ticle Q)) o= t5e Constit7tionlimitin t5e sco/e o= a /eo/le<s initiative to Amen*ments to t5is Constit7tion.
#. A Revisit o= Santiao v. COMELEC is Not Necessa$4
o= a /eo/le<s initiative to amen* t5e Constit7tion. T5e$e is no nee* to $evisit t5isCo7$t<s $7lin in Santiao *ecla$in RA 6#" incom/lete& ina*eI7ate o$ Bantin inessential te$ms an* con*itions to cove$ t5e s4stem o= initiative to amen* t5eConstit7tion. An aJ$mation o$ $eve$sal o= Santiao Bill not c5ane t5e o7tcome o=t5e /$esent /etition. T57s& t5is Co7$t m7st *ecline to $evisit Santiao B5ic5eectivel4 $7le* t5at RA 6#" *oes not com8
%6%
%6%
SUPREME COURT REPORTS ANNOTATEDLambino vs. Commission on Elections
/l4 Bit5 t5e $eI7i$ements o= t5e Constit7tion to im/lement t5e initiative cla7se onamen*ments to t5e Constit7tion.
T5is Co7$t m7st avoi* $evisitin a $7lin involvin t5e constit7tionalit4 o= a stat7te i= t5e case be=o$e t5e Co7$t can be $esolve* on some ot5e$ $o7n*s. S7c5 avoi*anceis a loical conseI7ence o= t5e Bell8settle* *oct$ine t5at co7$ts Bill not /ass 7/ont5e constit7tionalit4 o= a stat7te i= t5e case can be $esolve* on some ot5e$$o7n*s."1
Neve$t5eless& even ass7min t5at RA 6#" is vali* to im/lement t5e constit7tional/$ovision on initiatives to amen* t5e Constit7tion& t5is Bill not c5ane t5e $es7lt5e$e beca7se t5e /$esent /etition violates Section %& A$ticle Q)) o= t5e Constit7tion.
To be a vali* initiative& t5e /$esent initiative m7st $st com/l4 Bit5 Section %& A$ticleQ)) o= t5e Constit7tion even be=o$e com/l4in Bit5 RA 6#".
Even t5en& t5e /$esent initiative violates Section "?b@ o= RA 6#" B5ic5 $eI7i$es t5att5e /etition =o$ an initiative on t5e 1- Constit7tion m7st 5ave at least tBelve /e$
cent7m ?1%V@ o= t5e total n7mbe$ o= $eiste$e* vote$s as sinato$ies. Section "?b@o= RA 6#" $eI7i$es t5at t5e /eo/le m7st sin t5e /etition H H H as sinato$ies.
T5e 6.# million sinato$ies *i* not sin t5e /etition o= %" A77st %006 o$ t5eamen*e* /etition o= #0 A77st %006 le* Bit5 t5e COMELEC. Onl4 Att4. Lambino&Att4. Demost5enes (. Donato& an* Att4. Albe$to C. A$a sine* t5e /etition an*
amen*e* /etition as co7nsels =o$ Ra7l L. Lambino an* E$ico (. A7menta*o&Petitione$s. )n t5e COMELEC t5e Lambino G$o7/& claimin to act toet5e$ Bit5t5e 6.# million sinato$ies& me$el4 attac5e* t5e sinat7$e s5eets to t5e /etition an*amen*e* /etition. T57s& t5e /etition an* amen*e* /etition le* Bit5 t5e COMELEC*i* not even com/l4 Bit5 t5e basic $eI7i$ement o= RA 6#" t5at t5e Lambino G$o7/claims as vali*.
T5e Lambino G$o7/<s lo$ollin initiative also violates Section 10?a@ o= RA 6#"statin& No /etition emb$acin mo$e t5an one
?1@ s7bect s5all be s7bmitte* to t5e electo$ate H H H. T5e /$o/ose* Section !?!@ o= t5e T$ansito$4 P$ovisions& man*atin t5e inte$im Pa$liament to /$o/ose =7$t5e$amen*ments o$ $evisions to t5e Constit7tion& is a s7bect matte$ totall4 7n$elate* tot5e s5i=t in t5e =o$m o= ove$nment. Since t5e /$esent initiative emb$aces mo$e t5anone s7bect matte$& RA 6#" /$o5ibits s7bmission o= t5e initiative /etition to t5eelecto$ate. T57s& even i= RA 6#" is vali*& t5e Lambino G$o7/<s initiative Bill still =ail.
!. T5e COMELEC Di* Not Commit G$ave Ab7se o= Disc$etion in Dismissin t5eLambino G$o7/<s )nitiative
an* obe*ience o= all t5e citi:ens o= t5is nation. No one can t$iviali:e t5e Constit7tionb4 cavalie$l4 amen*in o$ $evisin it in blatant violation o= t5e clea$l4 s/ecie*mo*es o= amen*ment an* $evision lai* *oBn in t5e Constit7tion itsel=.
To alloB s7c5 c5ane in t5e =7n*amental laB is to set a*$i=t t5e Constit7tion in7nc5a$te$e* Bate$s& to be tosse* an* t7$ne* b4 eve$4 *ominant /olitical $o7/ o=t5e *a4. )= t5is Co7$t alloBs to*a4 a cava8
lie$ c5ane in t5e Constit7tion o7tsi*e t5e constit7tionall4 /$esc$ibe* mo*es&tomo$$oB t5e neB *ominant /olitical $o7/ t5at comes Bill *eman* its oBn set o=c5anes in t5e same cavalie$ an* 7nconstit7tional =as5ion. A $evolvin8*oo$
constit7tion *oes not a77$ Bell =o$ t5e $7le o= laB in t5is co7nt$4.
An ove$B5elmin mao$it4F16&6%%&111 vote$s com/$isin 6.# /e$cent o= t5e totalvotes cast"#Fa//$ove* o7$ Constit7tion in a national /lebiscite 5el* on 11 ;eb$7a$41-. T5at a//$oval is t5e 7nmistaable voice o= t5e /eo/le& t5e =7ll eH/$ession o=t5e /eo/le<s sove$ein Bill. T5at a//$oval incl7*e* t5e /$esc$ibe* mo*es =o$amen*in o$ $evisin t5e Constit7tion.
No amo7nt o= sinat7$es& not even t5e 6&#%&-"% million sinat7$es at5e$e* b4 t5eLambino G$o7/& can c5ane o7$ Constit7tion cont$a$4 to t5e s/ecic mo*es t5at t5e/eo/le& in t5ei$ sove$ein ca/acit4& /$esc$ibe* B5en t5e4 $atie* t5e Constit7tion.
T5e alte$native is an eHt$a8constit7tional c5ane& B5ic5 means s7bve$tin t5e
/eo/le<s sove$ein Bill an* *isca$*in t5e Constit7tion. T5is is one act t5e Co7$tcannot an* s5o7l* neve$ *o. As t5e 7ltimate 7a$*ian o= t5e Constit7tion& t5is Co7$tis sBo$n to /e$=o$m its solemn *7t4 to *e=en* an* /$otect t5e Constit7tion& B5ic5embo*ies t5e $eal sove$ein Bill o= t5e /eo/le.
1 C5ie= 27stice McLac5lin s/oe on Libe$t4& P$os/e$it4 an* t5e R7le o= LaB in 5e$s/eec5 be=o$e t5e Global ;o$7m on Libe$t4 an* P$os/e$it4 5el* on Octobe$ 18%0&%006 in Manila. S5e =7$t5e$ state*K ,it5o7t t5e $7le o= laB& ove$nment oJcialsa$e not bo7n* b4 stan*a$*s o= con*7ct. ,it5o7t t5e $7le o= laB& t5e *init4 an*eI7alit4 o= all /eo/le is not aJ$me* an* t5ei$ abilit4 to see $e*$ess =o$ $ievances
an* societal commitments is limite*. ,it5o7t t5e $7le o= laB& Be 5ave no means o=ens7$in meanin=7l /a$tici/ation b4 /eo/le in =o$m7latin an* enactin t5e no$msan* stan*a$*s B5ic5 o$ani:e t5e in*s o= societies in B5ic5 Be Bant to live.
?%@ ,5ile t5e Constit7tion alloBs amen*ments to be *i$ectl4 /$o/ose* b4 t5e/eo/le t5$o75 initiative&< t5e$e is no im/lementin laB =o$ t5e /7$/ose. RA 6#" isincom/lete& ina*eI7ate& o$ Bantin in essential te$ms an* con*itions inso=a$ asinitiative on amen*ments to t5e Constit7tion is conce$ne*.<
?#@ Comelec Resol7tion No. %#00& inso=a$ as it /$esc$ibes $7les an* $e7lations ont5e con*7ct o= initiative on amen*ments to t5e Constit7tion& is voi*.<
) conc7$ Bit5 t5e $st item above. Until an* 7nless an initiato$4 /etition can s5oBt5e $eI7i$e* n7mbe$ o= sinat7$esFin t5is case& 1%V o= all t5e $eiste$e* vote$s in
t5e P5ili//ines Bit5 at least #V in eve$4 leislative *ist$ictFno /7blic =7n*s ma4 bes/ent an* no ove$nment $eso7$ces ma4 be 7se* in an initiative to amen* t5eConstit7tion. e$il4& t5e Comelec cannot even ente$tain an4 /etition absent s7c5sinat7$es. +oBeve$& ) *issent most $es/ect=7ll4 =$om t5e mao$it4<s tBo ot5e$$7lins. Let me eH/lain.
Un*e$ t5e above $est$ictive 5ol*ins es/o7se* b4 t5e Co7$t<s mao$it4& t5eConstit7tion cannot be amen*e* at all t5$o75 a /eo/le<s initiative. Not b4 Deln&
not b4 P)RMA& not b4 an4one& not even b4 all t5e vote$s o= t5e co7nt$4 actintoet5e$. T5is *ecision Bill eectivel4 b7t 7nnecessa$il4 c7$tail& n7lli=4& ab$oate an*$en*e$ in7tile t5e /eo/le<s $i5t to c5ane t5e basic laB. At t5e ve$4 least& t5emao$it4 5ol*s t5e $i5t 5ostae to con$essional *isc$etion on B5et5e$ to /ass aneB laB to im/lement it& B5en t5e$e is al$ea*4 one eHistin at /$esent. T5is $i5t to
amen* t5$o75 initiative& it bea$s st$essin& is 7a$antee* b4 Section %& A$ticle Q))o= t5e Constit7tion& as =olloBsK
SEC. %. Amen*ments to t5is Constit7tion ma4 lieBise be *i$ectl4 /$o/ose* b4 t5e/eo/le t5$o75 initiative 7/on a /etition o= at least tBelve /e$ cent7m o= t5e totaln7mbe$ o= $eiste$e* vote$s& o= B5ic5 eve$4 leislative *ist$ict m7st be $e/$esente*b4
%6
%6
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
eect7ate an* $eali:e o7$ /eo/le<s /oBe$ to amen* t5e Constit7tion.
>>>>>>>>>>>>>>>
at least t5$ee /e$ cent7m o= t5e $eiste$e* vote$s t5e$ein. No amen*ment 7n*e$t5is section s5all be a7t5o$i:e* Bit5in ve 4ea$s =olloBin t5e $atication o= t5isConstit7tion no$ o=tene$ t5an once eve$4 ve 4ea$s t5e$ea=te$.<
,it5 all *7e $es/ect& ) n* t5e mao$it4<s /osition all too sBee/in an* all tooeHt$emist. )t is eI7ivalent to b7$nin t5e B5ole 5o7se to eHte$minate t5e $ats& an*to illin t5e /atient to $elieve 5im o= /ain. ,5at Citi:en Deln Bants t5e Comelecto *o Be s5o7l* $eect. (7t Be s5o7l* not t5e$eb4 /$eem/t an4 =7t7$e eo$t toeHe$cise t5e $i5t o= initiative co$$ectl4 an* 7*icio7sl4. T5e =act t5at t5e DelnPetition /$o/oses a mis7se o= initiative *oes not 7sti=4 a ban aainst its /$o/e$ 7se.)n*ee*& t5e$e is a $i5t Ba4 to *o t5e $i5t t5in at t5e $i5t time an* =o$ t5e $i5t$eason.
7nanimo7s en banc $7lins in S7bic (a4 Met$o/olitan A7t5o$it4 vs. Commission onElections& t5at /$ovisions =o$ initiative . . . a$e ?to be@ libe$all4 const$7e* toeect7ate t5ei$ /7$/oses& to =acilitate an* not 5am/e$ t5e eHe$cise b4 t5e vote$s o=t5e $i5ts $ante* t5e$eb4 an* in Ga$cia vs. Comelec& t5at an4 eo$t to t$iviali:et5e eectiveness o= /eo/le<s initiatives o75t to be $eecte*.
No laB can com/letel4 an* absol7tel4 cove$ all a*minist$ative *etails. )n$econition o= t5is& R.A. 6#" Bisel4 em/oBe$e* t5e Commission on Election to/$om7late s7c5 $7les an* $e7lations as ma4 be necessa$4 to ca$$4 o7t t5e/7$/oses o= t5is Act. An* /7$s7ant t5e$eto& t5e Comelec iss7e* its Resol7tion %#00on 16 2an7a$4 1--1.
%6-
OL. "0"& OCTO(ER %"& %006
%6-
Lambino vs. Commission on Elections
SiH mont5s a=te$& in m4 Se/a$ate O/inion in Peo/le<s )nitiative =o$ Re=o$m&Mo*e$ni:ation an* Action ?P)RMA@ v. Comelec& ) oine* t5e
>>>>>>>>>>>>>>>
S7c5 Resol7tion& b4 its ve$4 Bo$*s& Bas /$om7late* to ove$n t5e con*7ct o=initiative on t5e Constit7tion an* initiative an* $e=e$en*7m on national an* locallaBs& not b4 t5e inc7mbent Commission on Elections b7t b4 one t5en com/ose* o=
Actin C5ai$/e$son +a4*ee (. 3o$ac& Comms. Al=$e*o E. Ab7e& 2$.& Leo/ol*o L.A=$ica& An*$es R. ;lo$es& Da$io C. Rama an* Ma*a$a (. Dimaam/ao. All o= t5eseCommissione$s B5o sine* Resol7tion %#00 5ave $eti$e* =$om t5e Commission& an*t57s Be cannot asc$ibe an4 vile motive 7nto t5em& ot5e$ t5an an 5onest& since$ean* eHem/la$4 eo$t to ive li=e to a c5e$is5e* $i5t o= o7$ /eo/le.
T5e mao$it4 a$7es t5at B5ile Resol7tion %#00 is vali* in $ea$* to national laBsan* local leislations& it is voi* in $e=e$ence to constit7tional amen*ments. T5e$e isno basis =o$ s7c5 *ie$entiation. T5e so7$ce o= an* a7t5o$it4 =o$ t5e Resol7tion ist5e same laB& R.A. 6#".
believe t5at s7c5 $est$ainin o$*e$ as aainst /$ivate $es/on*ents s5o7l* not 5avebeen iss7e*& in t5e $st /lace. ,5ile ) a$ee t5at t5e Comelec s5o7l* be sto//e*=$om 7sin /7blic =7n*s an* ove$nment $eso7$ces to 5el/ t5em at5e$ sinat7$es& )$ml4 believe t5at t5is Co7$t 5as no /oBe$ to $est$ain t5em =$om eHe$cisin t5ei$$i5t o= initiative. T5e $i5t to /$o/ose amen*ments to t5e Constit7tion is $eall4 a
s/ecies o= t5e $i5t o= =$ee s/eec5 an* =$ee assembl4. An* ce$tainl4& it Bo7l* bet4$annical an* *es/otic to sto/ an4one =$om s/eain =$eel4 an* /e$s7a*in ot5e$sto con=o$m to 5isW5e$ belie=s. As t5e eminent oltai$e once sai*& ) ma4 *isa$ee Bit5B5at 4o7 sa4& b7t ) Bill *e=en* to t5e *eat5 4o7$ $i5t to sa4 it.< A=te$
%0
%0
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
Re=o$m& Mo*e$ni:ation an* Action ?P)RMA@ v. Comelec&# ) oine* t5e
>>>>>>>>>>>>>>>
all& =$ee*om is not $eall4 =o$ t5e t5o75t Be a$ee Bit5& b7t as 27stice +olmes B$ote&=$ee*om =o$ t5e t5o75t t5at Be 5ate.<
E/ilo7e
(4 Ba4 o= e/ilo7e& let me st$ess t5e 7i*in tenet o= m4 Se/a$ate O/inion.)nitiative& lie $e=e$en*7m an* $ecall& is a neB an* t$eas7$e* =eat7$e o= t5e ;ili/inoconstit7tional s4stem. All t5$ee a$e instit7tionali:e* leacies o= t5e Bo$l*8a*mi$e*EDSA /eo/le /oBe$. Lie elections an* /lebiscites& t5e4 a$e 5alloBe* eH/$essions o=/o/7la$ sove$eint4. T5e4 a$e sac$e* *emoc$atic $i5ts o= o7$ /eo/le to be 7se* ast5ei$ nal Bea/ons aainst /olitical eHcesses& o//o$t7nism& inaction& o//$ession an*misove$nance as Bell as t5ei$ $ese$ve* inst$7ments to eHact t$ans/a$enc4&acco7ntabilit4 an* =ait5=7lness =$om t5ei$ c5osen lea*e$s. ,5ile on t5e one 5an*&t5ei$ mis7se an* ab7se m7st be $esol7tel4 st$7c *oBn& on t5e ot5e$& t5ei$leitimate eHe$cise s5o7l* be ca$e=7ll4 n7$t7$e* an* :ealo7sl4 /$otecte*.
,+ERE;ORE& ) vote to GRANT t5e /etition o= Sen. Mi$iam D. Santiao& et al. an* toD)RECT Res/on*ent Commission on Elections to D)SM)SS t5e Deln Petition on t5e$o7n* o= /$emat7$it4& b7t not on t5e ot5e$ $o7n*s $elie* 7/on b4 t5e mao$it4. )also vote to L);T t5e tem/o$a$4 $est$ainin o$*e$ iss7e* on 1 Decembe$ 1--6inso=a$ as it /$o5ibits 2es7s Deln& Albe$to Pe*$osa an* Ca$men Pe*$osa =$omeHe$cisin t5ei$ $i5t to =$ee s/eec5 in /$o/osin amen*ments to t5e Constit7tion.
1. )n $e=7sin to act on t5e P)RMA /etition& t5e Comelec allee*l4 acte* Bit5 $aveab7se o= *isc$etion amo7ntin to lac o$ eHcess o= 7$is*iction an*
%1
OL. "0"& OCTO(ER %"& %006
%1
Lambino vs. Commission on Elections
$est o= t5e membe$s o= t5e Co7$t in $7lin b4 a 7nanimo7s vote& t5at no $aveab7se o= *isc$etion co7l* be att$ib7te* to t5e Comelec in
>>>>>>>>>>>>>>>
%. )n *ecla$in R.A. 6#" ina*eI7ate to cove$ its s4stem o= initiative on
amen*ments to t5e Constit7tion an* *ecla$in voi* t5ose /a$ts o= Resol7tion%#00 o= t5e Commission on Elections /$esc$ibin $7les an* $e7lations on t5econ*7ct o= an initiative on amen*ments to t5e Constit7tion& t5e S7/$emeCo7$t<s Decision in G.R. No. 1%#%" entitle* Mi$iam De=enso$ Santiao vs.Commission on Elections ?5e$ea=te$ $e=e$$e* to as Santiao@ s5o7l* be $eeHamine*beca7se sai* Decision is allee*l4 7nconstit7tional& an* beca7se& in an4 event&t5e S7/$eme Co7$t itsel=& in $econsi*e$in t5e sai* iss7e /e$ its 27ne 10& 1--Resol7tion& Bas *ea*loce* at siH votes one eac5 si*e.
T5e =olloBin in m4 /osition on eac5 o= t5ese tBo iss7esK
;i$st )ss7eK
No G$ave Ab7se o= Disc$etion
in Comelec<s Re=7sal to Act
T5e Res/on*ent Commission<s $e=7sal to act on t5e /$a4e$s o= t5e P)RMA /etitioncannot in an4 Bise be b$an*e* as $ave ab7se o= *isc$etion. (e it $emembe$e*t5at t5e Co7$t<s Decision in Santiao /e$manentl4 enoine* t5e Comelec =$om
ente$tainin o$ tain coni:ance o= an4 /etition =o$ initiative on amen*ments tot5e Constit7tion H H H. ,5ile conce*e*l4& /etitione$s in t5is case Be$e not *i$ect/a$ties in Santiao& nonet5eless t5e Co7$t<s in7nction aainst t5e Comelec cove$e*AN3 /etition& not 7st t5e Deln /etition B5ic5 Bas t5e imme*iate s7bect o= sai*case. As a *issente$ in Santiao& ) believe*& an* still *o& t5at t5e mao$it4 $avel4
e$$e* in $en*e$in s7c5 a sBee/in in7nction& b7t ) cannot =a7lt t5e Comelec =o$com/l4in Bit5 t5e $7lin even i= it& too& *isa$ee* Bit5 sai* *ecision<s $atio*eci*en*i. Res/on*ent Comelec Bas *i$ectl4 enoine* b4 t5e 5i5est Co7$t o= t5elan*. )t 5a* no c5oice b7t to obe4. )ts obe*ience cannot constit7te $ave ab7se o=*isc$etion. Re=7sal to act on t5e P)RMA /etition Bas t5e onl4 $eco7$se o/en to t5eComelec. An4 ot5e$ mo*e o= action Bo7l* 5ave constit7te* *eance o= t5e Co7$tan* Bo7l* 5ave been st$7c *oBn as $ave ab7se o= *isc$etion an* cont7macio7s*is$ea$* o= t5is Co7$t<s s7/$emac4 as t5e nal a$bite$ o= 7sticiable cont$ove$sies.
A /eo/le<s initiative is *i$ect *emoc$ac4 in action. )t is t5e $i5t t5in t5at citi:ensma4 avail t5emselves o= to a$tic7late t5ei$ Bill. )t is a neB an* t$eas7$e* =eat7$e o=
t5e ;ili/ino constit7tional s4stem. Even t5e mao$it4 im/licitl4 conce*e* its val7ean* Bo$t5 in o7$ leal $mament B5en it im/lo$e* Con$ess not to ta$$4 an4 lone$in com/l4in Bit5 t5e constit7tional man*ate to /$ovi*e =o$ im/lementation o= t5e$i5t ?o= initiative@ o= t5e /eo/le H H H. +ence& in t5e en banc case o= S7bic (a4Met$o/olitan A7t5o$it4 vs. Comelec& G.R. No. 1%"!16& Se/tembe$ %6& 1--6& %6%SCRA !-%& t5is Co7$t 7nanimo7sl4 5el* t5at ?l@ie elections& initiative an*$e=e$en*7m a$e /oBe$=7l an* val7able mo*es o= eH/$essin /o/7la$ sove$eint4.An* t5is Co7$t as a matte$ o= /olic4 an* *oct$ine Bill eHe$t eve$4 eo$t to n7$t7$e&/$otect an* /$omote t5ei$ leitimate eHe$cise.
%#
OL. "0"& OCTO(ER %"& %006
%#
Lambino vs. Commission on Elections
) a**e* t5at m4 /osition 7/5ol*in t5e a*eI7ac4 o= RA 6#" an* t5e vali*it4 o=Comelec Resol7tion %#00 Bill not i/so =acto vali*ate
>>>>>>>>>>>>>>>
T5e Ri5t ,a4
;$om t5e o7tset& ) 5ave al$ea*4 maintaine* t5e vieB t5at taen toet5e$ an*inte$/$ete* /$o/e$l4 an* libe$all4& t5e Constit7tion ?/a$tic7la$l4 A$t. Q))& Sec. %@& RA6#" an* Comelec Resol7tion %#00 /$ovi*e mo$e t5an s7Jcient a7t5o$it4 toim/lement& eect7ate an* $eali:e o7$ /eo/le<s /oBe$ to amen* t5e Constit7tion.Let me noB *emonst$ate t5e a*eI7ac4 o= RA 6#" b4 o7tlinin& in conc$ete te$ms&t5e ste/s to be taenFt5e $i5t Ba4Fto amen* t5e Constit7tion t5$o75 a /eo/le<sinitiative.
c.6 an abst$act o$ s7mma$4 /$o/osition in not mo$e t5an one 57n*$e* ?100@ Bo$*sB5ic5 s5all be leibl4 B$itten o$ /$inte* at t5e to/ o= eve$4 /ae o= t5e /etition.<
(ein a constit7tional $eI7i$ement& t5e n7mbe$ o= sinat7$es becomes a con*ition/$ece*ent to t5e lin o= t5e /etition& an* is 7$is*ictional. ,it5o7t s7c5 $eI7isitesinat7$es& t5e Commission s5all mot7 /$o/$io $eect t5e /etition.
,5e$e t5e initiato$s 5ave s7bstantiall4 com/lie* Bit5 t5e above $eI7i$ements& t5e4ma4 t5ence le t5e /etition Bit5 t5e Comelec B5ic5 is tase* to *ete$mine t5e
s7Jcienc4 t5e$eo= an* to ve$i=4 t5e sinat7$es on t5e basis o= t5e $eist$4 list o=vote$s& vote$s< aJ*avits an* vote$s< i*entication ca$*s. )n *eci*in B5et5e$ t5e/etition is s7J8
%!
%!
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
t5e P)RMA /etition an* a7tomaticall4 lea* to a /lebiscite to amen*
>>>>>>>>>>>>>>>
cient& t5e Comelec s5all also *ete$mine i= t5e /$o/osition is /$o/e$ =o$ an initiative&i.e.& i= it consists o= an amen*ment& not a $evision& o= t5e Constit7tion. An4 *ecisiono= t5e electo$al bo*4 ma4 be a//eale* to t5e S7/$eme Co7$t Bit5in t5i$t4 ?#0@ *a4s=$om notice.
,it5in t5i$t4 ?#0@ *a4s =$om $ecei/t o= t5e /etition& an* a=te$ t5e *ete$mination o=its s7Jcienc4& t5e Comelec s5all /7blis5 t5e same in ;ili/ino an* Enlis5 at leasttBice in neBs/a/e$s o= ene$al an* local ci$c7lation& an* set t5e *ate o= t5e/lebiscite. T5e con*7ct o= t5e /lebiscite s5o7l* not be ea$lie$ t5an siHt4 ?60@ *a4s&b7t not late$ t5an ninet4 ?-0@ *a4s a=te$ ce$tication b4 t5e Comelec o= t5es7Jcienc4 o= t5e /etition. T5e /$o/osition& i= a//$ove* b4 a mao$it4 o= t5e votescast in t5e /lebiscite& becomes eective as o= t5e *a4 o= t5e /lebiscite.
;$om t5e =o$eoin& it s5o7l* be clea$ t5at m4 /osition 7/5ol*in t5e a*eI7ac4 o=RA 6#" an* t5e vali*it4 o= Comelec Resol7tion %#00 Bill not i/so =acto vali*ate t5e
P)RMA /etition an* a7tomaticall4 lea* to a /lebiscite to amen* t5e Constit7tion. ;a$=$om it. Amon ot5e$s& P)RMA m7st still satis=acto$il4 57$*le t5e =olloBin sea$c5iniss7esK
1. Does t5e /$o/ose* c5aneFt5e li=tin o= t5e te$m limits o= elective oJcialsFconstit7te a me$e amen*ment an* not a $evision o= t5e Constit7tion
%. ,5ic5 $eist$4 o= vote$s Bill be 7se* to ve$i=4 t5e sinat7$es in t5e /etition T5isI7estion is $elevant consi*e$in t5at 7n*e$ RA 1-& t5e ol* $eist$4 o= vote$s 7se*in t5e 1--" national elections Bas voi*e* a=te$ t5e ba$ana4 elections on Ma4 1%&1--& B5ile t5e neB list ma4 be 7se* sta$tin onl4 in t5e elections o= Ma4 1--.
#. Does t5e clamo$ =o$ t5e /$o/ose* c5ane in t5e Constit7tion $eall4 emanate =$omt5e /eo/le B5o sine* t5e /etition =o$ initiative O$ it is t5e benecia$ies o= te$meHtension B5o a$e in =act o$c5est$atin s7c5 move to a*vance t5ei$ oBn /oliticalsel=8inte$est
!. A$e t5e siH million sinat7$es en7ine an* ve$iable Do t5e4 $eall4 belon to
I7alie* Ba$m bo*ies com/$isin at least 1%V o= t5e $eiste$e* vote$s nationBi*e&o= B5ic5 eve$4 leislative *ist$ict is $e/$esente* b4 at least #V o= t5e $eiste$e*vote$s t5e$ein
a$e =$a7*7lent& t5en let t5em be eH/ose* an* *amne* =o$ all 5isto$4 in a sinat7$e8ve$ication /$ocess con*7cte* 7n*e$ o7$ o/en s4stem o= leal a*vocac4.
Mo$e t5an an4t5in else& it is t5e t$7t5 t5at )& as a membe$ o= t5is Co7$t an* as aciti:en o= t5is co7nt$4& Bo7l* lie to seeK A$e t5ese siH million sinat7$es $eal (4insistin on an enti$el4 neB *oct$ine o= stat7to$4 ina*eI7ac4& t5e mao$it4
eectivel4 s7//$esse* t5e I7est =o$ t5at t$7t5.
T5e Ri5t Reason
As mentione*& t5e t5i$* I7estion t5at m7st be ansBe$e*& even i= t5e a*eI7ac4 o=RA 6#" an* t5e vali*it4 o= Comelec Resol7tion %#00 Be$e 7/5el* b4 t5e mao$it4isK Does t5e clamo$ =o$ t5e /$o/ose* c5ane to t5e Constit7tion $eall4 emanate =$omt5e /eo/le B5o sine* t5e /etition =o$ initiative O$ is it t5e benecia$ies o= te$meHtension B5o a$e in =act o$c5est$atin s7c5 move to a*vance t5ei$ oBn /oliticalsel=8inte$ests )n ot5e$ Bo$*s& is P)RMA<s eHe$cise o= t5e $i5t to initiative bein *one
)n Ga$cia vs. Commission on Elections& Be *esc$ibe* initiative& alon Bit5$e=e$en*7m& as t5e 7ltimate Bea/on o= t5e /eo/le to neate ove$nmentmal=easance an* mis=easance.< )n S7bic (a4& Be s/ecie* t5at initiative is enti$el4t5e Bo$ o= t5e electo$ate H H H a /$ocess o=
%6
%6
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
?1@ T5e /$o/ose* c5aneFt5e li=tin o= te$m limits o= elective oJcialsFconstit7tes a me$e amen*ment an* not a $evision o= t5e Constit7tion.
on t5is /$inci/leK T5e $i5t to amen* t5$o75 initiative belons onl4 to t5e /eo/leFnot to t5e ove$nment an* its minions. T5is /$inci/le n*s clea$ s7//o$t =$om7tte$ances o= man4 constit7tional commissione$s lie t5ose I7ote* beloBK
)nitiative is a $ese$ve /oBe$ o= t5e sove$ein /eo/le& B5en t5e4 a$e *issatise*Bit5 t5e National Assembl4 H H H an* /$ecisel4 a =allbac /osition o= t5e /eo/le int5e event t5at t5e4 a$e *issatise*.FCommissione$ O/le
)nitiative is a c5ec on a leislative t5at is not $es/onsive an* $eso$te* to onl4 i=t5e leislat7$e is not as $es/onsive to t5e vital an* 7$ent nee*s o= /eo/le.FCommissione$ Gascon
)nitiative is an eHt$ao$*ina$4 /oBe$ iven to t5e /eo/le an* $ese$ve* =o$ t5e/eo/le B5ic5 s5o7l* not be =$ivolo7sl4 $eso$te* to.FCommissione$ Rom7lo
)n*ee*& i= t5e /oBe$s8t5at8be *esi$e to amen* t5e Constit7tion& o$ even to $evise it&o7$ C5a$te$ itsel= /$ovi*es t5em ot5e$ Ba4s o= *oin so& namel4& b4 callin aconstit7tional convention o$ constit7tin Con$ess into a constit7ent assembl4.
T5ese a$e oJcial*om<s Bea/ons. (7t initiative belons to t5e /eo/le.
)n t5e /$esent case& a$e P)RMA an* its co8/etitione$s leitimate /eo/le<so$ani:ations o$ a$e t5e4 me$el4 =$onts =o$ inc7mbents B5o Bant to eHten* t5ei$te$ms T5is is a =act7al I7estion B5ic5& 7n=o$t7natel4& cannot be 7*iciall4 ansBe$e*an4mo$e& beca7se t5e S7/$eme Co7$t mao$it4 $7le* t5at t5e laB t5at im/lementsit& RA 6#"& is ina*eI7ate o$ ins7Jcient inso=a$ as initiatives to t5e Constit7tionsa$e conce$ne*. ,it5 s7c5 $7lin& t5e mao$it4 eectivel4 ab$oate* a constit7tional
$i5t o= o7$ /eo/le. T5at is B54 in m4 Se/a$ate O/inion in Santiao& ) eHclaime* t5ats7c5 /$eci/itate action is eI7ivalent to b7$nin t5e B5ole 5o7se to eHte$minate t5e$ats& an* to illin t5e /atient to $elieve 5im o= /ain. ) $ml4 maintain t5at to *e=eatP)RMA<s eo$t& t5e$e is no nee* to b7$n t5e constit7tional $i5t to initiative. )=P)RMA<s eHe$cise is not leitimate& it can be eH/ose* as s7c5 in t5e
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OL. "0"& OCTO(ER %"& %006
%
Lambino vs. Commission on Elections
?%@ T5e siH million sinat7$es a$e en7ine an* ve$iable an* t5e4 $eall4 belonto I7alie* Ba$m bo*ies com/$isin at least 1%V
>>>>>>>>>>>>>>>
Ba4s ) 5ave *isc7sse*Fs5o$t o= ab$oatin t5e $i5t itsel=. On t5e ot5e$ 5an*& i=P)RMA<s /osition is /$oven to be leitimateFi= it 57$*les t5e =o7$ iss7es ) o7tline*ea$lie$Fb4 all means& Be s5o7l* alloB an* enco7$ae it. (7t t5e mao$it4<s t5eo$4 o=
T5e Constit7tion itsel= sets a time limitation on B5en c5anes t5e$eto ma4 be/$o/ose*. Section % o= A$ticle Q)) /$ecl7*es amen*ments Bit5in ve 4ea$s=olloBin its $atication H H H no$ o=tene$ t5an once eve$4 ve 4ea$s t5e$ea=te$.Since its $atication& t5e 1- Constit7tion 5as neve$ been amen*e*. +ence& t5eve84ea$ /$o5ibition is noB ino/e$ative an* amen*ments ma4 t5eo$eticall4 be
/$o/ose* at an4 time.(e t5at as it ma4& ) believeFiven t5e /$esent ci$c7mstancesFt5at t5e$e is nomo$e time to li=t te$m limits to enable inc7mbents to see $eelection in t5e Ma4 11&1-- /olls. (etBeen to*a4 an* t5e neHt national elections& less t5an ei5t ?@mont5s $emain. Santiao& B5e$e t5e sinle iss7e o= t5e s7Jcienc4 o= RA 6#" Bas$esolve*& too t5is Co7$t t5$ee ?#@ mont5s& an* anot5e$ tBo ?%@ mont5s to *eci*et5e motion =o$ $econsi*e$ation. T5e instant case& B5e$e t5e same iss7e is also$aise* b4 t5e /etitione$s& too tBo mont5s& not co7ntin a /ossible motion =o$$econsi*e$ation. T5ese time s/ans co7l* not be abb$eviate* an4 =7$t5e$& beca7se*7e /$ocess $eI7i$es t5at all /a$ties be iven s7Jcient time to le t5ei$ /lea*ins.
T57s& even i= t5e Co7$t Be$e to $7le noB in =avo$ o= t5e a*eI7ac4 o= RA 6#"Fas )believe it s5o7l*Fan* alloB t5e Comelec to act on t5e P)RMA /etition& s7c5 ei5t8mont5 /e$io* Bill not be eno75 to tacle t5e =o7$ Bei5t4 iss7es ) mentione*ea$lie$& consi*e$in t5at tBo o= t5em involve te*io7s =act7al I7estions. T5eComelec<s *ecision on an4 o= t5ese iss7es can still be elevate* to t5is Co7$t =o$$evieB& an* $econsi*e$ations on o7$ *ecisions on eac5 o= t5ose iss7es ma4 aain beso75t.
Comelec<s 5e$c7lean tas alone o= ve$i=4in eac5 o= t5e siH million sinat7$es iseno$mo7sl4 time8cons7min& consi*e$in t5at an4
%
%
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
o= t5e $eiste$e* vote$s nationBi*e& o= B5ic5 eve$4 leislative *ist$ictis $e/$esente*b4 at least #V o= t5e $eiste$e* vote$s t5e$ein.
>>>>>>>>>>>>>>>
/e$son ma4 I7estion t5e a7t5enticit4 o= eac5 an* eve$4 sinat7$e& initiall4 be=o$et5e election $eist$a$& t5en be=o$e t5e Comelec on a//eal an* nall4& be=o$e t5isCo7$t in a se/a$ate /$ocee*in. Mo$eove$& t5e /lebiscite itsel=Fass7min s7c5stae can be $eac5e*Fma4 be sc5e*7le* onl4 a=te$ siHt4 ?60@ b7t not mo$e t5anninet4 ?-0@ *a4s& =$om t5e time t5e Comelec an* t5is Co7$t& on a//eal& nall4*ecla$e t5e /etition to be s7Jcient.
MeanB5ile& 7n*e$ Comelec Resol7tion %-!6& /olitical /a$ties& $o7/s o$ani:ationso$ coalitions ma4 sta$t selectin t5ei$ oJcial can*i*ates =o$ P$esi*ent& iceP$esi*ent an* Senato$s on Novembe$ %& 1-- t5e /e$io* =o$ lin ce$ticates o=can*i*ac4 is =$om 2an7a$4 11 to ;eb$7a$4 -& 1-- t5e election /e$io* an* cam/ain=o$ national oJcials sta$t on ;eb$7a$4 10& 1--& B5ile t5e cam/ain /e$io* =o$ ot5e$
elective oJcials& on Ma$c5 1& 1--. T5is means& b4 t5e time P)RMA<s /$o/osition is$ea*4Fi= eve$F=o$ s7bmission *i$ectl4 to t5e vote$s at la$e& it Bill 5ave beenove$come b4 t5e elections. Time Bill sim/l4 $7n o7t on P)RMA& i= t5e intention is toli=t te$m limits in time =o$ t5e 1-- elections.
T5at te$m limits ma4 no lone$ be li=te* /$io$ to t5e 1-- elections via a /eo/le<sinitiative *oes not *et$act one B5it =$om ?1@ m4 $m conviction t5at RA 6#" iss7Jcient an* a*eI7ate to im/lement t5is constit7tional $i5t an*& mo$e im/o$tant&?%@ m4 =ait5 in t5e /oBe$ o= t5e /eo/le to initiate c5anes in local an* national laBsan* t5e Constit7tion. )n =act& ) t5in t5e Co7$t can *elibe$ate on t5ese tBo itemseven mo$e se$enel4 an* Bisel4 noB t5at t5e *ebates Bill be =$ee =$om t5e *in an**ist$action o= t5e 1-- elections. A=te$ all& 7$is/$7*ence is not me$el4 =o$ t5e 5e$e
an* noB b7t& mo$e so& =o$ t5e 5e$ea=te$ an* t5e mo$$oB. Let me t5e$e=o$e st$ess& b4Ba4 o= e/ilo7e& m4 7nben*in c$e*o in =avo$ o= o7$ /eo/le<s $i5t to initiative.
E/ilo7e
) believe in *emoc$ac4Fin o7$ /eo/le<s nat7$al $i5t to *ete$mine o7$ oBn *estin4.
) believe in t5e /$ocess o= initiative as a *emoc$atic met5o* o= enablin o7$ /eo/leto eH/$ess t5ei$ Bill an* c5a$t t5ei$ 5isto$4. )nitiative is an alte$native to bloo*4$evol7tion& inte$nal c5aos an* civil
%-
OL. "0"& OCTO(ER %"& %006
%-
Lambino vs. Commission on Elections
)n bot5 O/inions& ) concl7*e* t5at Be m7st im/lement t5e $i5t t5in initiative int5e $i5t Ba4 at t5e $i5t time an* =o$ t5e $i5t $eason.
>>>>>>>>>>>>>>>
st$i=e. )t is an in5e$ent $i5t o= t5e /eo/leFas basic as t5e $i5t to elect& t5e $i5t tosel=8*ete$mination an* t5e $i5t to in*ivi*7al libe$ties. ) believe t5at ;ili/inos 5avet5e abilit4 an* t5e ca/acit4 to $ise above t5emselves& to 7se t5is $i5t o= initiativeBisel4 an* mat7$el4& an* to c5oose B5at is best =o$ t5emselves an* t5ei$ /oste$it4.
S7c5 belie=s& 5oBeve$& s5o7l* not be eI7ate* Bit5 a *esi$e to /e$/et7ate a/a$tic7la$ oJcial o$ $o7/ o= oJcials in /oBe$. ;a$ =$om it. S7c5 /e$/et7ation isanat5ema to *emoc$ac4. M4 $m conviction t5at t5e$e is an a*eI7ate laBim/lementin t5e constit7tional $i5t o= initiative *oes not i/so =acto $es7lt in t5evicto$4 o= t5e P)RMA /etition o$ o= an4 /$o/ose* constit7tional c5ane. T5e$e a$e&
a=te$ all& s7Jcient sa=e7a$*s to 7a$antee t5e /$o/e$ 7se o= s7c5 constit7tional$i5t an* to =o$estall its mis7se an* ab7se. ;i$st& initiative cannot be 7se* to $eviset5e Constit7tion& onl4 to amen* it. Secon*& t5e /etitione$s< sinat7$es m7st bevali*ate* aainst an eHistin list o= vote$s an*Wo$ vote$s< i*entication ca$*s. T5i$*&initiative is a $eve$se /oBe$ o= an* b4 t5e /eo/le& not o= inc7mbent oJcials an*t5ei$ mac5inato$s. ;o7$t5 an* most im/o$tant o= all& t5e sinat7$es m7st be ve$ie*as $eal an* en7ine not concocte*& ctitio7s o$ =ab$icate*. T5e onl4 leal Ba4 to *ot5is is to enable t5e Commission on Elections to con*7ct a nationBi*e ve$ication/$ocess as man*ate* b4 t5e Constit7tion an* t5e laB. S7c5 ve$ication& it bea$sst$essin& is s7bect to $evieB b4 t5is Co7$t.
T5e$e Be$e& b4 t5e most ene$o7s estimate& onl4 a million /eo/le B5o at5e$e* at
EDSA in 1-6& an* 4et t5e4 c5ane* t5e 5isto$4 o= o7$ co7nt$4. P)RMA claims siHtimes t5at n7mbe$& not 7st =$om t5e National Ca/ital Reion b7t =$om all ove$ t5eco7nt$4. )s t5is claim t5$o75 t5e invention o= its novel t5eo$4 o= stat7to$4ins7Jcienc4& t5e Co7$t<s mao$it4 5as stie* t5e onl4 leal met5o* o= *ete$mininB5et5e$ P)RMA is $eal o$ not& B5et5e$ t5e$e is in*ee* a /o/7la$ clamo$ to li=t te$mlimits o= electe* oJcials& an* B5et5e$ siH million vote$s Bant to initiateamen*ments to t5ei$ most basic laB. )n s7//$essin a 7*icial ansBe$ to s7c5I7estions& t5e Co7$t ma4 5ave 7nBittinl4 4iel*e* to P)RMA t5e benet o= t5e leal/$es7m/tion o= lealit4 an* $e7la$it4. )n its mis/lace* :eal to eHte$minate t5e $ats&it b7$ne* *oBn t5e B5ole 5o7se. )t 7nce$emonio7sl4 *iveste* t5e /eo/le o= a basicconstit7tional $i5t.
%0
%0
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
)n t5e /$esent case& ) stea*=astl4 stan* b4 m4 =o$eoin O/inions in Santiao an*P)RMA. Teste* aainst t5em& t5e /$esent Petition o= Ra7l Lambino an* E$icoA7menta*o m7st be D)SM)SSED. Un=o$t7natel4& t5e $i5t t5in is bein $7s5e* in
t5e B$on Ba4 an* =o$ t5e B$on $easons. Let me eH/lain.
No G$ave Ab7se o= Disc$etion b4 Comelec
As in P)RMA& ) n* no $ave ab7se o= *isc$etion in Comelec<s *ismissal o= t5eLambino Petition. A=te$ all& t5e Commission me$el4 =olloBe* t5e 5ol*in in Santiao/e$manentl4 enoinin t5e /oll bo*4 =$om ente$tainin o$ tain coni:ance o= an4/etition =o$ initiative on amen*ments to t5e Constit7tion 7ntil a s7Jcient laB s5all5ave been vali*l4 enacte* to /$ovi*e =o$ t5e im/lementation o= t5e s4stem.
)n*ee*& t5e Comelec *i* not violate t5e Constit7tion& t5e laBs o$ an4 7$is/$7*ence.! Neit5e$ can B5im& ca/$ice& a$bit$a$iness o$ /e$sonal bias beatt$ib7te* to t5e Commission." 7ite t5e cont$a$4& it /$7*entl4 =olloBe* t5is Co7$t<s
7$is/$7*ence in Santiao an* P)RMA. Even ass7min a$7en*o t5at Comelec e$$e*in $7lin on a ve$4 *iJc7lt an* 7nsettle* I7estion o= laB& t5is Co7$t
>>>>>>>>>>>>>>>
)n t5e 7ltimate& t5e mission o= t5e 7*icia$4 is to *iscove$ t$7t5 an* to mae it/$evail. T5is mission is 7n*e$taen not onl4 to $esolve t5e vaa$ies o= /$esentevents b7t also to b7il* t5e /at5Ba4s o= tomo$$oB. T5e s7m total o= t5e enti$e/$ocess o= a*ve$sa$ial litiation is t5e ve$it4 o= =acts an* t5e a//lication o= laBt5e$eto. (4 t5e mao$it4 co/o7t in t5is mission o= *iscove$4& o7$ co7nt$4 an* o7$/eo/le 5ave been *e/$ive* not onl4 o= a basic constit7tional $i5t& as ea$lie$ note*&b7t also o= t5e 7*icial o//o$t7nit4 to ve$i=4 t5e t$7t5.
(esi*es& t5e onl4 $eason iven in t5e 7nanimo7s Resol7tion on P)RMA v. ComelecBas t5at t5e Commission 5a* onl4 com/lie* Bit5 t5is Co7$t<s Decision in Santiao&t5e same $eason iven b4 Comelec in t5is case. T5e Se/a$ate O/inions in P)RMAave no ot5e$ $eason. No one a$7e*& even $emotel4& t5at t5e P)RMA Petition s5o7l*5ave been *ismisse* beca7se t5e sinat7$es Be$e 7nve$ie*.
To st$ess& ) a*5e$e to m4 O/inion in P)RMA t5at& bein a constit7tional$eI7i$ement& t5e n7mbe$ o= sinat7$es becomes a con*ition /$ece*ent to t5e lino= t5e /etition& an* is 7$is*ictional. ,it5o7t t5ose sinat7$es& t5e Comelec s5allmot7 /$o/$io $eect t5e /etition.
>>>>>>>>>>>>>>>
6 )n P)RMA& ) s7bmitte* as =olloBsK ) believe*& an* still *o& t5at t5e mao$it4 $avel4e$$e* in $en*e$in s7c5 a sBee/in in7nction t5at cove$e* AN3 /etition& not 7stt5e Deln /etition& b7t ) cannot =a7lt t5e Comelec =o$ com/l4in Bit5 t5e $7lineven i= it& too& *isa$ee* Bit5 sai* *ecision<s $atio *eci*en*i. Res/on*ent ComelecBas *i$ectl4 enoine* b4 t5e 5i5est Co7$t o= t5e lan*. )t 5a* no c5oice b7t to obe4.)ts obe*ience cannot constit7te $ave ab7se o= *isc$etion. Re=7sal to act on t5eP)RMA /etition Bas t5e onl4 $eco7$se o/en to t5e Comelec. An4 ot5e$ mo*e o=action Bo7l* 5ave constit7te* *eance o= t5e Co7$t an* Bo7l* 5ave been st$7c*oBn as $ave ab7se o= *isc$etion an* cont7macio7s *is$ea$* o= t5is Co7$t<s
s7/$emac4 as t5e nal a$bite$ o= 7sticiable cont$ove$sies.
!% Am. 2$. %*& [%6& citin (i$min5am Gas Co. v. (esseme$ %"0 Ala 1#& ## So %*!"& %"0 Ala 1# Tace$ v. (oa$* o= Com$s.& 1% ;la %!& 10
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%%
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
So& 7ntil an* 7nless Santiao is $evisite* an* c5ane* b4 t5is Co7$t o$ t5e lealmoo$ins o= t5e eHe$cise o= t5e $i5t a$e s7bstantiall4 c5ane*& t5e Comelec cannotbe =a7lte* =o$ actin in acco$* Bit5 t5is Co7$t<s /$ono7ncements. Res/on*entCommission 5as no *isc$etion& 7n*e$ an4 7ise& to $e=7se en=o$cement o= an4 nal*ecision o= t5is Co7$t. T5e $e=7sal o= t5e /oll bo*4 to act on t5e Lambino PetitionBas its onl4 $eco7$se. An4 ot5e$ mo*e o= action Bo7l* a//ea$ not onl4/$es7m/t7o7s& b7t also contem/t7o7s. )t Bo7l* 5ave constit7te* *eance o= t5eCo7$t an* Bo7l* 5ave s7$el4 been st$7c *oBn as $ave ab7se o= *isc$etion an*cont7macio7s *is$ea$* o= t5e s7/$emac4 o= t5is Co7$t as t5e nal a$bite$ o=
7sticiable cont$ove$sies.
Even ass7min =7$t5e$ t5at t5is Co7$t $7les& as ) believe it s5o7l* ?=o$ t5e $easonsiven in m4 O/inions in Santiao an* P)RMA@& t5at Re/7blic Act 6#" is in*ee*s7Jcient to im/lement an initiative to amen* t5e Constit7tion& still& no $ave ab7seo= *isc$etion can be att$ib7te* to t5e Comelec =o$ me$el4 =olloBin /$evailin
7$is/$7*ence eHtant at t5e time it $en*e$e* its $7lin in I7estion.
b4 at least t5$ee /e$ cent7m o= t5e $eiste$e* vote$s t5e$ein. No amen*ment 7n*e$t5is section s5all be a7t5o$i:e* Bit5in ve 4ea$s =olloBin t5e $atication o= t5isConstit7tion no$ o=tene$ t5an once eve$4 ve 4ea$s t5e$ea=te$.
SEC. #. T5e Con$ess ma4& b4 a vote o= tBo8t5i$*s o= all its Membe$s& call aconstit7tional convention& o$ b4 a mao$it4 vote o= all its Membe$s& s7bmit to t5e
electo$ate t5e I7estion o= callin s7c5 a convention.
SEC. !. An4 amen*ment to& o$ $evision o=& t5is Constit7tion 7n*e$ Section 1 5e$eo=s5all be vali* B5en $atie* b4 a mao$it4 o= t5e votes cast in a /lebiscite B5ic5 s5allbe 5el* not ea$lie$ t5an siHt4 *a4s no$ late$ t5an ninet4 *a4s a=te$ t5e a//$oval o=s7c5 amen*ment o$ $evision.
An4 amen*ment 7n*e$ Section % 5e$eo= s5all be vali* B5en $atie* b4 a mao$it4 o= t5e votes cast in a /lebiscite B5ic5 s5all be 5el* not ea$lie$ t5an siHt4 *a4s no$ late$t5an ninet4 *a4s a=te$ t5e ce$tication b4 t5e Commission on Elections o= t5es7Jcienc4 o= t5e /etition.
S7Jce it to sa4 t5at& to me& t5e /$actical test to *ie$entiate an amen*ment =$om a$evision is =o7n* in t5e Constit7tion itsel=K a $evision ma4 be *one onl4 B5en t5e/$o/ose* c5ane can be *$a=te*& *ene*& a$tic7late*& *isc7sse* an* a$ee* 7/ona=te$ a mat7$e an* *emoc$atic *ebate in a *elibe$ative bo*4 lie Con$ess o$ aConvention. T5e c5anes /$o/ose* m7st necessa$il4 be sc$7tini:e*& as t5ei$a*o/tion o$ non8a*o/tion m7st $es7lt =$om an in=o$me* 7*ment.
SEC. 10. P$o5ibite* Meas7$es.FT5e =olloBin cannot be t5e s7bect o= an initiativeo$ $e=e$en*7m /etitionK
?a@ No /etition emb$acin mo$e t5an one s7bect s5all be s7bmitte* to t5e
electo$ate an*%"
OL. "0"& OCTO(ER %"& %006
%"
Lambino vs. Commission on Elections
cove$s at least tBo s7bectsK ?1@ t5e s5i=t =$om a /$esi*ential to a /a$liamenta$4 =o$mo= ove$nment an* ?%@ t5e c5ane =$om a bicame$al to a 7nicame$al leislat7$e.11
1% /e$cent o= t5e $eiste$e* vote$s nationBi*e& o= B5ic5 at least # /e$cent o= t5e$eiste$e* vote$s in eve$4 leislative *ist$ict m7st be $e/$esente*. As /ointe* o7t b4
)nte$veno$s One oice& )nc.& et al.& 5oBeve$& $eco$*s s5oB t5at t5e$e Bas a =ail7$e tomeet t5e minim7m /e$centaes $eI7i$e*.1%
Even 27stice P7no conce*es t5at t5e 1% /e$cent an* # /e$cent constit7tional$eI7i$ements involve contentio7s =acts& B5ic5 5ave not been /$oven b4 t5eLambino Petition. T57s& 5e is 7$in a $eman* to t5e Comelec.
(7t a $eman* is bot5 im/$7*ent an* =7tile. )t is im/$7*ent beca7se t5e Constit7tionitsel= man*ates t5e sai* $eI7isites o= an initiative /etition. )n ot5e$ Bo$*s& a /etitiont5at *oes not s5oB t5e $eI7i$e* /e$centaes is =atall4 *e=ective an* m7st be*ismisse*& as t5e Deln Petition Bas& in Santiao.
So& too& a $eman* is =7tile. Even i= t5e $eI7i$e* /e$centaes a$e /$oven be=o$e t5eCommission& t5e Petition m7st still be *ismisse* =o$ /$o/osin a $evision& not an
amen*ment& in $oss violation o= t5e Constit7tion. At t5e ve$4 least& it /$o/osesmo$e t5an one s7bect& in violation o= Re/7blic Act 6#".
>>>>>>>>>>>>>>>
1% Attac5e* to t5e O//osition8in8)nte$vention o= )nte$veno$s One oice )nc.& etc.& is a/5otoco/4 o= t5e Ce$tication *ate* A77st %#& %006& iss7e* b4 Att4. Ma$lon S.CasI7eo& t5e election oJce$ =o$ t5e #$* Dist$ict an* t5e oJce$8in8c5a$e =o$ t5e 1stan* t5e %n* Dist$icts o= Davao Cit4. T5e Ce$tication states t5at t5is oJce ?;i$st&Secon* an* T5i$* Dist$ict& Davao Cit4@ 5as not ve$ie* t5e sinat7$es o= $eiste$e*vote$s H H H.
%
OL. "0"& OCTO(ER %"& %006
%
Lambino vs. Commission on Elections
S7mmation
Petitione$s /lea* Bit5 t5is Co7$t to 5ea$ t5e voice o= t5e /eo/le beca7se& in t5eBo$*s o= 27stice P7no B5o s7//o$ts t5em& t5e /eo/le<s voice is sove$ein in a*emoc$ac4.
)& too& believe in 5ee*in t5e /eo/le<s voice. ) $eite$ate m4 Se/a$ate O/inion inP)RMA t5at initiative is a *emoc$atic met5o* o= enablin o7$ /eo/le to eH/$ess
t5ei$ Bill an* c5a$t t5ei$ 5isto$4. H H H. ) believe t5at ;ili/inos 5ave t5e abilit4 an*t5e ca/acit4 to $ise above t5emselves& to 7se t5is $i5t o= initiative Bisel4 an*mat7$el4& an* to c5oose B5at is best =o$ t5emselves an* t5ei$ /oste$it4.
T5is belie= Bill not& 5oBeve$& a7tomaticall4 an* blin*l4 $es7lt in an initiative toc5ane t5e Constit7tion& beca7se t5e /$esent Petition violates t5e =olloBinK
9a/7nan& 2.@1! An Ame$ican /$o=esso$ on leal /5iloso/54& A. Altman& /7ts it t57sK (4 $ati=4int5e constit7tion t5at incl7*e* an eH/licit amen*ment /$ocess& t5e sove$ein /eo/lecommitte* t5emselves to =olloBin t5e $7le o= laB& even B5en t5e4 Bis5e* to maec5anes in t5e basic s4stem o= ove$nment. A. ALTMAN& ARGU)NG A(OUT LA, -!?%001@.
aainst incessant voices =$om t5e mo$e /oBe$=7l b$anc5es o= ove$nment& it s5o7l*neve$ coBe$ in s7bmission. On t5e ot5e$ 5an*& ) *a$esa4 t5at t5e same Beaness o= t5e Co7$t becomes its st$ent5 B5en it s/eas in*e/en*entl4 t5$o75 *ecisions t5at$i5t=7ll4 7/5ol* t5e s7/$emac4 o= t5e Constit7tion an* t5e R7le o= LaB. T5est$ent5 o= t5e 7*icia$4 lies not in its lac o= b$7te /oBe$& b7t in its mo$al co7$aeto /e$=o$m its constit7tional *7t4 at all times aainst all o**s. )ts mi5t is in itsbein $i5t.1"
o/ine* an* vote*& Bill still be tale* abo7t& eit5e$ in s5ame o$ in /$i*e. )n*ee*& t5e5an*8Bas5in o= Ponti7s Pilate& t5e abomination o= D$e* Scott& an* t5e loat5in o=
2avellana still line$ an* 5a7nt to t5is *a4.
Let not t5is case =all into t5e same *amnation. Rat5e$& let t5is Co7$t be noBnt5$o75o7t t5e nation an* t5e Bo$l* =o$ its in*e/en*ence& inte$it4& in*7st$4 an*intellience.
,+ERE;ORE& ) vote to D)SM)SS t5e Petition.
D)SSENT)NG OP)N)ON
PUNO& 2.K
)t is a Constit7tion Be a$e eH/o7n*in]1
FC5ie= 27stice 2o5n Ma$s5all
T5e /etition at ba$ is not a 5t ove$ mole5ills. At t5e c$7H o= t5e cont$ove$s4 is t5ec$itical 7n*e$stan*in o= t5e $st an* =o$emost o= o7$ constit7tional /$inci/lesFt5eP5ili//ines is a *emoc$atic an* $e/7blican State. Sove$eint4 $esi*es in t5e /eo/lean* all ove$nment a7t5o$it4 emanates =$om t5em.% Constit7tionalism *ictatest5at t5is c$ee* m7st be $es/ecte* Bit5 *ee*s o7$ belie= in its vali*it4 m7st be
bace* b4 be5avio$.
T5is is a Petition =o$ Ce$tio$a$i an* Man*am7s to set asi*e t5e $esol7tion o=$es/on*ent Commission on Elections ?COMELEC@ *ate* A77st #1& %006& *en4in*7e co7$se to t5e Petition =o$ )nitiative le* b4 /etitione$s Ra7l L. Lambino an* E$ico(. A7menta*o in t5ei$ oBn be5al= an* toet5e$ Bit5 some 6.# million $eiste$e*vote$s B5o 5ave aJHe* t5ei$ sinat7$es t5e$eon& an* /$a4in =o$ t5e iss7ance o= aB$it o= man*am7s to com/el $es/on*ent COMELEC to set t5e *ate o= t5e /lebiscite=o$ t5e $atication o= t5e /$o/ose* amen*ments to t5e Constit7tion in acco$*anceBit5 Section %& A$ticle Q)) o= t5e 1- Constit7tion.
>>>>>>>>>>>>>>>
1 M<cC7lloc5 v. Ma$4lan*& 1 U.S. ?! ,5eat@ #16& !0 ?11-@.
a*o/te* b4 t5e COMELEC on t5e con*7ct o= initiative& Bas 7lt$a vi$es inso=a$ as t5einitiative to amen* t5e Constit7tion Bas conce$ne*. T5e case Bas *ocete* as G.R.No. 1%#%"& entitle* Santiao v. Commission on Elections.#
*@ ORDER)NG t5e Commission on Elections to =o$t5Bit5 D)SM)SS t5e DEL;)N /etition
?UND8-680#@.
T5e Tem/o$a$4 Rest$ainin O$*e$ iss7e* on 1 Decembe$ 1--6 is ma*e /e$manentaainst t5e Commission on Elections& b7t is L);TED as aainst /$ivate$es/on*ents."
Ei5t ?@ membe$s o= t5e Co7$t& namel4& t5en Associate 27stice +ila$io G. Davi*e& 2$.?/onente@& C5ie= 27stice An*$es R. Na$vasa& an* Associate 27stices ;lo$en: D.Reala*o& ;le$i*a R7t5 P. Rome$o& 2os7e N. (ellosillo& Santiao M. 9a/7nan& ReinoC. +e$mosisima& 2$. an* 27sto P. To$$es& =7ll4 conc7$$e* in t5e mao$it4 o/inion.
On 27ne %#& 1--& P)RMA le* Bit5 t5e COMELEC a Petition =o$ )nitiative to P$o/oseAmen*ments to t5e Constit7tion ?P)RMA Petition@. T5e P)RMA Petition Bas s7//o$te*
b4 a$o7n* ve ?"@ million sinat7$es in com/liance Bit5 R.A. 6#" an* COMELECResol7tion No. %#00& an* /$a4e* t5at t5e COMELEC& amon ot5e$sK ?1@ ca7se t5e/7blication o= t5e /etition in ;ili/ino an* Enlis5 at least tBice in neBs/a/e$s o=ene$al an* local ci$c7lation ?%@ o$*e$ all election oJce$s to ve$i=4 t5e sinat7$escollecte* in s7//o$t o= t5e /etition an* s7bmit t5ese to t5e Commission an* ?#@ sett5e 5ol*in o= a /lebiscite B5e$e t5e =olloBin /$o/osition Bo7l* be s7bmitte* tot5e /eo/le =o$ $aticationK
NoB& almost a *eca*e late$& anot5e$ $o7/& SiaB n (a4an& sees to 7tili:e aneBt5e s4stem o= initiative to amen* t5e Constit7tion& t5is time to c5ane t5e =o$m o=ove$nment =$om bicame$al/$esi*ential to 7nicame$al8/a$liamenta$4 s4stem.
Let 7s loo at t5e =acts o= t5e /etition at ba$ Bit5 clea$ e4es.
On ;eb$7a$4 1"& %006& SiaB n (a4an& in coo$*ination Bit5 Union o= LocalA7t5o$ities o= t5e P5ili//ines ?ULAP@& emba$e* on a nationBi*e *$ive to at5e$sinat7$es to s7//o$t t5e move to a*o/t t5e /a$liamenta$4 =o$m o= ove$nment int5e co7nt$4 t5$o75 c5a$te$ c5ane. T5e4 /$o/ose* to amen* t5e Constit7tion as=olloBsK
A. Sections 1& %& #& !& "& 6 an* o= A$ticle ) s5all be amen*e* to $ea* as =olloBsK
Section 1. ?1@ T5e leislative an* eHec7tive /oBe$s s5all be veste* in a 7nicame$alPa$liament B5ic5 s5all be com/ose* o= as man4 membe$s as ma4 be /$ovi*e* b4laB& to be a//o$tione* amon t5e /$ovinces& $e/$esentative *ist$icts& an* cities inacco$*ance Bit5 t5e n7mbe$ o= t5ei$ $es/ective in5abitants& Bit5 at least t5$ee57n*$e* t5o7san* in5abitants /e$ *ist$ict& an* on t5e basis o= a 7ni=o$m an*/$o$essive $atio. Eac5 *ist$ict s5all com/$ise& as =a$ as /$acticable& conti7o7s&com/act an* a*acent te$$ito$4& an* eac5 /$ovince m7st 5ave at least one membe$.
?%@ Eac5 Membe$ o= Pa$liament s5all be a nat7$al8bo$n citi:en o= t5e P5ili//ines& atleast tBent48ve 4ea$s ol* on t5e *a4 o= t5e election& a $esi*ent o= 5is *ist$ict =o$ atleast one 4ea$ /$io$ t5e$eto& an* s5all be electe* b4 t5e I7alie* vote$s o= 5is*ist$ict =o$ a te$m o= ve 4ea$s Bit5o7t limitation as to t5e n7mbe$ t5e$eo=& eHce/tt5ose 7n*e$ t5e /a$t48list s4stem B5ic5 s5all be /$ovi*e* =o$ b4 laB an* B5osen7mbe$ s5all be eI7al to tBent4 /e$ cent7m o= t5e total membe$s5i/ comin =$omt5e /a$liamenta$4 *ist$icts.
SiaB n (a4an /$e/a$e* sinat7$e s5eets& on t5e 7//e$ /o$tions o= B5ic5 Be$e
B$itten t5e abst$act o= t5e /$o/ose* amen*ments& to BitK
Abst$actK Do 4o7 a//$ove o= t5e amen*ment o= A$ticles ) an* )) o= t5e 1-Constit7tion& c5anin t5e =o$m o= ove$nment =$om t5e /$esent bicame$al8/$esi*ential to a 7nicame$al8/a$liamenta$4 s4stem o= ove$nment& in o$*e$ toac5ieve $eate$ eJcienc4& sim/licit4 an* econom4 in ove$nment an* /$ovi*in anA$ticle Q))) as T$ansito$4 P$ovisions =o$ t5e o$*e$l4 s5i=t =$om one s4stem toanot5e$
T5e sinat7$e s5eets Be$e *ist$ib7te* nationBi*e to aJliate* nonove$nmento$ani:ations an* vol7ntee$s o= SiaB n (a4an& as Bell as to t5e local oJcials.Co/ies o= t5e *$a=t /etition =o$ initiative con8
>>>>>>>>>>>>>>>
10 Amen*e* Petition =o$ )nitiative& //. !8.
#00
#00
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
tainin t5e /$o/osition Be$e also ci$c7late* to t5e local oJcials an* m7lti8secto$al$o7/s.
SiaB n (a4an allee* t5at it also 5el* ba$ana4 assemblies B5ic5 c7lminate* onMa$c5 %!& %" an* %6& %006& to in=o$m t5e /eo/le an* eH/lain to t5em t5e /$o/ose*amen*ments to t5e Constit7tion. T5e$ea=te$& t5e4 ci$c7late* t5e sinat7$e s5eets=o$ sinin.
T5e sinat7$e s5eets Be$e t5en s7bmitte* to t5e local election oJce$s =o$ve$ication base* on t5e vote$s< $eist$ation $eco$*. U/on com/letion o= t5e
ve$ication /$ocess& t5e $es/ective local election oJce$s iss7e* ce$tications toattest t5at t5e sinat7$e s5eets 5ave been ve$ie*. T5e ve$ie* sinat7$e s5eetsBe$e s7bseI7entl4 t$ansmitte* to t5e oJce o= SiaB n (a4an =o$ t5e co7ntin o=t5e sinat7$es.
On A77st %"& %006& 5e$ein /etitione$s Ra7l L. Lambino an* E$ico (. A7menta*ole* Bit5 t5e COMELEC a Petition =o$ )nitiative to Amen* t5e Constit7tion entitle*)n t5e Matte$ o= P$o/osin Amen*ments to t5e 1- Constit7tion t5$o75 a
1. ;in*in t5e /etition to be s7Jcient /7$s7ant to Section !& A$ticle Q)) o= t5e
1- Constit7tion%. Di$ectin t5e /7blication o= t5e /etition in ;ili/ino an* Enlis5 at least tBice inneBs/a/e$s o= ene$al an* local ci$c7lation an*
#. Callin a /lebiscite to be 5el* not ea$lie$ t5an siHt4 no$ late$ t5an ninet4 *a4sa=te$ t5e Ce$tication b4 t5e COMELEC o= t5e s7Jcienc4 o= t5e /etition& to alloB t5e;ili/ino /eo/le to eH/$ess t5ei$ sove$ein Bill on t5e /$o/osition.
Seve$al $o7/s le* Bit5 t5e COMELEC t5ei$ $es/ective o//ositions to t5e /etition=o$ initiative& amon t5em ONEO)CE& )nc.& C5$istian S. Monso*& Rene (. A:7$in&Man7el L. 7e:on )))& (enamin T. Tolosa& 2$.& S7san . O/le& an* Ca$los P. Me*ina& 2$.Alte$native LaB G$o7/s& )nc.& Senate Mino$it4 Lea*e$ AI7ilino . Pimentel& 2$.&Senato$s Se$io OsmeYa )))& 2amb4 A.S. Ma*$ial& Al=$e*o S. Lim& Panlo M. Lacson&L7isa P. Ee$cito8Est$a*a& an* 2ino4 Est$a*a Re/$esentatives Lo$etta Ann P.Rosales& Ma$io 2o4o A7a& an* Ana T5e$esia +ontive$os8(a$aI7el (a4an& 9il7sanMa4o Uno& Ec7menical (is5o/s ;o$7m& Mi$ante& Gab$iela& Gab$iela ,omen<s Pa$t4&Anaba4an& Lea7e o= ;ili/ino St7*ents& Leona$*o San 2ose& 2oo Pine*a& D$s. Da$b4Santiao an* Reinal* Pam7as Att4s. Pete 7i$ino87a*$a& 2ose Anselmo ). Ca*i:&(4$on D. (oca$& Ma. Tan4a 9a$ina A. Lat& Antonio L. Salva*o$& an* Ran*all C.
+ontive$os8(a$aI7el an* Att4s. Pete 7i$ino87a*$a& 2ose Anselmo ). Ca*i:& (4$onD. (oca$& Ma. Tan4a 9a$ina A. Lat& Antonio L. Salva*o$& an* Ran*all C. Taba4o4onmove* to inte$vene in t5is case an* le* t5ei$ $es/ective O//ositionsWComments8in8)nte$vention.
T5e P5ili//ine Constit7tion Association& Con$a*o ;. Est$ella& Tomas C. Tole*o&
Ma$iano M. Taon& ;$oilan M. (ac7nan& 2oaI7in T. en7s& 2$.& ;o$t7nato P. A7as& an*Ama*o Gat )ncion t5e )nte$ate* (a$ o= t5e P5ili//ines Ceb7 Cit4 an* Ceb7P$ovince C5a/te$s =o$me$ P$esi*ent 2ose/5 Ee$cito Est$a*a an* PBe$sa n MasanPili/ino an* t5e Senate o= t5e P5ili//ines& $e/$esente* b4 Senate P$esi*ent Man7elilla$& 2$.& also le* t5ei$ $es/ective motions =o$ inte$vention an* Comments8in8)nte$vention.
T5e T$a*e Union Con$ess o= t5e P5ili//ines& S7lonba4an Movement ;o7n*ation&)nc.& Ronal* L. A*amat& Rolan*o Man7el Rive$a& R7elo (a4a& P5ili//ine T$ans/o$t an*Gene$al ,o$e$s O$ani:ation& an* icto$ino ;. (alais lieBise move* to inte$venean* s7bmitte* to t5e Co7$t a Petition8in8)nte$vention. All inte$ventions an*o//ositions Be$e $ante* b4 t5e Co7$t.
T5e o//osito$s8inte$veno$s essentiall4 s7bmit t5at t5e COMELEC *i* not commit$ave ab7se o= *isc$etion in *en4in *7e co7$se to t5e /etition =o$ initiative as itme$el4 =olloBe* t5is Co7$t<s $7lin in Santiao v. COMELEC as aJ$me* in t5e caseo= P)RMA v. COMELEC& base* on t5e /$inci/le o= sta$e *ecisis t5at t5e$e is nos7Jcient laB /$ovi*in =o$ t5e a7t5o$it4 an* t5e *etails =o$ t5e eHe$cise o= /eo/le<sinitiative to amen* t5e Constit7tion t5at t5e /$o/ose* c5anes to t5e Constit7tiona$e act7all4 $evisions& not me$e amen*ments t5at t5e /etition =o$ initiative *oesnot meet t5e $eI7i$e* n7mbe$ o= sinato$ies 7n*e$ Section %& A$ticle Q)) o= t5e1- Constit7tion t5at it Bas not s5oBn t5at t5e /eo/le 5ave been in=o$me* o= t5e/$o/ose* amen*ments as t5e$e Bas *is/a$it4 betBeen t5e /$o/osal /$esente* to
t5em an* t5e /$o/ose* amen*ments attac5e* to t5e /etition =o$ initiative& i= in*ee*t5e$e Bas t5at t5e ve$ication
#0"
OL. "0"& OCTO(ER %"& %006
#0"
Lambino vs. Commission on Elections
/$ocess Bas *one eH /a$te& t57s $en*e$in *7bio7s t5e sinat7$es attac5e* to t5e
/etition =o$ initiative an* t5at /etitione$s Lambino an* A7menta*o 5ave no lealca/acit4 to $e/$esent t5e sinato$ies in t5e /etition =o$ initiative.
T5e OJce o= t5e Solicito$ Gene$al ?OSG@& in com/liance Bit5 t5e Co7$t<s $esol7tiono= Se/tembe$ "& %006& le* its Comment to t5e /etition. AJ$min t5e /osition o=t5e /etitione$s& t5e OSG /$a4e* t5at t5e Co7$t $ant t5e /etition at ba$ an* $en*e$
7*mentK ?1@ *ecla$in R.A. 6#" as a*eI7ate to cove$ o$ as $easonabl4 s7Jcientto im/lement t5e s4stem o= initiative on amen*ments to t5e Constit7tion an* as
. ,5et5e$ t5e eHe$cise o= an initiative to /$o/ose amen*ments to t5e Constit7tionis a /olitical I7estion to be *ete$mine* solel4 b4 t5e sove$ein /eo/le.
. ,5et5e$ t5e Commission on Elections committe* $ave ab7se o= *isc$etion in*ismissin t5e Petitions =o$ )nitiative le* be=o$e it.
,it5 57milit4& ) oe$ t5e =olloBin vieBs to t5ese iss7es as /$ole*K
)
Petitione$s Lambino an* A7menta*o a$e /$o/e$ /a$ties to le t5e /$esent Petition in
O//osito$s8inte$veno$s conten* t5at /etitione$s Lambino an* A7menta*o a$e nott5e /$o/e$ /a$ties to le t5e instant /etition as t5e4 Be$e not a7t5o$i:e* b4 t5esinato$ies in t5e /etition =o$ initiative.
T5e a$7ment *ese$ves scant attention. T5e Constit7tion $eI7i$es t5at t5e /etition=o$ initiative s5o7l* be le* b4 at least tBelve /e$ cent ?1%V@ o= all $eiste$e*vote$s& o= B5ic5 eve$4 leislative *ist$ict m7st be $e/$esente* b4 at least t5$ee /e$cent ?#V@ o= all t5e $eiste$e* vote$s t5e$ein. T5e /etition =o$ initiative le* b4Lambino an* A7menta*o be=o$e t5e COMELEC Bas accom/anie* b4 vol7mino7ssinat7$e s5eets B5ic5 /$ima =acie s5oB t5e intent o= t5e sinato$ies to s7//o$t t5elin o= sai* /etition. State* above t5ei$ sinat7$es in t5e sinat7$e s5eets is t5e=olloBinK
H H H M4 sinat7$e 5e$ein B5ic5 s5all =o$m /a$t o= t5e /etition =o$ initiative toamen* t5e Constit7tion sinies m4 s7//o$t =o$ t5e lin t5e$eo=.1!
T5e$e is t57s no nee* =o$ t5e mo$e t5an siH ?6@ million sinato$ies to eHec7tese/a$ate *oc7ments to a7t5o$i:e /etitione$s to le t5e /etition =o$ initiative in t5ei$be5al=.
7*icial o$ I7asi87*icial =7nctions 5as acte* Bit5o7t o$ in eHcess o= 5is 7$is*iction&o$ Bit5 $ave ab7se o= *isc$etion amo7ntin to lac o$ eHcess o= 7$is*iction& an*t5e$e is no a//eal& no$ an4 /lain& s/ee*4& an* a*eI7ate $eme*4 in t5e o$*ina$4co7$se o= laB& a /e$son a$ieve* t5e$eb4 ma4 le a ve$ie* /etition in t5e /$o/e$co7$t H H H H.
SEC. #. Petition =o$ man*am7s.F,5en an4 t$ib7nal& co$/o$ation& boa$*& oJce$ o$/e$son 7nlaB=7ll4 nelects t5e /e$=o$mance o= an act B5ic5 t5e laB s/ecicall4enoins as a *7t4 $es7ltin =$om an oJce& t$7st& o$ station H H H an* t5e$e is no ot5e$/lain& s/ee*4 an* a*eI7ate $eme*4 in t5e o$*ina$4
>>>>>>>>>>>>>>>
1! EH5ibit (& Memo$an*7m o= Petitione$ Lambino.
#0
#0
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
co7$se o= laB& t5e /e$son a$ieve* t5e$eb4 ma4 le a ve$ie* /etition in t5e /$o/e$co7$t H H H H.
T57s& an4 /e$son a$ieve* b4 t5e act o$ inaction o= t5e $es/on*ent t$ib7nal& boa$*o$ oJce$ ma4 le a /etition =o$ ce$tio$a$i o$ man*am7s be=o$e t5e a//$o/$iateco7$t. Ce$tainl4& Lambino an* A7menta*o& as amon t5e /$o/onents o= t5e /etition=o$ initiative *ismisse* b4 t5e COMELEC& 5ave t5e stan*in to le t5e /etition atba$.
T5e latin /5$ase sta$e *ecisis et non I7ieta move$e means stan* b4 t5e t5in an**o not *ist7$b t5e calm. T5e *oct$ine sta$te* Bit5 t5e Enlis5 Co7$ts.1" (lacstoneobse$ve* t5at at t5e beinnin o= t5e 1t5 cent7$4& it is an establis5e* $7le toabi*e b4 =o$me$ /$ece*ents B5e$e t5e same /oints come aain in litiation.16 Ast5e $7le evolve*& ea$l4 limits to its a//lication Be$e $econi:e*K ?1@ it Bo7l* not be=olloBe* i= it Be$e /lainl4 7n$easonable ?%@ B5e$e co7$ts o= eI7al a7t5o$it4*evelo/e* conictin *ecisions an*& ?#@ t5e bin*in =o$ce o= t5e *ecision Bas t5e
Lambino vs. Commission on Electionst5e /$ece*ent vent7$es into t5e $ealm o= alte$in o$ $e/ealin t5e laB& it s5o7l* be$eecte*.%0 P$o=. Consovo4 Bell note* t5at +amilton an* Ma*ison *isa$ee abo7tt5e co7nte$vailin /olic4 consi*e$ations t5at Bo7l* alloB a 7*e to aban*on a/$ece*ent.%1 +e a**e* t5at t5ei$ i*eas $eveal a *ee/ inte$nal conict betBeent5e conc$eteness $eI7i$e* b4 t5e $7le o= laB an* t5e eHibilit4 *eman*e* in e$$o$co$$ection. )t is t5is inte$nal conict t5at t5e S7/$eme Co7$t 5as attem/te* to *ealBit5 =o$ ove$ tBo cent7$ies.%%
)n*ee*& tBo cent7$ies o= Ame$ican case laB Bill con$m P$o=. Consovo4<sobse$vation alt5o75 sta$e *ecisis *evelo/e* its oBn li=e in t5e Unite* States. TBo
st$ains o= sta$e *ecisis 5ave been isolate* b4 leal sc5ola$s.%# T5e $st& noBn asve$tical sta$e *ecisis *eals Bit5 t5e *7t4 o= loBe$ co7$ts to a//l4 t5e *ecisions o=t5e 5i5e$ co7$ts to cases involvin t5e same =acts. T5e secon*& noBn as5o$i:ontal sta$e *ecisis $eI7i$es t5at 5i5 co7$ts m7st =olloB its oBn /$ece*ents.P$o=. Consovo4 co$$ectl4 obse$ves t5at ve$tical sta$e *ecisis 5as been vieBe* as anobliation& B5ile 5o$i:ontal sta$e *ecisis& 5as been vieBe* as a /olic4& im/osinc5oice b7t not a comman*.%! )n*ee*& sta$e *ecisis is not one o= t5e /$ece/ts set instone in o7$ Constit7tion.
)t is also inst$7ctive to *istin7is5 t5e tBo in*s o= 5o$i:ontal sta$e *ecisisFconstit7tional sta$e *ecisis an* stat7to$4 sta$e *ecisis.%" Constit7tional sta$e *ecisisinvolves 7*icial inte$/$etations o= t5e Constit7tion B5ile stat7to$4 sta$e *ecisisinvolves inte$/$etations o= stat7tes. T5e *istinction is im/o$tant =o$ co7$ts eno4mo$e eHibilit4 in $e=7sin to a//l4 sta$e *ecisis in constit7tional litiations. 27stice
($an*eis< vieB on t5e bin*in eect o= t5e *oct$ine in constit7tional litiations still5ol*s sBa4 to*a4. )n soot5in /$ose& ($an*eis state*K Sta$e *ecisis is not . . . a7nive$sal
>>>>>>>>>>>>>>>
%0 )*.& at /. 6-.
%1 )*.& at /. 6.
%% )*.& at /. 6-.
%# Consovo4& s7/$a note 1& at /. ".%! )*.& at /. ".
%" )*.& at /. 6!.
#10
#10
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Electionsan* ineHo$able comman*. T5e $7le o= sta$e *ecisis is not ineHible. ,5et5e$ it s5allbe =olloBe* o$ *e/a$te* =$om& is a I7estion enti$el4 Bit5in t5e *isc$etion o= t5eco7$t& B5ic5 is aain calle* 7/on to consi*e$ a I7estion once *eci*e*.%6 )n t5esame vein& t5e vene$able 27stice ;$an=7$te$ o/ine*K t5e 7ltimate to7c5stone o=constit7tionalit4 is t5e Constit7tion itsel= an* not B5at Be 5ave sai* abo7t it.% )ncont$ast& t5e a//lication o= sta$e *ecisis on 7*icial inte$/$etation o= stat7tes is mo$eineHible. As 27stice Stevens eH/lainsK a=te$ a stat7te 5as been const$7e*& eit5e$ b4t5is Co7$t o$ b4 a consistent co7$se o= *ecision b4 ot5e$ =e*e$al 7*es an*aencies& it acI7i$es a meanin t5at s5o7l* be as clea$ as i= t5e 7*icial loss 5a*been *$a=te* b4 t5e Con$ess itsel=.% T5is stance $eects bot5 $es/ect =o$
%6 (7$net v. Co$ona*o Oil Z Gas Co.& %" U.S. !0"806 ?1-#%@ ?27stice ($an*eis&*issentin@.
% G$aves v. NeB 3o$ eH $el. O<9ee=e& #06 U.S. !66& !-18!-% ?27stice ;$an=7$te$&conc7$$in@.
% Commissione$ o= )nte$nal Reven7e v. ;in& !# U.S. - ?1-@ ?27stice Stevens&*issentin@.
%- (a$n5a$t& s7/$a note 1"& at /. 1-%%.
#0 )*.& at /. 1-%1.
#11
OL. "0"& OCTO(ER %"& %006
#11
Lambino vs. Commission on Elections
)n its %0084ea$ 5isto$4& t5e U.S. S7/$eme Co7$t 5as $e=7se* to =olloB t5e sta$e*ecisis $7le an* $eve$se* its *ecisions in 1-% cases.#1 T5e most =amo7s o= t5ese$eve$sals is ($oBn v. (oa$* o= E*7cation#% B5ic5 7ne* Pless4 v. ;e$7son<s##
se/a$ate b7t eI7al *oct$ine. Pless4 7/5el* as constit7tional a state laB$eI7i$ement t5at $aces be se$eate* on /7blic t$ans/o$tation. )n ($oBn& t5e U.S.S7/$eme Co7$t& 7nanimo7sl4 5el* t5at se/a$ate . . . is in5e$entl4 7neI7al. T57s&b4 =$eein itsel= =$om t5e s5acles o= sta$e *ecisis& t5e U.S. S7/$eme Co7$t =$ee* t5ecolo$e* Ame$icans =$om t5e c5ains o= ineI7alit4. )n t5e P5ili//ine settin& t5is Co7$t5as lieBise $e=7se* to be st$aitacete* b4 t5e sta$e *ecisis $7le in o$*e$ to/$omote /7blic Bel=a$e. )n La (7al8(<laan T$ibal Association& )nc. v. Ramos&#! Be$eve$se* o7$ o$iinal $7lin t5at ce$tain /$ovisions o= t5e Minin LaB a$e7nconstit7tional. Simila$l4& in Sec$eta$4 o= 27stice v. Lantion&#" Be ove$t7$ne* o7$$st $7lin an* 5el*& on motion =o$ $econsi*e$ation& t5at a /$ivate $es/on*ent isbe$e=t o= t5e $i5t to notice an* 5ea$in *7$in t5e eval7ation stae o= t5e
eHt$a*ition /$ocess.An eHamination o= *ecisions on sta$e *ecisis in mao$ co7nt$ies Bill s5oB t5at co7$tsa$e a$ee* on t5e =acto$s t5at s5o7l* be consi*e$e* be=o$e ove$t7$nin /$io$ $7lins.
5oo* v. Case4.# )t establis5e* a !8/$one* test. T5e co7$t s5o7l* ?1@ *ete$mineB5et5e$ t5e $7le 5as /$ove* to be intole$able sim/l4 in *e=4in /$actical Bo$abilit4?%@ consi*e$ B5et5e$ t5e $7le is s7bect to a in* o= $eliance t5at Bo7l* len* as/ecial 5a$*s5i/ to t5e conseI7ences o= ove$$7lin an* a** ineI7it4 to t5e cost o=$e/7*iation ?#@ *ete$mine B5et5e$ $elate* /$inci/les o= laB 5ave so =a$ *evelo/e*as to 5ave t5e ol* $7le no mo$e t5an a $emnant o= an aban*one* *oct$ine an*& ?!@n* o7t B5et5e$ =acts 5ave so c5ane* o$ come to be seen *ie$entl4& as to 5ave$obbe* t5e ol* $7le o= sinicant a//lication o$ 7stication.
;olloBin t5ese 7i*elines& ) s7bmit t5at t5e sta$e *ecisis $7le s5o7l* not ba$ t5e $e8eHamination o= Santiao. On t5e =acto$ o= intole$abilit4& t5e siH ?6@ 7stices inSantiao 5el* R.A. 6#" to be ins7Jcient as it /$ovi*e* no stan*a$* to 7i*eCOMELEC in iss7in its im/lementin $7les. T5e Santiao $7lin t5at R.A. 6#" isins7Jcient b7t Bit5o7t st$iin it *oBn as 7nconstit7tional is an intole$able
abe$$ation& t5e onl4 one o= its in* in o7$ /lanet. )t im/$o/e$l4 assails t5e abilit4 o=leislato$s to B$ite laBs. )t 7s7$/s t5e eHcl7sive $i5t o= leislato$s to *ete$mine 5oB=a$ laBs im/lementin constit7tional man*ates s5o7l* be c$a=te*. )t is elementa$4t5at co7$ts cannot *ictate on Con$ess t5e st4le o= B$itin oo* laBs& an4mo$e t5anCon$ess can tell co7$ts 5oB to B$ite lite$ate *ecisions. T5e *oct$ine o= se/a$ationo= /oBe$s =o$bi*s t5is Co7$t to inva*e t5e eHcl7sive laBmain *omain o= Con$ess=o$ co7$ts can const$7e laBs b7t cannot const$7ct t5em. T5e en* $es7lt o= t5e $7lin
o= t5e siH ?6@ 7stices t5at R.A. 6#" is ins7Jcient is intole$able =o$ it $en*e$e*li=eless t5e sove$ein $i5t o= t5e /eo/le to amen* t5e Constit7tion via an initiative.
$eliance is a non=acto$ in t5e case at ba$ =o$ it is mo$e a//$o/$iate to consi*e$ in*ecisions involvin cont$acts B5e$e /$ivate $i5ts a$e a*7*icate*. T5e
>>>>>>>>>>>>>>>
# 11% S.Ct. %-1 ?1--%@.
#1#
OL. "0"& OCTO(ER %"& %006
#1#
Lambino vs. Commission on Elections
case at ba$ involves no /$ivate $i5ts b7t t5e sove$eint4 o= t5e /eo/le.
On t5e =acto$ o= c5anes in laB an* in =acts& ce$tain $ealities on $o7n* cannot bebline* aBa4. T5e 7$ent nee* to a*7st ce$tain /$ovisions o= t5e 1- Constit7tionto enable t5e co7nt$4 to com/ete in t5e neB millenni7m is iven. T5e onl4 /oint o=contention is t5e mo*e to eect t5e c5aneFB5et5e$ t5$o75 constit7entassembl4& constit7tional convention o$ /eo/le<s initiative. Petitione$s claim t5at t5e4
5ave at5e$e* ove$ siH ?6@ million $eiste$e* vote$s B5o Bant to amen* t5eConstit7tion t5$o75 /eo/le<s initiative an* t5at t5ei$ sinat7$es 5ave been ve$ie*b4 $eist$a$s o= t5e COMELEC. T5e siH ?6@ 7stices B5o $7le* t5at R.A. 6#" isins7Jcient to im/lement t5e *i$ect $i5t o= t5e /eo/le to amen* t5e Constit7tiont5$o75 an initiative cannot Ba4la4 t5e Bill o= 6.# million /eo/le B5o a$e t5ebea$e$s o= o7$ sove$eint4 an* =$om B5om all ove$nment a7t5o$it4 emanates. NeB*evelo/ments in o7$ inte$nal an* eHte$nal social& economic& an* /olitical settins*eman* t5e $e8eHamination o= t5e Santiao case. T5e sta$e *ecisis $7le is no $eason=o$ t5is Co7$t to alloB t5e /eo/le to ste/ into t5e =7t7$e Bit5 a blin*=ol*.
)))
A $eeHamination o= R.A. 6#" Bill s5oB t5at it is s7Jcient to im/lement t5e /eo/le<sinitiative.
Let 7s $eeHamine t5e vali*it4 o= t5e vieB o= t5e siH ?6@ 7stices t5at R.A. 6#" isins7Jcient to im/lement Section %& A$ticle Q)) o= t5e 1- Constit7tion alloBinamen*ments to t5e Constit7tion to be *i$ectl4 /$o/ose* b4 t5e /eo/le t5$o75initiative.
,5en laBs a$e c5allene* as 7nconstit7tional& co7$ts a$e co7nsele* to ive li=e tot5e intent o= leislato$s. )n enactin R.A. 6#"& it is *a4li5t l7mino7s t5at Con$essinten*e* t5e sai* laB to im/lement t5e $i5t o= t5e /eo/le& t5$7 initiative& to/$o/ose amen*ments to t5e Constit7tion b4 *i$ect action. T5is all8im/o$tant intentis /al/able =$om t5e =olloBinK
#1!
#1!
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
;i$st. T5e teHt o= R.A. 6#" is $e/lete Bit5 $e=e$ences to t5e $i5t o= t5e /eo/le toinitiate c5anes to t5e Constit7tionK
T5e /olic4 statement *ecla$esK
Sec. %. Statement o= Polic4.FT5e /oBe$ o= t5e /eo/le 7n*e$ a s4stem o= initiativean* $e=e$en*7m to *i$ectl4 /$o/ose& enact& a//$ove o$ $eect& in B5ole o$ in /a$t& t5eConstit7tion& laBs& o$*inances& o$ $esol7tions /asse* b4 an4 leislative bo*4 7/oncom/liance Bit5 t5e $eI7i$ements o= t5is Act is 5e$eb4 aJ$me*& $econi:e* an*7a$antee*. ?em/5asis s7//lie*@
)t *enes initiative as t5e /oBe$ o= t5e /eo/le to /$o/ose amen*ments to t5eConstit7tion o$ to /$o/ose an* enact leislations t5$o75 an election calle* =o$ t5e/7$/ose& an* /lebiscite as t5e electo$al /$ocess b4 B5ic5 an initiative on t5eConstit7tion is a//$ove* o$ $eecte* b4 t5e /eo/le.
)t /$ovi*es t5e $eI7i$ements =o$ a /etition =o$ initiative to amen* t5e Constit7tion&vi:.K
?1@ T5at ?a@ /etition =o$ an initiative on t5e 1- Constit7tion m7st 5ave at leasttBelve /e$ cent7m ?1%V@ o= t5e total n7mbe$ o= $eiste$e* vote$s as sinato$ies& o=B5ic5 eve$4 leislative *ist$ict m7st be $e/$esente* b4 at least t5$ee /e$ cent7m?#V@ o= t5e $eiste$e* vote$s t5e$ein# an*
?%@ T5at ?i@nitiative on t5e Constit7tion ma4 be eHe$cise* onl4 a=te$ ve ?"@ 4ea$s=$om t5e $atication o= t5e 1- Constit7tion an* onl4 once eve$4 ve ?"@ 4ea$st5e$ea=te$.#-
)t Hes t5e eectivit4 *ate o= t5e amen*ment 7n*e$ Section -?b@ B5ic5 /$ovi*est5at ?t@5e /$o/osition in an initiative on t5e Constit7tion a//$ove* b4 a mao$it4 o=t5e votes cast in t5e /lebiscite s5all become eective as to t5e *a4 o= t5e/lebiscite.
Secon*. T5e leislative 5isto$4 o= R.A. 6#" also $eveals t5e clea$ intent o= t5elaBmae$s to 7se it as t5e inst$7ment to im/lement /eo/le<s initiative. No less t5an=o$me$ C5ie= 27stice +ila$io G. Davi*e& 2$.& t5e /onente in Santiao& conce*esK!0
!0 Santiao v. Commission on Elections& s7/$a note 11& at /. 1!".
#1"
OL. "0"& OCTO(ER %"& %006
#1"
Lambino vs. Commission on Elections
,e a$ee t5at R.A. No. 6#" Bas& as its 5isto$4 $eveals& inten*e* to cove$ initiative
to /$o/ose amen*ments to t5e Constit7tion. T5e Act is a consoli*ation o= +o7se (illNo. %1"0" an* Senate (ill No. 1 H H H H T5e (icame$al Con=e$ence Committeeconsoli*ate* Senate (ill No. 1 an* +o7se (ill No. %1"0" into a *$a=t bill& B5ic5 Bass7bseI7entl4 a//$ove* on 27ne 1-- b4 t5e Senate an* b4 t5e +o7se o=Re/$esentatives. T5is a//$ove* bill is noB R.A. No. 6#".
T5i$*. T5e s/onso$s5i/ s/eec5es b4 t5e a7t5o$s o= R.A. 6#" simila$l4 *emonst$atebe4on* *o7bt t5is intent. )n 5is s/onso$s5i/ $ema$s& t5e late Senato$ Ra7l Roco?t5en a Membe$ o= t5e +o7se o= Re/$esentatives@ em/5asi:e* t5e intent to maeinitiative as a mo*e B5e$eb4 t5e /eo/le can /$o/ose amen*ments to t5eConstit7tion. ,e I7ote 5is $elevant $ema$sK!1
SPONSORS+)P REMA9RS ?sic@ O; REP. ROCO
MR. ROCO. M$. S/eae$& Bit5 t5e /e$mission o= t5e committee& Be Bis5 to s/ea ins7//o$t o= +o7se (ill No. !-& entitle*K )N)T)AT)E AND RE;ERENDUM ACT O; 1-&B5ic5 late$ on ma4 be calle* )nitiative an* Re=e$en*7m Act o= 1--.
As a bac$o7n*& Be Bant to /oint o7t t5e constit7tional basis o= t5is /a$tic7la$ bill. T5e $ant o= /lena$4 leislative /oBe$ 7/on t5e P5ili//ine Con$ess b4 t5e 1-#"&1-# an* 1- Constit7tions& M$. S/eae$& Bas base* on t5e /$inci/le t5at an4/oBe$ *eeme* to be leislative b4 7sae an* t$a*ition is necessa$il4 /ossesse* b4
t5e P5ili//ine Con$ess 7nless t5e O$anic Act 5as lo*e* it elseB5e$e. T5is Bas acitation =$om e$a vs. Avelino ?1-!6@.
T$anscen*in s7c5 c5anes in t5e eHe$cise o= leislative /oBe$ is t5e *ecla$ation int5e P5ili//ine Constit7tion t5at 5e P5ili//ines is a Re/7blican State B5e$esove$eint4 $esi*es in t5e /eo/le an* all ove$nment a7t5o$it4 emanates =$omt5em.
)n a Re/7blic& M$. S/eae$& t5e /oBe$ to ove$n is veste* in its citi:ens /a$tici/atint5$o75 t5e $i5t o= s7$ae an* in*icatin t5e$eb4 t5ei$ c5oice o= laBmae$s.
Un*e$ t5e 1- Constit7tion& laBmain /oBe$ is still /$ese$ve* in Con$ess.+oBeve$& to instit7tionali:e *i$ect action o= t5e /eo/le as eHem/lie* in t5e 1-6Revol7tion& t5e$e is a /$actical $econition o= B5at Be $e=e$ to as /eo/le<s sove$ein/oBe$. T5is is t5e $econition o= a s4stem o= initiative an* $e=e$en*7m.
T5e Con$ess s5all& as ea$l4 as /ossible& /$ovi*e =o$ a s4stem o= initiative an*$e=e$en*7m& an* t5e eHce/tions t5e$e=$om& B5e$eb4 t5e /eo/le can *i$ectl4 /$o/osean* enact laBs o$ a//$ove o$ $eect an4 act o$ laB o$ /a$t t5e$eo= /asse* b4 t5eCon$ess o$ local leislative bo*4 a=te$ t5e $eist$ation o= a /etition t5e$e=o$ sine*
b4 at least ten /e$ cent7m o= t5e total n7mbe$ o= $eiste$e* vote$s& o$ B5ic5 eve$4leislative *ist$ict m7st be $e/$esente* b4 at least t5$ee /e$ cent7m o= t5e$eiste$e* vote$s t5e$eo=.
)n ot5e$ Bo$*s& M$. S/eae$& in Section 1 o= A$ticle ) B5ic5 *esc$ibes leislative/oBe$& t5e$e a$e $ese$ve* /oBe$s iven to t5e /eo/le. )n Section #%& Be a$es/ecicall4 tol* to /ass at t5e soonest /ossible time a bill on $e=e$en*7m an*initiative. ,e a$e s/ecicall4 man*ate* to s5a$e t5e leislative /oBe$s o= Con$essBit5 t5e /eo/le.
states a$e Alasa& Alabama& Montana& Massac57setts& Daota& Ola5oma& O$eon&an* /$acticall4 all ot5e$ states.
#1
#1
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
)n ce$tain Ame$ican states& t5e in* o= laBs to B5ic5 initiative an* $e=e$en*7ma//lies is also Bit5o7t a4 limitation& eHce/t =o$ eme$enc4 meas7$es& B5ic5 islieBise inco$/o$ate* in Section ?b@ o= +o7se (ill No. %1"0".
T5e /$oce*7$e /$ovi*e* b4 t5e +o7se billF=$om t5e lin o= t5e /etition& t5e$eI7i$ement o= a ce$tain /e$centae o= s7//o$te$s to /$esent a /$o/osition tos7bmission to electo$sFis s7bstantiall4 simila$ to t5ose o= man4 Ame$ican laBs. M$.S/eae$& t5ose amon 7s B5o ma4 5ave been in t5e Unite* States& /a$tic7la$l4 inCali=o$nia& *7$in election time o$ last Novembe$ *7$in t5e election Bo7l* 5avenotice* *ie$ent /$o/ositions /oste* in t5e cit4 Balls. T5e4 Be$e /$o/ositionss7bmitte* b4 t5e /eo/le =o$ inco$/o$ation *7$in t5e votin. T5ese Be$e in t5enat7$e o= initiative& M$. S/eae$.
Alt5o75 an in=ant t5en in P5ili//ine /olitical st$7ct7$e& initiative an* $e=e$en*7m isa t$ie* an* teste* s4stem in ot5e$ 7$is*ictions& an* +o7se (ill No. %1"0" t5$o75t5e va$io7s consoli*ate* bills is /atte$ne* a=te$ Ame$ican eH/e$ience in a $eat$es/ect.
,5at *oes t5e bill essentiall4 sa4& M$. S/eae$ AlloB me to t$4 to b$in o7$collea7es sloBl4 t5$o75 t5e bill. T5e bill 5as basicall4 onl4 1% sections. T5econstit7tional Commissione$s& M$. S/eae$& saB t5is s4stem o= initiative an*$e=e$en*7m as an inst$7ment B5ic5 can be 7se* s5o7l* t5e leislat7$e s5oB itsel=in*ie$ent to t5e nee*s o= t5e /eo/le. T5at is B54& M$. S/eae$& it ma4 be timel4&since Be seem to be am/l4 c$itici:e*& as $ea$*s o7$ $es/onsiveness& to /ass t5isbill on $e=e$en*7m an* initiative noB. ,5ile in*ie$ence Bo7l* not be ana//$o/$iate te$m to 7se at t5is time& an* s7$el4 it is not t5e case alt5o75 Be a$e soc$itici:e*& one m7st note t5at it is a =elt necessit4 o= o7$ times t5at laBs nee* to be/$o/ose* an* a*o/te* at t5e soonest /ossible time to s/7$ economic *evelo/ment&sa=e7a$* in*ivi*7al $i5ts an* libe$ties& an* s5a$e ove$nmental /oBe$ Bit5 t5e/eo/le.
s7bmit =o$e t5e consi*e$ation an* votin o= t5e ene$al electo$ate a bill o$ a /iece o= leislation.
#1-
OL. "0"& OCTO(ER %"& %006
#1-
Lambino vs. Commission on Elections
Un*e$ +o7se (ill No. %1"0"& t5e$e a$e t5$ee in*s o= initiative. One is an initiative toamen* t5e Constit7tion. T5is can occ7$ once eve$4 ve 4ea$s. Anot5e$ is aninitiative to amen* stat7tes t5at Be ma4 5ave a//$ove*. +a* t5is bill been aneHistin laB& M$. S/eae$& it is most liel4 t5at an ove$B5elmin mao$it4 o= t5eba$ana4s in t5e P5ili//ines Bo7l* 5ave a//$ove* b4 initiative t5e matte$ o= *i$ectvotin.
T5e t5i$* mo*e o= initiative& M$. S/eae$& $e=e$s to a /etition /$o/osin to enact$eional& /$ovincial& cit4& m7nici/al o$ ba$ana4 laBs o$ o$*inances. )t comes =$omt5e /eo/le an* it m7st be s7bmitte* *i$ectl4 to t5e electo$ate. T5e bill ives a*enite /$oce*7$e an* alloBs t5e COMELEC to *ene $7les an* $e7lations to iveteet5 to t5e /oBe$ o= initiative.
On t5e ot5e$ 5an*& $e=e$en*7m& M$. S/eae$& is t5e /oBe$ o= t5e /eo/le to a//$oveo$ $eect somet5in t5at Con$ess 5as al$ea*4 a//$ove*.
;o$ instance& M$. S/eae$& B5en Be *ivi*e t5e m7nici/alities o$ t5e ba$ana4s intotBo o$ t5$ee& Be m7st $st et t5e consent o= t5e /eo/le aecte* t5$o75 /lebisciteo$ $e=e$en*7m.
Re=e$en*7m is a mo*e o= /lebiscite& M$. S/eae$. +oBeve$& $e=e$en*7m can also be/etitione* b4 t5e /eo/le i=& =o$ instance& t5e4 *o not li=e ?sic@ t5e bill on *i$ectelections an* it is a//$ove* s7bseI7entl4 b4 t5e Senate. )= t5is bill 5a* al$ea*4become a laB& t5en t5e /eo/le co7l* /etition t5at a $e=e$en*7m be con*7cte* sot5at t5e acts o= Con$ess can be a//$o/$iatel4 a//$ove* o$ $eb7e*.
T5e initial stae& M$. S/eae$& is B5at Be call t5e /etition. As envisione* in t5e bill&t5e initiative comes =$om t5e /eo/le& =$om $eiste$e* vote$s o= t5e co7nt$4& b4/$esentin a /$o/osition so t5at t5e /eo/le can t5en s7bmit a /etition& B5ic5 is a/iece o= /a/e$ t5at contains t5e /$o/osition. T5e /$o/osition in t5e eHam/le ) 5avebeen citin is B5et5e$ t5e$e s5o7l* be *i$ect elections *7$in t5e ba$ana4elections. So t5e /etition m7st be le* in t5e a//$o/$iate aenc4 an* t5e/$o/osition m7st be clea$ state*. )t can be te*io7s b7t t5at is 5oB an eo$t to 5ave*i$ect *emoc$ac4 o/e$ates.
Section ! o= t5e bill ives $eI7i$ements& M$. S/eae$. )t Bill not be all t5at eas4 to5ave $e=e$en*7m o$ initiative /etitione* b4 t5e /eo/le. Un*e$ Section ! o= t5ecommittee $e/o$t& Be a$e iven ce$tain limitations. ;o$ instance& to eHe$cise t5e/oBe$ o= initiative o$ $e=e$en*7m& at least 10 /e$cent o= t5e total n7mbe$ o=
$eiste$e* vote$s& o= B5ic5 eve$4 leislative *ist$ict is $e/$esente* b4 at least #/e$cent o= t5e $eiste$e* vote$s t5e$eo=& s5all sin a /etition. T5ese n7mbe$s& M$.S/eae$& a$e not taen =$om t5e ai$. T5e4 a$e man*ate* b4 t5e Constit7tion. T5e$em7st be a $eI7i$ement o= 10 /e$cent =o$ o$*ina$4 laBs an* # /e$cent $e/$esentinall *ist$icts. T5e same $eI7i$ement
#%0
#%0
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
is m7tatis m7tan*is o$ a//$o/$iatel4 mo*ie* an* a//lie* to t5e *ie$ent sections.So i= it is& =o$ instance& a /etition on initiative o$ $e=e$en*7m =o$ a ba$ana4& t5e$e isa 10 /e$cent o$ a ce$tain n7mbe$ $eI7i$e* o= t5e vote$s o= t5e ba$ana4. )= it is =o$ a
*ist$ict& t5e$e is also a ce$tain n7mbe$ $eI7i$e* o= all toBns o= t5e *ist$ict t5at m7stsee t5e /etition. )= it is =o$ a /$ovince t5en aain a ce$tain /e$centae o= t5e/$ovincial electo$s is $eI7i$e*. All t5ese a$e base* Bit5 $e=e$ence to t5econstit7tional man*ate.
T5e con*7ct o= t5e initiative an* $e=e$en*7m s5all be s7/e$vise* an* s5all be 7/ont5e call o= t5e Commission on Elections. +oBeve$& Bit5in a /e$io* o= #0 *a4s =$om$ecei/t o= t5e /etition& t5e COMELEC s5all *ete$mine t5e s7Jcienc4 o= t5e /etition&/7blis5 t5e same an* set t5e *ate o= t5e $e=e$en*7m B5ic5 s5all not be ea$lie$ t5an!" *a4s b7t not late$ t5an -0 *a4s =$om t5e *ete$mination b4 t5e commission o= t5es7Jcienc4 o= t5e /etition. ,54 is t5is so& M$. S/eae$ T5e /etition m7st $st be*ete$mine* b4 t5e commission as to its s7Jcienc4 beca7se o7$ Constit7tion
$eI7i$es t5at no bill can be a//$ove* 7nless it contains one s7bect matte$. )t isconceivable t5at in t5e =e$vo$ o= an initiative o$ $e=e$en*7m& M$. S/eae$& t5e$e ma4be mo$e t5an tBo to/ics so75t to be a//$ove* an* t5at cannot be alloBe*. )n =act&t5at is one o= t5e /$o5ibitions 7n*e$ t5is $e=e$en*7m an* initiative bill. ,5en amatte$ 7n*e$ initiative o$ $e=e$en*7m is a//$ove* b4 t5e $eI7i$e* n7mbe$ o= votes&M$. S/eae$& it s5all become eective 1" *a4s =olloBin t5e com/letion o= its/7blication in t5e OJcial Ga:ette. Eectivel4 t5en& M$. S/eae$& all t5e bill sees to*o is to enla$e an* $econi:e t5e leislative /oBe$s o= t5e ;ili/ino /eo/le.
M$. S/eae$& ) t5in t5is Con$ess& /a$tic7la$l4 t5is +o7se& cannot ino$e o$ cannotbe insensitive to t5e call =o$ initiative an* $e=e$en*7m. ,e s5o7l* 5ave *one it in
1- b7t t5at is /ast. Ma4be Be s5o7l* 5ave *one it in 1- b7t t5at too 5a*al$ea*4 /asse*& b7t it is onl4 ;eb$7a$4 1--& M$. S/eae$& an* Be 5ave eno75 timet5is 4ea$ at least to $es/on* to t5e nee* o= o7$ /eo/le to /a$tici/ate *i$ectl4 in t5eBo$ o= leislation.
;o$ t5ese $easons& M$. S/eae$& Be 7$e an* im/lo$e o7$ collea7es to a//$ove+o7se (ill No. %1"0" as inco$/o$ate* in Committee Re/o$t No. !%# o= t5eCommittee on S7$ae an* Electo$al Re=o$ms.
ca7se8o$iente* $o7/s an o//o$t7nit4 to a$tic7late t5ei$ i*eas in a t$7l4 *emoc$atic=o$7m& t57s& t5e com/etition B5ic5 t5e4 Bill oe$ to Con$ess Bill 5o/e=7ll4 be a5ealt54 one. An4Ba4& in an atmos/5e$e o= com/etition t5e$e a$e common inte$ests*ea$ to all ;ili/inos& an* t5e /7$s7it o= eac5 si*e<s com/etitive oals can still tae/lace in an atmos/5e$e o= $eason an* mo*e$ation.
M$. S/eae$ an* m4 *ea$ collea7es& B5en t5e *istin7is5e* Gentleman =$omCama$ines S7$ an* t5is Re/$esentation le* o7$ $es/ective ve$sions o= t5e bill in1-& Be Be$e 5o/in t5at t5e bill Bo7l* be a//$ove* ea$l4 eno75 so t5at o7$/eo/le co7l* imme*iatel4 7se t5e a$a$ian $e=o$m bill as an initial s7bect matte$ o$as a tae8o /oint.
+oBeve$& in vieB o= t5e ve$4 5eav4 aen*a o= t5e Committee on Local Gove$nment&it too sometime be=o$e t5e committee co7l* act on t5ese. (7t as t5e4 sa4 in Taalo& 57li man *aB at maalin a4 nai5a5abol *in. T5e /assae o= t5is billt5e$e=o$e& m4 *ea$ collea7es& co7l* be one o= o7$ nest 5o7$s B5en Be can setasi*e o7$ /e$sonal an* /olitical consi*e$ation =o$ t5e $eate$ oo* o= o7$ /eo/le. )t5e$e=o$e $es/ect=7ll4 7$e an* /lea* t5at t5is bill be imme*iatel4 a//$ove*.
T5an 4o7& M$. S/eae$.
,e cannot *o*e t5e *7t4 to ive eect to t5is intent =o$ t5e co7$ts 5ave t5e*7t4 to inte$/$et t5e laB as leislate* an* B5en /ossible& to 5ono$ t5e clea$meanin o= stat7tes as $eveale* b4 its lan7ae& /7$/ose an* 5isto$4.!#
T5e t$ae*4 is t5at B5ile conce*in t5is intent& t5e siH ?6@ 7stices& neve$t5eless&$7le* t5at H H H R.A. No. 6#" is incom/lete& ina*eI7ate& o$ Bantin in essentialte$ms an* con*itions inso=a$ as initiative on amen*ments to t5e Constit7tion isconce$ne* =o$ t5e =olloBin $easonsK ?1@ Section % o= t5e Act *oes not s7est aninitiative on amen*ments to t5e Constit7tion ?%@ t5e Act *oes not /$ovi*e =o$ t5econtents o= t5e /etition =o$ initiative on t5e Constit7tion an* ?#@ B5ile t5e Act/$ovi*es s7btitles =o$ National )nitiative an* Re=e$en*7m ?S7btitle ))@ an* =o$ Local)nitiative an* Re=e$en*7m
MR. SUAREK H H H H T5is /$o/osal Bas s7este* on t5e t5eo$4 t5at t5is matte$ o=initiative& B5ic5 came abo7t beca7se o= t5e eHt$ao$*ina$4 *evelo/ments t5is 4ea$&5as to be se/a$ate* =$om t5e t$a*itional mo*es o= amen*in t5e Constit7tion asembo*ie* in Section 1. T5e Committee membe$s =elt t5at t5is s4stem o= initiatives5o7l* not eHten* to t5e $evision o= t5e enti$e Constit7tion& so Be $emove* it =$omt5e o/e$ation o= Section 1 o= t5e /$o/ose* A$ticle on Amen*ment o$ Revision.
H H H H H H H H H H H H
MS. AU)NO. )n B5ic5 case& ) am se$io7sl4 bot5e$e* b4 /$ovi*in t5is /$ocess o=initiative as a se/a$ate section in t5e A$ticle on Amen*ment. ,o7l* t5e s/onso$ be
amenable to acce/tin an amen*ment in te$ms o= $ealinin Section % as anot5e$s7b/a$a$a/5 ?c@ o= Section 1& instea* o= settin it 7/ as anot5e$ se/a$ate section asi= it Be$e a sel=8eHec7tin /$ovision
MR. SUARE. ,e Bo7l* be amenable eHce/t t5at& as Be cla$ie* a B5ile ao& t5is/$ocess o= initiative is limite* to t5e matte$ o= amen*ment an* s5o7l* not eH/an*into a $evision B5ic5 contem/lates a total ove$5a7l o= t5e Constit7tion. T5at Bas t5esense t5at Bas conve4e* b4 t5e Committee.
MS. AU)NO. )n ot5e$ Bo$*s& t5e Committee Bas attem/tin to *istin7is5 t5ecove$ae o= mo*es ?a@ an* ?b@ in Section 1 to incl7*e t5e /$ocess o= $evisionB5e$eas t5e /$ocess o= initiation to amen*& B5ic5 is iven to t5e /7blic& Bo7l* onl4
a//l4 to amen*mentsMR. SUARE. T5at is $i5t. T5ose Be$e t5e te$ms envisione* in t5e Committee.
Commissione$ ?late$ C5ie= 27stice@ +ila$io G. Davi*e& 2$.& es/o7se* t5e same vieBK!"
MR. DA)DE. H H H H ,e a$e limitin t5e $i5t o= t5e /eo/le& b4 initiative& to s7bmit a/$o/osal =o$ amen*ment onl4& not =o$ $evision& onl4 once eve$4 ve 4ea$s H H H H
MR. MAAM(ONG. M4 $st I7estionK Commissione$ Davi*e<s /$o/ose* amen*menton line 1 $e=e$s to amen*ment. Does it cove$ t5e Bo$* $evision as *ene* b4Commissione$ Pa*illa B5en 5e
MR. DA)DE. No& it *oes not& beca7se amen*ments an* $evision s5o7l* becove$e* b4 Section 1. So inso=a$ as initiative is conce$ne*& it can onl4 $elate toamen*ments not $evision.
Commissione$ ?noB a *istin7is5e* Associate 27stice o= t5is Co7$t@ A*ol=o S. A:c7naalso cla$ie* t5is /oint!6F
MR. OPLE. To mo$e closel4 $eect t5e intent o= Section %& ma4 ) s7est t5at Be a**to Amen*ments OR RE)S)ONS O; to $ea*K Amen*ments OR RE)S)ON O; t5isConstit7tion.
MR. ACUNA. ) t5in it Bas not alloBe* to $evise t5e Constit7tion b4 initiative.
MR. OPLE. +oB is t5at aain
MR. ACUNA. )t Bas not o7$ intention to alloB a $evision o= t5e Constit7tion b4initiative b7t me$el4 b4 amen*ments.
constit7tion.!- )t is /lain t5at t5e /$o/ose* c5anes Bill basicall4 aect onl4 t5econstit7tion o= ove$nment. T5e constit7tions o= libe$t4 an* sove$eint4 $emain7naecte*. )n*ee*& t5e /$o/ose* c5anes Bill not c5ane t5e =7n*amental nat7$eo= o7$ state as H H H a *emoc$atic an* $e/7blican state."0 )t is sel=8evi*ent t5at a7nicame$al8/a$liamenta$4 =o$m o= ove$nment Bill not mae o7$ State an4 less*emoc$atic o$ an4 less $e/7blican in c5a$acte$. +ence& neit5e$ Bill t5e 7se o= t5eI7alitative test $esolve t5e iss7e o= B5et5e$ t5e /$o/ose* c5anes a$e sim/le o$s7bstantial.
;o$ t5is $eason an* mo$e& o7$ Constit7tions *i* not a*o/t an4 I7antitative o$I7alitative test to *ete$mine B5et5e$ an amen*ment is sim/le o$ s7bstantial.No$ *i* t5e4 /$ovi*e t5at s7bstantial amen*ments a$e be4on* t5e /oBe$ o= t5e
/eo/le to /$o/ose to c5ane t5e Constit7tion. )nstea*& o7$ Constit7tions ca$$ie* t5et$a*itional *istinction betBeen amen*ment an* $evision& i.e.& amen*mentmeans c5ane& incl7*in com/leH c5anes B5ile $evision means com/letec5ane& incl7*in t5e a*o/tion o= an enti$el4 neB covenant. T5e leal *ictiona$ieseH/$ess t5is t$a*itional *ie$ence betBeen amen*ment an* $evision. (lac<sLaB Dictiona$4 *enes amen*ment as a =o$mal $evision o$ a**ition /$o/ose* o$ma*e to a stat7te& constit7tion& /lea*in& o$*e$& o$ ot5e$ inst$7ment s/ecicall4& ac5ane ma*e b4 a**ition& *eletion& o$ co$$ection."1 (lac<s also $e=e$s toamen*ment as t5e /$ocess o= main s7c5 a $evision."% Revision& on t5e ot5e$5an*& is *ene* as a $eeHamination
>>>>>>>>>>>>>>>
!- )nt$o*7ction to Political Science& //. #-8#-.
"0 Section 1& A$t. )) o= t5e 1- Constit7tion.
"1 Ei5t5 E*ition& /. - ?%00!@.
"% )bi*.
#%
#%
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
o$ ca$e=7l $evieB =o$ co$$ection o$ im/$ovement."# )n /a$liamenta$4 laB& it is*esc$ibe* as a ene$al an* t5o$o75 $eB$itin o= a ove$nin *oc7ment& in B5ic5
t5e enti$e *oc7ment is o/en to amen*ment."! Simila$l4& (allentine<s LaBDictiona$4 *enes amen*mentFas a co$$ection o$ $evision o= a B$itin toco$$ect e$$o$s o$ bette$ to state its inten*e* /7$/ose"" an* amen*ment o=constit7tion as a /$ocess o= /$o/osin& /assin& an* $ati=4in amen*ments to t5eH H H constit7tion."6 )n cont$ast& $evision& B5en a//lie* to a stat7te ?o$
constit7tion@& contem/lates t5e $e8eHamination o= t5e same s7bect matte$containe* in t5e stat7te ?o$ constit7tion@& an* t5e s7bstit7tion o= a neB& an* B5at isbelieve* to be& a still mo$e /e$=ect $7le."
One o= t5e most a7t5o$itative constit7tionalists o= 5is time to B5om Be oBe a lot o=intellect7al *ebt& Dean icente G. Sinco& o= t5e Unive$sit4 o= t5e P5ili//ines Colleeo= LaB& ?late$ P$esi*ent o= t5e U.P. an* *eleate to t5e Constit7tional Convention o=1-1@ simila$l4 s/elle* o7t t5e *ie$ence betBeen amen*ment an* $evision. +eo/ine*K t5e $evision o= a constit7tion& in its st$ict sense& $e=e$s to a consi*e$ation o= t5e enti$e constit7tion an* t5e /$oce*7$e =o$ eectin s7c5 c5ane B5ileamen*ment $e=e$s onl4 to /a$tic7la$ /$ovisions to be a**e* to o$ to be alte$e* in aconstit7tion."
O7$ /eo/le Be$e 7i*e* b4 t5is t$a*itional *istinction B5en t5e4 eecte* c5anes ino7$ 1-#" an* 1-# Constit7tions. )n 1-!0& t5e c5anes to t5e 1-#" Constit7tionB5ic5 incl7*e* t5e conve$sion =$om a 7nicame$al s4stem to a bicame$al st$7ct7$e&t5e s5o$tenin o= t5e ten7$e o= t5e P$esi*ent an* ice8P$esi*ent =$om a siH84ea$te$m Bit5o7t $eelection to a =o7$84ea$ te$m Bit5 one $eelection& an* t5eestablis5ment o= t5e COMELEC& toet5e$ Bit5 t5e com/lementa$4 constit7tional/$ovisions to eect t5e c5anes& Be$e consi*e$e* amen*ments onl4& not a $evision.
5ono$able ice8P$esi*ent to t5e s7bstantial *ie$ence in t5e connotation an*sinicance betBeen t5e sai* te$ms. As a $es7lt o= o7$ $esea$c5& Be came 7/ Bit5t5e obse$vations ma*e in t5e =amo7sFo$ noto$io7sF2avellana *oct$ine& /a$tic7la$l4t5e *ecision $en*e$e* b4 +ono$able 27stice Maasia$&66 B5e$ein 5e ma*e t5e=olloBin *istinction betBeen amen*ment an* $evision o= an eHistinConstit7tionK Revision ma4 involve a $eB$itin o= t5e B5ole Constit7tion. On t5e
ot5e$ 5an*& t5e act o= amen*in a constit7tion envisaes a c5ane o= s/ecic/$ovisions onl4. T5e intention o= an act to amen* is not t5e c5ane o= t5e enti$eConstit7tion& b7t onl4 t5e im/$ovement o= s/ecic /a$ts o$ t5e a**ition o= /$ovisions*eeme* essential as a conseI7ence o= neB con*itions o$ t5e elimination o= /a$tsal$ea*4 consi*e$e* obsolete o$ 7n$es/onsive to t5e nee*s o= t5e times.
T5e 1-# Constit7tion is not a me$e amen*ment to t5e 1-#" Constit7tion. )t is acom/letel4 neB =7n*amental C5a$te$ embo*4in neB /olitical& social an* economicconce/ts.
To =7$t5e$ eH/lain $evision& =o$me$ 27stice Antonio& in 5is conc7$$in o/inion& 7se*an analo4F,5en a 5o7se is com/letel4 *emolis5e* an* anot5e$ is e$ecte* on t5e
same location& *o 4o7 5ave a c5ane*& $e/ai$e* an* alte$e* 5o7se& o$ *o 4o7 5avea neB 5o7se Some o= t5e mate$ial containe* in t5e ol* 5o7se ma4 be 7se* aain&some o= t5e $ooms ma4 be const$7cte* t5e same& b7t t5is *oes not alte$ t5e =actt5at 4o7 5ave altoet5e$ anot5e$ o$ a neB 5o7se.6
+ence& it is a$7able t5at B5en t5e =$ame$s o= t5e 1- Constit7tion 7se* t5e Bo$*$evision& t5e4 5a* in min* t5e $eB$itin o= t5e B5ole Constit7tion& o$ t5e totalove$5a7l o= t5e Constit7tion. An4t5in less is an amen*ment o$ 7st a c5ane o= s/ecic /$ovisions onl4& t5e intention bein not t5e c5ane o= t5e enti$eConstit7tion& b7t onl4 t5e im/$ovement o= s/ecic /a$ts o$ t5e a**ition o= /$ovisions*eeme* essential as a conseI7ence o= neB con*itions o$ t5e elimination o= /a$tsal$ea*4 consi*e$e* obsolete o$ 7n$e8
>>>>>>>>>>>>>>>
66 T5e o/inion Bas act7all4 ma*e b4 27stice ;eliH Antonio.
6 2avellana v. EHec7tive Sec$eta$4& s7/$a note 6!& citin ,5eele$ v. (oa$* o= T$7stees& # S.E.%* #%%& #% ?1-!6@.
###
OL. "0"& OCTO(ER %"& %006
###
Lambino vs. Commission on Elections
s/onsive to t5e nee*s o= t5e times. Un*e$ t5is vieB& s7bstantial amen*ments a$estill amen*ments an* t57s can be /$o/ose* b4 t5e /eo/le via an initiative.
As Be cannot be 7i*e* Bit5 ce$taint4 b4 t5e inconcl7sive o/inions o= t5eCommissione$s on t5e *ie$ence betBeen sim/le an* s7bstantial amen*mentso$ B5et5e$ s7bstantial amen*ments amo7ntin to $evision a$e cove$e* b4
/eo/le<s initiative& it be5ooves 7s to =olloB t5e ca$*inal $7le in inte$/$etinConstit7tions& i.e.& const$7e t5em to ive eect to t5e intention o= t5e /eo/le B5oa*o/te* it. T5e ill7st$io7s Coole4 eH/lains its $ationale Bell& vi:.K6
H H H t5e constit7tion *oes not *e$ive its =o$ce =$om t5e convention B5ic5 =$ame*&b7t =$om t5e /eo/le B5o $atie* it& t5e intent to be a$$ive* at is t5at o= t5e /eo/le&an* it is not to be s7//ose* t5at t5e4 5ave looe* =o$ an4 *a$ o$ abst$7se meaninin t5e Bo$*s em/lo4e*& b7t $at5e$ t5at t5e4 5ave acce/te* t5em in t5e sense mostobvio7s to t5e common 7n*e$stan*in& an* $atie* t5e inst$7ment in t5e belie= t5at
t5at Bas t5e sense *esine* to be conve4e*. T5ese /$ocee*ins t5e$e=o$e a$e lessconcl7sive o= t5e /$o/e$ const$7ction o= t5e inst$7ment t5an a$e leislative/$ocee*ins o= t5e /$o/e$ const$7ction o= a stat7te since in t5e latte$ case it is t5eintent o= t5e leislat7$e Be see& B5ile in t5e =o$me$ Be a$e en*eavo$in to a$$ive att5e intent o= t5e /eo/le t5$o75 t5e *isc7ssion an* *elibe$ations o= t5ei$
$e/$esentatives. T5e 5isto$4 o= t5e callin o= t5e convention& t5e ca7ses B5ic5 le* toit& an* t5e *isc7ssions an* iss7es be=o$e t5e /eo/le at t5e time o= t5e election o=t5e *eleates& Bill sometimes be I7ite as inst$7ctive an* satis=acto$4 as an4t5in tobe at5e$e* =o$m t5e /$ocee*ins o= t5e convention.
Co$olla$il4& a constit7tion is not to be inte$/$ete* on na$$oB o$ tec5nical /$inci/les&b7t libe$all4 an* on b$oa* ene$al lines& to accom/lis5 t5e obect o= itsestablis5ment an* ca$$4 o7t t5e $eat /$inci/les o= ove$nmentFnot to *e=eatt5em.6- One o= t5ese $eat /$inci/les is t5e sove$eint4 o= t5e /eo/le.
>>>>>>>>>>>>>>>
6 T. M. Coole4& ) A TREAT)SE ON CONST)TUT)ONAL L)M)TAT)ONS 1!#81!! ?t5 e*.1-%@.
MR. OPLE. H H H H T5e Committee a**e* t5e Bo$* *emoc$atic to $e/7blican&an*& t5e$e=o$e& t5e $st sentence statesK T5e P5ili//ines is a $e/7blican an**emoc$atic state H H H H
MR. NOLLEDO. H H H H *emoc$atic Bas a**e* beca7se o= t5e nee* to em/5asi:e/eo/le /oBe$ an* t5e man4 /$ovisions in t5e Constit7tion t5at Be 5ave a//$ove*$elate* to $ecall& /eo/le<s o$ani:ations& initiative an* t5e lie& B5ic5
$econi:e t5e /a$tici/ation o= t5e /eo/le in /olic48main in ce$tain ci$c7mstances HH H H
MR. OPLE. ) t5an t5e Commissione$. T5at is a ve$4 clea$ ansBe$ an* ) t5in it *oesmeet a nee* H H H H
MR. NOLLEDO. Acco$*in to Commissione$ Rosa$io ($ai*& *emoc$ac4 5e$e is7n*e$stoo* as /a$tici/ato$4 *emoc$ac4. ! ?em/5asis s7//lie*@
T5e =olloBin eHc5ane betBeen Commissione$s Rene . Sa$miento an* A*ol=o S.A:c7na is o= t5e same im/o$tK"
MR. SARM)ENTO. ,5en Be s/ea o= $e/7blican *emoc$atic state& a$e Be $e=e$$in to$e/$esentative *emoc$ac4
MR. ACUNA. T5at is $i5t.
MR. SARM)ENTO. So& B54 *o Be not $etain t5e ol* =o$m7lation 7n*e$ t5e 1-# an*
1-#" Constit7tions B5ic5 7se* t5e Bo$*s $e/7blican state beca7se $e/7blicanstate Bo7l* $e=e$ to a *emoc$atic state B5e$e /eo/le c5oose t5ei$ $e/$esentatives
MR. ACUNA. ,e Bante* to em/5asi:e t5e /a$tici/ation o= t5e /eo/le inove$nment.
MR. SARM)ENTO. (7t even in t5e conce/t $e/7blican state& Be a$e st$essin t5e/a$tici/ation o= t5e /eo/le H H H H So t5e Bo$* $e/7blican Bill s7Jce to cove$/o/7la$ $e/$esentation.
MR. OPLE. H H H H ) t5in t5is is 7st t5e co$$ect time in 5isto$4 B5en Be s5o7l*
int$o*7ce an innovative mo*e o= /$o/osin amen*ments to t5e Constit7tion& vestinin t5e /eo/le an* t5ei$ o$ani:ations t5e $i5t to =o$m7late an* /$o/ose t5ei$ oBnamen*ments an* $evisions o= t5e Constit7tion in a manne$ t5at Bill be bin*in 7/ont5e ove$nment. )t is not t5at ) believe t5is in* o= *i$ect action b4 t5e /eo/le =o$amen*in a constit7tion Bill be nee*e* =$eI7entl4 in t5e =7t7$e& b7t it is oo* tonoB t5at t5e 7ltimate $ese$ves o= sove$ein /oBe$ still $est 7/on t5e /eo/le an*t5at in t5e eHe$cise o= t5at /oBe$& t5e4 can /$o/ose amen*ments o$ $evision to t5eConstit7tion. ?em/5asis s7//lie*@
Commissione$ 2ose E. S7a$e: also eH/laine* t5e /eo/le<s initiative as a sa=et4 valve&as a /eace=7l Ba4 =o$ t5e /eo/le to c5ane t5ei$ Constit7tion& b4 citin o7$
eH/e$iences 7n*e$ t5e Ma$cos ove$nment& vi:.KMR. SUARE. ,e a$ee to t5e *iJc7lt4 in im/lementin t5is /a$tic7la$ /$ovision& b7tBe a$e /$ovi*in a c5annel =o$ t5e eH/$ession o= t5e sove$ein Bill o= t5e /eo/let5$o75 t5is initiative s4stem.
MR. (ENGON. )s Section 1& /a$a$a/5s ?a@ an* ?b@& not s7Jcient c5annel =o$eH/$ession o= t5e Bill o= t5e /eo/le& /a$tic7la$l4 in t5e amen*ment o$ $evision o= t5eConstit7tion
MR. SUARE. Un*e$ no$mal ci$c7mstances& 4es. (7t Be noB B5at 5a//ene* *7$int5e %0 4ea$s 7n*e$ t5e Ma$cos a*minist$ation. So& i= t5e National Assembl4& in amanne$ o= s/eain& is o/e$atin 7n*e$ t5e t57mb o= t5e P$ime Ministe$ o$ t5eP$esi*ent as t5e case ma4 be& an* t5e $eI7i$e* n7mbe$ o= votes co7l* not beobtaine*& Be Bo7l* 5ave to /$ovi*e =o$ a sa=et4 valve in o$*e$ t5at t5e /eo/le co7l*
ventilate in a ve$4 /eace=7l Ba4 t5ei$ *esi$e =o$ amen*ment to t5e Constit7tion. >>>>>>>>>>>>>>>
6 )*.& at //. 686-.
)*.& at /. #.
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##
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
)t is ve$4 /ossible t5at alt5o75 t5e /eo/le ma4 be /$ess7$in t5e NationalAssembl4 to constit7te itsel= as a constit7ent assembl4 o$ to call a constit7tionalconvention& t5e membe$s t5e$eo= Bo7l* not 5ee* t5e /eo/le<s *esi$e an* clamo$. Sot5is is a t5i$* aven7e t5at Be a$e /$ovi*in =o$ t5e im/lementation o= B5at is noB/o/7la$l4 noBn as /eo/le<s /oBe$. ?em/5asis s7//lie*@
a $evol7tion& vi:.KMR. MAAM(ONG. H H H H t5e amen*in /$ocess o= t5e Constit7tion co7l* act7all4ave$t a $evol7tion b4 /$ovi*in a sa=et4 valve in b$inin abo7t c5anes in t5eConstit7tion t5$o75 /acic means. T5is& in eect& o/e$ationali:es B5at /olitical laBa7t5o$s call t5e /$esc$i/tion o= sove$eint4. ?em/5asis s7//lie*@
T5e en* $es7lt is Section %& A$ticle Q)) o= t5e 1- Constit7tion B5ic5 eH/$esse*t5e $i5t o= t5e sove$ein /eo/le to /$o/ose amen*ments to t5e Constit7tion b4*i$ect action o$ t5$o75 initiative. To t5at eHtent& t5e *eleate* /oBe$ o= Con$essto amen* o$ $evise t5e Constit7tion 5as to be a*7ste* *oBnBa$*. T57s& Section 1&A$ticle ) o= t5e 1- Constit7tion 5as to be $eminte* an* noB /$ovi*esK T5e
leislative /oBe$ s5all be veste* in t5e Con$ess o= t5e P5ili//ines B5ic5 s5allconsist o= a Senate an* a +o7se o= Re/$esentatives& eHce/t to t5e eHtent $ese$ve*to t5e /eo/le b4 t5e /$ovision on initiative an* $e=e$en*7m.
P$escin*in =$om t5ese baseline /$emises& t5e a$7ment t5at t5e /eo/le t5$o75initiative cannot /$o/ose s7bstantial amen*ments to c5ane t5e Constit7tion t7$nssove$eint4 on its 5ea*. At t5e ve$4 least& t5e s7bmission const$icts t5e *emoc$atics/ace =o$ t5e eHe$cise o= t5e *i$ect sove$eint4 o= t5e /eo/le. )t also *eni$ates t5esove$ein /eo/le B5o t5e4 claim can onl4 be t$7ste* Bit5 t5e /oBe$ to /$o/ose
sim/le b7t not s7bstantial amen*ments to t5e Constit7tion. Acco$*in to Sinco&t5e conce/t o= sove$eint4 s5o7l* be st$ictl4 7n*e$stoo* in its leal meanin as it
>>>>>>>>>>>>>>>
)*.& at /. #-".
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OL. "0"& OCTO(ER %"& %006
##-
Lambino vs. Commission on Elections
Bas o$iinall4 *evelo/e* in laB.- Leal sove$eint4& 5e eH/laine*& is t5e
/ossession o= 7nlimite* /oBe$ to mae laBs. )ts /ossesso$ is t5e leal sove$ein. )tim/lies t5e absence o= an4 ot5e$ /a$t4 en*oBe* Bit5 leall4 s7/e$io$ /oBe$s an*/$ivilees. )t is not s7bect to laB =o$ it is t5e a7t5o$ an* so7$ce o= laB.< Lealsove$eint4 is t57s t5e eI7ivalent o= leal omni/otence.0
To be s7$e& sove$eint4 o$ /o/7la$ sove$eint4& em/5asi:es t5e s7/$emac4 o= t5e/eo/le<s Bill ove$ t5e state B5ic5 t5e4 t5emselves 5ave c$eate*. T5e state isc$eate* b4 an* s7bect to t5e Bill o= t5e /eo/le& B5o a$e t5e so7$ce o= all /olitical/oBe$. Ri5tl4& Be 5ave $7le* t5at t5e sove$eint4 o= o7$ /eo/le is not a abalistic/$inci/le B5ose *imensions a$e b7$ie* in m4sticism. )ts metes an* bo7n*s a$e=amilia$ to t5e =$ame$s o= o7$ Constit7tions. T5e4 neB t5at in its b$oa*est sense&sove$eint4 is meant to be s7/$eme& t5e 7s s7mmi im/e$7& t5e absol7te $i5t to
ove$n.1 2ames ,ilson& $ea$*e* b4 man4 as t5e most b$illiant& sc5ola$l4& an* visiona$4laB4e$ in t5e Unite* States in t5e 10s& lai* *oBn t5e $st /$inci/les o= /o/7la$sove$eint4 *7$in t5e Penns4lvania $ati=4in convention o= t5e 1 Constit7tion o= t5e Unite* StatesK%
T5e$e necessa$il4 eHists& in eve$4 ove$nment& a /oBe$ =$om B5ic5 t5e$e is noa//eal& an* B5ic5& =o$ t5at $eason& ma4 be te$me* s7/$eme& absol7te& an*7ncont$ollable.
H H H H Pe$5a/s some /olitician& B5o 5as not consi*e$e* Bit5 s7Jcient acc7$ac4 o7$
/olitical s4stems& Bo7l* ansBe$ t5at& in o7$ ove$nments& t5e s7/$eme /oBe$ Basveste* in t5e constit7tions H H H H T5is o/inion a//$oac5es a ste/ nea$e$ to t5et$7t5& b7t *oes not $eac5 it. T5e t$7t5 is& t5at in o7$ ove$nments& t5e s7/$eme&absol7te& an* 7ncont$ollable /oBe$ $emains in t5e /eo/le. As o7$ constit7tions a$es7/e$io$ to o7$ leislat7$es& so t5e /eo/le a$e s7/e$io$ to o7$ constit7tions. )n*ee*t5e s7/e$io$it4& in t5is last instance& is m7c5 $eate$ =o$ t5e /eo/le /ossess ove$o7$ constit7tion& cont$ol in act& as Bell as $i5t. ?em/5asis s7//lie*@
1 ;$ival*o v. Commission on Elections& G.R. No. 1%0%-"& 27ne %& 1--6& %" SCRA%.
% G. ,oo*& T+E CREAT)ON O; T+E AMER)CAN REPU(L)C& "#0.
#!0
#!0
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
) Bis5 to $eite$ate t5at in a *emoc$atic an* $e/7blican state& onl4 t5e /eo/le issove$einFnot t5e electe* P$esi*ent& not t5e electe* Con$ess& not t5is 7nelecte*Co7$t. )n*ee*& t5e sove$eint4 o= t5e /eo/le B5ic5 is in*ivisible cannot be $e/ose*in an4 o$an o= ove$nment. Onl4 its eHe$cise ma4 be *eleate* to an4 o= t5em. )no7$ case& t5e /eo/le *eleate* to Con$ess t5e eHe$cise o= t5e sove$ein /oBe$ toamen* o$ $evise t5e Constit7tion. )= Con$ess& as *eleate& can eHe$cise t5is /oBe$to amen* o$ $evise t5e Constit7tion& can it be a$7e* t5at t5e sove$ein /eo/le B5o*eleate* t5e /oBe$ 5as no /oBe$ to s7bstantiall4 amen* t5e Constit7tion b4 *i$ectaction )= t5e sove$ein /eo/le *o not 5ave t5is /oBe$ to mae s7bstantialamen*ments to t5e Constit7tion& B5at *i* it *eleate to Con$ess +oB can t5e/eo/le lac t5is =$action o= a /oBe$ to s7bstantiall4 amen* t5e Constit7tion B5en b4
t5ei$ sove$eint4& all /oBe$ emanates =$om t5em )t Bill tae some m7mbo 7mboto a$7e t5at t5e B5ole is lesse$ t5an its /a$t. Let Sinco clinc5 t5e /ointK#
(7t alt5o75 /ossession ma4 not be *eleate*& t5e eHe$cise o= sove$eint4 o=tenis. )t is *eleate* to t5e o$ans an* aents o= t5e state B5ic5 constit7te itsove$nment& =o$ it is onl4 t5$o75 t5is inst$7mentalit4 t5at t5e state o$*ina$il4=7nctions. +oBeve$ am/le an* com/lete t5is *eleation ma4 be& it is neve$t5elesss7bect to Bit5*$aBal at an4 time b4 t5e state. On t5is /oint ,illo75b4 sa4sK
T57s& States ma4 conce*e to colonies almost com/lete a7tonom4 o= ove$nmentan* $ese$ve to t5emselves a $i5t to cont$ol o= so sli5t an* so neative a c5a$acte$as to mae its eHe$cise a $a$e an* im/$obable occ7$$ence 4et so lon as s7c5 $i5t
o= cont$ol is $econi:e* to eHist& an* t5e a7tonom4 o= t5e colonies is conce*e* to be=o7n*e* 7/on a $ant an* contin7in consent o= t5e mot5e$ co7nt$ies t5esove$eint4 o= t5ose mot5e$ co7nt$ies ove$ t5em is com/lete an* t5e4 a$e to beconsi*e$e* as /ossessin onl4 a*minist$ative a7tonom4 an* not /oliticalin*e/en*ence.<
At t5e ve$4 least& t5e /oBe$ to /$o/ose s7bstantial amen*ments to t5e Constit7tionis s5a$e* Bit5 t5e /eo/le. ,e
a /etition o= at least tBelve /e$ cent7m o= t5e total n7mbe$ o= $eiste$e* vote$s& o=B5ic5 eve$4 leislative *ist$ict m7st be $e/$esente* b4 at least t5$ee /e$ cent7m o=
t5e $eiste$e* vote$s t5e$ein. No amen*ment 7n*e$ t5is section s5all be a7t5o$i:e*Bit5in ve 4ea$s =olloBin t5e $atication o= t5is Constit7tion no$ o=tene$ t5an onceeve$4 ve 4ea$s t5e$ea=te$.-0 Com/liance Bit5 t5ese $eI7i$ements is clea$l4 a
7sticiable an* not a /olitical I7estion. (e t5at as it ma4& 5oB t5e iss7e Bill be$esolve* b4 t5e /eo/le is a**$esse* to t5em an* to t5em alone.
Oa4& so 4o7 ot 6.# Million sinat7$es& b7t 4o7 onl4 /$inte* 100 t5o7san*. So4o7<$e sa4in& 5oB man4 *i* 4o7$ =$ien*s /$int o= t5e /etition
#"0
#"0
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
T5e onl4 basis 7se* b4 t5e COMELEC to *ismiss t5e /etition =o$ initiative Bas t5isCo7$t<s $7lin in Santiao v. COMELEC t5at
>>>>>>>>>>>>>>>
ATT3. LAM()NOK
) can no lone$ ive a s/ecic ansBe$ to t5at& 3o7$ +ono$. ) $elie* onl4 to t5eass7$ances o= t5e /eo/le B5o a$e vol7ntee$in t5at t5e4 a$e oin to $e/$o*7ce t5e
sinat7$e s5eets as Bell as t5e *$a=t /etition t5at Be 5ave iven t5em& 3o7$ +ono$.
H H H H H H H H H H H H
ASSOC)ATE 2UST)CE CARP)OK
Di* 4o7 also s5oB t5is amen*e* /etition to t5e /eo/le
ATT3. LAM()NOK
3o7$ +ono$& t5e amen*e* /etition $eects t5e co/4 o= t5e o$iinal /etition t5at Beci$c7late*& beca7se in t5e o$iinal /etition t5at Be le* be=o$e t5e COMELEC& Beomitte* a ce$tain /a$a$a/5 t5at is& Section !& /a$a$a/5 # B5ic5 Be$e /a$t o= t5eo$iinal /etition t5at Be ci$c7late* an* so Be 5ave to co$$ect t5at ove$si5t beca7set5at is B5at Be 5ave ci$c7late* to t5e /eo/le an* Be 5ave to co$$ect t5at]
R.A. 6#" Bas ins7Jcient. )t 5as 4et to $7le on t5e s7Jcienc4 o= t5e =o$m an*
s7bstance o= t5e /etition. ) $es/ect=7ll4 s7bmit t5at t5is iss7e s5o7l* be /$o/e$l4litiate* be=o$e t5e COMELEC B5e$e bot5 /a$ties Bill be iven =7ll o//o$t7nit4 to/$ove t5ei$ alleations.
;o$ t5e same $easons& t5e s7Jcienc4 o= t5e Petition =o$ )nitiative an* its com/lianceBit5 t5e $eI7i$ements o= R.A. 6#" on initiative an* its im/lementin $7les is aI7estion t5at s5o7l* be $esolve* b4 t5e COMELEC at t5e $st instance& as it is t5ebo*4 t5at is man*ate* b4 t5e Constit7tion to a*ministe$ all laBs an* $e7lations
$elative to t5e con*7ct o= an election& /lebiscite& initiative& $e=e$en*7m an*$ecall.10"
>>>>>>>>>>>>>>>
ATT3. LAM()NOK
(ot5 t5e A77st %" /etition t5at incl7*e* all t5e /$ovisions& 3o7$ +ono$& an* asamen*e* on A77st #0. (eca7se Be 5ave to incl7*e t5e one t5at Be 5aveina*ve$tentl4 omitte* in t5e A77st %" /etition& 3o7$ +ono$.
COMELEC $avel4 ab7se* its *isc$etion B5en it *enie* *7e co7$se to t5e Lambinoan* A7menta*o /etition.
)n *en4in *7e co7$se to t5e Lambino an* A7menta*o /etition& COMELEC $elie* ont5is Co7$t<s $7lin in Santiao /e$manentl4 enoinin it =$om ente$tainin o$ tainconi:ance o= an4 /etition =o$ initiative on amen*ments to t5e Constit7tion 7ntil as7Jcient laB s5all 5ave been vali*l4 enacte* to /$ovi*e =o$ t5e im/lementation o=t5e s4stem.
Aain& ) $es/ect=7ll4 s7bmit t5at COMELEC<s $eliance on Santiao constit7tes $aveab7se o= *isc$etion amo7ntin to lac o= 7$is*iction. T5e Santiao case *i* notestablis5 t5e $m *oct$ine t5at R.A. 6#" is not a s7Jcient laB to im/lement t5econstit7tional /$ovision alloBin /eo/le<s initiative to amen* t5e Constit7tion. To$eca/it7late& t5e $eco$*s s5oB t5at in t5e o$iinal *ecision& ei5t ?@ 7stices106
vote* t5at R.A. 6#" Bas not a s7Jcient laB ve ?"@ 7stices10 vote* t5at sai*laB Bas s7Jcient an* one ?1@ 7stice10 abstaine* =$om votin on t5e iss7e5ol*in t5at 7nless an* 7ntil a /$o/e$ initiato$4 /lea*in is le*& t5e sai* iss7e is not$i/e =o$ a*7*ication.10-
10- Onl4 =o7$teen ?1!@ 7stices /a$tici/ate* in t5e *elibe$ations as 27stice Teo*o$oR. Pa*illa too no /a$t on acco7nt o= 5is $elations5i/ Bit5 t5e laB4e$ o= one o= t5e/a$ties.
onl4 siH ?6@ $eite$ate* t5ei$ $7lin t5at R.A. 6#" Bas an ins7Jcient laB. 27stice+e$mosisima& o$iinall4 /a$t o= t5e mao$it4 o= ei5t ?@ 7stices& c5ane* 5is votean* oine* t5e mino$it4 o= ve ?"@ 7stices. +e o/ine* Bit5o7t an4 eI7ivocation t5atR.A. 6#" Bas a s7Jcient laB& t57sK
)t is one t5in to 7tte$ a 5a//4 /5$ase =$om a /$otecte* cl7ste$ anot5e$ to t5in7n*e$ $eFto t5in =o$ action 7/on B5ic5 $eat inte$ests *e/en*. So sai* 27sticeOlive$ ,en*ell +olmes& an* so ) am 7i*e* as ) $econsi*e$ m4 conc7$$ence to t5e5ol*in o= t5e mao$it4 t5at R.A. No. 6#" is ina*eI7ate to cove$ t5e s4stem o=initiative on amen*ments to t5e Constit7tion an* to 5ave =aile* to /$ovi*e s7Jcientstan*a$* =o$ s7bo$*inate leislation an* noB to inte$/ose m4 *issent t5e$eto.
H H H
,+ERE;ORE& ) vote to *ismiss t5e Deln /etition.
) vote& 5oBeve$& to *ecla$e R.A. No. 6#" as a*eI7atel4 /$ovi*in t5e leal basis =o$
t5e eHe$cise b4 t5e /eo/le o= t5ei$ $i5t to amen* t5e Constit7tion t5$o75 initiative/$ocee*ins an* to 7/5ol* t5e vali*it4 o= COMELEC Resol7tion No. %#00 inso=a$ as it*oes not sanction t5e lin o= t5e initiato$4 /etition =o$ initiative /$ocee*ins toamen* t5e Constit7tion Bit5o7t t5e $eI7i$e* names an*Wo$ sinat7$es o= at least1%V o= all t5e $eiste$e* vote$s& o= B5ic5 eve$4 leislative *ist$ict m7st be$e/$esente* b4 at least #V o= t5e $eiste$e* vote$s t5e$ein. ?em/5asis s7//lie*@
27stice it7 $emaine* stea*=ast in $e=7sin to $7le on t5e s7Jcienc4 o= R.A. 6#".)n ne& t5e nal vote on B5et5e$ R.A. 6#" is a s7Jcient laB Bas 686 Bit5 one ?1@
7stice in5ibitin 5imsel= an* anot5e$ 7stice $e=7sin to $7le on t5e $o7n* t5at t5eiss7e Bas not $i/e =o$ a*7*ication.
)t o75t to be be4on* *ebate t5at t5e siH ?6@ 7stices B5o vote* t5at R.A. 6#" is anins7Jcient laB =aile* to establis5 a *oct$ine t5at co7l* se$ve as a /$ece*ent. Un*e$an4 alc5em4 o= laB& a *ea*loce* vote o= siH ?6@ is not a mao$it4 an* a nonmao$it4cannot B$ite a $7le Bit5 /$ece*ential val7e. T5e o/inion o= t5e late 27stice Rica$*o 2.;$ancisco is inst$7ctive& vi:.K
As it stan*s& o= t5e t5i$teen 7stices B5o too /a$t in t5e *elibe$ations on t5e iss7eo= B5et5e$ t5e motion =o$ $econsi*e$ation o= t5e Ma$c5 1-& 1--
7n*e$sine* vote* to $ant t5e motion B5ile 27stice it7 maintaine* 5is o/iniont5at t5e matte$ Bas not $i/e =o$ 7*icial a*7*ication. )n ot5e$ Bo$*s& onl4 ve& o7to= t5e ot5e$ tBelve 7stices& oine* M$. 27stice Davi*e<s 27ne 10& 1-- /onencian*in R.A. No. 6#" 7nconstit7tional =o$ its =ail7$e to /ass t5e so calle*com/leteness an* s7Jcienc4 stan*a$*s tests. T5e conc7$$ence o= a mao$it4 o=
t5e membe$s B5o act7all4 too /a$t in t5e *elibe$ations B5ic5 A$ticle ))& Section!?%@ o= t5e Constit7tion $eI7i$es to *ecla$e a laB 7nconstit7tional Bas& be4on**is/7te& not com/lie* Bit5. An* even ass7min& =o$ t5e sae o= a$7ment& t5at t5econstit7tional $eI7i$ement on t5e conc7$$ence o= t5e mao$it4 Bas initiall4$eac5e* in t5e Ma$c5 1-& 1-- /onencia& t5e same is inconcl7sive as it Bas stillo/en =o$ $evieB b4 Ba4 o= a motion =o$ $econsi*e$ation. )t Bas onl4 on 27ne 10& 1--t5at t5e constit7tionalit4 o= R.A. No. 6#" Bas settle* Bit5 nalit4& sans t5econstit7tionall4 $eI7i$e* mao$it4. T5e Co7$t<s *ecla$ation& t5e$e=o$e& is mani=estl4$a=te* Bit5 in$mit4 an* Bantin in =o$ce necessitatin& in m4 vieB& t5e$eeHamination o= t5e Co7$t<s *ecision in G.R. No. 1%#%". )t be5ooves t5e Co7$t notto ta$$4 an4 lone$ no$ Baste t5is o//o$t7nit4 acco$*e* b4 t5is neB /etition ?G.R.No. 1%-"!@ to $elieve t5e Co7$t<s /$ono7ncement =$om constit7tional in$mit4.
T5e 7$is/$7*ence t5at an eI7all4 *ivi*e* Co7$t can neve$ set a /$ece*ent is Bell8settle*. T57s& in t5e Unite* States& an aJ$mance in t5e ;e*e$al S7/$eme Co7$t7/on eI7al *ivision o= o/inion is not an a7t5o$it4 =o$ t5e *ete$mination o= ot5e$cases& eit5e$ in t5at Co7$t o$ in t5e in=e$io$ =e*e$al co7$ts. )n Neil v. (ie$s&111B5ic5 Bas a 5abeas co$/7s state /$ocee*in b4 a state /$isone$& t5e U.S. S7/$emeCo7$t 5el* t5at its eI7all4 *ivi*e* aJ$mance o= /etitione$<s state co7$t convictionBas not an act7al a*7*ication ba$$in s7bseI7ent consi*e$ation b4 t5e *ist$ictco7$t on 5abeas co$/7s. )n *isc7ssin t5e non8bin*in eect o= an eI7al *ivision$7lin& t5e Co7$t $evieBe* t5e 5isto$4 o= cases eH/licatin t5e *is/osition aJ$me*b4 an eI7all4 *ivi*e* Co7$tK
>>>>>>>>>>>>>>>
111 !0- U.S. 1& -# S. Ct. #"& #! L. E*. %* !01 ?1-%@.
#""
OL. "0"& OCTO(ER %"& %006
#""
Lambino vs. Commission on Elections
)n t5is li5t& Be $evieB o7$ cases eH/licatin t5e *is/osition aJ$me* b4 an eI7all4*ivi*e* Co7$t. On B5at Bas a//a$entl4 t5e $st occasion o= an eI7al *ivision& T5eAntelo/e& 10 ,5eat& 66& 6 L. E*. %6 ?1%"@& t5e Co7$t sim/l4 aJ$me* on t5e /ointo= *ivision Bit5o7t m7c5 *isc7ssion. )*.& at 1%681%. ;ace* Bit5 a simila$ *ivision*7$in t5e neHt Te$m& t5e Co7$t aain aJ$me*& C5ie= 27stice Ma$s5all eH/lainint5at t5e /$inci/les o= laB B5ic5 5ave been a$7e*& cannot be settle* b7t t5e
7*ment is aJ$me*& t5e co7$t bein *ivi*e* in o/inion 7/on it. Ettin v. (an o=Unite* States& 11 ,5eat. "-& & 6 L. E*. !1- ?1%6@. As Bas late$ elabo$ate* ins7c5 cases& it is t5e a//ellant o$ /etitione$ B5o ass t5e Co7$t to ove$t7$n a loBe$co7$t<s *ec$ee. )= t5e 7*es a$e *ivi*e*& t5e $eve$sal cannot be 5a*& =o$ no o$*e$can be ma*e. T5e 7*ment o= t5e co7$t beloB& t5e$e=o$e& stan*s in =7ll =o$ce. )t is
in*ee*& t5e settle* /$actice in s7c5 case to ente$ a 7*ment o= aJ$mance b7t t5isis onl4 t5e most convenient mo*e o= eH/$essin t5e =act t5at t5e ca7se is nall4*is/ose* o= in con=o$mit4 Bit5 t5e action o= t5e co7$t beloB& an* t5at t5at co7$t can/$ocee* to en=o$ce its 7*ment. T5e leal eect Bo7l* be t5e same i= t5e a//eal&o$ B$it o= e$$o$& Be$e *ismisse*. D7$ant v. EsseH Co.& ,all. 10& 11%& 1- L. E*. 1"!?16-@. No$ is an aJ$mance b4 an eI7all4 *ivi*e* Co7$t entitle* to /$ece*entialBei5t. O5io eH $el. Eaton v. P$ice& #6! U.S. %6#& %6!& 0 S. Ct. 1!6#& 1!6!& ! L. E*.%* 10 ?1-60@. H H H
T5is *oct$ine establis5e* in Neil 5as not been ove$t7$ne* an* 5as been cite* Bit5a//$oval in a n7mbe$ o= s7bseI7ent cases&11% an* 5as been a//lie* in va$io7sstate 7$is*ictions.
)n t5e case o= )n t5e Matte$ o= t5e A*o/tion o= E$in G.& a Mino$ C5il*&11# B5e$ein a/7tative =at5e$ so75t to set asi*e a *ec$ee $antin /etition =o$ a*o/tion o= an)n*ian c5il* on $o7n*s o= noncom/liance Bit5 t5e $eI7i$ements o= )n*ian C5il*,el=a$e Act ?)C,A@& t5e S7/$eme Co7$t o= Alasa 5el* t5at its *ecision in )n $eA*o/tion o= T.N.;. ?T.N.;.@&11! B5ic5 lace* mao$it4 o/inion s7//o$tin 5ol*in t5atan action s7c5 as t5e /7tative =at5e$<s Bo7l* be ove$ne* b4 t5e state<s one84ea$stat7te o= limitations& Bas
>>>>>>>>>>>>>>>
11% T$ans ,o$l* Ai$lines& )nc. v. +a$*ison& - S. Ct. %%6! ?1-@ A$ansas ,$ite$s<P$oect& )nc. v. Ralan*& 10 S. Ct. 1%%& 1#0 n. & -" L. E*. %* ?1-@ ;$ance v.Nelson& %-% A$. %1-& %- S.,. %* 161 ?1-@.
11# !0 P. #* 6 ?%006@.
11! 1 P. %* -# ?Alasa& 1--@.
#"6
#"6
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
not entitle* to sta$e *ecisis eect. )n T.N.;.& a mao$it4 o= t5e 7stices sittin *i* nota$ee on a common $ationale& as tBo o= =o7$ /a$tici/atin 7stices a$ee* t5at t5estate<s one84ea$ stat7te o= limitations a//lie*& one 7stice conc7$$e* in t5e $es7ltonl4& an* one 7stice *issente*. T5e$e Bas no na$$oBe$ $easonin a$ee* 7/on b4
T5e$e=o$e in t5is case t5e conc7$$ence o= a mao$it4 o= t5e membe$s o= t5is co7$t in5ol*in 7nconstit7tional sai* c5a/te$ 1"-#& s7/$a& not 5avin been 5a*& it =olloBst5at t5e stat7te in cont$ove$s4 m7st be alloBe* to stan* an* acco$*inl4 be/e$mitte* to be en=o$ce* as a /$es7m/tivel4 vali* act o= t5e Leislat7$e& an* t5att5is /$ocee*in in I7o Ba$$anto m7st be *ismisse* Bit5o7t /$e7*ice. S/ence$ v.
+7nt ?;la.@ 1! So. %%. T5is *ecision is not to be $ea$*e* as a 7*icial /$ece*enton t5e I7estion o= constit7tional laB involve* conce$nin t5e constit7tionalit4 velnon o= c5a/te$ 1"-#. State eH $el. +am/ton v. McCl7n& ! ;la. %%!& # So. "1.
)n U.S. v. Pin&1%0 t5e Co7$t 5el* t5at t5e aJ$mance b4 t5e U.S. S7/$eme Co7$t b4an eI7all4 *ivi*e* vote o= a *ecision o= t5e NeB 3o$ Co7$t o= A//eals t5at /$o/e$t4o= a NeB 3o$ b$anc5 o= a R7ssian ins7$ance com/an4 Bas o7tsi*e t5e sco/e o= t5eR7ssian Soviet ove$nment<s *ec$ees te$minatin eHistence o= ins7$ance com/aniesin R7ssia an* sei:in t5ei$ assets& B5ile concl7sive an* bin*in 7/on t5e /a$ties as$es/ects t5e cont$ove$s4 in t5at action& *i* not constit7te an a7t5o$itative/$ece*ent.
)n (e$lin v. E.C. P7blications& )nc.&1%1 t5e U.S. Co7$t o= A//eals Secon* Ci$c7it& in5ol*in t5at /$inte* l4$ics B5ic5 5a* t5e same mete$ as /laintis< l4$ics& b7t B5ic5Be$e in =o$m a /a$o*4 o= t5e latte$& *i* not constit7te in=$inement o= /laintis<co/4$i5ts& $7le* t5at t5e /$io$ case o= (enn4 v. LoeB<s& )nc.&1%% B5ic5 Bas aJ$me*b4 an eI7all4 *ivi*e* co7$t& Bas not bin*in 7/on it& vi:.K
Un*e$ t5e /$ece*ents o= t5is co7$t& an*& as seems 7stie* b4 $eason as Bell as b4a7t5o$it4& an aJ$mance b4 an eI7all4 *ivi*e* co7$t is as betBeen t5e /a$ties& aconcl7sive *ete$mination an* a*7*ication o= t5e matte$ a*8
>>>>>>>>>>>>>>>
1%0 6% S. Ct. ""% ?1-!%@.
1%1 #%- ;. %* "!1 ?1-6!@.
1%% %#- ;. %* "#% ?-t5 Ci$. 1-"6@.
#"
#"SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
7*e* b7t t5e /$inci/les o= laB involve* not 5avin been a$ee* 7/on b4 amao$it4 o= t5e co7$t sittin /$events t5e case =$om becomin an a7t5o$it4 =o$ t5e*ete$mination o= ot5e$ cases& eit5e$ in t5is o$ in in=e$io$ co7$ts.1%#
)n Pe$lman v. ;i$st National (an o= C5icao&1%! t5e S7/$eme Co7$t o= )llinois*ismisse* t5e a//eal as it Bas 7nable to $eac5 a *ecision beca7se tBo 7*es$ec7se* t5emselves an* t5e $emainin membe$s o= t5e Co7$t Be$e so *ivi*e*& itBas im/ossible to sec7$e t5e conc7$$ence o= =o7$ 7*es as is constit7tionall4$eI7i$e*. T5e Co7$t =olloBe* t5e /$oce*7$e em/lo4e* b4 t5e U.S. S7/$eme Co7$t
B5en t5e 27stices o= t5at Co7$t a$e eI7all4 *ivi*e*& i.e. aJ$m t5e 7*ment o= t5eco7$t t5at Bas be=o$e it =o$ $evieB. T5e aJ$mance is a concl7sive *ete$mination an*a*7*ication as betBeen t5e /a$ties to t5e imme*iate case& it is not a7t5o$it4 =o$ t5e*ete$mination o= ot5e$ cases& eit5e$ in t5e S7/$eme Co7$t o$ in an4 ot5e$ co7$t. )t isnot entitle* to /$ece*ential Bei5t. T5e leal eect o= s7c5 an aJ$mance is t5esame as i= t5e a//eal Bas *ismisse*.1%"
T5e same $7le is settle* in t5e Enlis5 Co7$ts. Un*e$ Enlis5 /$ece*ents&1%6 anaJ$mance b4 an eI7all4 *ivi*e* Co7$t is& as betBeen t5e /a$ties& a concl7sive*ete$mination an* a*7*ication o= t5e matte$ a*7*e* b7t t5e /$inci/les o= laBinvolve* not 5avin been a$ee* 7/on b4 a mao$it4 o= t5e co7$t sittin /$eventst5e case =$om becomin an a7t5o$it4 =o$ t5e *ete$mination o= ot5e$ cases& eit5e$ in
t5at o$ in in=e$io$ co7$ts.A=te$ a to7$ o= t5ese cases& Be can sa=el4 concl7*e t5at t5e /$evailin *oct$ine ist5at& t5e aJ$mance b4 an eI7all4 *ivi*e* co7$t me$el4 *is/oses o= t5e /$esentcont$ove$s4 as betBeen t5e /a$ties an* settles no iss7e o= laB t5e aJ$manceleaves 7nsettle* t5e /$inci/le o= laB /$esente* b4 t5e case an* is not entitle* to/$ece*ential Bei5t o$ val7e. )n ot5e$ Bo$*s& t5e *ecision
>>>>>>>>>>>>>>>
1%# Citin +e$t: v. ,oo*man& %1 U.S. %0"& #0 S. Ct. 6%1 ?1-10@.
1%! ##1 N.E. %* 6" ?1-"@.
1%" Neil v. (ie$s& s7/$a note 10.
1%6 Cat5e$Boo* v. Caslon& 1# Mees. Z ,. %61 (eamis5 v. (eamis5& - +. L. Cas.%!.
#"-
OL. "0"& OCTO(ER %"& %006
#"-Lambino vs. Commission on Elections
onl4 5as $es 7*icata an* not sta$e *ecisis eect. )t is not concl7sive an* bin*in7/on ot5e$ /a$ties as $es/ects t5e cont$ove$sies in ot5e$ actions.
Let 7s noB eHamine t5e /atent *ie$ences betBeen t5e /etition at ba$ an* t5eDeln Petition in t5e Santiao case B5ic5 Bill /$event t5e Santiao $7lin =$om
allee* in t5e bo*4 o= t5e /etition t5e$ein& /$o/oses to 7n*e$tae t5e sinat7$e*$ive =o$ a /eo/le<s initiative to amen* t5e Constit7tion. )n Santiao t5en& t5ePEDROSAS Be$e s7e* in t5ei$ ca/acit4 as =o7n*in membe$s o= P)RMA.
T5e *ecision in Santiao s/ecicall4 *ecla$e* t5at P)RMA Bas *7l4 $e/$esente* att5e 5ea$in o= t5e Deln /etition in t5e COMELEC. )n s5o$t& P)RMA Bas inte$veno$8
/etitione$ t5e$ein. Deln allee* in 5is /etition t5at 5e Bas a =o7n*in membe$ o=t5e Movement =o$ Peo/le<s )nitiative& an* 7n*e$ =ootnote no. 6 o= t5e *ecision& it Basnote* t5at sai* movement Bas late$ i*entie* as t5e Peo/le<s )nitiative =o$Re=o$ms& Mo*e$ni:ation an* Action& o$ P)RMA =o$ b$evit4. )n t5ei$ Comment to t5e/etition in Santiao& t5e PEDROSAS *i* not *en4 t5at t5e4 Be$e =o7n*in membe$so= P)RMA& an* b4 t5ei$ a$7ments& *emonst$ate* be4on* a s5a*oB o= a *o7bt t5att5e4 5a* oine* Deln o$ 5is ca7se.
No amo7nt o= semantics ma4 t5en s5iel* 5e$ein /etitione$s P)RMA an* t5ePEDROSAS& as Bell as t5e ot5e$s oinin t5em& =$om t5e o/e$ation o= t5e /$inci/le o= $es 7*icata& B5ic5 nee*s no =7$t5e$ elabo$ation. ?em/5asis s7//lie*@
27stice 2os7e N. (ellosillo a**sK
T5e essential $eI7isites o= $es 7*icata a$eK ?1@ t5e =o$me$ 7*ment m7st be nal?%@ it m7st 5ave been $en*e$e* b4 a co7$t 5avin 7$is*iction ove$ t5e s7bectmatte$ an* t5e /a$ties ?#@ it m7st be a 7*ment on t5e
A//l4in t5ese /$inci/les in t5e instant case& Be 5ol* t5at all t5e elements o= $es 7*icata a$e /$esent. ;o$ s7$e& o7$ Decision in Santiao v. COMELEC& B5ic5 Bas/$om7late* on 1- Ma$c5 1--& an* t5e motions =o$ $econsi*e$ation t5e$eo= *enie*Bit5 nalit4 on 10 27ne 1--& is 7n*o7bte*l4 nal. T5e sai* Decision Bas $en*e$e*b4 t5is Co7$t B5ic5 5a* 7$is*iction ove$ t5e /etition =o$ /$o5ibition 7n*e$ R7le 6".
O7$ 7*ment t5e$ein Bas on t5e me$its& i.e.& $en*e$e* onl4 a=te$ consi*e$in t5eevi*ence /$esente* b4 t5e /a$ties as Bell as t5ei$ a$7ments in s7//o$t o= t5ei$$es/ective claims an* *e=enses. An*& as betBeen Santiao v. COMELEC case an*COMELEC S/ecial Matte$ No. -8001 s7bect o= t5e /$esent /etition& t5e$e is i*entit4o= /a$ties& s7bect matte$ an* ca7ses o= action.
Petitione$s conten* t5at t5e /a$ties in Santiao v. COMELEC a$e not i*entical to t5e/a$ties in t5e instant case as some o= t5e /etitione$s in t5e latte$ case Be$e not
/a$ties to t5e =o$me$ case. +oBeve$& a /e$7sal o= t5e $eco$*s $eveals t5at t5e/a$ties in Santiao v. COMELEC incl7*e* t5e COMELEC& Att4. 2es7s S. Deln& s/o7sesAlbe$to an* Ca$men Pe*$osa& in t5ei$ ca/acities as =o7n*in membe$s o= P)RMA& asBell as Att4. Pete 7i$ino87a*$a& anot5e$ =o7n*in membe$ o= P)RMA& $e/$esentinP)RMA& as $es/on*ents. )n t5e instant case& Att4. Deln Bas neve$ $emove*& an* t5e
s/o7ses Albe$to an* Ca$men Pe*$osa Be$e oine* b4 seve$al ot5e$s B5o Be$e ma*e/a$ties to t5e /etition. )n ot5e$ Bo$*s& B5at /etitione$s *i* Bas to mae it a//ea$t5at t5e P)RMA Petition Bas le* b4 an enti$el4 se/a$ate an* *istinct $o7/ b4$emovin some o= t5e /a$ties involve* in Santiao v. COMELEC an* a**in neB/a$ties. (7t as Be sai* in Ge$al*e v. Sabi*o1%F
A /a$t4 ma4 not eva*e t5e a//lication o= t5e $7le o= $es 7*icata b4 sim/l4incl7*in a**itional /a$ties in t5e s7bseI7ent case o$ b4 not incl7*in as /a$ties int5e late$ case /e$sons B5o Be$e /a$ties in t5e /$evio7s s7it. T5e oinin o= neB/a$ties *oes not $emove t5e case =$om t5e o/e$ation o= t5e $7le on $es 7*icata i=t5e /a$t4 aainst B5om t5e 7*ment is oe$e* in evi*ence Bas a /a$t4 in t5e $staction ot5e$Bise& t5e /a$ties mi5t $eneB t5e litiation b4 sim/l4 oinin neB
T5e =act t5at some /e$sons o$ entities oine* as /a$ties in t5e P)RMA /etition b7tBe$e not /a$ties in Santiao v. COMELEC *oes not aect t5e o/e$ation o= t5e /$io$
7*ment aainst t5ose /a$ties to t5e P)RMA Petition B5o Be$e lieBise /a$ties inSantiao v. COMELEC& as t5e4 a$e bo7n* b4 s7c5 /$io$ 7*ment.
Nee*less to state& t5e *ismissal o= t5e P)RMA /etition B5ic5 Bas base* on $es 7*icata bin*s onl4 P)RMA b7t not t5e /etitione$s.
)t is a Constit7tion Be a$e eH/o7n*in solemnl4 intone* t5e $eat C5ie= 27stice 2o5n Ma$s5all o= t5e Unite* States in t5e 11- case o= M<cC7lloc5 v. Ma$4lan*.1%-O7$ Constit7tion is not a me$e collection o= sloans. Eve$4 s4llable o= o7$Constit7tion is s77se* Bit5 sinicance an* $eI7i$es o7$ =7ll =ealt4. )n*ee*& t5e $7leo= laB Bill Bit5e$ i= Be alloB t5e comman*s o= o7$ Constit7tion to 7n*e$$7le 7s.
T5e $st /$inci/le ent5$one* b4 bloo* in o7$ Constit7tion is t5e sove$eint4 o= t5e/eo/le. ,e o75t to be conce$ne* Bit5 t5is $st /$inci/le& i.e.& t5e in5e$ent $i5t o=t5e sove$ein /eo/le to *eci*e B5et5e$ to amen* t5e Constit7tion. St$i//e* o= itsabst$actions& *emoc$ac4 is all abo7t B5o 5as t5e sove$ein $i5t to mae *ecisions=o$ t5e /eo/le an* o7$ Constit7tion clea$l4 an* cateo$icall4 sa4s it is no ot5e$ t5ant5e /eo/le t5emselves =$om B5om all ove$nment a7t5o$it4 emanates. T5is $i5t o=t5e /eo/le to mae *ecisions is t5e essence o= sove$eint4& an* it cannot $eceivean4 minimalist inte$/$etation =$om t5is Co7$t. )= t5e$e is an4 /$inci/le in t5eConstit7tion t5at cannot be *il7te* an* is non8neotiable& it is t5is sove$ein $i5t o= t5e /eo/le to *eci*e.
T5is Co7$t s5o7l* alBa4s be in locste/ Bit5 t5e /eo/le in t5e eHe$cise o= t5ei$sove$eint4. Let t5em B5o Bill *iminis5 o$ *est$o4 t5e sove$ein $i5t o= t5e /eo/leto *eci*e be Ba$ne*. Let not
>>>>>>>>>>>>>>>
1%- S7/$a note 1.
#6#
OL. "0"& OCTO(ER %"& %006#6#
Lambino vs. Commission on Elections
t5ei$ sove$eint4 be *iminis5e* b4 t5ose B5o belittle t5ei$ b$ains to com/$e5en*c5anes in t5e Constit7tion as i= t5e /eo/le t5emselves a$e not t5e so7$ce an*a7t5o$ o= o7$ Constit7tion. Let not t5ei$ sove$eint4 be *est$o4e* b4 t5e maste$s o=mani/7lation B5o mis$e/$esent t5emselves as t5e s/oesmen o= t5e /eo/le.
(e it $emembe$e* t5at a /etition =o$ /eo/le<s initiative t5at com/lies Bit5 t5e$eI7i$ement t5at it m7st be sine* b4 at least 1%V o= t5e total n7mbe$ o=
$eiste$e* vote$s o= B5ic5 eve$4 leislative *ist$ict is $e/$esente* b4 at least #V o=t5e $eiste$e* vote$s t5e$ein is b7t t5e $st ste/ in a lon o7$ne4 toBa$*s t5eamen*ment o= t5e Constit7tion. Lest it be misse*& t5e case at ba$ involves b7t a/$o/osal to amen* t5e Constit7tion. T5e /$o/osal Bill still be *ebate* b4 t5e /eo/lean* at t5is time& t5e$e is 4et no =ail8sa=e met5o* o= tellin B5at Bill be t5e $es7lt o=t5e *ebate. T5e$e Bill still be a last ste/ to t5e /$ocess o= amen*ment B5ic5 is t5e$atication o= t5e /$o/osal b4 a mao$it4 o= t5e /eo/le in a /lebiscite calle* =o$ t5e/7$/ose. Onl4 B5en t5e /$o/osal is a//$ove* b4 a mao$it4 o= t5e /eo/le in t5e
/lebiscite Bill it become an amen*ment to t5e Constit7tion. All t5e Ba4& Be cannottie t5e ton7es o= t5e /eo/le. )t is t5e /eo/le B5o *eci*e =o$ t5e /eo/le a$e not anobsc7$e =ootnote in o7$ Constit7tion.
T5e /eo/le<s voice is sove$ein in a *emoc$ac4. Let 7s 5ea$ t5em. Let 7s 5ee* t5em.Let 7s not onl4 sin /aens to t5e /eo/le<s sove$eint4. 3es& it is neit5e$ too soon no$
too late to let t5e /eo/le s/ea.
)N )E, ,+EREO;& ) vote to REERSE an* SET AS)DE t5e $esol7tion o= t5eCommission on Elections *ate* A77st #1& %006& *en4in *7e co7$se to t5e Petition=o$ )nitiative le* b4 Ra7l L. Lambino an* E$ico (. A7menta*o in t5ei$ oBn be5al=an* toet5e$ Bit5 some 6.# million $eiste$e* vote$s B5o aJHe* t5ei$ sinat7$est5e$eon an* to REMAND t5e /etition at ba$ to t5e Commission on Elections =o$=7$t5e$ /$ocee*ins.
#6!
#6!
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
SEPARATE OP)N)ON
U)SUM()NG& 2.K
1. ,it5 *7e $es/ect to t5e main o/inion B$itten b4 2. Antonio T. Ca$/io& an* t5e
*issent o= 2. Re4nato S. P7no& ) vieB t5e matte$ be=o$e 7s in t5is /etition as onemainl4 involvin a com/leH /olitical I7estion.1 ,5ile a*mitte*l4 t5e /$esentConstit7tion la4s *oBn ce$tain n7me$ical $eI7i$ements =o$ t5e con*7ct o= a Peo/le<s)nitiative& s7c5 as t5e /e$centaes o= sinat7$esFbein 1%V o= t5e total n7mbe$ o=$eiste$e* vote$s& /$ovi*e* eac5 leislative *ist$ict is $e/$esente* b4 at least #VFt5e4 a$e not t5e main /oints o= cont$ove$s4. State* in sim/le te$ms& B5at t5is Co7$tm7st *eci*e is B5et5e$ t5e Commission on Elections $avel4 ab7se* its *isc$etionB5en it *enie* t5e /etition to s7bmit t5e /$o/ose* c5anes to t5e Constit7tion*i$ectl4 to t5e vote o= t5e sove$ein /eo/le in a /lebiscite. Tec5nical I7estions& e..B5et5e$ /etitione$s s5o7l* 5ave le* a Motion =o$ Reconsi*e$ation be=o$e comin to7s& a$e o= no moment in t5e =ace o= t5e t$anscen*ental iss7e at 5an*. ,5at *ese$veo7$ =7ll attention a$e t5e iss7es conce$nin t5e a//licable $7les as Bell as stat7to$4an* constit7tional limitations on t5e con*7ct o= t5e Peo/le<s )nitiative.
%. )t m7st be st$esse* t5at no less t5an t5e /$esent Constit7tion itsel= em/oBe$s t5e/eo/le to *i$ectl4 /$o/ose amen*ments t5$o75 t5ei$ oBn initiative. T5e s7becto= t5e instant /etition is b4 Ba4 o= eHe$cisin t5at initiative in o$*e$ to c5ane o7$=o$m o= ove$nment =$om /$esi*ential to /a$liamenta$4. M7c5 5as been B$ittenabo7t t5e =7lsome /oBe$s o= t5e /eo/le in a *emoc$ac4. (7t t5e most basicconce$ns t5e i*ea t5at sove$eint4 $esi*es in t5e /eo/le an* t5at all ove$nment
1 Political I7estions 5ave been *ene* as 7estions o= B5ic5 t5e co7$ts o= 7sticeBill $e=7se to tae coni:ance& o$ to *eci*e& on acco7nt o= t5ei$ /7$el4 /oliticalc5a$acte$& o$ beca7se t5ei$ *ete$mination Bo7l* involve an enc$oac5ment 7/on t5eeHec7tive o$ leislative /oBe$s e..& B5at so$t o= ove$nment eHists in a state].(lac<s LaB Dictiona$4& /. 1#1- citin 9ennet5 v. C5ambe$s& 1! +oB. #& 1! L.E*.#16.
#6"
OL. "0"& OCTO(ER %"& %006
#6"
Lambino vs. Commission on Elections
/$esent Constit7tion. ,5et5e$ t5e initial moves a$e *one b4 a Constit7tionalConvention& a Constit7tional Assembl4& o$ a Peo/le<s )nitiative& in t5e en* eve$4amen*mentF5oBeve$ ins7bstantial o$ $a*icalFm7st be s7bmitte* to a /lebiscite.
T57s& it is t5e 7ltimate Bill o= t5e /eo/le eH/$esse* in t5e ballot& t5at matte$s.%
#. ) cannot =a7lt t5e COMELEC& =$anl4& =o$ t7$nin *oBn t5e /etition o= Mess$s.Lambino& et al. ;o$ t5e COMELEC Bas 7st $el4in on /$ece*ents& Bit5 t5e common7n*e$stan*in t5at& /7$s7ant to t5e cases o= Santiao v. COMELEC# an* P)RMA v.
COMELEC&! t5e COMELEC 5a* been /e$manentl4 enoine* =$om ente$tainin an4/etition =o$ a /eo/le<s initiative to amen* t5e Constit7tion b4 no less t5an t5isCo7$t. )n *en4in *7e co7$se beloB to Mess$s. Lambino an* A7menta*o<s /etition& )co7l* not 5ol* t5e COMELEC liable =o$ $ave ab7se o= *isc$etion B5en t5e4 me$el4$elie* on t5is Co7$t<s 7neI7ivocal $7lins. O= co7$se& t5e Santiao an* t5e P)RMA*ecisions co7l* be $evieBe* an* $eve$se* b4 t5is Co7$t& as 2. Re4nato S. P7nos7bmits noB. (7t 7ntil t5e Co7$t *oes so& t5e COMELEC Bas *7t4 bo7n* to $es/ectan* obe4 t5is Co7$t<s man*ate& =o$ t5e $7le o= laB to /$evail.
!. Lastl4& ) see no obection to t5e $eman* to t5e COMELEC o= t5e /etition o= Mess$s.Lambino an* A7menta*o an* 6.#% million vote$s& =o$ =7$t5e$ eHamination o= t5e=act7al $eI7isites be=o$e a /lebiscite is con*7cte*. On /ae ! o= t5e assaile*Resol7tion o= t5e $es/on*ent *ate* A77st #1& %006& t5e COMELEC tentativel4eH/$esse* its vieB t5at even i= t5e sinat7$es in t5e instant Petition a//ea$ to meett5e $eI7i$e* minim7m /e$ cent7m o= t5e total n7mbe$ o= $eiste$e* vote$s& t5eCOMELEC co7l* not ive t5e Petition *7e co7$se beca7se o= o7$ vieB t5at R.A. No.6#" Bas ina*eI7ate. T5at& 5oBeve$& is noB $e=7te* b4 M$. 27stice P7no<s sc5ola$l4/onencia. NoB t5at Be 5ave $evisite* t5e Santiao v. COMELEC *ecision& t5e$e isonl4 one clea$ tas =o$ COMELEC. )n m4 vieB& t5e onl4 *oable o/tion le=t =o$ t5eCOMELEC& once =act7al iss7es a$e 5ea$* an* $esolve*& is to ive *7e co7$se to t5e
". ) am t5e$e=o$e in =avo$ o= lettin t5e sove$ein /eo/le s/ea on t5ei$ c5oice o= t5e=o$m o= ove$nment as a /olitical I7estion soonest. ?T5is ) sa4 Bit5o7t =ea$ o= me*iao/inion t5at o7$ 7*icial in*e/en*ence 5as been tainte* o$ im/e$ile*& =o$ it is not.@
T57s ) vote =o$ t5e $eman* o= t5e /etition. T5e$ea=te$& as /$a4e* =o$& COMELECs5o7l* =o$t5Bit5 ce$ti=4 t5e Petition as s7Jcient in =o$m an* s7bstance an* call =o$t5e 5ol*in o= a /lebiscite Bit5in t5e /e$io* man*ate* b4 t5e basic laB& not ea$lie$t5an siHt4 no$ late$ t5an ninet4 *a4s =$om sai* ce$tication. Onl4 a c$e*ible
/lebiscite itsel=& con*7cte* /eace=7ll4 an* 5onestl4& can b$in clos7$e to t5e instant/olitical cont$ove$s4.
SEPARATE OP)N)ON
3NARES8SANT)AGO& 2.K
) a$ee Bit5 t5e /onencia o= o7$ esteeme* collea7e& 27stice Re4nato P7no& t5at t5eCo7$t<s $7lin in Santiao v. COMELEC1 is not a bin*in /$ece*ent. +oBeve$& it is m4/osition t5at even i= Santiao Be$e $eve$se* an* Re/7blic Act No. 6#" ?R.A. 6#"@be 5el* as s7Jcient laB =o$ t5e /7$/ose o= /eo/le<s initiative to amen* t5eConstit7tion& t5e /etition =o$ initiative in t5is case m7st nonet5eless be *ismisse*.
T5e$e is absol7tel4 no s5oBin 5e$e t5at /etitione$s com/lie* Bit5 R.A. 6#"& evenas t5e4 blin*l4 invoe t5e sai* laB to 7sti=4 t5ei$ allee* /eo/le<s initiative. Section"?b@ o= R.A. 6#" $eI7i$es t5at a /etition =o$ an initiative on t5e 1- Constit7tionm7st 5ave at least tBelve /e$ cent7m ?1%V@ o= t5e total n7mbe$ o= $eiste$e*vote$s as sinato$ies& o= B5ic5 eve$4 leislative *ist$ict m7st be $e/$esente* b4 at
least t5$ee /e$ cent7m ?#V@ o= t5e $eiste$e* vote$s t5e$ein. On t5e ot5e$ 5an*&Section "?c@% o= t5e same laB $eI7i$es
>>>>>>>>>>>>>>>
1 G.R. No. 1%#%"& Ma$c5 1-& 1--& %0 SCRA 106.
% SEC. ". ReI7i$ements.FH H H
?c@ T5e /etition s5all state t5e =olloBinK
#6
OL. "0"& OCTO(ER %"& %006
#6
Lambino vs. Commission on Elections
t5at t5e /etition s5o7l* state& amon ot5e$s& t5e /$o/osition# o$ t5e contents o$teHt o= t5e /$o/ose* laB so75t to be enacte*& a//$ove* o$ $eecte*& amen*e* o$$e/eale*. )= Be Be$e to a//l4 Section "?c@ to an initiative to amen* t5eConstit7tion& as /etitione$s s7bmit& t5e /etition =o$ initiative sine* b4 t5e $eI7i$e*n7mbe$ o= vote$s s5o7l* inco$/o$ate t5e$ein a teHt o= t5e /$o/ose* c5anes to t5eConstit7tion. +oBeve$& s7c5 $eI7i$ement Bas not =olloBe* in t5e case at ba$.
D7$in t5e o$al a$7ments& /etitione$ Lambino a*mitte* t5at t5e4 /$inte* a me$e100&000 co/ies o= t5e teHt o= t5e /$o/ose* c5anes to t5e Constit7tion. Acco$*in to5im& t5ese Be$e s7bseI7entl4 *ist$ib7te* to t5ei$ aents all ove$ t5e co7nt$4& =o$
attac5ment to t5e s5eets o= /a/e$ on B5ic5 t5e sinat7$es Be$e to be aJHe*. U/onbein ase*& 5oBeve$& i= 5e in =act neB B5et5e$ t5e teHt Bas act7all4 attac5e* tot5e sinat7$e s5eets B5ic5 Be$e *ist$ib7te* =o$ sinin& 5e sai* t5at 5e me$el4ass7me* t5at t5e4 Be$e. )n ot5e$ Bo$*s& 5e co7l* not tell t5e Co7$t =o$ ce$tainB5et5e$ t5ei$ $e/$esentatives com/lie* Bit5 t5is $eI7i$ement.
T5e /etition le* Bit5 t5e COMELEC& as Bell as t5at B5ic5 Bas s5oBn to t5is Co7$t&in*7bitabl4 establis5 t5at t5e =7ll teHt o= t5e /$o/ose* c5anes Bas not attac5e* tot5e sinat7$e s5eets. All t5at t5e sinat7$e s5eets containe* Bas t5e ene$al/$o/osition an* abst$act& B5ic5 =alls s5o$t o= t5e =7ll teHt $eI7i$ement o= R.A. 6#".
>>>>>>>>>>>>>>>
c.1. contents o$ teHt o= t5e /$o/ose* laB so75t to be enacte*& a//$ove* o$$eecte*& amen*e* o$ $e/eale*& as t5e case ma4 be
c.6. an abst$act o$ s7mma$4 /$o/osition in not mo$e t5an one 57n*$e* ?100@ Bo$*sB5ic5 s5all be leibl4 B$itten o$ /$inte* at t5e to/ o= eve$4 /ae o= t5e /etition.
# SEC. #. Denition o= Te$ms.F;o$ /7$/oses o= t5is Act& t5e =olloBin te$ms s5allmeanK H H H
?*@ P$o/osition is t5e meas7$e /$o/ose* b4 t5e vote$s.
#6
#6
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections T5e necessit4 o= settin =o$t5 t5e teHt o= t5e /$o/ose* constit7tional c5anes in t5e/etition =o$ initiative to be sine* b4 t5e /eo/le cannot be se$io7sl4 *is/7te*. Tobein Bit5& A$ticle Q))& Section % o= t5e Constit7tion 7neI7ivocall4 states t5atamen*ments to t5is Constit7tion ma4 lieBise be *i$ectl4 /$o/ose* b4 t5e /eo/let5$o75 initiative 7/on a /etition o= at least tBelve /e$ cent7m o= t5e total n7mbe$o= $eiste$e* vote$s& o= B5ic5 eve$4 leislative *ist$ict m7st be $e/$esente* b4 atleast t5$ee /e$ cent7m o= t5e $eiste$e* vote$s t5e$ein. Evi*entl4& =o$ t5e /eo/le to/$o/ose amen*ments to t5e Constit7tion& t5e4 m7st& in t5e $st instance& noBeHactl4 B5at t5e4 a$e /$o/osin. )t is not eno75 t5at t5e4 me$el4 /ossess aene$al i*ea o= t5e /$o/ose* c5anes& as t5e Constit7tion s/eas o= a *i$ect
/$o/osal b4 t5e /eo/le.Alt5o75 t5e =$ame$s o= t5e Constit7tion le=t t5e matte$ o= im/lementin t5econstit7tional $i5t o= initiative to Con$ess& it mi5t be note* t5at t5e4 t5emselves$easonabl4 ass7me* t5at t5e *$a=t o= t5e /$o/ose* constit7tional amen*mentsBo7l* be s5oBn to t5e /eo/le *7$in t5e /$ocess o= sinat7$e at5e$in. T57sF
MR. RODR)GO. Section % o= t5e com/lete committee $e/o$t /$ovi*esK 7/on /etitiono= at least 10 /e$cent o= t5e $eiste$e* vote$s. +oB Bill Be *ete$mine t5at 10/e$cent 5as been ac5ieve* +oB Bill t5e vote$s mani=est t5ei$ *esi$e& is it b4sinat7$e
MR. SUARE. 3es& b4 sinat7$es.MR. RODR)GO. Let 7s loo at t5e mec5anics. Let 7s sa4 some vote$s Bant to/$o/ose a constit7tional amen*ment. )s t5e *$a=t o= t5e /$o/ose* constit7tionalamen*ment $ea*4 to be s5oBn to t5e /eo/le B5en t5e4 a$e ase* to sin
MR. SUARE. T5at can be $easonabl4 ass7me*& Ma*am P$esi*ent.
MR. RODR)GOK ,5at *oes t5e s/onso$ mean T5e *$a=t is $ea*4 an* s5oBn to t5embe=o$e t5e4 sin. NoB& B5o /$e/a$es t5e *$a=t
state* in o$ attac5e* to t5e initiative /etition. T5e sinato$ies to t5e /etition m7stbe iven an o//o$t7nit4 to =7ll4 com/$e5en* t5e meanin an* eect o= t5e/$o/ose* c5anes to enable t5em to mae a =$ee& intellient an* Bell8in=o$me*c5oice on t5e matte$.
Nee*less to sa4& t5e $eI7i$ement o= settin =o$t5 t5e com/lete teHt o= t5e /$o/ose*c5anes in t5e /etition =o$ initiative is a sa=e7a$* aainst =$a7* an* *ece/tion. )=t5e B5ole teHt o= t5e /$o/ose* c5anes is containe* in o$ attac5e* to t5e /etition&inte$calations an* $i*e$s ma4 be *7l4 avoi*e*. Onl4 t5en can Be be ass7$e* t5at t5e/$o/ose* c5anes a$e t$7l4 o= t5e /eo/le an* t5at t5e sinato$ies 5ave been =7ll4a//$ise* o= its im/lications.
)= a stat7to$4 /$ovision is essential to 7a$* aainst =$a7*& co$$7/tion o$ *ece/tion int5e initiative an* $e=e$en*7m /$ocess& s7c5 /$ovision m7st be vieBe* as anin*is/ensable $eI7i$ement an* =ail7$e to s7bstantiall4 com/l4 t5e$eBit5 is =atal."
T5e =ail7$e o= /etitione$s in t5is case to com/l4 Bit5 t5e =7ll teHt $eI7i$ement$es7ltantl4 $en*e$e* t5ei$ /etition =o$ initiative =atall4 *e=ective.
T5e /etition =o$ initiative is lieBise i$$et$ievabl4 in$m beca7se it violates t5e ones7bect $7le 7n*e$ Section 10?a@ o= R.A. 6#"K
SEC. 10. P$o5ibite* Meas7$es.FT5e =olloBin cannot be t5e s7bect o= an initiativeo$ $e=e$en*7m /etitionK
?a@ No /etition emb$acin mo$e t5an one s7bect s5all be s7bmitte* to t5eelecto$ate H H H
T5e one s7bect $7le& as $elatin to an initiative to amen* t5e Constit7tion& 5as t5esame obect an* /7$/ose as t5e one s7bect8one bill $7le embo*ie* in A$ticle )&Section %6?1@6 o= t5e Constit7tion. To
" Comm7nit4 Gas an* Se$vice Com/an4& )nc. v. ,alba7m& !0! P.%* 101!& 1-6" O911 ?1-6"@.
6 Section %6. ?1@ Eve$4 bill /asse* b4 t5e Con$ess s5all emb$ace onl4 one s7bect
B5ic5 s5all be eH/$esse* in t5e title t5e$eo=. T5e late Senato$ ?t5en Con$essman@ Ra7l S. Roco state* t5is =act in 5iss/onso$s5i/ /$esentation o= +.(. No. %1"0"& t57sK
H H H H
D. P$o5ibite* S7bects.
#0
#0
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
elabo$ate& t5e one s7bect8one bill $7le Bas *esine* to *o aBa4 Bit5 t5e /$actice o= inse$tin tBo o$ mo$e 7n$elate* /$ovisions in one bill& so t5at t5ose =avo$in one/$ovision Bo7l* be com/elle* to a*o/t t5e ot5e$s. (4 t5is /$ocess o= lo8$ollin& t5ea*o/tion o= bot5 /$ovisions co7l* be accom/lis5e* an* ens7$e*& B5en neit5e$& i=stan*in alone& co7l* s7ccee* on its oBn me$its.
As a//lie* to t5e initiative /$ocess& t5e one s7bect $7le is essentiall4 *esine* to/$event s7$/$ise an* =$a7* on t5e electo$ate. )t is meant to sa=e7a$* t5e inte$it4
T5e bill /$ovi*es =o$ tBo in*s o= meas7$es B5ic5 cannot be t5e s7bect o= aninitiative o$ $e=e$en*7m /etition. A /etition t5at emb$aces mo$e t5an one s7bectcannot be s7bmitte* to t5e electo$ate as it Bo7l* be violative o= t5e constit7tional/$osc$i/tion on /assin bills containin mo$e t5an one s7bect& an* stat7tesinvolvin eme$enc4 meas7$es cannot be s7bect to $e=e$en*7m 7ntil -0 *a4s a=te$
its eectivit4. 2OURNAL AND RECORD O; T+E +OUSE O;REPRESENTAT)ES&SECOND REGULAR SESS)ON& OL. 6& P. -" ?;E(RUAR3 1!&1--@.
Memo$an*7m o= /etitione$ A7menta*o& /. 11.
- T5e /$o/ose* Section !?#@ o= A$ticle Q))) o= t5e Constit7tion states t5at Senato$sB5ose te$m o= oJce en*s in %010 s5all be membe$s o= /a$liament 7ntil noon o= t5et5i$tiet5 *a4 o= 27ne %010. No co7nte$/a$t /$ovision
#1
OL. "0"& OCTO(ER %"& %006
#1
Lambino vs. Commission on Elections
an* t5e convenin o= a constit7ent assembl4 to /$o/ose a**itional amen*ments tot5e Constit7tion.10 Also incl7*e* Bit5in its te$ms is an omnib7s *ecla$ation t5att5ose constit7tional /$ovisions 7n*e$ A$ticles ) an* ))& B5ic5 a$e inconsistent Bit5t5e 7nicame$al/a$liamenta$4 =o$m o= ove$nment& s5all be *eeme* amen*e* tocon=o$m t5e$eto.
)t is not *iJc7lt to see t5at B5ile t5e /$o/ose* c5anes a//ea$ to $elate onl4 to as5i=t in t5e =o$m o= ove$nment& it act7all4 sees to aect ot5e$ s7bects t5at a$enot $easonabl4 e$mane to t5e constit7tional alte$ation t5at is /7$/o$te*l4 so75t.;o$ one& a s5i=t to a /a$liamenta$4 s4stem o= ove$nment *oes not necessa$il4 $es7ltin t5e a*o/tion o= a 7nicame$al leislat7$e. A /a$liamenta$4 s4stem can eHist inman4 *ie$ent 54b$i* =o$ms o= ove$nment& B5ic5 ma4 o$ ma4 not emb$ace7nicame$alism.11 )n ot5e$ Bo$*s& t5e s5i=t =$om /$esi*ential to /a$liamenta$4st$7ct7$e an* =$om a bicame$al to a 7nicame$al leislat7$e is neit5e$ t5e ca7se no$eect o= t5e ot5e$.
) also =ail to see t5e $elation o= convenin a constit7ent assembl4 Bit5 t5e /$o/ose*c5ane in o7$ s4stem o= ove$nment. As a s7bect matte$& t5e convenin o= a
constit7ent assembl4 to amen* t5e Constit7tion /$esents a $ane o= iss7es t5at is=a$ $emove* =$om t5e s7bect o= a s5i=t in ove$nment. (esi*es& t5e constit7entassembl4 is s7//ose* to convene an* /$o/ose amen*ments to t5e Constit7tiona=te$ t5e /$o/ose* c5ane in t5e s4stem o= ove$nment 5as al$ea*4 taen /lace.
T5is onl4 oes to s5oB t5at t5e convenin o= t5e constit7ent assembl4 is notnecessa$4 to eect7ate a c5ane to a /a$liamenta$4 s4stem o= ove$nment.
T5e omnib7s statement t5at all /$ovisions 7n*e$ A$ticles ) an* )) B5ic5 a$einconsistent Bit5 a 7nicame$al8/a$liamenta$4 s4stem o= ove$nment s5all be*eeme* amen*e* is eI7all4 bot5e$some. T5e statement *oes not s/eci=4 B5att5ese inconsistencies an* amen*ments ma4 be& s7c5 t5at eve$4one is le=t to 7esst5e /$ovisions t5at co7l* event7all4 be aecte* b4 t5e /$o/ose* c5anes. T5es7bect an* sco/e o= t5ese a7tomatic amen*ments cannot even be s/elle* o7t Bit5ce$taint4. T5e$e is t57s no $easonable meas7$e o= its im/act on t5e ot5e$constit7tional /$ovisions.
T5e =o$eoin /$o/ose* c5anes cannot be t5e s7bect o= a /eo/le<s initiative 7n*e$Section %& A$ticle Q)) o= t5e Constit7tion. Taen toet5e$& t5e /$o/ose* c5anesin*icate t5at t5e inten*ment is not sim/l4 to eect s7bstantial amen*ments to t5eConstit7tion& b7t a $evision t5e$eo=. T5e *istinction betBeen an amen*ment an*$evision Bas eH/laine* b4 Dean icente G. Sinco& as =olloBsK
St$ictl4 s/eain& t5e act o= $evisin a constit7tion involves alte$ations o= *ie$ent/o$tions o= t5e enti$e *oc7ment. )t ma4 $es7lt in t5e $eB$itin eit5e$ o= t5e B5oleconstit7tion& o$ t5e $eate$ /o$tion o= it& o$ /e$5a/s onl4 some o= its im/o$tant/$ovisions. (7t B5ateve$ $es7lts t5e $evision ma4 /$o*7ce& t5e =acto$ t5atc5a$acte$i:es it as an act o= $evision is t5e o$iinal intention an* /lan a7t5o$i:e* tobe ca$$ie* o7t. T5at intention an* /lan m7st contem/late a consi*e$ation o= all t5e/$ovisions o= t5e constit7tion to *ete$mine B5ic5 one s5o7l* be alte$e* o$s7//$esse* o$ B5et5e$ t5e B5ole *oc7ment s5o7l* be $e/lace* Bit5 an enti$el4 neBone.
T5e act o= amen*in a constit7tion& on t5e ot5e$ 5an*& envisaes a c5ane o= onl4 a=eB s/ecic /$ovisions. T5e intention o= an act to amen* is not to consi*e$ t5ea*visabilit4 o= c5anin t5e enti$e constit7tion o$ o= consi*e$in t5at /ossibilit4. T5eintention $at5e$ is to im/$ove s/ecic /a$ts o= t5e eHistin constit7tion o$ to a** to
it /$ovisions *eeme* essential on acco7nt o= c5ane* con*itions o$ to s7//$ess/o$tions o= it t5at seem obsolete& o$ *ane$o7s& o$ mislea*in in t5ei$ eect.1%
>>>>>>>>>>>>>>>
1% P5ili//ine Political LaB 1-"! e*.& icente G. Sinco& //. !#8!!& I7ote* inSe/a$ate O/inion o= 2. +ila$io G. Davi*e& 2$. in P)RMA v. Commission on Elections&G.R. No. 1%-"!& Se/tembe$ %#& 1--& /. .
##
OL. "0"& OCTO(ER %"& %006
##
Lambino vs. Commission on Elections
T5e =o$eoin t$a*itional eH/osition o= t5e *ie$ence betBeen amen*ment an*$evision 5as in*ee* 7i*e* 7s t5$o75o7t o7$ constit7tional 5isto$4. +oBeve$& t5e*istinction betBeen t5e tBo te$ms is not& to m4 min*& as sinicant in t5e conteHt o= o7$ /ast constit7tions& as it s5o7l* be noB 7n*e$ t5e 1- Constit7tion. T5e $eason=o$ t5is is a//a$ent. Un*e$ o7$ /ast constit7tions& it Bas Con$ess alone& actineit5e$ as a constit7ent assembl4 o$ b4 callin o7t a constit7tional convention& t5ateHe$cise* a7t5o$it4 to eit5e$ amen* o$ $evise t5e Constit7tion t5$o75 t5e/$oce*7$es t5e$ein *esc$ibe*. Alt5o75 t5e *istinction betBeen t5e tBo te$ms Bast5eo$eticall4 $econi:e* 7n*e$ bot5 t5e 1-#" an* 1-# Constit7tions& t5e nee* to
5i5li5t t5e *ie$ence Bas not as mate$ial beca7se it Bas onl4 Con$ess t5at co7l*eect constit7tional c5anes b4 c5oosin betBeen t5e tBo mo*alities.
+oBeve$& it is *ie$ent noB 7n*e$ t5e 1- Constit7tion. A/a$t =$om /$ovi*in =o$t5e tBo mo*es o= eit5e$ Con$ess constit7tin itsel= as a constit7ent assembl4 o$callin o7t =o$ a constit7tional convention& a t5i$* mo*e Bas int$o*7ce* =o$/$o/osin c5anes to t5e Constit7tion. T5is mo*e $e=e$s to t5e /eo/le<s $i5t to/$o/ose amen*ments to t5e =7n*amental laB t5$o75 t5e lin o= a /etition =o$initiative.
Ot5e$Bise state*& o7$ eH/e$ience o= B5at constit7tes amen*ment o$ $evision 7n*e$t5e /ast constit7tions is not *ete$minative o= B5at t5e tBo te$ms mean noB& as
$elate* to t5e eHe$cise o= t5e $i5t to /$o/ose eit5e$ amen*ments o$ $evision. T5ec5anes int$o*7ce* to bot5 t5e Constit7tions o= 1-#" an* 1-# co7l* 5ave in*ee*been *eeme* an amen*ment o$ $evision& b7t t5e a7t5o$it4 =o$ eectin eit5e$Bo7l* neve$ 5ave been I7estione* since t5e same belone* solel4 to Con$ess. )ncont$ast& t5e 1- Constit7tion clea$l4 limits t5e $i5t o= t5e /eo/le to *i$ectl4/$o/ose constit7tional c5anes to amen*ments onl4. ,e m7st conseI7entl4 not besBa4e* b4 eHam/les o= constit7tional c5anes eecte* /$io$ to t5e /$esent
)n t5is $ea$*& it s5o7l* be note* t5at t5e *istinction lai* *oBn b4 27stice ;eliH .Antonio in 2avellana v. EHec7tive Sec$eta$41# $elate* to t5e /$oce*7$e to be=olloBe* in $ati=4in a com/letel4 neB c5a$te$ /$o/ose* b4 a constit7tionalconvention. T5e a7t5o$it4 o$ $i5t o= t5e constit7tional convention itsel= to eects7c5 a $evision Bas not /7t in iss7e in t5at case. As =a$ as *ete$minin B5atconstit7tes amen*ments =o$ t5e /7$/ose o= a /eo/le<s initiative& t5e$e=o$e& Be
5ave neit5e$ $elevant /$ece*ent no$ /$io$ eH/e$ience. ,e m7st t57s conneo7$selves to Dean Sinco<s basic a$tic7lation o= t5e tBo te$ms.
)t is clea$ =$om Dean Sinco<s eH/lanation t5at a $evision ma4 eit5e$ be o= t5e B5oleo$ onl4 /a$t o= t5e Constit7tion. T5e /a$t nee* not be a s7bstantial /a$t as a c5anema4 I7ali=4 as a $evision even i= it onl4 involves some o= t5e im/o$tant /$ovisions.;o$ as lon as t5e intention an* /lan to be ca$$ie* o7t contem/late a consi*e$ationo= all t5e /$ovisions o= t5e Constit7tion to *ete$mine B5ic5 s5o7l* be alte$e* o$s7//$esse*& o$ B5et5e$ t5e B5ole *oc7ment s5o7l* be $e/lace* Bit5 an enti$el4neB one& t5e /$o/ose* c5ane ma4 be *eeme* a $evision an* not me$el4 anamen*ment.
T57s& it is not b4 t5e s5ee$ n7mbe$ alone o= t5e /$o/ose* c5anes t5at t5e samema4 be consi*e$e* as eit5e$ an amen*ment o$ $evision. )n so *ete$minin& anot5e$ove$$i*in =acto$ is t5e o$iinal intention an* /lan a7t5o$i:e* to be ca$$ie* o7t b4t5e /$o/ose* c5anes. )= t5e same $elates to a $e8eHamination o= t5e enti$e*oc7ment to see B5ic5 /$ovisions $emain $elevant o$ i= it 5as =a$8$eac5in eects ont5e enti$e *oc7ment& t5en t5e same constit7tes a $evision an* not a me$eamen*ment o= t5e Constit7tion.
;$om t5e =o$eoin& it is $ea*il4 a//a$ent t5at a combination o= t5e I7antitative an*I7alitative test is necessa$4 in assessin B5at ma4 be consi*e$e* as an amen*mento$ $evision. )t is not eno75 t5at Be =oc7s sim/l4 on t5e /54sical sco/e o= t5e/$o/ose* c5anes& b7t also consi*e$ B5at it means in $elation to t5e enti$e
*oc7ment. No clea$ *ema$cation line can be *$aBn to *istin7is5 t5e tBo te$ms an*eac5 ci$c7mstance m7st be 7*e* on t5e basis o= its oBn /ec7lia$ con*i8
tions. T5e *ete$mination lies in assessin t5e im/act t5at t5e /$o/ose* c5anesma4 5ave on t5e enti$e inst$7ment& an* not sim/l4 on an a$it5metical a//$aisal o=t5e s/ecic /$ovisions B5ic5 it sees to aect.
)n Mc;a**en v. 2o$*an&1! t5e Cali=o$nia S7/$eme Co7$t lai* *oBn t5e $o7n*Bo$ =o$t5e combination o= I7antitative an* I7alitative assessment o= /$o/ose*constit7tional c5anes& in o$*e$ to *ete$mine B5et5e$ t5e same is $eviso$4 o$me$el4 amen*ato$4. )n t5at case& t5e Mc;a**en co7$t =o7n* t5e /$o/ose* c5aneseHtensive since at least 1" o= t5e %" a$ticles containe* in t5e Cali=o$nia Constit7tion
Bo7l* eit5e$ be $e/eale* in t5ei$ enti$et4 o$ s7bstantiall4 alte$e*& an* =o7$ neBto/ics Bo7l* be int$o*7ce*. +oBeve$& it Bent on to consi*e$ t5e I7alitative eectst5at t5e /$o/ose* initiative meas7$e Bo7l* 5ave on Cali=o$nia<s basic /lan o=ove$nment. )t obse$ve* t5at t5e /$o/osal Bo7l* alte$ t5e c5ecs an* balancesin5e$ent in s7c5 /lan& b4 *eleatin =a$8$eac5in an* miHe* /oBe$s to anin*e/en*ent commission c$eate* 7n*e$ t5e /$o/ose* meas7$e. ConseI7entl4& t5e/$o/osal in Mc;a**en Bas not onl4 *eeme* as b$oa* an* n7me$o7s in /54sicalsco/e& b7t Bas also 5el* as 5avin a s7bstantive eect on t5e =7n*amentalove$nmental /lan o= t5e State o= Cali=o$nia.
T5e *7al as/ect o= t5e amen*mentW$evision anal4sis Bas $eite$ate* b4 t5e Cali=o$niaS7/$eme Co7$t in Raven v. De7meian.1" P$o/osition 11"& as t5e initiative in t5at
case Bas calle*& Bo7l* vest in t5e Unite* States S7/$eme Co7$t all 7*icialinte$/$etative /oBe$s o= t5e Cali=o$nia co7$ts ove$ =7n*amental c$iminal *e=ense$i5ts in t5at state. )t Bas obse$ve* t5at alt5o75 I7antitativel4& t5e /$o/osition *i*not seem so eHtensive as to c5ane *i$ectl4 t5e s7bstantial enti$et4 o= t5eConstit7tion b4 t5e *eletion o$ alte$ation o= n7me$o7s eHistin /$ovisions& t5esame& nonet5eless& Bo7l* s7bstantiall4 alte$ t5e s7bstance an* inte$it4 o= t5estate Constit7tion as a *oc7ment o= in*e/en*ent =o$ce an* eect. 7otin Ama*o$alle4 2oint Union
>>>>>>>>>>>>>>>
1! 1-6 P. %* ?Cal. 1-!@& ce$t. *enie*& ##6 U.S. -1 ?1-!-@.
+i5 Sc5ool Dist$ict v. State (oa$* o= EI7ali:ation&16 t5e Raven co7$t sai*K
. . . a/a$t =$om a meas7$e eectin Bi*es/$ea* *eletions& a**itions an*amen*ments involvin man4 constit7tional a$ticles& even a $elativel4 sim/leenactment ma4 accom/lis5 s7c5 =a$ $eac5in c5anes in t5e nat7$e o= o7$ basicove$nmental /lan as to amo7nt to a $evision also ]An enactment B5ic5/7$/o$te* to vest all 7*icial /oBe$ in t5e Leislat7$e Bo7l* amo7nt to a $evisionBit5o7t $ea$* eit5e$ to t5e lent5 o$ com/leHit4 o= t5e meas7$e o$ t5e n7mbe$ o=eHistin a$ticles o$ sections aecte* b4 s7c5 c5ane.< ?)talics s7//lie* an*citations omitte*@
T57s& in $esolvin t5e amen*mentW$evision iss7e& t5e Cali=o$nia Co7$t eHamines bot5t5e I7antitative an* I7alitative eects o= a /$o/ose* meas7$e on its constit7tionalsc5eme. S7bstantial c5anes in eit5e$ $es/ect co7l* amo7nt to a $evision.1
) am /e$s7a*e* t5at Be can a//$oac5 t5e /$esent iss7e in t5e same manne$. T5eeH/e$ience o= t5e co7$ts in Cali=o$nia is not =a$ $emove* =$om t5e stan*a$*seH/o7n*e* on b4 Dean Sinco B5en 5e set o7t to *ie$entiate betBeen amen*mentan* $evision. )t is act7all4 consistent& not onl4 Bit5 o7$ t$a*itional conce/t o= t5etBo te$ms& b7t also Bit5 t5e min*set o= o7$ constit7tional =$ame$s B5en t5e4$e=e$$e* to t5e *isI7isition o= 27stice Antonio in 2avellana.1 ,e m7st t57s consi*e$B5et5e$ t5e /$o/ose* c5anes in t5is case aect o7$ Constit7tion in bot5 itss7bstantial /54sical enti$et4 an* in its basic /lan o= ove$nment.
T5e I7estion /ose* isK *o t5e /$o/ose* c5anes& $ea$*less o= B5et5e$ t5ese a$esim/le o$ s7bstantial& amo7nt to a $evi8
>>>>>>>>>>>>>>>
16 "# P. %* 1%1 ?Cal. 1-%@.
1 Raven v. De7meian& s7/$a& citin ($osna5an v. ($oBn& 6"1 P. %* %! ?Cal.1-%@.
1 S7/$a note 1#. )t ma4 Bell be /ointe* o7t t5at in main t5e *istinction betBeenamen*ment an* $evision& 27stice Antonio $elie* not onl4 in t5e analo4 /$esente* in,5eele$ v. (oa$* o= T$7stees& # S.E. %* #%%& b7t cite* also t5e seminal $7lin o= t5eCali=o$nia S7/$eme Co7$t in Mc;a**en v. 2o$*an& s7/$a.
sion as to be eHcl7*e* =$om t5e /eo/le<s $i5t to *i$ectl4 /$o/ose amen*ments tot5e =7n*amental laB
As in*icate* ea$lie$& Be ma4 a//l4 t5e I7antitativeWI7ailtative test in *ete$minint5e nat7$e o= t5e /$o/ose* c5anes. T5ese tests a$e consistent Bit5 Dean Sinco<st$a*itional conce/t o= amen*ment an* $evision B5en 5e eH/lains t5at&
I7antitativel4& $evision ma4 $es7lt in t5e $eB$itin eit5e$ o= t5e B5ole constit7tion&o$ t5e $eate$ /a$t o= it& o$ /e$5a/s onl4 some o= its /$ovisions. )n an4 case& 5econtin7es& t5e =acto$ t5at c5a$acte$i:es it as an act o= $evision is t5e o$iinalintention an* /lan a7t5o$i:e* to be ca$$ie* o7t. Unmistaabl4& t5e latte$ statement$e=e$s to t5e I7alitative eect o= t5e /$o/ose* c5anes.
)t ma4 t57s be conce*e* t5at& I7antitativel4& t5e c5anes es/o7se* b4 t5e/$o/onents in t5is case Bill aect onl4 tBo ?%@ o7t o= t5e ei5teen ?1@ a$ticles o=t5e 1- Constit7tion& namel4& A$ticle ) ?Leislative De/a$tment@ an* A$ticle ))?EHec7tive De/a$tment@& as Bell as /$ovisions t5at Bill ens7$e t5e smoot5 t$ansition=$om a /$esi*ential8bicame$al s4stem to a /a$liamenta$487nicame$al st$7ct7$e o=ove$nment. T5e I7antitative eect o= t5e /$o/ose* c5anes is neit5e$ b$oa* no$eHtensive an* Bill not aect t5e s7bstantial enti$et4 o= t5e 1- Constit7tion.
+oBeve$& it is m4 o/inion t5at t5e /$o/ose* c5anes Bill 5ave se$io7s I7alitativeconseI7ences on t5e Constit7tion. T5e initiative /etition& i= s7ccess=7l& Bill7n*o7bte*l4 alte$& not onl4 o7$ basic ove$nmental /lan& b7t also $e*ene o7$$i5ts as citi:ens in $elation to ove$nment. T5e /$o/ose* c5anes Bill set intomotion a $i//le eect t5at Bill st$ie at t5e ve$4 =o7n*ation o= o7$ basicconstit7tional /lan. )t is t5e$e=o$e an im/e$missible constit7tional $evision t5at ma4not be eecte* t5$o75 a /eo/le<s initiative.
Petitione$s< main /$o/osal /e$tains to t5e s5i=tin o= o7$ =o$m o= ove$nment =$omt5e /$esi*ential to t5e /a$liamenta$4 s4stem. An eHamination o= t5ei$ /$o/osal$eveals t5at t5e$e Bill be a =7sion o= t5e eHec7tive an* leislative *e/a$tments intoone /a$liament t5at Bill be electe* on t5e basis o= /$o/o$tional $e/$esentation. Note$m limits a$e set =o$ t5e membe$s o= /a$liament eHce/t =o$ t5ose electe* 7n*e$t5e /a$t48list s4stem B5ose te$ms an* n7mbe$ s5all be /$ovi*e* b4
#
#
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
laB. T5e$e Bill be a P$esi*ent B5o s5all be t5e 5ea* o= state& b7t t5e 5ea* o=ove$nment is t5e P$ime Ministe$. T5e latte$ an* 5is cabinet s5all be electe* =$omamon t5e membe$s o= /a$liament an* s5all be $es/onsible to /a$liament =o$ t5e/$o$am o= ove$nment.
T5e /$ece*in /$o/osal in*icates t5at& 7n*e$ t5e /$o/ose* s4stem& t5e eHec7tivean* leislat7$e s5all be one an* t5e same& s7c5 t5at /a$liament Bill be t5e
ConseI7entl4& t5e s5i=t =$om /$esi*ential to /a$liamenta$4 =o$m o= ove$nmentcannot be $ea$*e* as an4t5in b7t a *$astic c5ane. )t Bill $eI7i$e a total ove$5a7lo= o7$ ove$nmental st$7ct7$e an* involve a $e8o$ientation in t5e ca$*inal *oct$inest5at ove$n o7$ constit7tional set87/. As eH/laine* b4 ;$. 2oaI7in (e$nas& S.2.& asBitc5 =$om t5e /$esi*ential s4stem to a /a$liamenta$4 s4stem Bo7l* be a $evision
beca7se o= its ove$8all im/act on t5e enti$e constit7tional st$7ct7$e.%0 )t cannot& b4an4 stan*a$*& be *eeme* as a me$e constit7tional amen*ment.
An amen*ment envisaes an alte$ation o= one o$ a =eB s/ecic an* se/a$able/$ovisions. T5e 7i*in o$iinal intention o= an amen*ment is to im/$ove s/ecic/a$ts o$ to a** neB /$ovisions *eeme* necessa$4 to meet neB con*itions o$ to
s7//$ess s/ecic /o$tions t5at ma4 5ave become obsolete o$ t5at a$e 7*e* to be*ane$o7s. )n $evision& 5oBeve$& t5e 7i*in o$iinal intention an* /lancontem/lates a $e8eHamination o= t5e enti$e *oc7ment& o$ o= /$ovisions o= t5e*oc7ment B5ic5 5ave ove$8all im/lications =o$ t5e enti$e *oc7ment& to *ete$mine5oB an* to B5at eHtent t5e4 s5o7l* be alte$e*.%1 ?)talics s7//lie*@
T5e incl7sion o= a /$o/osal to convene a constit7ent assembl4 lieBise s5oBs t5eintention o= t5e /$o/onents to eect even mo$e =a$8$eac5in c5anes in o7$=7n*amental laB. )= t5e o$iinal intent Be$e to sim/l4 s5i=t t5e =o$m o= ove$nmentto t5e /a$liamenta$4 s4stem& t5en t5e$e Bo7l* 5ave been no nee* =o$ t5e callino7t o= a constit7ent assembl4 to /$o/ose =7$t5e$ amen*ments to t5e Constit7tion. )ts5o7l* be note* t5at& once convene*& a constit7ent assembl4 can *o aBa4 an*$e/lace an4 constit7tional /$ovision B5ic5 ma4 not even 5ave a bea$in on t5e s5i=tto a /a$liamenta$4 s4stem o= ove$nment. T5e incl7sion o= s7c5 a /$o/osal $evealst5e /$o/onents< /lan to consi*e$ all /$ovisions o= t5e constit7tion& eit5e$ to*ete$mine
B5ic5 o= its /$ovisions s5o7l* be alte$e* o$ s7//$esse* o$ B5et5e$ t5e B5ole*oc7ment s5o7l* be $e/lace* Bit5 an enti$el4 neB one.
ConseI7entl4& it is not t$7e t5at onl4 A$ticles ) an* )) a$e cove$e* b4 t5e allee*/eo/le<s initiative. T5e /$o/osal to convene a constit7ent assembl4& B5ic5 b4 itste$ms is man*ato$4& Bill /$acticall4 eo/a$*i:e t5e =7t7$e o= t5e enti$e Constit7tionan* /lace it on s5a4 $o7n*s. T5e /lan o= t5e /$o/onents& as $eecte* in t5ei$/$o/ose* c5anes& oes be4on* t5e s5i=tin o= ove$nment =$om t5e /$esi*ential tot5e /a$liamenta$4 s4stem. )n*ee*& it co7l* even eHten* to t5e =7n*amental nat7$eo= o7$ state as a *emoc$atic an* $e/7blican state.
To sa4 t5at t5e /$o/ose* c5anes Bill aect onl4 t5e constit7tion o= ove$nment ist5e$e=o$e a =allac4. To $e/eat& t5e combine* eect o= t5e /$o/ose* c5anes toA$ticles ) an* )) an* t5ose /e$tainin to t5e T$ansito$4 P$ovisions 7n*e$ A$ticleQ))) in*7bitabl4 establis5 t5e intent an* /lan o= t5e /$o/onents to /ossibl4 aecteven t5e constit7tions o= libe$t4 an* sove$eint4. )n*ee*& no vali* $eason eHists =o$
a7t5o$i:in =7$t5e$ amen*ments o$ $evisions to t5e Constit7tion i= t5e intention o=t5e /$o/ose* c5anes is t$7l4 B5at it /7$/o$ts to be.
T5e$e is no I7estion 5e$e t5at onl4 amen*ments to t5e Constit7tion ma4 be7n*e$taen t5$o75 a /eo/le<s initiative an* not a $evision& as teHt7all4 $eecte* int5e Constit7tion itsel=. T5is concl7sion is inevitable es/eciall4 =$om a com/a$ativeeHamination o= Section % in $elation to Sections 1 an* ! o= A$ticle Q))& B5ic5 stateK
SECT)ON !. An4 amen*ment to& o$ $evision o=& t5is Constit7tion 7n*e$ Section 15e$eo= s5all be vali* B5en $atie* b4 a mao$it4 o= t5e votes cast in a /lebisciteB5ic5 s5all be 5el* not ea$lie$ t5an siHt4 *a4s no$ late$ t5an ninet4 *a4s a=te$ t5ea//$oval o= s7c5 amen*ment o$ $evision.
An4 amen*ment 7n*e$ Section % 5e$eo= s5all be vali* B5en $atie* b4 a mao$it4 o=t5e votes cast in a /lebiscite B5ic5 s5all be 5el* not ea$lie$ t5an siHt4 *a4s no$ late$t5an ninet4 *a4s a=te$ t5e ce$tication b4 t5e Commission o= Elections o= t5es7Jcienc4 o= t5e /etition. ?)talics s7//lie*@
)t is clea$ t5at t5e $i5t o= t5e /eo/le to *i$ectl4 /$o/ose c5anes to t5e Constit7tionis limite* to amen*ments an* *oes not incl7*e a $evision t5e$eo=. Ot5e$Bise& itBo7l* 5ave been 7nnecessa$4 to /$ovi*e =o$ Section % to *istin7is5 its sco/e =$om
t5e $i5ts veste* in Con$ess 7n*e$ Section 1. T5e latte$ l7ci*l4 states t5atCon$ess ma4 /$o/ose bot5 amen*ments an* a $evision o= t5e Constit7tion b4eit5e$ convenin a constit7ent assembl4 o$ callin =o$ a constit7tional convention.Section %& on t5e ot5e$ 5an*& teHt7all4 commits to t5e /eo/le t5e $i5t to /$o/oseonl4 amen*ments b4 *i$ect action.
To 5ol*& t5e$e=o$e& t5at Section % alloBs s7bstantial amen*ments amo7ntin to$evision oblite$ates t5e clea$ *istinction in sco/e betBeen Sections 1 an* %. T5eintention& as ma4 be seen =$om a c7$so$4 /e$7sal o= t5e above /$ovisions& is to/$ovi*e *ie$in el*s o= a//lication =o$ t5e t5$ee mo*es o= eectin c5anes to t5eConstit7tion. ,e nee* not even *elve into t5e intent o= t5e constit7tional =$ame$s tosee t5at t5e *istinction in sco/e is *enitel4 ma$e*. ,e s5o7l* t57s a//l4 t5ese/$ovisions Bit5 a *isce$nin $ea$* =o$ t5is *istinction. Aain& Mc;a**en%% isinst$7ctiveK
. . . T5e *ie$entiation $eI7i$e* is not me$el4 betBeen tBo Bo$*s mo$e acc7$atel4it is betBeen tBo /$oce*7$es an* betBeen t5ei$ $es/ective el*s o= a//lication.Eac5 /$oce*7$e& i= Be =olloB elementa$4 /$inci/les o= stat7to$4 const$7ction& m7stbe 7n*e$stoo* to 5ave a s7bstantial el* o= a//lication& not to be H H H a me$ealte$native /$oce*7$e in t5e same el*. Eac5 o= t5e tBo
>>>>>>>>>>>>>>>
%% S7/$a note 1!.
#%
#%SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
Bo$*s& t5en& m7st be 7n*e$stoo* to *enote& $es/ectivel4& not onl4 a /$oce*7$e b7talso a el* o= a//lication a//$o/$iate to its /$oce*7$e. T5e /eo/le o= t5is state 5aves/oen t5e4 ma*e it clea$ B5en t5e4 a*o/te* a$ticle Q))) an* ma*e amen*ment$elativel4 sim/le b7t /$ovi*e* t5e =o$mi*able b7lBa$ o= a constit7tional conventionas a /$otection aainst im/$ovi*ent o$ 5ast4 ?o$ an4 ot5e$@ $evision& t5at t5e47n*e$stoo* t5at t5e$e Bas a $eal *ie$ence betBeen amen*ment an* $evision. ,en* not5in B5atsoeve$ in t5e lan7ae o= t5e initiative amen*ment o= 1-11 ?A$t.)& [ 1@ to eect a b$eain *oBn o= t5at *ie$ence. On t5e cont$a$4& t5e *istinctiona//ea$s to be H H H sc$7/7lo7sl4 /$ese$ve* b4 t5e eH/$ess *ecla$ation in t5eamen*ment H H H t5at t5e /oBe$ to /$o/ose an* vote on amen*ments to t5eConstit7tion is $ese$ve* *i$ectl4 to t5e /eo/le in initiative /$ocee*ins& B5ileleavin 7nmentione* t5e /oBe$ an* t5e /$oce*7$e $elative to constit7tional$evision& B5ic5 $evisional /oBe$ an* /$oce*7$e& it Bill be $emembe$e*& 5a* al$ea*4been s/ecicall4 t$eate* in section % o= a$ticle Q))). )nte$veno$s< contentionFt5atan4 c5ane less t5an a total one is b7t amen*ato$4FBo7l* $e*7ce to t5e $7bble o=
B5ateve$ t5ei$ n7mbe$s& to c5ane o$ t5Ba$t its man*ates& eHce/t t5$o75 t5emeans /$esc$ibe* b4 t5e Constit7tion itsel=.%!
)t is t57s mis/lace* to a$7e t5at t5e /eo/le ma4 /$o/ose $evisions to t5eConstit7tion t5$o75 /eo/le<s initiative beca7se t5ei$ $e/$esentatives& B5ose /oBe$is me$el4 *eleate*& ma4 *o so. ,5ile Section 1 o= A$ticle Q)) ma4 be consi*e$e*as a /$ovision *eleatin t5e sove$ein /oBe$s o= amen*ment an* $evision toCon$ess& Section %& in cont$ast& is a sel=8limitation on t5at sove$ein /oBe$. )n t5e
Bo$*s o= Coole4KH H H Alt5o75 b4 t5ei$ constit7tions t5e /eo/le 5ave *eleate* t5e eHe$cise o=sove$ein /oBe$s to t5e seve$al *e/a$tments& t5e4 5ave not t5e$eb4 *iveste*t5emselves o= t5e sove$eint4. T5e4 $etain in t5ei$ oBn 5an*s& so =a$ as t5e4 5avet5o75t it nee*=7l to *o so& a /oBe$ to cont$ol t5e ove$nments t5e4 c$eate& an* t5et5$ee *e/a$tments a$e $es/onsible to an* s7bect to be o$*e$e*& *i$ecte*& c5ane*o$ abolis5e* b4 t5em. (7t t5is cont$ol an* *i$ection m7st be eHe$cise* in t5e
an* a$e bo7n* b4 t5e /a$amete$s t5at t5e4 t5emselves 5ave o$*aine*. Ot5e$Bise& i= t5e /eo/le c5oose to *e=4 t5ei$ sel=8im/ose* constit7tional $est$aints& Be Bill be=ace* Bit5 a $evol7tiona$4 sit7ation.%6
)t 5as $e/eate*l4 been em/5asi:e* t5at o7$s is a *emoc$atic an* $e/7blicanstate.% Even as Be aJ$m& 5oBeve$& t5at as/ect o= *i$ect *emoc$ac4& Be s5o7l*not =o$et t5at& $st an* =o$emost& Be a$e a constit7tional *emoc$ac4. To 7/5ol**i$ect *emoc$ac4 at t5e eH/ense o= t5e =7n*amental laB is to sanction& not a
constit7tional& b7t an eHt$a8constit7tional $eco7$se. T5is is clea$l4 be4on* t5e/oBe$s o= t5e Co7$t B5o& b4 sove$ein man*ate& is t5e 7a$*ian an* ee/e$ o= t5eConstit7tion.
)N )E, O; T+E ;OREGO)NG& ) vote to D)SM)SS t5e /etition in G.R. No. 1!1"#.
ee/ on sa4in& T5e voice o= t5e /eo/le is t5e voice o= Go*&< since t5e $ioto7snesso= t5e c$oB* is alBa4s ve$4 close to ma*ness.1 Pe$5a/s& it is b4 /$ovi*ence t5att5e t$7e meanin o= t5e Latin /5$ase is $eveale* 7/on /etitione$s an* t5ei$ alliesF
Mi$iam De=enso$ Santiao& AleHan*e$ Pa*illa an* Ma$ia )sabel On/in& /etitione$s&v. Commission on Elections ?COMELEC@& 2es7s Deln& Albe$to Pe*$osa an* Ca$menPe*$osa& in t5ei$ ca/acities as =o7n*in membe$s o= t5e Peo/le<s )nitiative =o$Re=o$ms& Mo*e$ni:ation an* Action ?P)RMA@& $es/on*ents.% T5e case Bas *ocete*
as G.R. No. 1%#%". On Ma$c5 1-& 1--& t5is Co7$t $en*e$e* its Decision in =avo$ o=/etitione$s& 5ol*in t5at Re/7blic Act No. 6#" ?R.A. No. 6#"@& An Act P$ovi*in =o$a S4stem o= )nitiative an* Re=e$en*7m an* A//$o/$iatin ;7n*s T5e$e=o$& isincom/lete& ina*eI7ate& o$ Bantin in essential te$ms an* con*itions inso=a$ asinitiative on amen*ments to t5e Constit7tion is conce$ne*. A mao$it4 o= ei5t ?@
27stices =7ll4 conc7$$e* Bit5 t5is $7lin& B5ile ve ?"@ s7bsc$ibe* to t5e o//ositevieB. One ?1@ o/ine* t5at t5e$e is no nee* to $7le on t5e a*eI7ac4 o= R.A. No. 6#".
On motion =o$ $econsi*e$ation& tBo ?%@ o= t5e ei5t ?@ 27stices $econsi*e$e* t5ei$/ositions. One ?1@ le* an in5ibition an* t5e ot5e$ one ?1@ oine* t5e mino$it4o/inion. As a conseI7ence& o= t5e t5i$teen ?1#@ 27stices B5o /a$tici/ate* in t5e*elibe$ation& siH ?6@ vote* in =avo$ o= t5e mao$it4 o/inion& B5ile t5e ot5e$ siH ?6@
vote* in =avo$ o= t5e mino$it4 o/inion.#
A =eB mont5s t5e$ea=te$& o$ on Se/tembe$ %#& 1--& t5e Co7$t *ismisse* a simila$case& entitle* Peo/le<s )nitiative =o$ Re=o$m& Mo*e$ni:ation an* Action ?P)RMA@ v.Commission on Elections! on t5e $o7n* t5at t5e COMELEC *i* not commit $aveab7se o= *isc$etion B5en it *ismisse* P)RMA<s Petition =o$ )nitiative to P$o/oseAmen*ments to t5e Constit7tion it a//ea$in t5at t5at it onl4 com/lie* Bit5 t5e*is/ositions in t5e Decision o= t5e Co7$t in G.R. No. 1%#%" ?Santiao v. COMELEC@
b7t on t5e *ie$ent /$emise t5at t5e case at ba$ is not t5e /$o/e$ ve5icle =o$ s7c5$e8eHamination. ;ive ?"@ 27stices o/ine* ot5e$Bise.
T5is time& anot5e$ $o7/ noBn as SiaB n (a4an& in coo$*ination Bit5 t5e Uniono= Local A7t5o$ities o= t5e P5ili//ines ?ULAP@& 5ave at5e$e* sinat7$es in s7//o$t o= t5e /$o/ose* amen*ments to t5e Constit7tion& B5ic5 entail a c5ane in t5e =o$m o=ove$nment =$om bicame$al8/$esi*ential to 7nicame$al8/a$liamenta$4& t57sK
A. Sections 1& %& #& !& "& 6 an* o= A$ticle ) s5all be amen*e* to $ea* as =olloBsKSection 1. ?1@ T5e leislative an* eHec7tive /oBe$s s5all be veste* in a 7nicame$alPa$liament B5ic5 s5all be com/ose* o= as man4 membe$s as ma4 be /$ovi*e* b4laB& to be a//o$tione* amon t5e /$ovinces& $e/$esentative *ist$icts& an* cities inacco$*ance Bit5 t5e n7mbe$ o= t5ei$ $es/ective in5abitants& Bit5 at least t5$ee57n*$e* t5o7san* in5abitants /e$ *ist$ict& an* on t5e basis o= a 7ni=o$m an*/$o$essive $atio. Eac5 *ist$ict s5all com/$ise& as =a$ as /$acticable& conti7o7s&com/act an* a*acent te$$ito$4& an* eac5 /$ovince m7st 5ave at least one membe$.
?%@ Eac5 Membe$ o= Pa$liament s5all be a nat7$al8bo$n citi:en o= t5e P5ili//ines& atleast tBent48ve 4ea$s ol* on t5e *a4 o= t5e election& a $esi*ent o= 5is *ist$ict =o$ at
least one 4ea$ /$io$ t5e$eto& an* s5all be electe* b4 t5e I7alie* vote$s o= 5is*ist$ict =o$ a te$m o= ve 4ea$s Bit5o7t limitation as to t5e n7mbe$ t5e$eo=& eHce/tt5ose 7n*e$ t5e /a$t48list s4stem B5ic5 s5all be /$ovi*e* =o$ b4 laB an* B5osen7mbe$ s5all be eI7al to tBent4 /e$ cent7m o= t5e total membe$s5i/ comin =$omt5e /a$liamenta$4 *ist$icts.
An4 amen*ment 7n*e$ Section % 5e$eo= s5all be vali* B5en $atie* b4 a mao$it4 o=t5e votes cast in a /lebiscite B5ic5 s5all be 5el* not ea$lie$ t5an siHt4 *a4s no$ late$t5an ninet4 *a4s a=te$ t5e ce$tication b4 t5e Commission on Elections o= t5es7Jcienc4 o= t5e /etition.
) vote to *ismiss t5e /etition o= Lambino& et al. in G.R. No. 1!1"# an* $ant t5e/etition o= Ma$8len Abiail (ina4& et al. in G.R. No. 1!%--. +e$e& /etitione$s /$a4t5at t5e COMELEC C5ai$man an* Commissione$s be $eI7i$e* to s5oB B54 t5e4s5o7l* not be /7nis5e* =o$ contem/t o= co7$t =o$ *is$ea$*in t5e /e$manentin7nction iss7e* b4 t5is Co7$t in Santiao.
>>>>>>>>>>>>>>>
G$o7n*s =o$ contem/t
#. ;$om t5e time t5e so8calle* Peo/le<s )nitiative ?5e$ea=te$ P)@ noB s7bect o=Lambino v. Comelec& Bas initiate*& $es/on*ents *i* not5in to sto/ B5at Bas clea$l4laBless& an* even a$7abl4 Bine* at& as it Be$e& i= not con*one* an* alloBe*& t5e
Baste an* mis7se o= its /e$sonnel& time& =acilities an* $eso7$ces on an ente$/$iset5at 5a* no leal basis an* in =act Bas /e$manentl4 enoine* b4 t5is +ono$ableCo7$t in 1--. Seeminl4 mesme$i:e*& it is time to *isent5$all t5em.
#.1. ;o$ instance& 7n*e$sine* co7nsel 5a//ene* to be in t5e Senate on A77st %-&%006 ?on ot5e$ b7siness@ B5en $es/on*ent C5ai$ so75t to be sto//e* b4 t5e bo*4=$om commentin on P) o7t o= /$7*ential consi*e$ations& co7l* not be $est$aine*. Oncontentio7s iss7es& 5e vol7ntee$e* t5at SiaB n (a4an Bo7l* not c5eat in Maatias it Bas t5e o//osition te$$ito$4 an* t5at t5e =act t5at o7t o= !#&!0" sinat7$es&
27$is/$7*ence teac5es t5at an act o= a co7$t o$ t$ib7nal ma4 onl4 be consi*e$e* ascommitte* in $ave ab7se o= *isc$etion B5en t5e same Bas /e$=o$me* in aca/$icio7s o$ B5imsical eHe$cise o= 7*8
>>>>>>>>>>>>>>>
st$ation c$itics< t7$=s& an* %@ t5at =als7s in #6- ?-#.#0V@ =als7s in omnib7s& in aneHe$cise t5at co7l* neve$ be =$ee& o$*e$l4& 5onest an* c$e*ible& anot5e$constit7tional $eI7i$ement. Not5in 5as been 5ea$* abo7t /$obin an* /$osec7tint5e =alsie$s.
H H H H H H H H H
#.%.)t Bas eHcessivel4 obvio7s to 7n*e$sine* an* ot5e$ obse$ve$s t5at $es/on*ent
C5ai$man& st$ainin at t5e leas5& Bas laB4e$in =o$ SiaB n (a4an in t5e Senate_ )tBas *iscomtin t5at 5e Bo7l* loss ove$ t5e seemin B5olesale =alsication o=-6.#0V o= t5e sinat7$es in an eHe$cise Bit5 no c$e*ibilit4_ Even 5a* 5e been ase*&5e s5o7l* 5ave /le* to be eHc7se* =$om ansBe$in as t5e matte$ co7l* come 7/be=o$e t5e Comelec =o$ an oJcial colleial /osition ?*ie$ent =$om conce*in t5at itis enoine*@.
!.Res/on*ents Commissione$s (o$$a an* Romeo A. ($aBne$& =o$ t5ei$ /a$t& eveniss7e* Bi*el48/7blici:e* B$itten *i$ectives to t5e el*& AnneH C& as toCommissione$ ($aBne$ t5at as to Commissione$ (o$$a Bill =olloB. B5ile t5eCommission itsel= Bas t$4in to be ca$e=7l not to be eH/licit in B5at it Bas abettinim/licitl4& in 54/oc$itical *eance o= t5e in7nction o= 1--.
#-#
OL. "0"& OCTO(ER %"& %006
#-#
Lambino vs. Commission on Elections
ment. T5e ab7se o= *isc$etion m7st be so /atent an* $oss as to amo7nt to anevasion o= a /ositive *7t4 o$ to a vi$t7al $e=7sal to /e$=o$m a *7t4 enoine* b4 laB&o$ to act at all in contem/lation o= laB& as B5e$e t5e /oBe$ is eHe$cise* in an
a$bit$a$4 an* *es/otic manne$ b4 $eason o= /assion o$ /e$sonal 5ostilit4. T5e Resol7tion o= $es/on*ent COMELEC *en4in *7e co7$se to t5e /etition =o$initiative on t5e basis o= a case ?Santiao@ *eci*e* b4 t5is Co7$t cannot& in an4 Ba4&be c5a$acte$i:e* as ca/$icio7s o$ B5imsical& /atent an* $oss& o$ a$bit$a$4 an**es/otic. On t5e cont$a$4& it Bas t5e most /$7*ent co7$se to tae. )t m7st best$esse* t5at in Santiao& t5is Co7$t /e$manentl4 enoins $es/on*ent COMELEC=$om ente$tainin o$ tain coni:ance o= an4 /etition =o$ initiative on amen*mentsto t5e Constit7tion 7ntil a s7Jcient laB s5all 5ave been vali*l4 enacte*. )t bein a=act t5at Con$ess 5as not enacte* a s7Jcient laB& $es/on*ent COMELEC 5as noalte$native b7t to a*5e$e to Santiao. Ot5e$Bise& it is v7lne$able to a citation =o$contem/t. As s7ccinctl4 state* b4 C5ie= 27stice A$temio . Pananiban ?t5en
Associate 27stice@ in 5is Se/a$ate O/inion in t5e s7bseI7ent case o= P)RMA vs.COMELECK-
H H H ) cannot =a7lt t5e Comelec =o$ com/l4in Bit5 t5e $7lin even i= it& too&*isa$ee* Bit5 sai* *ecision<s $atio *eci*en*i. Res/on*ent Comelec Bas *i$ectl4enoine* b4 t5e 5i5est Co7$t o= t5e lan*. )t 5a* no c5oice b7t to obe4. )tsobe*ience cannot constit7te $ave ab7se o= *isc$etion. Re=7sal to act on t5e P)RMA/etition Bas t5e onl4 $eco7$se o/en to t5e Comelec. An4 ot5e$ mo*e o= actionBo7l* 5ave constit7te* *eance o= t5e Co7$t an* Bo7l* 5ave been st$7c *oBn as$ave ab7se o= *isc$etion an* cont7macio7s *is$ea$* o= t5is Co7$t<s s7/$emac4 ast5e nal a$bite$ o= 7sticiable cont$ove$sies.
)t nee* not be em/5asi:e* t5at in o7$ 7*icial 5ie$a$c54& t5is Co7$t $eins s7/$eme.All co7$ts& t$ib7nals an* a*minist$ative bo*ies eHe$cisin I7asi87*icial =7nctions a$eoblie* to con=o$m to its /$ono7ncements. )t 5as t5e last Bo$* on B5at t5e laB is itis t5e nal a$bite$ o= an4 7stiable cont$ove$s4. )n ot5e$ Bo$*s&
t5e$e is onl4 one S7/$eme Co7$t =$om B5ose *ecisions all ot5e$ co7$ts s5o7l* taet5ei$ bea$ins.10 As a Ba$nin to loBe$ co7$t 7*es B5o Bo7l* not a*5e$e to its$7lins& t5is Co7$t& in Peo/le v. Santos&11 5el*K
NoB& i= a 7*e o= a loBe$ Co7$t =eels& in t5e =7lllment o= 5is mission o= *eci*in
cases& t5at t5e a//lication o= a *oct$ine /$om7late* b4 t5is S7/e$io$it4 is aainst5is Ba4 o= $easonin& o$ aainst 5is conscience& 5e ma4 state 5is o/inion on t5ematte$& b7t $at5e$ t5an *is/osin o= t5e case in acco$*ance Bit5 5is /e$sonal vieBs5e m7st $st t5in t5at it is 5is *7t4 to a//l4 t5e laB as inte$/$ete* b4 t5e +i5estCo7$t o= t5e Lan*& an* t5at an4 *eviation =$om a /$inci/le lai* *oBn b4 t5e latte$Bo7l* 7navoi*abl4 ca7se& as a seI7el& 7nnecessa$4 inconveniences& *ela4s an*eH/enses to t5e litiants. An* i= *es/ite o= B5at is 5e$e sai*& a 27*e still believest5at 5e cannot =olloB O7$ $7lins& t5en 5e 5as no ot5e$ alte$native t5an to /lace5imsel= in t5e /osition t5at 5e co7l* /$o/e$l4 avoi* t5e *7t4 o= 5avin to $en*e$
7*ment on t5e case conce$ne* ?A$t. -& C.C.@& an* 5e 5as onl4 one leal Ba4 to *ot5at.
Clea$l4& $es/on*ent COMELEC *i* not $avel4 ab7se its *isc$etion in *ismissin t5e/etition o= Lambino& et al. =o$ it me$el4 =olloBe* t5is Co7$t<s $7lin in Santiao.
Sinicantl4& in P)RMA vs. COMELEC&1% a 7nanimo7s Co7$t im/licitl4 $econi:e* t5atits $7lin in Santiao is t5e establis5e* *oct$ine an* t5at t5e COMELEC *i* notcommit $ave ab7se o= *isc$etion in invoin it& t57sK
T5e Co7$t $7le*& $st& b4 a 7nanimo7s vote& t5at no $ave ab7se o= *isc$etion co7l*be att$ib7te* to t5e /7blic $es/on*ent COMELEC in *ismissin t5e /etition le* b4P)RMA t5e$ein& it a//ea$in t5at it onl4 com/lie* Bit5 t5e *is/ositions o= t5is Co7$tin G.R. No. 1%#%" /$om7late* on Ma$c5 1-& 1--& an* its $esol7tion on 27ne 10&1--.
)t cannot be *enie* t5at in Santiao& a mao$it4 o= t5e membe$s o= t5is Co7$t o$ei5t ?@ 27stices ?as aainst ve ?"@ 27stices@ conc7$$e* in *ecla$in R.A. No. 6#"an ins7Jcient laB. ,5en t5e motion =o$ $econsi*e$ation Bas *enie* via an eI7all48*ivi*e* Co7$t o$ a 686 vote& it *oes not mean t5at t5e Decision Bas ove$t7$ne*. )tonl4 s5oBs t5at t5e o//osite vieB =ails to m7ste$ eno75 votes to mo*i=4 o$ $eve$set5e mao$it4 $7lin. T5e$e=o$e& t5e o$iinal Decision Bas 7/5el*.1# )n O$tias an*Com/an4 Limite* Pa$tne$s5i/ vs. elasco&1! t5is Co7$t $7le* t5at t5e *enial o= amotion o$ $econsi*e$ation sinies t5at t5e $o7n* $elie* 7/on 5ave been =o7n*&7/on *7e *elibe$ation& to be Bit5o7t me$it& as not bein o= s7Jcient Bei5t toBa$$ant a mo*ication o= t5e 7*ment o$ nal o$*e$.
,it5 Santiao bein t5e onl4 im/e*iment to t5e instant /etition =o$ initiative&/etitione$s /e$sistentl4 st$ess t5at t5e *oct$ine o= sta$e *ecisis *oes not ba$ its $e8eHamination.
) am not convince*.
T5e maHim sta$e *ecisis et non I7ieta move$e t$anslates stan* b4 t5e *ecisionsan* *ist7$b not B5at is settle*.1" As 7se* in o7$ 7$is/$7*ence& it means t5atonce t5is Co7$t 5as lai* *oBn a /$inci/le o= laB as a//licable to a ce$tain state o==acts& it
Bo7l* a*5e$e to t5at /$inci/le an* a//l4 it to all =7t7$e cases in B5ic5 t5e =acts a$es7bstantiall4 t5e same as in t5e ea$lie$ cont$ove$s4.16
T5e$e is consi*e$able lite$at7$e abo7t B5et5e$ t5is *oct$ine o= sta$e *ecisis is aoo* o$ ba* one& b7t t5e *oct$ine is 7s7all4 7stie* b4 a$7ments B5ic5 =oc7s ont5e *esi$abilit4 o= stabilit4 an* ce$taint4 in t5e laB an* also b4 notions o= 7stice an*=ai$ness. 27stice (enamin Ca$*o:o in 5is t$eatise& T5e Nat7$e o= t5e 27*icial P$ocessstate*K
)t Bill not *o to *eci*e t5e same I7estion one Ba4 betBeen one set o= litiants an*t5e o//osite Ba4 betBeen anot5e$. )= a $o7/ o= cases involves t5e same /oint& t5e/a$ties eH/ect t5e same *ecision. )t Bo7l* be a $oss in7stice to *eci*e alte$natecases on o//osite /$inci/les. )= a case Bas *eci*e* aainst me 4este$*a4 B5en )Bas a *e=en*ant& ) s5all loo =o$ t5e same 7*ment to*a4 i= ) am /lainti. To *eci*e*ie$entl4 Bo7l* $aise a =eelin o= $esentment an* B$on in m4 b$east it Bo7l* bean in=$inement& mate$ial an* mo$al& o= m4 $i5ts.< A*5e$ence to /$ece*ent m7stt5en be t5e $7le $at5e$ t5an t5e eHce/tion i= litiants a$e to 5ave =ait5 in t5e even8
5an*e* a*minist$ation o= 7stice in t5e co7$ts.1 T5at t5e *oct$ine o= sta$e *ecisis is $elate* to 7stice an* =ai$ness ma4 bea//$eciate* b4 consi*e$in t5e obse$vation o= Ame$ican /5iloso/5e$ ,illiam 9.;$anena as to B5at constit7tes in7sticeK
T5e /a$a*im case o= in7stice is t5at in B5ic5 t5e$e a$e tBo simila$ in*ivi*7als insimila$ ci$c7mstances an* one o= t5em is t$eate* bette$ o$ Bo$se t5an t5e ot5e$. )nt5is case& t5e c$4 o= in7stice $i5tl4 oes 7/ aainst t5e $es/onsible aent o$ $o7/an* 7nless t5at aent o$ $o7/ can establis5 t5at t5e$e is some $elevant*issimila$it4 a=te$ all
>>>>>>>>>>>>>>>
16 )*.& citin Dela C$7: v. Co7$t o= A//eals& G.R. No. 1%61#& Ma$c5 %"& 1---& #0"SCRA #0#& citin Gove$nment v. 2alan*oni& No. #8R& A77st #0& 1-!& !! O.G.1!0.
betBeen t5e in*ivi*7als conce$ne* an* t5ei$ ci$c7mstances& 5e o$ t5e4 Bill be 7ilt4as c5a$e*.1
Alt5o75 t5e *oct$ine o= sta$e *ecisis *oes not /$event $eeHaminin an*& i= nee* be&ove$$7lin /$io$ *ecisions& )t is H H H a =7n*amental 7$is/$7*ential /olic4 t5at /$io$a//licable /$ece*ent 7s7all4 m7st be =olloBe* even t5o75 t5e case& i= consi*e$e*aneB& mi5t be *eci*e* *ie$entl4 b4 t5e c7$$ent 7stices. T5is /olic4 H H H is base*on t5e ass7m/tion t5at ce$taint4& /$e*ictabilit4 an* stabilit4 in t5e laB a$e t5e mao$obectives o= t5e leal s4stem i.e.& t5at /a$ties s5o7l* be able to $e7late t5ei$
con*7ct an* ente$ into $elations5i/s Bit5 $easonable ass7$ance o= t5e ove$nin$7les o= laB.1- Acco$*inl4& a /a$t4 7$in ove$$7lin a /$ece*ent =aces a $i5tl4one$o7s tas& t5e *iJc7lt4 o= B5ic5 is $o75l4 /$o/o$tional to a n7mbe$ o= =acto$s&incl7*in t5e ae o= t5e /$ece*ent& t5e nat7$e an* eHtent o= /7blic an* /$ivate$eliance on it& an* its consistenc4 o$ inconsistenc4 Bit5 ot5e$ $elate* $7les o= laB.+e$e& /etitione$s =aile* to *isc5a$e t5ei$ tas.
Santiao v. COMELEC Bas *eci*e* b4 t5is Co7$t on Ma$c5 1-& 1-- o$ mo$e t5annine ?-@ 4ea$s ao. D7$in t5at s/an o= time& t5e ;ili/ino /eo/le& s/ecicall4 t5e laB/$actitione$s& laB /$o=esso$s& laB st7*ents& t5e enti$e 7*icia$4 an* litiants 5ave$econi:e* t5is Co7$t<s Decision as a /$ece*ent. )n =act& t5e Santiao *oct$ine Basa//lie* b4 t5is Co7$t in t5e s7bseI7ent case o= P)RMA. Even t5e leislat7$e 5as
$elie* on sai* Decision& t57s& seve$al bills 5ave been int$o*7ce* in bot5 +o7ses o=Con$ess to c7$e t5e *ecienc4. ) cannot =at5om B54 it s5o7l* be ove$t7$ne* o$ setasi*e me$el4 on t5e basis o= t5e /etition o= Lambino& et al. )n*ee*& t5is Co7$t<sconcl7sion in Santiao t5at R.A. No. 6#" is incom/lete& ina*eI7ate o$ Bantin inessential te$ms an* con*itions inso=a$ as initiative on amen*ments to t5eConstit7tion is conce$ne* $emains a /$ece*ent an* m7st be 7/5el*.
?1@ T5e Con$ess& 7/on a vote o= t5$ee8=o7$t5s o= all its membe$s o$
?%@ A Constit7tional Convention.
Section %. Amen*ments to t5is Constit7tion ma4 lieBise be *i$ectl4 /$o/ose* b4t5e /eo/le t5$o75 initiative 7/on a /etition o= at least tBelve /e$ cent7m o= t5e
total n7mbe$ o= $eiste$e* votes ?sic@& o= B5ic5 eve$4 leislative *ist$ict m7st be$e/$esente* b4 at least t5$ee /e$ cent7m o= t5e $eiste$e* vote$s t5e$ein. H H H.?Em/5asis s7//lie*@
At t5e o7tset& it m7st be 7n*e$sco$e* t5at initiative an* $e=e$en*7m& as means b4B5ic5 t5e /eo/le can *i$ectl4 /$o/ose c5anes to t5e Constit7tion& Be$e not/$ovi*e* =o$ in t5e 1-#" an* 1-# Constit7tions. T57s& 7n*e$ t5ese tBo ?%@Constit7tions& t5e$e Bas no *eman* to *$aB t5e *istinction betBeen an amen*mentan* a $evision& bot5 bein ove$ne* b4 a 7ni=o$m /$ocess. T5is is not so 7n*e$ o7$/$esent Constit7tion. T5e *istinction betBeen an amen*ment an* a $evisionbecomes c$7cial beca7se onl4 amen*ments a$e alloBe* 7n*e$ t5e s4stem o=/eo/le<s initiative. Revisions a$e Bit5in t5e eHcl7sive *omain o= Con$ess& 7/on avote o= t5$ee8=o7$t5s o= all its membe$s& o$ o= a Constit7tional Convention.
T5e /eo/le ma4& a=te$ ve 4ea$s =$om t5e *ate o= t5e last /lebiscite 5el*& *i$ectl4/$o/ose amen*ments to t5is Constit7tion t5$7 initiative 7/on /etition o= at least ten
/e$cent o= t5e $eiste$e* vote$s.
T5is com/letes t5e blans a//ea$in in t5e o$iinal Committee Re/o$t No. . T5is/$o/osal Bas s7este* on t5e t5eo$4 t5at t5is matte$ o= initiative B5ic5 cameabo7t beca7se o= t5e eHt$ao$*ina$4 *evelo/ments t5is 4ea$& 5as to be se/a$ate*=$om t5e t$a*itional mo*es o= amen*in t5e Constit7tion as embo*ie* in Section1.T5e committee membe$s =elt t5at t5is s4stem o= initiative s5o7l* be limite* toamen*ments to t5e Constit7tion an* s5o7l* not eHten* to t5e $evision o= t5e enti$eConstit7tion& so Be $emove* it =$om t5e o/e$ation o= Section 1 o= t5e /$o/ose*A$ticle on Amen*ment o$ Revision.
H H H H H H H H H
MR. MAAM(ONGK Ma*am P$esi*ent& Bill t5e *istin7is5e* /$o/onent o= t5eamen*ment 4iel* to a =eB I7estions
MR. DA)DEK ,it5 /leas7$e& Ma*am P$esi*ent.
MR. MAAM(ONGK M4 $st I7estion& Commissione$ Davi*e<s /$o/ose* amen*menton line ) $e=e$s to amen*ments. Does it not cove$ t5e Bo$* $evision as *ene*b4 Commissione$ Pa*illa B5en 5e ma*e t5e *istinction betBeen t5e Bo$*samen*ments an* $evision
MR. DA)DEK No& it *oes not& beca7se amen*ments an* $evision s5o7l* becove$e* b4 Section 1. So inso=a$ as initiative is conce$ne*& it can onl4 $elate to
amen*ments not $evision
MR. MAAM(ONGK T5an 4o7.%0
Consi*e$in t5at t5e initiative on t5e Constit7tion onl4 /e$mits amen*ments& it isim/e$ative to eHamine B5et5e$ /etitione$s< /$o/ose* c5anes /a$tae o= t5e nat7$eo= amen*ments& not $evisions.
?T$ansito$4 P$ovisions@ =o$ t5e /7$/ose o= ins7$in an o$*e$l4 t$ansition =$om t5ebicame$al/$esi*ential to a 7nicame$al8/a$liamenta$4 =o$m o= ove$nment.
S7ccinctl4& t5e /$o/osals envision a c5ane in t5e =o$m o= ove$nment& =$ombicame$al8/$esi*ential to 7nicame$al8/a$liamenta$4 conve$sion o= t5e /$esentCon$ess o= t5e P5ili//ines to an )nte$im National Assembl4 c5ane in t5e te$ms o=Membe$s o= Pa$liament an* t5e election o= a P$ime Ministe$ B5o s5all be veste*Bit5 eHec7tive /oBe$.
Petitione$s conten* t5at t5e /$o/ose* c5anes a$e in t5e nat7$e o= amen*ments&5ence& Bit5in t5e cove$ae o= a /eo/le<s initiative.
) *isa$ee.
T5e note* constit7tionalist& ;at5e$ 2oaI7in G. (e$nas& S.2.& B5o Bas also a membe$o= t5e 1-6 Constit7tional Commission& c5a$acte$i:e* an amen*ment an* a $evisionto t5e Constit7tion as =olloBsK
An amen*ment envisaes an alte$ation o= one o$ a =eB s/ecic an* se/a$able/$ovisions. T5e 7i*in o$iinal intention o= an amen*ment is to im/$ove s/ecic/a$ts o$ to a** neB /$ovisions *eeme* necessa$4 to meet neB con*itions o$ tos7//$ess s/ecic /o$tions t5at ma4 5ave become obsolete o$ t5at a$e 7*e* to be*ane$o7s. )n $evision 5oBeve$& t5e 7i*in o$iinal intention an* /lancontem/lates a $e8eHamination o= t5e enti$e *oc7ment& o$ o= /$ovisions o= t5e*oc7ment B5ic5 5ave ove$all im/lications =o$ t5e *oc7ment to *ete$mine 5oB an*
Revision an* amen*ment 5ave t5e common c5a$acte$istics o= Bo$inc5anes in t5e c5a$te$& an* a$e sometimes 7se* in eHactl4 t5e same sense b7tt5e$e is an essential *ie$ence betBeen t5em.
Revision im/lies a $e8eHamination o= t5e B5ole laB an* a $e*$a=t Bit5o7tobliation to maintain t5e =o$m& sc5eme& o$ st$7ct7$e o= t5e ol*. As a//lie* to=7n*amental laB& s7c5 as a constit7tion o$ c5a$te$& it s7ests a convention toeHamine t5e B5ole s7bect an* to /$e/a$e an* s7bmit a neB inst$7ment B5et5e$t5e *esi$e* c5anes =$om t5e ol* a$e =eB o$ man4. Amen*ment im/lies contin7anceo= t5e ene$al /lan an* /7$/ose o= t5e laB& Bit5 co$$ections to bette$ accom/lis5 its/7$/ose. (asicall4& $evision s7ests =7n*amental c5ane& B5ile amen*ment is aco$$ection o= *etail.
Alt5o75 t5e$e a$e some a7t5o$ities B5ic5 in*icate t5at a c5ane in a cit4<s =o$m o=ove$nment ma4 be accom/lis5e* b4 a /$ocess o= amen*ment& t5e cases B5ic5so 5ol* seem to involve stat7tes B5ic5 onl4 *istin7is5 betBeen amen*ment an*
totall4 neB c5a$te$s.%# +oBeve$& as in Maine laB& B5e$e t5e stat7te a7t5o$i:in t5ec5anes *istin7is5es betBeen c5a$te$ amen*ment an* c5a$te$ $evision& it 5asbeen 5el* t5at ?a@ c5ane in t5e =o$m o= ove$nment o= a 5ome $7le cit4 ma4 bema*e onl4 b4 $evision o= t5e cit4 c5a$te$& not b4 its amen*ment.%!
)n s7mma$4& it Bo7l* seem t5at an4 mao$ c5ane in ove$nmental =o$m an*sc5eme Bo7l* /$obabl4 be inte$/$ete* as a $evision an* s5o7l* be ac5ieve*t5$o75 t5e mo$e t5o$o75 /$ocess o= *elibe$ation.
Alt5o75& at $st lance& /etitione$s< /$o/ose* c5anes a//ea$ to cove$ isolate*an* s/ecic /$ovisions onl4& 5oBeve$& 7/on ca$e=7l sc$7tin4& it becomes clea$ t5att5e /$o/ose* c5anes Bill alte$ t5e ve$4 st$7ct7$e o= o7$ ove$nment an* c$eate
At t5is 7nct7$e& it m7st be em/5asi:e* t5at t5e /oBe$ $ese$ve* to t5e /eo/le toeect c5anes in t5e Constit7tion incl7*es t5e /oBe$ to amen* an4 section in s7c5a manne$ t5at t5e /$o/ose* c5ane& i= a//$ove*& Bo7l* be com/lete Bit5in itsel=&$elate to one s7bect an* not s7bstantiall4 aect an4 ot5e$ section o$ a$ticle o= t5eConstit7tion o$ $eI7i$e =7$t5e$ amen*ments to t5e Constit7tion to accom/lis5 its
/7$/ose.%" T5is is clea$l4 not t5e case 5e$e.;i$stl4& a s5i=t =$om a /$esi*ential to a /a$liamenta$4 =o$m o= ove$nment aects t5eBell8ens5$ine* *oct$ine o= se/a$ation o= /oBe$s o= ove$nment& embo*ie* in o7$Constit7tion& b4 /$ovi*in =o$ an EHec7tive& Leislative an* 27*icia$4 ($anc5es. )n aPa$liamenta$4 =o$m o= ove$nment& t5e EHec7tive ($anc5 is to a ce$tain *e$ee&*e/en*ent on t5e *i$ect o$ in*i$ect s7//o$t o= t5e Pa$liament& as eH/$esse* t5$o75a vote o= con*ence. To m4 min*& t5is *oct$ine o= se/a$ation o= /oBe$s is sointe$Boven in t5e =ab$ic o= o7$ Constit7tion& t5at an4 c5ane aectin s7c5 *oct$inem7st necessa$il4 be a $evision.
)n Mc;a**en vs. 2o$*an&%6 t5e Cali=o$nia S7/$eme Co7$t $7le* as =olloBsK
)t is t57s clea$ t5at t5at a $evision o= t5e Constit7tion ma4 be accom/lis5e* onl4t5$o75 $atication b4 t5e /eo/le o= a $evise* constit7tion /$o/ose* b4 aconvention calle* =o$ t5at /7$/ose H H H. ConseI7entl4& i= t5e sco/e o= t5e /$o/ose*initiative meas7$e noB be=o$e 7s is so b$oa* t5at i= s7c5 meas7$e became laB as7bstantial $evision o= o7$ /$esent state Constit7tion Bo7l* be eecte*& t5en t5emeas7$e ma4 not /$o/e$l4 be s7bmitte* to t5e electo$ate 7ntil an* 7nless it is $sta$ee* 7/on b4 a constit7tional convention. H H H.
Secon*l4& t5e s5i=t =$om a bicame$al to a 7nicame$al =o$m o= ove$nment is not ame$e amen*ment& b7t is in act7alit4 a $evision& as set =o$t5 in A*ams v. G7nte$K%
>>>>>>>>>>>>>>>
%" A*ams v. G7nte$ ;la& %# So. %* %!.
%6 1-6 P.%* .
% A*ams v. G7nte$ ;la. %# So.%* %!.
!0#
OL. "0"& OCTO(ER %"& %006
!0#
Lambino vs. Commission on Elections
T5e /$o/osal 5e$e to amen* Section ) o= A$ticle ))) o= t5e 1-6 Constit7tion to/$ovi*e =o$ a Unicame$al Leislat7$e aects not onl4 man4 ot5e$ /$ovisions o= t5eConstit7tion b7t /$ovi*es =o$ a c5ane in t5e =o$m o= t5e leislative b$anc5 o=ove$nment& B5ic5 5as been in eHistence in t5e Unite* States Con$ess an* in all o=
Constit7tion B5ic5 a$e 5e$eb4 amen*e* H H H H H H an* all ot5e$ Sections o= A$ticle)) s5all be $etaine* an* n7mbe$e* seI7entiall4 as Section %& a* se$iatim 7/ to 1!&7nless t5e4 s5all be inconsistent Bit5 Section 1 5e$eo=& in B5ic5 case t5e4 s5all be*eeme* amen*e* so as to con=o$m to a 7nicame$al Pa$liamenta$4 s4stem o=ove$nment H H H H H H .
T5e above /$ovisions Bill necessa$il4 $es7lt in a $i//le eect on t5e ot5e$/$ovisions o= t5e Constit7tion to mae t5em con=o$m to t5e I7alities o= 7nicame$al8/a$liamenta$4 =o$m o= ove$nment. ,it5 one
!0!
!0!
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
sBee/in st$oe& t5ese /$o/ose* /$ovisions a7tomaticall4 $evise some /$ovisions o=t5e Constit7tion. )n Mc;a**en& t5e same /$actice Bas consi*e$e* b4 t5e Co7$t to bein t5e nat7$e o= s7bstantial $evision& necessitatin a constit7tional convention. )I7ote t5e /e$tinent /o$tion o= its $7lin& t57sK
T5e$e is in t5e meas7$e itsel=& no attem/t to en7me$ate t5e va$io7s an* man4a$ticles an* sections o= o7$ /$esent Constit7tion B5ic5 Bo7l* be aecte*& $e/lace*o$ $e/eale*. )t /7$/o$ts onl4 to a** one neB a$ticle b7t its =$ame$s =o7n* itnecessa$4 to incl7*e t5e omnib7s /$ovision ?s7b*ivision ?@ o= section Q))@ t5at )=an4 section& s7bsection& sentence& cla7se o$ /5$ase o= t5e constit7tion is in conict
Bit5 an4 o= t5e /$ovisions o= t5is a$ticle& s7c5 section& s7bsection& sentence& cla7se&o$ /5$ase is to t5e eHtent o= s7c5 conict 5e$eb4 $e/eale*. H H H ConseI7entl4& i=t5e sco/e o= t5e /$o/ose* intitiative meas7$e noB be=o$e 7s is so b$oa* t5at i= s7c5meas7$e become laB a s7bstantial $evision o= o7$ /$esent state Constit7tion Bo7l*be be eecte*& t5en t5e meas7$e ma4 not /$o/e$l4 be s7bmitte* to t5e electo$ate7ntil an* 7nless it is $st a$ee* 7/on b4 a constit7tional convention.%
Un*o7bte*l4& t5e c5anes /$o/ose* b4 t5e /etitione$s a$e not me$e amen*mentsB5ic5 Bill onl4 aect t5e A$ticles o$ Sections so75t to be c5ane*. Rat5e$& t5e4 a$ein t5e nat7$e o= $evisions B5ic5 Bill aect consi*e$able /o$tions o= t5e Constit7tion$es7ltin in t5e alte$ation o= o7$ =o$m o= ove$nment. T5e /$o/ose* c5anes cannotbe taen in isolation since t5ese a$e connecte* o$ inte$loce* Bit5 t5e ot5e$
/$ovisions o= o7$ Constit7tion. Acco$*inl4& it 5as been 5el* t5atK )= t5e c5anesattem/te* a$e so sBee/in t5at it is necessa$4 to incl7*e t5e /$ovisions inte$locint5em& t5en it is /lain t5at t5e /lan Bo7l* constit7te a $ecastin o= t5e B5oleConstit7tion an* t5is& Be t5in& it Bas inten*e* to be accom/lis5e* onl4 b4 aconvention 7n*e$ Section % B5ic5 5as not 4et been *ist7$be*.%-
) t5e$e=o$e concl7*e t5at since t5e /$o/ose* c5anes /a$tae o= t5e nat7$e o= a$evision o= t5e Constit7tion& t5en t5e4 cannot be t5e s7bect o= an initiative. On t5ismatte$& ;at5e$ (e$nas eH/$esse* t5is insi5tK
(7t B54 limit initiative an* $e=e$en*7m to sim/le amen*ments T5e ansBe$& B5ic5one can easil4 lean =$om t5e $at5e$ lon *elibe$ation on initiative an* $e=e$en*7min t5e 1-6 Constit7tional Commission& is /$acticalit4. )n ot5e$ Bo$*s& B5o is to=o$m7late t5e $evision o$ 5oB is it to be =o$m7late* Revision& as conc$etel4 bein/$o/ose* noB& is not5in less t5an a $eb7il*in o= t5e P5ili//ine constit7tionalst$7ct7$e. ,5o Be$e involve* in =o$m7latin t5e st$7ct7$e ,5at *ebates ens7e*
,5at $eco$*s a$e t5e$e =o$ =7t7$e 7se in inte$/$etin t5e /$ovisions B5ic5 ma4 be=o7n* to be 7nclea$
)n a *elibe$ative bo*4 lie Con$ess o$ a Constit7tional Convention& *ecisions a$e$eac5e* a=te$ m7c5 /7$i=4in *ebate. An* B5ile t5e *elibe$ations /$ocee*& t5e/7blic 5as t5e o//o$t7nit4 to et involve*. )t is onl4 a=te$ t5e Bo$ o= an a7t5o$i:e*
bo*4 5as been com/lete* t5at it is /$esente* to t5e electo$ate =o$ nal 7*ment.Ca$e=7l *ebate is im/o$tant beca7se t5e electo$ate ten*s to acce/t B5at is/$esente* to it even si5t 7nseen.#0
)
R.A. No. 6#" is ins7Jcient to im/lement t5e Peo/le<s initiative
On its =ace& Section % is not a sel=8eHec7to$4 /$ovision. T5is means t5at an enablinlaB is im/e$ative =o$ its im/lementation. T57s& Con$ess enacte* R.A. No. 6#" ino$*e$ to b$eat5e li=e into t5is constit7tional /$ovision. +oBeve$& as /$evio7sl4
na$$ate*& t5is Co7$t st$7c t5e laB in Santiao =o$ bein incom/lete& ina*eI7ate& o$Bantin in essential te$ms an* con*itions inso=a$ as initiative on amen*ments to t5eConstit7tion is conce$ne*.
T5e /assae o= time 5as *one not5in to c5ane t5e a//licabilit4 o= R.A. No. 6#".Con$ess neit5e$ amen*e* it no$ /asse* a neB laB to s7//l4 its *eciencies.
NotBit5stan*in so& t5is Co7$t is bein /e$s7a*e* to tae a #60*e$ee t7$n&en7me$atin t5$ee ?#@ 7stications B54 R.A. No. 6#" m7st be consi*e$e* as7Jcient laB& t57sK
1@ T5e teHt o= R.A. No. 6#" is $e/lete Bit5 $e=e$ences to t5e $i5t o= /eo/le toinitiate c5anes to t5e Constit7tion
%@ T5e leislative 5isto$4 o= R.A. No. 6#" $eveals t5e clea$ intent o= t5e laBmae$sto 7se it as inst$7ment to im/lement t5e /eo/le<s initiative an*
#@ T5e s/onso$s5i/ s/eec5es b4 t5e a7t5o$s o= R.A. No. 6#" *emonst$ate t5eleislative intent to 7se it as inst$7ment to im/lement /eo/le<s initiative.
) $e$et to sa4 t5at t5e =o$eoin 7stications a$e Bantin.
A t5o$o75 $ea*in o= R.A. No. 6#" lea*s to t5e concl7sion t5at it cove$s onl4initiatives on national an* local leislation. )ts $e=e$ences to initiatives on t5eConstit7tion a$e =eB& isolate* an* mis/lace*. Unlie in t5e initiatives on nationalan* local leislation& B5e$e R.A. No. 6#" /$ovi*es a *etaile*& loical& an*
eH5a7stive en7me$ation on t5ei$ im/lementation 5oBeve$& as $ea$*s initiativeon t5e Constit7tion& t5e laB me$el4K
>>>>>>>>>>>>>>>
#1 See Sections 81% =o$ national initiative an* $e=e$en*7m& an* sections 1#81- =o$local initiative an* $e=e$en*7m.
!0
OL. "0"& OCTO(ER %"& %006
!0
Lambino vs. Commission on Elections
?a@ mentions t5e Bo$* Constit7tion in Section %#%
?b@ *enes initiative on t5e Constit7tion an* incl7*es it in t5e en7me$ation o= t5et5$ee s4stems o= initiative in Section ###
?c@ s/eas o= /lebiscite as t5e /$ocess b4 B5ic5 t5e /$o/osition in an initiative ont5e Constit7tion ma4 be a//$ove* o$ $eecte* b4 t5e /eo/le#!
?*@ $eite$ates t5e constit7tional $eI7i$ements as to t5e n7mbe$ o= vote$s B5o s5o7l*sin t5e /etition#" an*
a.1. )nitiative on t5e Constit7tion B5ic5 $e=e$s to a /etition /$o/osin amen*ments
to t5e Constit7tionH H H
#! See Section #?e@.
#" Section " ?b@FA /etition =o$ an initiative on t5e 1- Constit7tion m7st 5ave atleast tBelve /e$ cent7m ?1%V@ o= t5e total n7mbe$ o= $eiste$e* vote$s assinato$ies& o= B5ic5 eve$4 leislative *ist$ict m7st be $e/$esente* b4 at least t5$ee/e$ cent7m ?#V@ o= t5e $eiste$e* vote$s t5e$ein. )nitiative on t5e Constit7tion ma4be eHe$cise* onl4 a=te$ ve ?"@ 4ea$s =$om t5e $atication o= t5e 1- Constit7tionan* onl4 once eve$4 ve ?"@ 4ea$s t5e$ea=te$.
H H H#6 Section - ?b@FT5e /$o/osition in an initiative on t5e Constit7tion a//$ove* b4 amao$it4 o= t5e votes cast in t5e /lebiscite s5all become eective as to t5e *a4 o=t5e /lebiscite.
A7menta*o& tBo $eiste$e* vote$s. As s5oBn in t5e e$icationWCe$tication Bit5AJ*avit o= Non8;o$7m S5o//in containe* in t5ei$ /etition& t5e4 allee* 7n*e$oat5 t5at t5e4 5ave ca7se* t5e /$e/a$ation o= t5e /etition in t5ei$ /e$sonal ca/acit4as $eiste$e* vote$s an* as $e/$esentatives o= t5e s7//ose* 6.# million $eiste$e*vote$s. T5is oes to s5oB t5at t5e I7estione* /etition Bas not initiate* *i$ectl4 b4t5e 6.# million /eo/le B5o allee*l4 com/$ise* at least 1%V o= t5e total n7mbe$ o=$eiste$e* vote$s& as $eI7i$e* b4 Section %. Mo$eove$& noB5e$e in t5e /etition itsel=co7l* be =o7n* t5e sinat7$es o= t5e 6.# million $eiste$e* vote$s. Onl4 t5esinat7$es o= /etitione$s Lambino an* A7menta*o
!10
!10
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
Be$e aJHe* t5e$ein as $e/$esentatives o= t5ose 6.# million /eo/le. Ce$tainl4& t5atis not t5e /etition =o$ /eo/le<s initiative contem/late* b4 t5e Constit7tion.
Petitione$s Lambino an* A7menta*o 5ave no a7t5o$it4 B5atsoeve$ to le t5e/etition as $e/$esentatives o= t5e allee* 6.# million $eiste$e* vote$s. S7c5 act o=
$e/$esentation is constit7tionall4 /$osc$ibe*. To $e/eat& Section % st$ictl4 $eI7i$est5at amen*ments to t5e Constit7tion s5all be *i$ectl4 /$o/ose* b4 t5e /eo/let5$o75 initiative 7/on a /etition o= at least tBelve /e$ cent7m o= t5e total n7mbe$o= $eiste$e* vote$s. Obvio7sl4& t5e /5$ase *i$ectl4 /$o/ose* b4 t5e /eo/leeHcl7*es an4 /e$son actin as $e/$esentative o$ aent o= t5e 1%V o= t5e totaln7mbe$ o= $eiste$e* vote$s. T5e Constit7tion 5as bestoBe* 7/on t5e /eo/le t5e$i5t to *i$ectl4 /$o/ose amen*ments to t5e Constit7tion. S7c5 $i5t cannot be7s7$/e* b4 an4one 7n*e$ t5e 7ise o= bein t5e /eo/le<s $e/$esentative. Sim/l4
5ol* an eHt$aleal constit7tional convention& *$a=te* a neB State Constit7tion&s7bmitte* t5e *oc7ment =o$ /o/7la$ $atication& an* 5el* elections 7n*e$ it. T5eState ove$nment& 5oBeve$& $e=7se* to ce*e /oBe$& lea*in to an anomalo7ssit7ation in t5at =o$ a =eB mont5s in 1!%& t5e$e Be$e tBo o//osin
>>>>>>>>>>>>>>>
# +oB ?! US@ 1 ?1!-@.
!1%
!1%
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
state ove$nments conten*in =o$ leitimac4 an* /ossession o= state o= oJces.
/olitical I7estion connotes& in leal /a$lance& B5at it means in o$*ina$4 /a$lance&namel4& a I7estion o=
>>>>>>>>>>>>>>>
# #% US "!- ?1-!6@.
#- P5il. 1-% ?1-!6@.
!0 10# P5il. 10"1 ?1-"@.
!1#
OL. "0"& OCTO(ER %"& %006
!1#
Lambino vs. Commission on Elections
/olic4. )t is conce$ne* Bit5 iss7es *e/en*ent 7/on t5e Bis*om& not lealit4& o= a/a$tic7la$ meas7$e.
)n AI7ino v. En$ile&!1 t5is Co7$t a*o/te* t5e =olloBin 7i*elines lai* *oBn in (ae$v. Ca$$!% in *ete$minin B5et5e$ a I7estion be=o$e it is /olitical& $at5e$ t5an 7*icialin nat7$e& to BitK
1@ t5e$e is a teHt7all4 *emonst$able constit7tional commitment o= t5e iss7e to acoo$*inate /olitical *e/a$tment o$
%@ t5e$e is a lac o= 7*iciall4 *iscove$able an* manaeable stan*a$*s =o$ $esolvinit o$
#@ t5e$e is t5e s5ee$ im/ossibilit4 o= *eci*in t5e matte$ Bit5o7t an initial /olic4*ete$mination o= a in* clea$l4 =o$ non87*icial *isc$etion o$
"@ t5e$e is an 7n7s7al nee* =o$ 7nI7estionin a*5e$ence to a /olitical *ecisional$ea*4 ma*e o$
6@ t5e$e eHists t5e /otentialit4 o= emba$$assment a$isin =$om m7lti=a$io7s/$ono7ncements b4 va$io7s *e/a$tments on one I7estion.
None o= t5e =o$eoin stan*a$*s is /$esent in t5e iss7es $aise* be=o$e t5is Co7$t.Acco$*inl4& t5e iss7es a$e 7sticiable. ,5at is at stae 5e$e is t5e lealit4 an* nott5e Bis*om o= t5e act com/laine* o=.
Mo$eove$& even ass7min a$7en*o t5at t5e iss7es $aise* be=o$e t5is Co7$t a$e/olitical in nat7$e& it is not /$ecl7*e* =$om $esolvin t5em 7n*e$ its eH/an*e*
7$is*iction con=e$$e* 7/on it b4 Section 1& A$ticle ))) o= t5e Constit7tion& =olloBinDa:a v. Sinson.!# As /ointe* o7t in Ma$cos v. Manla/7s&!! t5e /$esentConstit7tion limits $eso$t to t5e /olitical I7estion *oct$ine an* b$oa*ens t5e sco/eo= 7*icial /oBe$ B5ic5 t5e Co7$t& 7n*e$ /$evio7s c5a$te$s& Bo7l* 5ave no$mall4 an*o$*ina$il4 le=t to t5e /olitical *e/a$tments to *eci*e.
>>>>>>>>>>>>>>>
!1 G.R. No. #""!6& Se/tembe$ 1& 1-!& "0 SCRA ""-.
!% #6- US 16 ?1-6%@.
!# G.R. No. "#!!& Decembe$ %1& 1--& 10 SCRA !-6.
!! G.R. No. %11& Se/tembe$ 1"& 1--& 1 SCRA 66.
!1!
!1!
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
CONCLUS)ON
)n ne& consi*e$in t5e /olitical scena$io in o7$ co7nt$4 to*a4& it is m4 vieB t5at t5eso8calle* /eo/le<s initiative to amen* o7$ Constit7tion =$om bicame$al8/$esi*entialto 7nicame$al8/a$liamenta$4 is act7all4 not an initiative o= t5e /eo/le& b7t an
initiative o= some o= o7$ /oliticians. )t 5as not been s5oBn b4 /etitione$s& *7$in t5eo$al a$7ments in t5is case& t5at t5e 6.# million $eiste$e* vote$s B5o aJHe* t5ei$sinat7$es 7n*e$stoo* B5at t5e4 sine*. )n =act& /etitione$s a*mitte* t5at t5eConstit7tional /$ovisions so75t to be amen*e* an* t5e /$o/ose* amen*mentsBe$e not eH/laine* to all t5ose $eiste$e* vote$s. )n*ee*& t5e$e Bill be no means o=noBin& to t5e /oint o= 7*icial ce$taint4& B5et5e$ t5e4 $eall4 7n*e$stoo* B5at/etitione$s an* t5ei$ $o7/ ase* t5em to sin.
Let 7s not $e/eat t5e mistae committe* b4 t5is Co7$t in 2avellana v. T5e EHec7tiveSec$eta$4.!" T5e Co7$t t5en $7le* t5at T5is bein t5e vote o= t5e mao$it4& t5e$e isno =7$t5e$ 7*icial obstacle to t5e neB Constit7tion bein consi*e$e* in =o$ce an*eect& alt5o75 it 5a* notice t5at t5e Constit7tion /$o/ose* b4 t5e 1-1
Constit7tional Convention Bas not vali*l4 $atie* b4 t5e /eo/le in acco$*ance Bit5t5e 1-#" Constit7tion. T5e Co7$t concl7*e*& amon ot5e$s& t5at t5e viva vocevotin in t5e Citi:ens< Assemblies Bas an* is n7ll an* voi* ab initio. T5at Bas*7$in ma$tial laB B5en /e$5a/s mao$it4 o= t5e 7stices Be$e sca$e* o= t5e *ictato$.L7cil4 at /$esent& Be a$e not 7n*e$ a ma$tial laB $eime. T5e$e is& t5e$e=o$e& no$eason B54 t5is Co7$t s5o7l* alloB itsel= to be 7se* as a leitimi:in a7t5o$it4 b4t5e so8calle* /eo/le<s initiative =o$ t5ose B5o Bant to /e$/et7ate t5emselves in/oBe$.
At t5is /oint& ) can sa4 Bit5o7t =ea$ t5at t5e$e is not5in B$on Bit5 o7$ /$esentove$nment st$7ct7$e. ConseI7entl4& Be m7st not c5ane it. Ame$ica 5as a/$esi*ential t4/e o= ove$nment. 3et& it t5$ives i*eall4 an* 5as become a s7/e$/oBe$. )t is t5en sa=e to concl7*e t5at B5at Be s5o7l* c5ane a$e some o= t5e/eo/le $7nnin t5e ove$nment& NOT t5e S3STEM.
Acco$*in to /etitione$s& t5e /$o/ose* amen*ment Bo7l* eect a mo$e eJcient&mo$e economical an* mo$e $es/onsive ove$nment.
)s t5e$e 5o/e t5at a neB b$ee* o= /oliticians& mo$e I7alie* an* ca/able& ma4 beelecte* as membe$s an* lea*e$s o= t5e 7nicame$al/a$liament O$ Bill t5e /$esentmembe$s o= t5e LoBe$ +o7se contin7e to 5ol* t5ei$ $es/ective /ositions Bit5limitless te$ms
,ill t5e neB ove$nment be mo$e $es/onsive to t5e nee*s o= t5e /oo$ an* t5e
ma$inali:e* ,ill it be able to /$ovi*e 5omes =o$ t5e 5omeless& =oo* =o$ t5e57n$4& obs =o$ t5e obless an* /$otection =o$ t5e Bea
T5is is a *enin moment in o7$ 5isto$4. T5e iss7e /ose* be=o$e 7s is c$7cial Bit5t$anscen*ental sinicance. An* 5isto$4 Bill 7*e 7s on 5oB Be $esolve t5is iss7eFs5all Be alloB t5e $evision o= o7$ Constit7tion& o= B5ic5 Be a$e *7t4 bo7n* to 7a$*an* $eve$e& on t5e basis o= a *o7bt=7l /eo/le<s initiative
Amen*in t5e Constit7tion involvin a c5ane o= ove$nment s4stem o$ st$7ct7$e isa 5e$c7lean tas aectin t5e enti$e ;ili/ino /eo/le an* t5e =7t7$e ene$ations. Let7s& t5e$e=o$e& ent$7st t5is *7t4 to mo$e noBle*eable /eo/le electe* as membe$so= a Constit7tional Convention.
3es& t5e voice o= t5e /eo/le is t5e voice o= Go*. (7t 7n*e$ t5e ci$c7mstances in t5iscase& t5e voice o= Go* is not a7*ible.
,+ERE;ORE& ) vote to D)SM)SS t5e /etition in G.R. No. 1!1"# an* to GRANT t5e/etition in G.R. No. 1!%--.
T5e li=e o= t5e laB is not loic b7t eH/e$ience.1 O7$ collective eH/e$ience as a nationb$eat5es li=e to o7$ s4stem o= laBs& es/eciall4 to t5e Constit7tion. T5ese cases/$omise to sinicantl4 cont$ib7te to o7$ collective eH/e$ience as a nation. ;ealt4 tot5e /$ima$4 constit7tional /$inci/le t5at t5e P5ili//ines is not me$el4 a $e/7blican
State
>>>>>>>>>>>>>>>
1 Ab$ams v. Unite* States& %"0 U.S. 616.
!16
!16
SUPREME COURT REPORTS ANNOTATEDLambino vs. Commission on Elections
b7t a *emoc$atic one as Bell be5ooves t5is Co7$t to aJ$m t5e $i5t o= t5e /eo/le to/a$tici/ate *i$ectl4 in t5e /$ocess o= int$o*7cin c5anes to t5ei$ =7n*amental laB.
T5ese /etitions /$esent s7c5 an o//o$t7nit4. T57s& t5is is an o//o$t7ne time =o$ t5isCo7$t to 7/5ol* t5e sove$ein $i5ts o= t5e /eo/le.
Santiao Does Not A//l4 to T5is Case (7t Onl4 to t5e 1-- Deln Petition
T5e COMELEC *enie* t5e /etition =o$ initiative le* b4 /etitione$s /7$/o$te*l4 ont5e basis o= t5is Co7$t<s $7lin in Santiao v. COMELEC% t5atK ?1@ RA 6"# Basina*eI7ate to cove$ t5e s4stem o= initiative $ea$*in amen*ments to t5eConstit7tion an* ?%@ t5e COMELEC Bas /e$manentl4 enoine* =$om ente$tainin o$tain coni:ance o= an4 /etition =o$ initiative $ea$*in amen*ments to t5eConstit7tion 7ntil a s7Jcient laB Bas vali*l4 enacte* to /$ovi*e =o$ t5eim/lementation o= t5e initiative /$ovision.
+oBeve$& Santiao s5o7l* not a//l4 to t5is case b7t onl4 to t5e /etition o= Deln in1--. )t Bo7l* be 7n$easonable to mae it a//l4 to all /etitions B5ic5 Be$e 4et
7n=o$eseen in 1--. T5e =act is t5at Santiao Bas =oc7se* on t5e Deln /etitionalone.
T5ose B5o o//ose t5e eHe$cise o= t5e /eo/le<s $i5t to initiate c5anes to t5eConstit7tion via initiative claim t5at Santiao ba$$e* an4 an* all =7t7$e /etitions =o$initiative b4 vi$t7e o= t5e *oct$ines o= sta$e *ecisis an* $es 7*icata. T5e a$7ment isaBe*.
Res 7*icata is t5e $7le t5at a nal 7*ment $en*e$e* b4 a co7$t o= com/etent 7$is*iction on t5e me$its is concl7sive as to t5e $i5ts o=
>>>>>>>>>>>>>>>
% ##6 P5il. ! %0 SCRA 106 ?1--@.
!1
OL. "0"& OCTO(ER %"& %006
!1
Lambino vs. Commission on Electionst5e /a$ties an* t5ei$ /$ivies an*& as to t5em& constit7tes an absol7te ba$ to as7bseI7ent action involvin t5e same claim& *eman* o$ ca7se o= action.# )t 5as t5e=olloBin $eI7isitesK ?1@ t5e =o$me$ 7*ment o$ o$*e$ m7st be nal ?%@ it m7st 5avebeen $en*e$e* b4 a co7$t 5avin 7$is*iction o= t5e s7bect matte$ an* o= t5e/a$ties ?#@ it m7st be a 7*ment o$ o$*e$ on t5e me$its an* ?!@ t5e$e m7st bei*entit4 o= /a$ties& o= s7bect matte$& an* o= ca7se o= action betBeen t5e $st an*secon* actions.!
T5e$e is no i*entit4 o= /a$ties in Santiao an* t5e instant case. ,5ile t5e COMELECBas also t5e $es/on*ent in Santiao& t5e /etitione$s in t5at case an* t5ose in t5is
case a$e *ie$ent. Mo$e sinicantl4& t5e$e is no i*entit4 o= ca7ses o= action in t5etBo cases. Santiao involve* amen*ments to Sections ! an* o= A$ticle )& Section! o= A$ticle )) an* Section o= A$ticle Q o= t5e Constit7tion B5ile t5e /$esent/etition sees to amen* Sections 1 to o= A$ticle ) an* Sections 1 to ! o= t5e 1-Constit7tion. Clea$l4& t5e$e=o$e& t5e COMELEC committe* $ave ab7se o= *isc$etionB5en it $7le* t5at t5e /$esent /etition =o$ initiative Bas ba$$e* b4 Santiao an*& ont5at $o7n*& *ismisse* t5e /etition.
T5e /$esent /etition an* t5at in Santiao a$e mate$iall4 *ie$ent =$om eac5 ot5e$. T5e4 a$e not base* on t5e same =acts. T5e$e is t57s no coent $eason to =$7st$atean* *e=eat t5e /$esent *i$ect action o= t5e /eo/le to eHe$cise t5ei$ sove$eint4 b4/$o/osin c5anes to t5ei$ =7n*amental laB.
Peo/le<s )nitiative S5o7l* Not (e S7becte* to Con*itions
Peo/le<s initiative is an o/tion $ese$ve* b4 t5e /eo/le =o$ t5emselves eHcl7sivel4.Neit5e$ Con$ess no$ t5e COMELEC 5as t5e /oBe$ to c7$tail o$ *e=eat t5is eHcl7sive/oBe$ o= t5e /eo/le to c5ane
t5e Constit7tion. Neit5e$ s5o7l* t5e eHe$cise o= t5is /oBe$ be ma*e s7bect to an4con*itions& as some Bo7l* 5ave 7s acce/t.
O//osito$s to t5e /eo/le<s initiative /oint o7t t5at t5is Co7$t $7le* in Santiao t5atRA 6#" Bas ina*eI7ate to cove$ t5e s4stem o= initiative on amen*ments to t5eConstit7tion an*& t57s& no laB eHiste* to enable t5e /eo/le to *i$ectl4 /$o/ose
c5anes to t5e Constit7tion. T5is $easonin is se$io7sl4 obectionable. T5e /$ono7ncement on t5e ins7Jcienc4 o= RA 6#" Bas& to m4 min*& o7t o= /lace. )tBas 7n/$ece*ente* an* *ane$o7sl4 t$ans$esse* t5e *omain $ese$ve* to t5eleislat7$e.
,5ile t5e leislat7$e is a7t5o$i:e* to establis5 /$oce*7$es =o$ *ete$minin t5evali*it4 an* s7Jcienc4 o= a /etition to amen* t5e constit7tion&" t5at /$oce*7$ecannot 7nnecessa$il4 $est$ict t5e initiative /$ivilee.6 )n t5e same vein& t5is Co7$tcannot 7nnecessa$il4 an* 7n$easonabl4 $est$ain t5e /eo/le<s $i5t to *i$ectl4/$o/ose c5anes to t5e Constit7tion b4 *ecla$in a laB ina*eI7ate sim/l4 =o$ laco= a s7b85ea*in an* ot5e$ $ammatical b7t insinicant omissions. Ot5e$Bise& t5e
constit7tional intent to em/oBe$ t5e /eo/le Bill be seve$el4 emasc7late*& i= not$en*e$e* ill7so$4.
Peo/le<s Ri5t an* PoBe$ to P$o/ose C5anes to t5e Constit7tion Di$ectl4 S5o7l* notbe Un$easonabl4 C7$taile*
)= Con$ess an* a constit7tional convention& bot5 o= B5ic5 a$e me$e $e/$esentativebo*ies& can /$o/ose c5anes to t5e Constit7tion& t5e$e is no $eason B54 t5es7/$eme bo*4 /olitic itsel=Ft5e /eo/leFma4 not *o so *i$ectl4.
Reso$t to initiative to amen* t5e constit7tion o$ enact a stat7te is an eHe$cise o=*i$ect *emoc$ac4 as o//ose* to $e/$esentative *emoc$ac4. T5e s4stem o=
initiative alloBs citi:ens to *i$ectl4 /$o/ose >>>>>>>>>>>>>>>
" Sec. #0& Petitions an* initiatives b4 t5e /eo/le& 16 Am 27$ %* #0& citin State eH$el. Stenbe$ v. (ee$mann& %!0 Neb. "!& !" N.,. %* 1"1 ?1--%@.
6 )*.& citin Coalition =o$ Political +onest4 v. State (oa$* o= Elections& # )ll. %* %#6&! )ll. Dec. #6#& !1" N.E. %* #6 ?1-0@.
!1-
OL. "0"& OCTO(ER %"& %006
!1-
Lambino vs. Commission on Elections
constit7tional amen*ments =o$ t5e ene$al electo$ate to a*o/t o$ $eect at t5e /olls&/a$tic7la$l4 in a /lebiscite. ,5ile $e/$esentative ove$nment Bas envisione* to$ene an* enla$e t5e /7blic vieBs& b4 /assin t5em t5$o75 t5e me*i7m o= ac5osen bo*4 o= citi:ens& B5ose Bis*om ma4 best *isce$n t5e t$7e inte$est o= t5ei$co7nt$4& an* B5ose /at$iotism an* love o= 7stice Bill be least liel4 to sac$ice it totem/o$a$4 o$ /a$tial consi*e$ations& t5e eHe$cise o= *i$ect *emoc$ac4 t5$o75
initiative $ese$ves *i$ect laBmain /oBe$ to t5e /eo/le b4 /$ovi*in t5em amet5o* to mae neB laBs via t5e constit7tion& o$ alte$nativel4 b4 enactinstat7tes. Eo$ts o= t5e $e/$esente* to cont$ol t5ei$ $e/$esentatives t5$o75initiative 5ave been *esc$ibe* as c7$in t5e /$oblems o= *emoc$ac4 Bit5 mo$e*emoc$ac4.-
T5e Constit7tion celeb$ates t5e sove$ein $i5t o= t5e /eo/le an* *ecla$es t5atsove$eint4 $esi*es in t5e /eo/le an* all ove$nment a7t5o$it4 emanates =$omt5em.10 Unless t5e /$esent /etition is $ante*& t5is constit7tional /$inci/le Bill benot5in b7t em/t4 $5eto$ic& *evoi* o= s7bstance =o$ t5ose B5om it sees toem/oBe$.
T5e $i5t o= t5e /eo/le to /ass leislation an* to int$o*7ce c5anes to t5eConstit7tion is a =7n*amental $i5t an* m7st be ealo7sl4 7a$*e*.11 T5e /eo/les5o7l* be alloBe* to *i$ectl4 see $e*$ess o= t5e
>>>>>>>>>>>>>>>
(alit:e$& Al=$e*& T5e )nitiative an* Re=e$en*7mK A St7*4 an* Eval7ation o= Di$ectLeislation& T5e Cali=o$nia Ro7n*table 1# ?1-1@. T5e Ame$ican ;o7n*in ;at5e$s$econi:e* t5at *i$ect *emoc$ac4 /ose* a /$o=o7n* t5$eat to in*ivi*7al $i5ts an*libe$t4. T5e U.S. Constit7tion Bas *esine* to /$ovi*e a s4stem o= ove$nment t5atBo7l* /$event eit5e$ a t4$ann4 o= t5e mao$it4 o$ a t4$ann4 o= t5e =eB. 2amesMa*ison Ba$ne* aainst t5e /oBe$ o= a mao$it4 o$ a mino$it4 o= t5e /o/7lation7nite* an* act7ate* b4 some common im/7lse o= /assion& o$ o= inte$est& a*ve$se tot5e $i5ts o= ot5e$ citi:ens& o$ to t5e /e$manent an* a$eate inte$est o= t5ecomm7nit4.<
Gilbe$t +a5n Z Steven C. Mo$ton& )nitiative an* Re=e$en*7mFDo T5e4 Enco7$aeo$ )m/ai$ (ette$ State Gove$nment " ;LA. ST. U. L. RE. -%"& -% ?1-@.
Acco$*inl4& ) vote to GRANT t5e /etition in G.R. No. 1!"1#.SEPARATE CONCURR)NG OP)N)ON
CALLE2O& SR.& 2.K
) am convince* be4on* cavil t5at t5e $es/on*ent Commission on Elections?COMELEC@ *i* not commit an ab7se o= its *isc$etion in *ismissin t5e amen*e*/etition be=o$e it. T5e /$o/osals o= /etitione$s inco$/o$ate* in sai* amen*e* /etitiona$e =o$ t5e $evision o= t5e 1- Constit7tion. ;7$t5e$& t5e amen*e* /etition be=o$et5e $es/on*ent COMELEC is ins7Jcient in s7bstance.
T5e Antece*ents
On A77st %"& %006& /etitione$s Ra7l L. Lambino an* E$ico (. A7menta*o le* Bit5t5e COMELEC a /etition entitle* )N T+E MATTER O; PROPOS)NG AMENDMENTS TO
T+E 1- CONST)TUT)ON T+ROUG+ A PEOPLE<S )N)T)AT)EK A S+);T ;ROM A()CAMERAL PRES)DENT)AL TO A UN)CAMERAL PARL)AMENTAR3 GOERNMENT (3AMEND)NG ART)CLES ) AND )) AND PRO)D)NG TRANS)TOR3 PRO)S)ONS ;OR T+EORDERL3 S+);T ;ROM T+E PRES)DENT)AL TO T+E PARL)AMENTAR3 S3STEM. T5ecase Bas *ocete* as EM ?LD@806801. On A77st #0& %006& /etitione$s le* anamen*e* /etition. ;o$ b$evit4& it is $e=e$$e* to as t5e /etition =o$ initiative.
Petitione$s allee* t5e$ein& inte$ alia& t5at t5e4 le* t5ei$ /etition in t5ei$ oBn be5al= an* toet5e$ Bit5 t5ose B5o 5ave aJHe* t5ei$ sinat7$es to t5e sinat7$e s5eetsa//en*e* t5e$eto B5o a$e ;ili/ino citi:ens& $esi*ents an* $eiste$e* vote$s o= t5eP5ili//ines& an* t5e4 constit7te at least tBelve /e$cent ?1%V@ o= all t5e $eiste$e*vote$s in t5e co7nt$4& B5e$ein eac5 leislative *ist$ict is $e/$esente* b4 at leastt5$ee /e$cent ?#V@ o= all t5e $eiste$e* vote$s t5e$ein.
Petitione$s =7$t5e$ allee* t5e$ein t5at t5e lin o= t5e /etition =o$ initiative is base*on t5ei$ constit7tional $i5t to /$o/ose amen*8
Sec. ". ReI7i$ements.F?a@ To eHe$cise t5e /oBe$ H H H
?b@ A /etition =o$ an initiative on t5e 1- Constit7tion m7st 5ave at least tBelve/e$ cent7m ?1%V@ o= t5e total n7mbe$ o= $eiste$e* vote$s as sinato$ies& o= B5ic5
eve$4 leislative *ist$ict m7st be $e/$esente* b4 at least t5$ee /e$ cent7m ?#V@ o=t5e $eiste$e* vote$s t5e$ein. )nitiative on t5e Constit7tion ma4 be eHe$cise* onl4a=te$ ve ?"@ 4ea$s =$om t5e $atication o= t5e 1- Constit7tion an* onl4 onceeve$4 ve ?"@ 4ea$s t5e$ea=te$.
?c@ T5e /etition s5all state t5e =olloBinK
c.1. contents o$ teHt o= t5e /$o/ose* laB so75t to be enacte*& a//$ove* o$$eecte*& amen*e* o$ $e/eale*& as t5e case ma4 be
c.%. t5e /$o/osition
c.#. t5e $eason o$ $easons t5e$e=o$
c.!. t5at it is not one o= t5e eHce/tions /$ovi*e* 5e$ein
1. ;in*in t5e Petition to be s7Jcient /7$s7ant to Section !& A$ticle Q)) o= t5e 1-
Constit7tion%. Di$ectin t5e /7blication o= t5e Petition in ;ili/ino an* Enlis5 at least tBice inneBs/a/e$s o= ene$al an* local ci$c7lation an*
#. Callin a /lebiscite to be 5el* not ea$lie$ t5an siHt4 no$ late$ t5an ninet4 *a4sa=te$ t5e Ce$tication b4 t5is +ono$able Commission o= t5e s7Jcienc4 o= t5isPetition& to alloB t5e ;ili/ino /eo/le to eH/$ess t5ei$ sove$ein Bill on t5e/$o/osition.
Sec. %. Amen*ments to t5is Constit7tion ma4& lieBise& be *i$ectl4 /$o/ose* b4 t5e
/eo/le t5$o75 initiative& 7/on a /etition o= at least tBelve /e$ cent7m o= t5e totaln7mbe$ o= $eiste$e* vote$s& o= B5ic5 eve$4 leislative *ist$ict m7st be $e/$esente*b4 at least t5$ee /e$ cent7m o= t5e $eiste$e* vote$s t5e$ein. H H H.
T5e a=o$eI7ote* /$ovision o= t5e Constit7tion bein a non8sel=eHec7to$4 /$ovisionnee*e* an enablin laB =o$ its im/lementation. T57s& in o$*e$ to b$eat5e li=e intot5e constit7tional $i5t o= t5e /eo/le 7n*e$ a s4stem o= initiative to *i$ectl4 /$o/ose&enact& a//$ove o$ $eect& in B5ole o$ in /a$t& t5e Constit7tion& laBs& o$*inances& o$$esol7tion& Con$ess enacte* RA 6#".
+oBeve$& t5e S7/$eme Co7$t& in t5e lan*ma$ case o= Santiao v. Commission onElections st$7c *oBn t5e sai* laB =o$ bein incom/lete& ina*eI7ate& o$ Bantin inessential te$ms an* con*itions inso=a$ as initiative on amen*ments to t5eConstit7tion is conce$ne*.
T5e S7/$eme Co7$t& lieBise& *ecla$e* t5at t5is Commission s5o7l* be /e$manentl4enoine* =$om ente$tainin o$ tain coni:ance o= an4 /etition =o$ initiative onamen*ments to t5e Constit7tion 7ntil a s7Jcient laB s5all 5ave been vali*l4enacte* to /$ovi*e =o$ t5e im/lementation o= t5e s4stem.
T57s& even i= t5e sinat7$es in t5e instant Petition a//ea$ to meet t5e $eI7i$e*minim7m /e$ cent7m o= t5e total n7mbe$ o= $eiste$e* vote$s& o= B5ic5 eve$4
leislative *ist$ict is $e/$esente* b4 at least t5$ee /e$ cent7m o= t5e $eiste$e*vote$s t5e$ein& still t5e Petition cannot be iven *7e co7$se since t5e S7/$eme Co7$tcateo$icall4 *ecla$e* RA 6#" as ina*eI7ate to cove$ t5e s4stem o= initiative onamen*ments to t5e Constit7tion.
T5is Commission is not 7nmin*=7l o= t5e t$anscen*ental im/o$tance o= t5e $i5t o=t5e /eo/le 7n*e$ a s4stem o= initiative. +oBeve$& neit5e$ can Be t7$n a blin* e4e tot5e /$ono7ncement o= t5e +i5 Co7$t t5at in t5e absence o= a vali* enablin laB&t5is $i5t o= t5e /eo/le $emains not5in b7t an em/t4 $i5t& an* t5at t5is
D)SCRET)ON )N RE;US)NG TO TA9E COGN)ANCE O;& AND )N RE;US)NG TO G)EDUE COURSE TO T+E PET)T)ON ;OR )N)T)AT)E& T+ERE(3 )OLAT)NG AN EQPRESSCONST)TUT)ONAL MANDATE AND D)SREGARD)NG AND CONTRAEN)NG T+E ,)LL O;
T+E SANT)AGO RUL)NG O; 1- MARC+ 1-- )S NOT APPL)CA(LE TO T+E )NSTANTPET)T)ON ;OR )N)T)AT)E ;)LED (3 T+E PET)T)ONERS.
!%"
OL. "0"& OCTO(ER %"& %006
!%"
Lambino vs. Commission on Elections
1.
T+E ;RAMERS O; T+E CONST)TUT)ON )NTENDED TO G)E T+E PEOPLE T+E PO,ER TO PROPOSE AMENDMENTS AND T+E PEOPLE T+EMSELES ARE NO, G))NG)(RANT L);E TO T+)S CONST)TUT)ONAL PRO)S)ON
%.
PR)OR TO T+E UEST)ONED SANT)AGO RUL)NG O; 1- MARC+ 1--& T+E R)G+T O; T+E PEOPLE TO EQERC)SE T+E SOERE)GN PO,ER O; )N)T)AT)E AND RECALL +AS(EEN )NAR)A(L3 UP+ELD
#.
T+E EQERC)SE O; T+E )N)T)AT)E TO PROPOSE AMENDMENTS )S A POL)T)CALUEST)ON ,+)C+ S+ALL (E DETERM)NED SOLEL3 (3 T+E SOERE)GN PEOPLE.
P5ili//ine Rabbit (7s Lines& )nc. v. Gala7$an Z Pila$es Const$7ction Co.& G.R. No. L8#"6#0& Novembe$ %"& 1-%& 11 SCRA 66!.
Peo/le v. Co7$t o= A//eals& s7/$a.
- G.R. No. 1%#%"& Ma$c5 1-& 1--& %0 SCRA 106.
!% Lambino vs. Commission on Elections& "0" SCRA 160?%006@
!%
SUPREME COURT REPORTS ANNOTATEDLambino vs. Commission on Elections
t5e$e Bas as 4et no vali* laB enacte* b4 Con$ess to /$ovi*e =o$ t5eim/lementation o= t5e s4stem.
)t is a t$avest4 =o$ t5e Co7$t to *ecla$e t5e act o= t5e COMELEC in *en4in *7eco7$se to t5e /etition =o$ initiative as ca/$icio7s& *es/otic& o//$essive o$ B5imsicaleHe$cise o= 7*ment as is eI7ivalent to lac o= 7$is*iction. )n =act& in so *oin& t5eCOMELEC me$el4 =olloBe* o$ a//lie*& as it o75t to *o& t5e Co7$t<s $7lin inSantiao to t5e eect t5at Section %& A$ticle Q)) o= t5e Constit7tion on t5e s4stemo= initiative is a non sel=8eHec7to$4 /$ovision an* $eI7i$es an enablin laB =o$ its
im/lementation. )n $elation t5e$eto& RA 6#" Bas =o7n* b4 t5e Co7$t to beincom/lete& ina*eI7ate& o$ Bantin in essential te$ms an* con*itions toim/lement t5e constit7tional /$ovision on initiative. ConseI7entl4& t5e COMELECBas /e$manentl4 enoine* =$om ente$tainin o$ tain coni:ance o= an4 /etition=o$ initiative on amen*ments to t5e Constit7tion 7ntil a s7Jcient laB s5all 5avebeen vali*l4 enacte* to /$ovi*e =o$ t5e im/lementation o= t5e s4stem. T5e *ecisiono= t5e Co7$t En (anc inte$/$etin RA 6#" =o$ms /a$t o= t5e leal s4stem o= t5eP5ili//ines.10 An* no *oct$ine o$ /$inci/le lai* *oBn b4 t5e Co7$t En (anc ma4 bemo*ie* o$ $eve$se* eHce/t b4 t5e Co7$t En (anc&11 ce$tainl4 not b4 t5e COMELEC.Until t5e Co7$t En (anc mo*ies o$ $eve$ses its *ecision& t5e COMELEC is bo7n* to=olloB t5e same.1% As s7ccinctl4 5el* in ;7le$son v. T5om/sonK1#
,5ateve$ Bas be=o$e t5e Co7$t& an* is *is/ose* o=& is consi*e$e* as nall4 settle*. T5e in=e$io$ co7$t is bo7n* b4 t5e 7*ment o$ *ec$ee as t5e laB o= t5e case& an*m7st ca$$4 it into eHec7tion acco$*in to t5e man*ate. T5e in=e$io$ co7$t cannotva$4 it& o$ 7*iciall4 eHamine it =o$ an4 ot5e$ /7$/ose t5an eHec7tion. )t can ive noot5e$ o$ =7$t5e$ $elie= as to an4 matte$ *eci*e* b4 t5e S7/$eme Co7$t even B5e$et5e$e is e$$o$ a//a$ent o$ in an4 manne$
Lambino vs. Commission on Electionsinte$me**le Bit5 it =7$t5e$ t5an to eHec7te t5e man*ate an* settle s7c5 matte$s as5ave been $eman*e*& not a*7*icate* b4 t5e S7/$eme Co7$t].
T5e /$inci/les above state* a$e& Be t5in& concl7sivel4 establis5e* b4 t5e a7t5o$it4o= a*7*e* cases. An* an4 =7$t5e$ *e/a$t7$e =$om t5em Bo7l* inevitabl4 ma$ t5e5a$mon4 o= t5e B5ole 7*icia$4 s4stem& b$in its /a$ts into conict& an* /$o*7cet5e$ein *iso$ani:ation& *iso$*e$& an* incalc7lable misc5ie= an* con=7sion. (esi*es&an4 $7le alloBin t5e in=e$io$ co7$ts to *is$ea$* t5e a*7*ications o= t5e S7/$emeCo7$t& o$ to $e=7se o$ omit to ca$$4 t5em into eHec7tion Bo7l* be $e/7nant to t5e/$inci/les establis5e* b4 t5e constit7tion& an* t5e$e=o$e voi*.1!
At t5is /oint& it is Bell to $ecall t5e =act7al conteHt o= Santiao as Bell as t5e/$ono7ncement ma*e b4 t5e Co7$t t5e$ein. Lie /etitione$s in t5e instant case& inSantiao& Att4. 2es7s Deln& t5e Peo/le<s )nitiative =o$ Re=o$ms& Mo*e$ni:ation an*Action ?P)RMA@& et al.& invoe* Section %& A$ticle Q)) o= t5e Constit7tion as t5e4 le*Bit5 t5e COMELEC a Petition to Amen* t5e Constit7tion& to Li=t Te$m Limits o=Elective OJcials& (4 Peo/le<s )nitiative ?t5e Deln /etition@. T5e4 ase* t5eCOMELEC to iss7e an o$*e$ Hin t5e time an* *ate =o$ sinat7$e at5e$in all ove$t5e co7nt$4 ca7sin t5e necessa$4 /7blications o= sai* o$*e$ an* t5ei$ /etition inneBs/a/e$s o= ene$al an* local ci$c7lation an* inst$7ctin m7nici/al election$eist$a$s in all $eions all ove$ t5e co7nt$4 an* to assist /etitione$s in establis5insinin stations. Actin t5e$eon& t5e COMELEC iss7e* t5e o$*e$ /$a4e* =o$.
Senato$ Mi$iam Santiao& et al. =o$t5Bit5 le* Bit5 t5is Co7$t a /etition =o$/$o5ibition to enoin t5e COMELEC =$om im/lementin its o$*e$. T5e Co7$t& s/eaint5$o75 27stice +ila$io G. Davi*e& 2$. ?late$ C5ie= 27stice@& $ante* t5e /etition as it*ecla$e*K
1. RA 6#" incom/lete& ina*eI7ate& o$ Bantin in essential te$ms an* con*itionsinso=a$ as initiative on amen*ments to t5e Constit7tion is conce$ne*
%. COMELEC Resol7tion No. %#001" invali* inso=a$ as it /$esc$ibe* $7les an*$e7lations on t5e con*7ct o= initiative on amen*ments to t5e Constit7tion beca7set5e COMELEC is Bit5o7t a7t5o$it4 to /$om7late t5e $7les an* $e7lations toim/lement t5e eHe$cise o= t5e $i5t o= t5e /eo/le to *i$ectl4 /$o/ose amen*ments
to t5e Constit7tion t5$o75 t5e s4stem o= initiative an*#. T5e Deln /etition ins7Jcient as it *i* not contain t5e $eI7i$e* n7mbe$ o=sinat7$es o= $eiste$e* vote$s.
T5e Co7$t concl7*e* in Santiao t5at t5e COMELEC s5o7l* be /e$manentl4enoine* =$om ente$tainin o$ tain coni:ance o= an4 /etition =o$ initiative onamen*ments to t5e Constit7tion 7ntil a s7Jcient laB s5all 5ave been vali*l4enacte* to /$ovi*e =o$ t5e im/lementation o= t5e s4stem. T5e *is/ositive /o$tion o= t5e *ecision $ea*sK
,+ERE;ORE& 7*ment is 5e$eb4 $en*e$e*K
a@ GRANT)NG t5e instant /etition
b@ DECLAR)NG RA 6#" ina*eI7ate to cove$ t5e s4stem o= initiative on amen*mentsto t5e Constit7tion& an* to 5ave =aile* to /$ovi*e s7Jcient stan*a$* =o$ s7bo$*inateleislation
*@ ORDER)NG t5e Commission on Elections to =o$t5Bit5 D)SM)SS t5e Deln /etition?UND8-680#@.
T5e Tem/o$a$4 Rest$ainin O$*e$ iss7e* on Decembe$ 1& 1--6 is ma*e /e$manentas aainst t5e Commission on Elections& b7t is L);TED as aainst /$ivate$es/on*ents.16
T5e Co7$t $eite$ate* its $7lin in Santiao in anot5e$ /etition B5ic5 Bas le* Bit5t5e Co7$t b4 P)RMA an* t5e s/o7ses Albe$to
*ecision in Santiao is =7tile. )t bea$s st$essin t5at t5e *is/ositive /o$tion m7st notbe $ea* se/a$atel4 b7t in connection Bit5 t5e ot5e$ /o$tions o= t5e *ecision o= B5ic5it =o$ms a /a$t. To et to t5e t$7e intent an* meanin o= a *ecision& no s/ecic/o$tion t5e$eo= s5o7l* be $eso$te* to b7t t5e same m7st be consi*e$e* in itsenti$et4. +ence& a $esol7tion o$ $7lin ma4 an* *oes a//ea$ in ot5e$ /a$ts o= t5e*ecision an* not me$el4 in t5e =allo t5e$eo=.1-
T5e /$ono7ncement in t5e bo*4 o= t5e *ecision in Santiao /e$manentl4 enoinint5e COMELEC =$om ente$tainin o$ tain coni:ance o= an4 /etition =o$ initiativeon amen*ments to t5e Constit7tion 7ntil a s7Jcient laB s5all 5ave been vali*l4enacte* to /$ovi*e =o$ t5e im/lementation o= t5e s4stem is t57s as m7c5 a /a$t o=t5e Co7$t<s *ecision as its *is/ositive /o$tion. T5e $7lin o= t5is Co7$t is o= t5e
nat7$e o= an in $em 7*ment ba$$in an4 an* all ;ili/inos =$om lin a /etition =o$initiative on amen*ments to t5e Constit7tion 7ntil a s7Jcient laB s5all 5ave beenval8
*i* not constit7te t5e mao$it4 o/inion. T5is contention is 7tte$l4 baseless.
Santiao Bas conc7$$e* in& Bit5o7t an4 $ese$vation& b4 ei5t 27stices&%% o$ t5emao$it4 o= t5e membe$s o= t5e Co7$t& B5o act7all4 too /a$t in t5e *elibe$ationst5e$eon. On t5e ot5e$ 5an*& ve 27stices&%# B5ile votin =o$ t5e *ismissal o= t5eDeln /etition on t5e $o7n* o= ins7Jcienc4& *issente* =$om t5e mao$it4 o/inion ast5e4 maintaine* t5e vieB t5at RA 6#" Bas s7Jcient to im/lement t5e s4stem o=initiative.
Given t5at a clea$ mao$it4 o= t5e membe$s o= t5e Co7$t& ei5t 27stices& conc7$$e* int5e *ecision in Santiao& t5e /$ono7ncement t5e$ein t5at RA 6#" is incom/lete&ina*eI7ate& o$ Bantin in essential te$ms an* con*itions inso=a$ as initiative onamen*ments to t5e Constit7tion is conce$ne* constit7tes a *enitive $7lin on t5e
matte$.
)n t5e Resol7tion *ate* 27ne 10& 1--& t5e motions =o$ $econsi*e$ation o= t5eSantiao *ecision Be$e *enie* Bit5 nalit4 as onl4 siH 27stices& o$ less t5an t5emao$it4& vote* to $ant t5e same. T5e Resol7tion eH/$essl4 state* t5at t5e motion=o$ $econsi*e$ation =aile* to /e$s7a*e t5e $eI7isite mao$it4 o= t5e Co7$t to mo*i=4o$ $eve$se t5e Decision o= 1- Ma$c5 1-.%! )n ne& t5e /$ono7ncement inSantiao as embo*ie* in t5e Decision o= Ma$c5 1-& 1-- $emains t5e *enitive$7lin on t5e matte$.
>>>>>>>>>>>>>>>
%% T5en C5ie= 27stice An*$es R. Na$vasa& 27stices ;lo$en: D. Reala*o& ;le$i*a R7t5P. Rome$o& 2os7e N. (ellosillo& Santiao M. 9a/7nan an* 27sto P. To$$es& 2$. =7ll4conc7$$e* in t5e /onencia o= 27stice Davi*e.
)t bea$s st$essin t5at in P)RMA& /etitione$s /$a4e* =o$ t5e Co7$t to $esolve t5e iss7e/ose* b4 t5em an* to $e8eHamine its $7lin as $ea$*s RA 6#". (4 a vote o= seven
membe$s o= t5e Co7$t& incl7*in 27stice 27sto P. To$$es& 2$. an* 27stice 2ose C. it7&t5e Co7$t vote* t5at t5e$e Bas no nee* to $esolve t5e iss7e. ;ive membe$s o= t5eCo7$t o/ine* t5at t5e$e Bas a nee* =o$ t5e $e8eHamination o= sai* $7lin. T57s& t5e/$ono7ncement o= t5e Co7$t in Santiao $emains t5e laB o= t5e case an* bin*in on/etitione$s.
)=& as noB claime* b4 t5e mino$t4& t5e$e Bas no *oct$ine en7nciate* b4 t5e Co7$t inSantiao& t5e Co7$t s5o7l* 5ave $esolve* to set asi*e its o$iinal $esol7tion*ismissin t5e /etition an* to $ant t5e motion =o$ $econsi*e$ation an* t5e /etition.(7t t5e Co7$t *i* not. T5e Co7$t /ositivel4 an* 7neI7ivocall4 *ecla$e* t5at t5eCOMELEC me$el4 =olloBe* t5e $7lin o= t5e Co7$t in Santiao in *ismissin t5e/etition be=o$e it. No less t5an Senio$ 27stice Re4nato S. P7no conc7$$e* Bit5 t5e
$esol7tion o= t5e Co7$t. )t be5oove* 27stice P7no to *issent =$om t5e $7lin o= t5eCo7$t on t5e motion =o$ $econsi*e$ation o= /etitione$s /$ecisel4 on t5e $o7n* t5att5e$e Bas no *oct$ine en7nciate* b4 t5e Co7$t in Santiao. +e *i* not. Neit5e$ *i*C5ie= 27stice A$temio . Pananiban& B5o Bas a membe$ o= t5e Co7$t.
T5at RA 6#" 5as =aile* to vali*l4 im/lement t5e /eo/le<s $i5t to *i$ectl4 /$o/oseconstit7tional amen*ments t5$o75 t5e s4stem o= initiative 5a* al$ea*4 beenconcl7sivel4 settle* in Santiao as Bell as in P)RMA. +ee*in t5ese *ecisions&seve$al laBmae$s& incl7*in no less t5an Solicito$ Gene$al Antonio E*7a$*oNac57$a B5en 5e Bas t5en a membe$ o= t5e +o7se o= Re/$esentatives&%" 5ave le*se/a$ate bills to im/lement t5e s4stem o= initiative 7n*e$ Section %& A$ticle Q)) o=t5e Constit7tion.
)n t5e /$esent T5i$teent5 ?1#t5@ Con$ess& at least seven ?@ bills a$e /en*in. )n t5eSenate& t5e t5$ee ?#@ /en*in bills a$eK Senate (ill No. 11- entitle* An Act P$ovi*in=o$ Peo/le<s )nitiative to Amen* t5e Constit7tion int$o*7ce* b4 Senato$ L7isa Loi P.Ee$cito Est$a*a Senate (ill No. %1- entitle* An Act P$ovi*in =o$ Peo/le<s )nitiative
T5e $es/ective eH/lanato$4 notes o= t5e sai* Senate an* +o7se bills 7ni=o$ml4$econi:e t5at t5e$e is& to *ate& no laB to ove$n t5e /$ocess b4 B5ic5constit7tional amen*ments a$e int$o*7ce* b4 t5e /eo/le *i$ectl4 t5$o75 t5es4stem o= initiative. Ten ?10@ 4ea$s a=te$ Santiao an* absent t5e occ7$$ence o= an4com/ellin s7/e$venin event& i.e.& /assae o= a laB to im/lement t5e s4stem o=initiative 7n*e$ Section %& A$ticle Q)) o= t5e Constit7tion& t5at Bo7l* Ba$$ant t5e$eeHamination o= t5e $7lin t5e$ein& it be5ooves t5e Co7$t to a//l4 to t5e /$esentcase t5e sal7ta$4 an* Bell8$econi:e* *oct$ine o= sta$e *ecisis. As ea$lie$ s5oBn&Con$ess an* ot5e$ ove$nment aencies 5ave& in =act& abi*e* b4 Santiao. T5eCo7$t can *o no less Bit5 $es/ect to its oBn $7lin.
Cont$a$4 to t5e stance taen b4 /etitione$s& t5e vali*it4 o$ constit7tionalit4 o= a laBcannot be ma*e to *e/en* on t5e in*ivi*7al o/inions o= t5e membe$s B5o com/oseitFt5e S7/$eme Co7$t& as an instit7tion& 5as al$ea*4 *ete$mine* RA 6#" to beincom/lete& ina*eI7ate& o$ Bantin in essential te$ms an* con*itions inso=a$ asinitiative on amen*ments to t5e Constit7tion is conce$ne* an* t5e$e=o$e t5e same$emains to be so $ea$*less o= an4 c5ane in t5e Co7$t<s com/osition.%6 )n*ee*& itis vital t5at t5e$e be stabilit4 in t5e co7$ts in a*5e$in to *ecisions *elibe$atel4
ma*e a=te$ am/le consi*e$ation. Pa$ties s5o7l* not be enco7$ae* to see $e8eHamination o= *ete$mine*
>>>>>>>>>>>>>>>
%6 See Pa*a4aBon v. Sec$eta$4 o= 27stice& G.R. No. 1"!"6-& Se/tembe$ %#& %00%&#- SCRA !0.
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OL. "0"& OCTO(ER %"& %006
!#
Lambino vs. Commission on Elections
/$inci/les an* s/ec7late on 7ct7ation o= t5e laB Bit5 eve$4 c5ane in t5eeH/o7n*e$s o= it.%
P$o/osals to Revise t5e Constit7tion& As in t5e Case o= t5e Petitione$s< P$o/osal toC5ane t5e ;o$m o= Gove$nment& Cannot be Eecte* T5$o75 t5e S4stem o=)nitiative& ,5ic5 b4 EH/$ess P$ovision o= Section %& A$ticle Q)) o= t5e Constit7tion& isLimite* to Amen*ments
Even $antin a$7en*o t5e Co7$t& in t5e /$esent case& aban*ons its
/$ono7ncement in Santiao an* *ecla$es RA 6#"& taen toet5e$ Bit5 ot5e$ eHtantlaBs& s7Jcient to im/lement t5e s4stem o= initiative& still& t5e amen*e* /etition =o$initiative cannot /$os/e$. Des/ite t5e *enomination o= t5ei$ /etition& t5e /$o/osalso= /etitione$s to c5ane t5e =o$m o= ove$nment =$om t5e /$esentbicame$al/$esi*ential to a 7nicame$al8/a$liamenta$4 s4stem o= ove$nment a$eact7all4 =o$ t5e $evision o= t5e Constit7tion.
Petitione$s /$o/ose to amen* A$ticles ) an* )) o= t5e Constit7tion in t5is manne$K
A. Sections 1& %& #& !& "& 6 an* o= A$ticle ) s5all be amen*e* to $ea* as =olloBsK
Section 1. ?1@ T5e leislative an* eHec7tive /oBe$s s5all be veste* in a 7nicame$al
Pa$liament B5ic5 s5all be com/ose* o= as man4 membe$s as ma4 be /$ovi*e* b4laB& to be a//o$tione* amon t5e /$ovinces& $e/$esentative *ist$icts& an* cities inacco$*ance Bit5 t5e n7mbe$ o= t5ei$ $es/ective in5abitants& Bit5 at least t5$ee57n*$e* t5o7san* in5abitants /e$ *ist$ict& an* on t5e basis o= a 7ni=o$m an*/$o$essive $atio. Eac5 *ist$ict s5all com/$ise& as =a$ as /$acticable& conti7o7s&com/act an* a*acent te$$ito$4& an* eac5 /$ovince m7st 5ave at least one membe$.
>>>>>>>>>>>>>>>
% Lon*on St$eet T$amBa4s Co.& Lt*. v. Lon*on Co7nt4 Co7ncil& 1- A.C. #"&cite* in COOLE3& A TREAT)SE ON T+E CONST)TUT)ONAL L)M)TAT)ONS 11811.
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SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
?%@ Eac5 Membe$ o= Pa$liament s5all be a nat7$al8bo$n citi:en o= t5e P5ili//ines& atleast tBent48ve 4ea$s ol* on t5e *a4 o= t5e election& a $esi*ent o= 5is *ist$ict =o$ at
least one 4ea$ /$io$ t5e$eto& an* s5all be electe* b4 t5e I7alie* vote$s o= 5is*ist$ict =o$ a te$m o= ve 4ea$s Bit5o7t limitation as to t5e n7mbe$ t5e$eo=& eHce/tt5ose 7n*e$ t5e /a$t48list s4stem B5ic5 s5all be /$ovi*e* =o$ b4 laB an* B5osen7mbe$ s5all be eI7al to tBent4 /e$ cent7m o= t5e total membe$s5i/ comin =$omt5e /a$liamenta$4 *ist$icts.
+o7se o= Con$ess& Senato$s o$ Membe$s o= t5e +o7se o= Re/$esentativesan* +o7se o= Con$ess s5all be c5ane* to $ea* Pa$liament t5at an4 an* all
$e=e$ences t5e$ein to Membe$s o= t5e +o7se o= Re/$esentatives s5all be c5ane*to $ea* as Membe$s o= Pa$liament an* an4 an* all $e=e$ences to t5e P$esi*entan* o$ Actin P$esi*ent s5all be c5ane* to $ea* P$ime Ministe$.
inconsistent Bit5 Section 1 5e$eo=& in B5ic5 case t5e4 s5all be *eeme* amen*e* soas to con=o$m to a 7nicame$al Pa$liamenta$4 S4stem o= ove$nment /$ovi*e*&5oBeve$& t5at an4 an* all $e=e$ences t5e$ein to Con$ess& Senate& +o7se o=Re/$esentatives an* +o7ses o= Con$ess s5all be c5ane* to $ea* Pa$liamentt5at an4 an* all $e=e$ences t5e$ein to Membe$s o= Con$ess& Senato$s o$
Membe$s o= t5e +o7se o= Pa$liament an* an4 an* all $e=e$ences to t5eP$esi*ent an* o= Actin P$esi*ent s5all be c5ane* to $ea* P$ime Ministe$.
T5e 1-# Constit7tion is not a me$e amen*ment to t5e 1-#" Constit7tion. )t is acom/letel4 neB =7n*amental C5a$te$ embo*4in neB /olitical& social an* economicconce/ts.
;7$t5e$& t5e =$ame$s o= t5e Constit7tion *elibe$atel4 omitte* t5e te$m $evision inSection %& A$ticle Q)) o= t5e Constit7tion beca7se it Bas t5ei$ intention to $ese$ve
t5e /oBe$ to /$o/ose a $evision o= t5e Constit7tion to Con$ess o$ t5e constit7tionalconvention. State* in anot5e$ manne$& it Bas t5ei$ mani=est intent t5at $evisiont5e$eo= s5all not be 7n*e$taen t5$o75 t5e s4stem o= initiative. )nstea*& t5e$evision o= t5e Constit7tion s5all be *one eit5e$ b4 Con$ess o$ b4 a constit7tionalconvention.
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#0 ) RECORDS O; T+E CONST)TUT)ONAL COMM)SS)ON ##.
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OL. "0"& OCTO(ER %"& %006
!!#
Lambino vs. Commission on Elections
)t is sinicant to note t5at& o$iinall4& t5e /$ovision on t5e s4stem o= initiative Basincl7*e* in Section 1 o= t5e *$a=t A$ticle on Amen*ment o$ Revision /$o/ose* b4 t5eCommittee on Amen*ments an* T$ansito$4 P$ovisions. T5e o$iinal *$a=t /$ovi*e*K
SEC. 1. An4 amen*ment to& o$ $evision o=& t5is Constit7tion ma4 be /$o/ose*K?a@ b4 t5e National Assembl4 7/on a vote o= t5$ee8=o7$t5s o= all its membe$s o$
?b@ b4 a constit7tional convention o$
?c@ *i$ectl4 b4 t5e /eo/le t5emselves t5$7 initiative as /$ovi*e* =o$ in A$ticle >>Section >> o= t5e Constit7tion.#1
+oBeve$& a=te$ *elibe$ations an* inte$/ellations& t5e membe$s o= t5e Commissiona$ee* to $emove t5e /$ovision on t5e s4stem o= initiative =$om Section 1 an*&instea*& /7t it 7n*e$ a se/a$ate /$ovision& Section %. )t Bas eH/laine* t5at t5e$emoval o= t5e /$ovision on initiative =$om t5e ot5e$ t$a*itional mo*es o= c5anint5e Constit7tion Bas /$ecisel4 to limit t5e =o$me$ ?s4stem o= initiative@ to
amen*ments to t5e Constit7tion. )t Bas em/5asi:e* t5at t5e s4stem o= initiatives5o7l* not eHten* to $evision.
MR. SUARE. T5an 4o7& Ma*am P$esi*ent.
Ma4 Be $es/ect=7ll4 call t5e attention o= t5e Membe$s o= t5e Commission t5at/7$s7ant to t5e man*ate iven to 7s last ni5t& Be s7bmitte* t5is a=te$noon acom/lete Committee Re/o$t No. B5ic5 embo*ies t5e /$o/ose* /$ovisionove$nin t5e matte$ o= initiative. T5is is noB cove$e* b4 Section % o= t5e com/letecommittee $e/o$t. ,it5 t5e /e$mission o= t5e Membe$s& ma4 ) I7ote Section %K
T5e /eo/le ma4& a=te$ ve 4ea$s =$om t5e *ate o= t5e last /lebiscite 5el*& *i$ectl4/$o/ose amen*ments to t5is Constit7tion t5$7 initiative 7/on /etition o= at least ten
/e$cent o= t5e $eiste$e* vote$s.
T5is com/letes t5e blans a//ea$in in t5e o$iinal Committee Re/o$t No. . T5is/$o/osal Bas s7este* on t5e t5eo$4 t5at t5is matte$ o= initiative& B5ic5 cameabo7t beca7se o= t5e eHt$ao$*ina$4 *evelo/ments t5is 4ea$& 5as to be se/a$ate*=$om t5e t$a*itional mo*es o= amen*in t5e Constit7tion
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#1 )*.& at /. #1.
!!!
!!!
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
as embo*ie* in Section 1. T5e committee membe$s =elt t5at t5is s4stem o= initiatives5o7l* be limite* to amen*ments to t5e Constit7tion an* s5o7l* not eHten* to t5e$evision o= t5e enti$e Constit7tion& so Be $emove* it =$om t5e o/e$ation o= Section 1
o= t5e /$o/ose* A$ticle on Amen*ment o$ Revision. H H H#% T5e intention to eHcl7*e $evision o= t5e Constit7tion as a mo*e t5at ma4 be7n*e$taen t5$o75 t5e s4stem o= initiative Bas $eite$ate* an* ma*e clea$ b4Commissione$ S7a$e: in $es/onse to a s7estion o= Commissione$ ;elicitas AI7inoK
MR. SUARE. Section % m7st be inte$/$ete* toet5e$ Bit5 t5e /$ovisions o= Section!& eHce/t t5at in Section !& as it is /$esentl4 *$a=te*& t5e$e is no tae8o *ate =o$ t5e608*a4 an* -08*a4 /e$io*s.
MS. AU)NO. 3es. )n ot5e$ Bo$*s& Section % is anot5e$ alte$native mo*e o= /$o/osinamen*ments to t5e Constit7tion B5ic5 Bo7l* =7$t5e$ $eI7i$e t5e /$ocess o=s7bmittin it in a /lebiscite& in B5ic5 case it is not sel=eHec7tin.
MR. SUARE. No& not 7nless Be settle an* *ete$mine t5e tae8o /e$io*.
MS. AU)NO. )n B5ic5 case& ) am se$io7sl4 bot5e$e* b4 /$ovi*in t5is /$ocess o=initiative as a se/a$ate section in t5e A$ticle on Amen*ment. ,o7l* t5e s/onso$ beamenable to acce/tin an amen*ment in te$ms o= $ealinin Section % as anot5e$s7b/a$a$a/5 ?c@ o= Section 1& instea* o= settin it 7/ as anot5e$ se/a$ate sectionas i= it Be$e a sel=8eHec7tin /$ovision
MR. SUARE. ,e Bo7l* be amenable eHce/t t5at& as Be cla$ie* a B5ile ao& t5is/$ocess o= initiative is limite* to t5e matte$ o= amen*ment an* s5o7l* not eH/an*into a $evision B5ic5 contem/lates a total ove$5a7l o= t5e Constit7tion. T5at Bas t5esense conve4e* b4 t5e Committee.
MS. AU)NO. )n ot5e$ Bo$*s& t5e Committee Bas attem/tin to *istin7is5 t5e
cove$ae o= mo*es ?a@ an* ?b@ in Section 1 to incl7*e t5e /$ocess o= $evisionB5e$eas& t5e /$ocess o= initiation to amen*& B5ic5 is iven to t5e /7blic& Bo7l* onl4a//l4 to amen*ments
MR. SUARE. T5at is $i5t. T5ose Be$e t5e te$ms envisione* b4 t5e Committee.##
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#% )*.& at /. #6.
## )*.& at /. #-%.
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OL. "0"& OCTO(ER %"& %006
!!"
Lambino vs. Commission on Elections
T5en Commissione$ +ila$io P. Davi*e& 2$. ?late$ C5ie= 27stice@ also ma*e t5ecla$ication Bit5 $es/ect to t5e obse$vation o= Commissione$ Reala*o MaambonK
MR. MAAM(ONG. M4 $st I7estionK Commissione$ Davi*e<s /$o/ose* amen*menton line 1 $e=e$s to amen*ments. Does it not cove$ t5e Bo$* $evision as *ene*b4 Commissione$ Pa*illa B5en 5e ma*e t5e *istinction betBeen t5e Bo$*samen*ments an* $evision
MR. DA)DE. No& it *oes not& beca7se amen*ments an* $evision s5o7l* becove$e* b4 Section 1. So inso=a$ as initiative is conce$ne*& it can onl4 $elate toamen*ments not $evision.#!
AMENDMENTS TO T+)S CONST)TUT)ON MA3 L)9E,)SE (E D)RECTL3 PROPOSED (3 T+E PEOPLE T+ROUG+ )N)T)AT)E UPON A PET)T)ON O; AT LEAST T,ELE PERCENTO; T+E TOTAL NUM(ER O; REG)STERED OTERS O; ,+)C+ EER3 LEG)SLAT)E
D)STR)CT MUST (E REPRESENTED (3 AT LEAST T+REE PERCENT O; T+EREG)STERED OTERS T+EREO;. NO AMENDMENT UNDER T+)S SECT)ON S+ALL (EAUT+OR)ED ,)T+)N ;)E 3EARS ;OLLO,)NG T+E RAT);)CAT)ON O; T+)SCONST)TUT)ON NOR O;TENER T+AN ONCE EER3 ;)E 3EARS T+EREA;TER.
/$oce*7$es an* t5ei$ $es/ective el*s o= a//lication. )nel7ctabl4& t5e s4stem o=initiative 7n*e$ Section %& A$ticle Q)) as a mo*e o= eectin c5anes in t5eConstit7tion is st$ictl4 limite* to amen*mentsFnot to a $evisionFt5e$eo=.
As o/ine* ea$lie$& t5e =$ame$s o= t5e Constit7tion& in /$ovi*in =o$ amen*ment an*$evision as *ie$ent mo*es o= c5anin t5e =7n*amental laB& Be$e coni:ant o=
t5e *istinction betBeen t5e tBo te$ms. T5e4 /a$tic7la$l4 $elie* on t5e *istinctionma*e b4 27stice ;eliH Antonio in 5is conc7$$in o/inion in 2avellana v. EHec7tiveSec$eta$4&#" t5e cont$ove$sial *ecision B5ic5 ave im/$imat7$ to t5e 1-#Constit7tion o= =o$me$ P$esi*ent ;e$*inan* E. Ma$cos& as =olloBsK
T5e$e is clea$l4 a *istinction betBeen $evision an* amen*ment o= an eHistinconstit7tion. Revision ma4 involve a $eB$itin o= t5e B5ole constit7tion. T5e act o=amen*in a constit7tion& on t5e ot5e$ 5an*& envisaes a c5ane o= onl4 s/ecic/$ovisions. T5e intention o= an act to amen* is not t5e c5ane o= t5e enti$econstit7tion& b7t onl4 t5e im/$ovement o= s/ecic /a$ts o= t5e eHistin constit7tiono= t5e a**ition o= /$ovisions *eeme* essential as a conseI7ence o= neB con*itionso$ t5e elimination o= /a$ts al$ea*4 consi*e$e* obsolete o$ 7n$es/onsive to t5e nee*so= t5e times. T5e 1-# Constit7tion is not a me$e amen*ment to t5e 1-#"Constit7tion. )t is a com/letel4 neB =7n*amental c5a$te$ embo*4in neB /olitical&social an* economic conce/ts.#6
Ot5e$ el7ci*ation on t5e *istinction betBeen amen*ment an* $evision isenli5tenin. ;o$ eHam/le& Dean icente G. Sinco& an
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#" No. L8#61!%& Ma$c5 #1& 1-#& "0 SCRA #0.
#6 )*.& at /. #6.
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OL. "0"& OCTO(ER %"& %006
!!
Lambino vs. Commission on Elections
eminent a7t5o$it4 on /olitical laB& *istin7is5e* t5e tBo te$ms in t5is manne$K
St$ictl4 s/eain& t5e act o= $evisin a constit7tion involves alte$ations o= *ie$ent/o$tions o= t5e enti$e *oc7ment. )t ma4 $es7lt in t5e $eB$itin eit5e$ o= t5e B5oleconstit7tion& o$ t5e $eate$ /o$tion o= it& o$ /e$5a/s onl4 some o= its im/o$tant/$ovisions. (7t B5ateve$ $es7lts t5e $evisions ma4 /$o*7ce& t5e =acto$ t5atc5a$acte$i:es it as an act o= $evision is t5e o$iinal intention an* /lan a7t5o$i:e* tobe ca$$ie* o7t. T5at intention an* /lan m7st contem/late a consi*e$ation o= all t5e/$ovisions o= t5e constit7tion to *ete$mine B5ic5 one s5o7l* be alte$e* o$
s7//$esse* o$ B5et5e$ t5e B5ole *oc7ment s5o7l* be $e/lace* Bit5 an enti$el4 neBone.
T5e act o= amen*in a constit7tion& on t5e ot5e$ 5an*& envisaes a c5ane o= onl4 a=eB s/ecic /$ovisions. T5e intention o= an act to amen* is not to consi*e$ t5ea*visabilit4 o= c5anin t5e enti$e constit7tion o$ o= consi*e$in t5at /ossibilit4. T5e
intention $at5e$ is to im/$ove t5e s/ecic /a$ts o= t5e eHistin constit7tion o$ to a**to it /$ovisions *eeme* essential on acco7nt o= c5ane* con*itions o$ to s7//$ess/o$tions o= it t5at seeme* obsolete& o$ *ane$o7s& o$ mislea*in in t5ei$ eect.#
)n t5e Unite* States& t5e S7/$eme Co7$t o= Geo$ia in ,5eele$ v. (oa$* o= T$7stees# 5a* t5e occasion to mae t5e *istinction betBeen t5e tBo te$ms Bit5$es/ect to Ga.L. 1-!"& an inst$7ment B5ic5 amen*e* t5e 1 Constit7tion o=Geo$ia. )t eH/laine* t5e te$m amen*mentK
Amen*ment o= a stat7te im/lies its s7$vival an* not *est$7ction. )t $e/eals o$c5anes some /$ovision& o$ a**s somet5in t5e$eto. A laB is amen*e* B5en it is inB5ole o$ in /a$t /e$mitte* to $emain& an* somet5in is a**e* to o$ taen =$om it& o$
it is in some Ba4 c5ane* o$ alte$e* to mae it mo$e com/lete o$ /e$=ect& o$ to t itt5e bette$ to accom/lis5 t5e obect o$ /7$/ose =o$ B5ic5 it Bas ma*e& o$ some ot5e$obect o$ /7$/ose.#-
On t5e ot5e$ 5an*& t5e te$m $evision Bas eH/laine* b4 t5e sai* US a//ellateco7$tK
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# S)NCO& P+)L)PP)NEPOL)T)CAL LA, !#8!!.
# # S.E.%* #%% ?1-!6@.#- )*.& at /. ##0.
!!
!!
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
H H H ,5en a 5o7se is com/letel4 *emolis5e* an* anot5e$ is e$ecte* on t5e samelocation& *o 4o7 5ave a c5ane*& $e/ai$e* an* alte$e* 5o7se& o$ *o 4o7 5ave a neB5o7se Some o= t5e mate$ials containe* in t5e ol* 5o7se ma4 be 7se* aain& someo= t5e $ooms ma4 be const$7cte* t5e same& b7t t5is *oes not alte$ t5e =act t5at 4o75ave altoet5e$ anot5e$ o$ a neB 5o7se. ,e concl7*e t5at t5e inst$7ment ascontaine* in Ga.L. 1-!"& //. to -& incl7sive& is not an amen*ment to t5econstit7tion o= 1 b7t on t5e cont$a$4 it is a com/letel4 $evise* o$ neBconstit7tion.!0
;ai$l4 $ecentl4& ;$. 2oaI7in (e$nas& S2& a membe$ o= t5e Constit7tional Commission&eH/o7n*e* on t5e *istinction betBeen t5e tBo te$ms t57sK
An amen*ment envisaes an alte$ation o= one o$ a =eB s/ecic an* se/a$able/$ovisions. T5e 7i*in o$iinal intention o= an amen*ment is to im/$ove s/ecic/a$ts o$ to a** neB /$ovisions *eeme* necessa$4 to meet neB con*itions o$ to
s7//$ess s/ecic /o$tions t5at ma4 5ave become obsolete o$ t5at a$e 7*e* to be*ane$o7s. )n $evision& 5oBeve$& t5e 7i*in o$iinal intention an* /lan contem/latea $e8eHamination o= t5e enti$e *oc7mentFo$ o= /$ovisions o= t5e *oc7ment ?B5ic55ave ove$all im/lications =o$ t5e enti$e *oc7ment o$ =o$ t5e =7n*amental/5iloso/5ical 7n*e$/innins o= t5e *oc7ment@Fto *ete$mine 5oB an* to B5ateHtent it s5o7l* be alte$e*. T57s& =o$ instance& a sBitc5 =$om t5e /$esi*ential s4stemto a /a$liamenta$4 s4stem Bo7l* be a $evision beca7se o= its ove$all im/act on t5eenti$e constit7tional st$7ct7$e. So Bo7l* a sBitc5 =$om a bicame$al s4stem to a7nicame$al s4stem beca7se o= its eect on ot5e$ im/o$tant /$ovisions o= t5eConstit7tion.
)t is t57s clea$ t5at B5at *istin7is5es $evision =$om amen*ment is not t5e I7ant7mo= c5ane in t5e *oc7ment. Rat5e$& it is t5e =7n*amental I7alitative alte$ation t5ateects $evision. +ence& ) m7st $eect t5e /7e$ile a$7ment t5at t5e 7se o= t5e /l7$al=o$m o= amen*ments means t5at a $evision can be ac5ieve* b4 t5e int$o*7ction o= a m7lti/licit4 o= amen*ments_!1
Given t5at $evision necessa$il4 entails a mo$e com/leH& s7bstantial an* =a$8$eac5ineects on t5e Constit7tion& t5e =$ame$s t5e$eo= Bisel4 Bit55el* t5e sai* mo*e =$omt5e s4stem o= initiative. )t s5o7l* be $ecalle* t5at it too t5e =$ame$s o= t5e /$esentConstit7tion =o7$
Evi*entl4& t5e =$ame$s o= t5e Constit7tion believe* t5at a $evision t5e$eo= s5o7l*& inlie manne$& be a /$o*7ct o= t5e same eHtensive an* intensive st7*4 an* *ebates.ConseI7entl4& B5ile /$ovi*in =o$ a s4stem o= initiative B5e$e t5e /eo/le Bo7l**i$ectl4 /$o/ose amen*ments to t5e Constit7tion& t5e4 ent$7ste* t5e =o$mi*abletas o= its $evision to a *elibe$ative bo*4& t5e Con$ess o$ Constit7ent Assembl4.
T5e Constit7tion is t5e =7n*amental laB o= t5e state& containin t5e /$inci/les 7/onB5ic5 t5e ove$nment is =o7n*e*& an* $e7latin t5e *ivision o= sove$ein /oBe$s&*i$ectin to B5at /e$sons eac5 o= t5ose /oBe$s is to be con*e* an* t5e manne$ inB5ic5 it is to be eHe$cise*.!# T5e P5ili//ines 5as =olloBe* t5e Ame$icanconstit7tional leal s4stem in t5e sense t5at t5e te$m constit7tion is iven a mo$e$est$icte* meanin& i.e.& as a B$itten o$anic inst$7ment& 7n*e$ B5ic5 ove$nmental/oBe$s a$e bot5 con=e$$e* an* ci$c7msc$ibe*.!!
T5e Constit7tion $eceive* its =o$ce =$om t5e eH/$ess Bill o= t5e /eo/le. Anove$B5elmin 16&6%%&111& o7t o= %1&"&%16 votes cast *7$in t5e /lebiscite& o$6.#0V $atie* t5e /$esent Constit7tion on ;eb$7a$4 %& 1-.!" )n eH/$essin t5atBill& t5e ;ili/ino /eo/le 5ave inco$/o$ate* t5e$ein t5e met5o* an* manne$ b4 B5ic5t5e same can be amen*e* an* $evise*& an* B5en t5e electo$ate 5ave inco$/o$ate*into t5e =7n*amental laB t5e /a$tic7la$ manne$ in B5ic5 t5e same ma4 be alte$e*o$ c5ane*& t5en an4 co7$se B5ic5
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!% )nt$o*7ction to t5e 2o7$nal o= t5e Constit7tional Commission.
also betBeen tBo /$oce*7$es an* t5ei$ $es/ective el*s o= a//lication. On t5is/oint& t5e case o= Mc;a**en v. 2o$*an! is inst$7ctive. )n t5at case& a /7$/o$te*initiative amen*ment ?$e=e$$e* to as t5e /$o/ose* meas7$e@ to t5e StateConstit7tion o= Cali=o$nia& t5en bein /$o/ose* to be s7bmitte* to t5e electo$s =o$$atication& Bas so75t to be enoine*. T5e /$o/ose* meas7$e& *enominate* as
Cali=o$nia (ill o= Ri5ts& com/$ise* a sinle neB a$ticle Bit5 some %0 s7bsectionsB5ic5 Bo7l* $e/eal o$ s7bstantiall4 alte$ at least 1" o= t5e %" a$ticles o= t5eCali=o$nia State Constit7tion an* a** at least =o7$ neB to/ics. Amon t5e liel4eects o= t5e /$o/ose* meas7$e Be$e to c7$tail leislative an* 7*icial =7nctions&leali:e amin& com/letel4 $evise t5e taHation s4stem an* $e*7ce t5e /oBe$s o=cities& co7nties an* co7$ts. T5e /$o/ose* meas7$e also incl7*e* *ive$se matte$s asministe$s& mines& civic cente$s& liI7o$ cont$ol an* nat7$o/at5s.
T5e S7/$eme Co7$t o= Cali=o$nia enoine* t5e s7bmission o= t5e /$o/ose* meas7$eto t5e electo$s =o$ $atication beca7se it Bas not an amen*ment b7t a $evisionB5ic5 co7l* onl4 be /$o/ose* b4 a convention. )t 5el* t5at =$om an eHamination o=t5e /$o/ose* meas7$e itsel=& consi*e$e* in $elation to t5e te$ms o= t5e Cali=o$nia
State Constit7tion& it Bas clea$ t5at t5e /$o/ose* initiative enactment amo7nte*s7bstantiall4 to an attem/te* $evision& $at5e$ t5an
>>>>>>>>>>>>>>>
!6 See Mc(ee v. ($a*4& 1" )*a5o 61& 100 P. - ?1-0-@.
! )*.
! 1-6 P.%* ?1-!@.
!"1
OL. "0"& OCTO(ER %"& %006
!"1
Lambino vs. Commission on Elections
amen*ment& t5e$eo= an* t5at inasm7c5 as t5e Cali=o$nia State Constit7tions/ecies ?A$ticle Q))) [% t5e$eo=@ t5at it ma4 be $evise* b4 means o= constit7tionalconvention b7t *oes not /$ovi*e =o$ $evision b4 initiative meas7$e& t5e s7bmissiono= t5e /$o/ose* meas7$e to t5e electo$ate =o$ $atication m7st be enoine*.
As /ie$cinl4 en7nciate* b4 t5e Cali=o$nia State S7/$eme Co7$t in Mc;a**en& t5e*ie$entiation $eI7i$e* ?betBeen amen*ment an* $evision@ is not me$el4 betBeentBo Bo$*s mo$e acc7$atel4 it is betBeen tBo /$oce*7$es an* betBeen t5ei$$es/ective el*s o= a//lication. Eac5 /$oce*7$e& i= Be =olloB elementa$4 /$inci/leso= stat7to$4 const$7ction& m7st be 7n*e$stoo* to 5ave a s7bstantial el* o=a//lication& not to be a me$e alte$native /$oce*7$e in t5e same el*. Eac5 o= t5e
tBo Bo$*s& t5en& m7st be 7n*e$stoo* to *enote& $es/ectivel4& not onl4 a /$oce*7$eb7t also a el* o= a//lication a//$o/$iate to its /$oce*7$e.!-
P$ovisions $e7latin t5e time an* mo*e o= eectin o$anic c5anes a$e in t5enat7$e o= sa=et48valvesFt5e4 m7st not be so a*7ste* as to *isc5a$e t5ei$ /ec7lia$=7nction Bit5 too $eat =acilit4& lest t5e4 become t5e o$*ina$4 esca/e8/i/es o= /a$t4
/assion no$& on t5e ot5e$ 5an*& m7st t5e4 *isc5a$e it Bit5 s7c5 *iJc7lt4 t5at t5e=o$ce nee*e* to in*7ce action is s7Jcient also to eH/lo*e t5e mac5ine. +ence& t5e/$oblem o= t5e Constit7tion mae$ is& in t5is /a$tic7la$& one o= t5e most *iJc7lt ino7$ B5ole s4stem& to $econcile t5e $eI7isites =o$ /$o$ess Bit5 t5e $eI7isites =o$sa=et4."0
Lie in Mc;a**en& t5e /$esent /etition =o$ initiative on amen*ments to t5eConstit7tion is& *es/ite its *enomination& one =o$ its $evision. )t /7$/o$ts to see t5eamen*ment onl4 o= A$ticles ) an* )) o= t5e Constit7tion as Bell as to /$ovi*et$ansito$4 /$ovisions. +oBeve$& as Bill be s5oBn s5o$tl4& t5e amen*ment o= t5esetBo /$ovisions Bill necessa$il4 aect ot5e$ n7me$o7s /$ovisions o= t5e Constit7tion/a$tic7la$l4 t5ose /e$tainin to t5e s/ecic /oBe$s o= Con$ess an* t5e P$esi*ent.
T5ese /oBe$s Bo7l* 5ave to be t$ans=e$$e* to t5e Pa$liament an* t5e P$ime Ministe$an*Wo$ P$esi*ent& as t5e
>>>>>>>>>>>>>>>
!- )*.& at /. -.
"0 Ellin5am v. D4e& -- N.E. 1 ?1-1%@.
!"%
!"%
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
case ma4 be. Mo$e t5an one 57n*$e* ?100@ sections Bill be aecte* o$ alte$e*t5e$eb4K
%. Section % o= A$ticle ?S7$ae@ on t5e /oBe$ o= Con$ess to /$ovi*e =o$ sec7$int5e sec$ec4 an* sanctit4 o= t5e ballot as Bell as a s4stem =o$ absentee votin
#. All #% Sections o= A$ticle ) on t5e Leislative De/a$tment
!. All %# Sections o= A$ticle )) on t5e EHec7tive De/a$tment
F?(@ Section # on *7t4 o= Civil Se$vice Commission to mae ann7al $e/o$t to t5e
P$esi*ent an* Con$essF?(@ Section " on /oBe$ o= Con$ess to /$ovi*e b4 laB =o$ t5e stan*a$*i:ation o=com/ensation o= ove$nment oJcials
F?(@ Section B5ic5 /$ovi*es in /a$t t5at no /7blic oJce$ s5all acce/t& Bit5o7tt5e consent o= Con$ess& an4 /$esent& emol7ment& etc. H H H
F?C@ Section 1 on t5e /oBe$ o= t5e P$esi*ent to a//oint t5e C5ai$man an*Commissione$s o= t5e Commission on Elections Bit5 t5e consent o= t5e Commissionon A//ointments
F?C@ Section % ?@ on t5e /oBe$ o= t5e COMELEC to $ecommen* to Con$ess
meas7$es to minimi:e election s/en*in H H H!"#
OL. "0"& OCTO(ER %"& %006
!"#
Lambino vs. Commission on Elections
F?C@ Section % ?@ on t5e *7t4 o= t5e COMELEC to $ecommen* to t5e P$esi*ent t5e$emoval o= an4 oJce$ o$ em/lo4ee it 5as *e/7ti:e*& o$ t5e im/osition o= an4 ot5e$*isci/lina$4 action H H H
F?C@ Section % ?-@ on t5e *7t4 o= t5e COMELEC to s7bmit to t5e P$esi*ent an*Con$ess a $e/o$t on t5e con*7ct o= election& /lebiscite& etc.
FSection # on t5e /oBe$ o= Con$ess to enact a local ove$nment co*e
FSection ! on t5e /oBe$ o= t5e P$esi*ent to eHe$cise ene$al s7/e$vision ove$ localove$nment 7nits ?LGUs@
FSection " on t5e /oBe$ o= LGUs to c$eate t5ei$ oBn so7$ces o= income H H H&s7bect to s7c5 7i*elines as Con$ess ma4 /$ovi*e
FSection 11 on t5e /oBe$ o= Con$ess to c$eate s/ecial met$o/olitan /oliticals7b*ivisions
FSection 1! on t5e /oBe$ o= t5e P$esi*ent to /$ovi*e =o$ $eional *evelo/mentco7ncils H H H
FSection 16 on t5e /oBe$ o= t5e P$esi*ent to eHe$cise ene$al s7/e$vision ove$a7tonomo7s $eions
FSection 1 on t5e /oBe$ o= Con$ess to enact o$anic act =o$ eac5 a7tonomo7s$eion as Bell as t5e /oBe$ o= t5e P$esi*ent to a//oint t5e $e/$esentatives to t5e$eional cons7ltative commission
!"!
!"!
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
FSection 1- on t5e *7t4 o= t5e $st Con$ess electe* 7n*e$ t5e Constit7tion to /asst5e o$anic act =o$ a7tonomo7s $eions in M7slim Min*anao an* t5e Co$*ille$as.
1!. All % Sections o= A$ticle Q))) ?T$ansito$4 P$ovisions@.
T5e =o$eoin en7me$ation neates t5e claim t5at t5e bi b7l o= t5e 1-Constit7tion Bill not be aecte*."1 Petitione$s< /$o/osition& B5ile /7$/o$te*l4seein to amen* onl4 A$ticles ) an* )) o= t5e Constit7tion an* /$ovi*int$ansito$4 /$ovisions& Bill& in =act& aect& alte$& $e/lace o$ $e/eal ot5e$ n7me$o7s
a$ticles an* sections t5e$eo=. Mo$e t5an t5e I7antitative eects& 5oBeve$& t5e$eviso$4 c5a$acte$ o= /etitione$s< /$o/osition is a//a$ent =$om t5e I7alitative eectsit Bill 5ave on t5e =7n*amental laB.
) am not im/e$vio7s to t5e commenta$4 o= Dean icente G. Sinco t5at t5e $evisiono= a constit7tion& in its st$ict sense& $e=e$s to a consi*e$ation o= t5e enti$econstit7tion an* t5e /$oce*7$e =o$ eectin s7c5 c5ane B5ile amen*ment $e=e$sonl4 to /a$tic7la$ /$ovisions to be a**e* to o$ to be alte$e* in a constit7tion."%
;o$ cla$it4 an* acc7$ac4& 5oBeve$& it is necessa$4 to $eite$ate beloB Dean Sinco<smo$e com/$e5ensive *ie$entiation o= t5e te$msK
/$o*7ce& t5e =acto$ t5at c5a$acte$i:es it as an act o= $evision is t5e o$iinal intentionan* /lan a7t5o$i:e* to be ca$$ie* o7t. T5at intention an* /lan m7st contem/late aconsi*e$ation o= all t5e /$ovisions o= t5e constit7tion to *ete$mine B5ic5 one s5o7l*be alte$e* o$ s7//$esse* o$ B5et5e$ t5e B5ole *oc7ment s5o7l* be $e/lace* Bit5
an enti$el4 neB one.
T5e act o= amen*in a constit7tion& on t5e ot5e$ 5an*& envisaes a c5ane o= onl4 a=eB s/ecic /$ovisions. T5e intention o= an act to amen* is not to consi*e$ t5ea*visabilit4 o= c5anin t5e enti$e constit7tion o$ o= consi*e$in t5at /ossibilit4. T5eintention $at5e$ is to im/$ove t5e s/ecic /a$ts o= t5e eHistin constit7tion o$ to a**to it /$ovisions *eeme* essential on acco7nt o= c5ane* con*itions o$ to s7//$ess/o$tions o= it t5at seeme* obsolete& o$ *ane$o7s& o$ mislea*in in t5ei$ eect."#
a**ition o$ c5ane Bit5in t5e lines o= t5e o$iinal inst$7ment as Bill eect anim/$ovement o$ bette$ ca$$4 o7t t5e /7$/ose =o$ B5ic5 it Bas =$ame*."! As 5asbeen s5oBn& t5e eect o= t5e a*o/tion o= t5e /etitione$s< /$o/osition& $at5e$ t5an toBit5in t5e lines o= t5e o$iinal inst$7ment constit7te an im/$ovement o$ bette$ca$$4 o7t t5e /7$/ose =o$ B5ic5 it Bas =$ame*& is to s7bstantiall4 alte$ t5e /7$/ose
an* to attain obectives clea$l4 be4on* t5e lines o= t5e Constit7tion as noB cast."" To /a$a/5$ase Mc;a**en& /etitione$s< contention t5at an4 c5ane less t5an a totalone is amen*ato$4 Bo7l* $e*7ce to t5e $7bble o= abs7$*it4 t5e b7lBa$ so ca$e=7ll4e$ecte* an* /$ese$ve*. A case mi5t& conceivabl4& be /$esente* B5e$e t5e I7estionBo7l* be occasion to 7n*e$tae to *ene Bit5 nicet4 t5e line o= *ema$cation b7tBe 5ave no case o$ occasion 5e$e.
>>>>>>>>>>>>>>>
"! Mc;a**en v. 2o$*an& s7/$a note !.
"" )*.& at /. --.
!"-
OL. "0"& OCTO(ER %"& %006
!"-
Lambino vs. Commission on Elections
As s7ccinctl4 b4 ;$. 2oaI7in (e$nas& a sBitc5 =$om t5e /$esi*ential s4stem to a
/a$liamenta$4 s4stem Bo7l* be a $evision beca7se o= its ove$all im/act on t5eenti$e constit7tional st$7ct7$e. So Bo7l* a sBitc5 =$om a bicame$al s4stem to a7nicame$al s4stem beca7se o= its eect on ot5e$ im/o$tant /$ovisions o= t5eConstit7tion. )t is t57s clea$ t5at B5at *istin7is5es $evision =$om amen*ment is nott5e I7ant7m o= c5ane in t5e *oc7ment. Rat5e$& it is t5e =7n*amental I7alitativealte$ation t5at eects $evision."6
T5e /etition =o$ initiative on amen*ments to t5e Constit7tion le* b4 /etitione$sLambino& et al.& bein in t$7t5 an* in =act a /$o/osal =o$ t5e $evision t5e$eo=& isba$$e* =$om t5e s4stem o= initiative 7/on an4 leall4 /e$missible const$7ction o=Section %& A$ticle Q)) o= t5e Constit7tion.
T5e Petition =o$ )nitiative on Amen*ments to t5e Constit7tion is& on its ;ace&)ns7Jcient in ;o$m an* S7bstance
Aain& even $antin a$7en*o RA 6#" is *ecla$e* s7Jcient to im/lement t5es4stem o= initiative an* t5at COMELEC Resol7tion No. %#00& as it /$esc$ibe* $7lesan* $e7lations on t5e con*7ct o= initiative on amen*ments to t5e Constit7tion& isvali*& still& t5e /etition =o$ initiative on amen*ments to t5e Constit7tion m7st be*ismisse* =o$ bein ins7Jcient in =o$m an* s7bstance.
6. An abst$act o$ s7mma$4 /$o/osition in not mo$e t5an one 57n*$e* ?100@ Bo$*sB5ic5 s5all be leibl4 B$itten o$ /$inte* at t5e to/ o= eve$4 /ae o= t5e /etition.
Section t5e$eo= $eI7i$es t5at t5e sinat7$es be ve$ie* in t5is BiseK
SEC. . e$ication o= Sinat7$es.FT5e Election Reist$a$ s5all ve$i=4 t5e sinat7$eson t5e basis o= t5e $eist$4 list o= vote$s& vote$s< aJ*avits an* vote$s< i*enticationca$*s 7se* in t5e imme*iatel4 /$ece*in election.
T5e laB man*ates 7/on t5e election $eist$a$ to /e$sonall4 ve$i=4 t5e sinat7$es. T5is is a solemn an* im/o$tant *7t4 im/ose* on t5e election $eist$a$ B5ic5 5ecannot *eleate to an4 ot5e$ /e$son& even to ba$ana4 oJcials. +ence& ave$ication o= sinat7$es ma*e b4 /e$sons ot5e$ t5an t5e election $eist$a$s 5as noleal eect.
(a$ana4s& B5ic5 is /a$t o= t5e %n* Leislative Dist$ict o= t5e P$ovince o= Lanao *elS7$& t5e names a//ea$in on t5e attac5e* sinat7$e s5eets $elative to t5e /$o/ose*initiative on Amen*ments to t5e 1- Constit7tion& a$e t5ose o= bona*e $esi*ent o= t5e sai* (a$ana4s an* co$$es/on* to t5e names =o7n* in t5e oJcial list o=$eiste$e* vote$s o= t5e Commission on Elections an*Wo$ vote$s< aJ*avit an*Wo$
vote$s< i*entication ca$*s.)t is =7$t5e$ ce$tie* t5at t5e total n7mbe$ o= sinat7$es o= t5e $eiste$e* vote$s =o$t5e Cit4WM7nici/alit4 o= LUM(ATAN& LANAO DEL SUR as a//ea$in in t5e aJHe*sinat7$es s5eets is ONE T+OUSAND ONE +UNDRED E)G+T3 ?1&10@.
Petitione$s cannot *isclaim t5e ve$acit4 o= t5ese *amain ce$tications beca7set5e4 t5emselves s7bmitte* t5e same to t5e COMELEC an* to t5e Co7$t in t5e/$esent case to s7//o$t t5ei$ contention t5at t5e $eI7i$ements o= RA 6#" 5a* beencom/lie* Bit5 an* t5at t5ei$ /etition =o$ initiative is on its =ace s7Jcient in =o$m an*s7bstance. T5e4 a$e in t5e nat7$e o= 7*icial a*missions B5ic5 a$e concl7sive an*
bin*in on /etitione$s.- T5is bein t5e case& t5e Co7$t m7st =o$t5Bit5 o$*e$ t5e*ismissal o= t5e /etition =o$ initiative =o$ bein& on its =ace& ins7Jcient in =o$m an*s7bstance. T5e Co7$t s5o7l* mae t5e a*7*ication entaile* b4 t5e =acts 5e$e an*noB& Bit5o7t =7$t5e$ /$ocee*ins& as it 5as *one in ot5e$ cases.-
)t is a$7e* b4 /etitione$s t5at& ass7min a$7en*o t5at t5e COMELEC is co$$ect in$el4in on Santiao t5at RA 6#" is ina*eI7ate to cove$ initiative to t5eConstit7tion& t5is cannot be 7se* to leitimi:e its $e=7sal to 5ee* t5e /eo/le<s Bill.
T5e =act t5at t5e$e is no enablin laB s5o7l* not /$e7*ice t5e $i5t o= t5e sove$ein/eo/le to /$o/ose amen*ments to t5e Constit7tion& B5ic5 $i5t 5as al$ea*4 beeneHe$cise* b4 6&#%&-"% vote$s. T5e collective an* $eso7n*in act o= t5e /a$ticles o=sove$eint4 m7st not be set asi*e. +ence& t5e COMELEC s5o7l* be o$*e$e* to
com/l4 Bit5 Section !& A$ticle Q)) o= t5e 1- Constit7tion via a B$it o= man*am7s. T5e s7bmission o= /etitione$s& 5oBeve$& is 7n/e$s7asive.
Man*am7s is a /$o/e$ $eco7$se =o$ citi:ens B5o act to en=o$ce a /7blic $i5t an* tocom/el t5e /e$sons o= a /7blic *7t4 most es/eciall4 B5en man*ate* b4 t5eConstit7tion.-- +oBeve$& 7n*e$ Section #& R7le 6" o= t5e 1-- R7les o= Co7$t& =o$ a/etition =o$ man*am7s to /$os/e$& it m7st be s5oBn t5at t5e s7bect o= t5e /etitionis a ministe$ial act o$ *7t4 an* not /7$el4 *isc$etiona$4 on t5e /a$t o= t5e boa$*&oJce$ o$ /e$son& an* t5at /etitione$ 5as a Bell8*ene*& clea$ an* ce$tain $i5t toBa$$ant t5e $ant t5e$eo=. A /7$el4 ministe$ial act o$
*7t4 is one B5ic5 an oJce$ o$ t$ib7nal /e$=o$ms in a iven state o= =acts& in a/$esc$ibe* manne$& in obe*ience to t5e man*ate o= a leal a7t5o$it4& Bit5o7t $ea$*to o$ t5e eHe$cise o= 5is oBn 7*ment 7/on t5e /$o/$iet4 o$ im/$o/$iet4 o= t5e act
*one. )= t5e laB im/oses a *7t4 7/on a /7blic oJcial an* ives 5im t5e $i5t to*eci*e 5oB o$ B5en t5e *7t4 s5o7l* be /e$=o$me*& s7c5 *7t4 is *isc$etiona$4 an*not ministe$ial. T5e *7t4 is ministe$ial onl4 B5en t5e *isc5a$e o= t5e same $eI7i$esneit5e$ t5e eHe$cise o= an oJcial *isc$etion no$ 7*ment.100
To st$ess& in a /etition =o$ man*am7s& /etitione$ m7st s5oB a Bell *ene*& clea$ an*
ce$tain $i5t to Ba$$ant t5e $ant t5e$eo=.101 )n t5is case& /etitione$s =aile* toestablis5 t5ei$ $i5t to a B$it o= man*am7s as s5oBn b4 t5e =o$eoin *isI7isitions.
Reman* o= t5e Case to t5e COMELEC is Not A7t5o$i:e* b4 RA 6#" an* COMELECResol7tion No. %#00
T5e *issentin o/inion /osits t5at t5e iss7e o= B5et5e$ o$ not t5e /etition =o$initiative 5as com/lie* Bit5 t5e $eI7isite n7mbe$ o= sinat7$es o= at least tBelve/e$cent ?1%V@ o= t5e total n7mbe$ o= $eiste$e* vote$s& o= B5ic5 eve$4 leislative*ist$ict m7st be $e/$esente* b4 at least t5$ee /e$cent ?#V@ o= t5e $eiste$e* vote$st5e$ein& involves contentio7s =acts. T5e *issentin o/inion cites t5e /etitione$s<claim t5at t5e4 5ave com/lie* Bit5 t5e same B5ile t5e o//osito$s8inte$veno$s 5ave
vio$o7sl4 $e=7te* t5is claim b4 allein& inte$ alia& t5at t5e sinat7$es Be$e not/$o/e$l4 ve$ie* o$ Be$e not ve$ie* at all. Ot5e$ o//osito$s8inte$veno$s 5aveallee* t5at t5e sinato$ies *i* not =7ll4 7n*e$stan* B5at t5e4 5ave sine* as t5e4Be$e misle* into sinin t5e sinat7$e s5eets.
Acco$*in to t5e *issentin o/inion& t5e s7Jcienc4 o= t5e /etition =o$ initiative an*its com/liance Bit5 t5e $eI7i$ements o= RA 6#" on initiative an* its im/lementin$7les is a I7estion t5at s5o7l* be
>>>>>>>>>>>>>>>
100 Co*illa& S$. v. De enecia& G.R. No. 1"060"& Decembe$ 10& %00%& #-# SCRA 6#-.
$esolve* b4 t5e COMELEC at t5e $st instance. )t t57s $eman*s t5e case to t5eCOMELEC =o$ =7$t5e$ /$ocee*ins.
To m4 min*& t5e $eman* o= t5e case to t5e COMELEC is not Ba$$ante*. T5e$e isnot5in in RA 6#"& as Bell as in COMELEC Resol7tion No. %#00& $antin t5at it isvali* to im/lement t5e =o$me$ stat7te& t5at a7t5o$i:es t5e COMELEC to con*7ct an4in* o= 5ea$in& B5et5e$ =7ll8bloBn o$ t$ial8t4/e 5ea$in& s7mma$4 5ea$in o$a*minist$ative 5ea$in& on a /etition =o$ initiative.
Clea$l4& =olloBin t5e =o$eoin /$oce*7$al $7les& t5e COMELEC is not a7t5o$i:e* tocon*7ct an4 in* o= 5ea$in to $eceive an4 evi*ence =o$ o$ aainst t5e s7Jcienc4 o= t5e /etition =o$ initiative. Rat5e$& t5e =o$eoin $7les $eI7i$e o= t5e COMELEC to*ete$mine t5e s7Jcienc4 o$ ins7Jcienc4 o= t5e /etition =o$ initiative on its =ace.An* it 5as al$ea*4 been s5oBn& b4 t5e anneHes s7bmitte* b4 t5e /etitione$s
!66
!66
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
t5emselves& t5ei$ /etition is& on its =ace& ins7Jcient in =o$m an* s7bstance. T5e$eman* o= t5e case to t5e COMELEC =o$ $ece/tion o= evi*ence o= t5e /a$ties on t5econtentio7s =act7al iss7es is& in eect& an amen*ment o= t5e aboveI7ote* $7les o=t5e COMELEC b4 t5is Co7$t B5ic5 t5e Co7$t is not em/oBe$e* to *o.
T5e P$esent Petition P$esents a 27sticiable Cont$ove$s4 +ence& a Non8Political7estion. ;7$t5e$& t5e Peo/le& Actin in t5ei$ Sove$ein Ca/acit4& +ave (o7n*
T5emselves to Abi*e b4 t5e Constit7tion
Political I7estions $e=e$ to t5ose I7estions B5ic5& 7n*e$ t5e Constit7tion& a$e to be*eci*e* b4 t5e /eo/le in t5ei$ sove$ein ca/acit4& o$ in $ea$* to B5ic5 =7ll*isc$etiona$4 a7t5o$it4 5as been *eleate* to t5e leislative o$ eHec7tive b$anc5 o=ove$nment.10% A /olitical I7estion 5as tBo as/ectsK ?1@ t5ose matte$s t5at a$e to
/oBe$ is neB an* Bas not $ante* to o7$ co7$ts in t5e 1-#" an* 1-% Constit7tions.)t Bas also not He$oHe* =$om t5e US Constit7tion o$ an4 =o$ein state constit7tion.
To a $eat *e$ee& it *iminis5e* its /olitical I7estion *oct$ine 7se as a s5iel* to/$otect ot5e$ ab7ses o= ove$nment b4 alloBin co7$ts to /enet$ate t5e s5iel* Bit5
Even i= t5e /$esent /etition involves t5e act& not o= a ove$nmental bo*4& b7t o=/7$/o$te*l4 mo$e t5an siH million $eiste$e* vote$s B5o 5ave sinie* t5ei$ assent
to t5e /$o/osal to amen* t5e Constit7tion& t5e same still constit7tes a 7sticiablecont$ove$s4& 5ence& a non/olitical I7estion. T5e$e is no *o7bt t5at t5e Constit7tion&7n*e$ A$ticle Q))& 5as eH/licitl4 /$ovi*e* =o$ t5e manne$ o$ met5o* to eectamen*ments t5e$eto& o$ $evision t5e$eo=. T5e I7estion& t5e$e=o$e& o= B5et5e$ t5e$e5as been com/liance Bit5 t5e te$ms o= t5e Constit7tion is =o$ t5e Co7$t to /ass7/on.10"
10" Dissentin O/inion o= 27stice ;e$nan*o in 2avellana v. EHec7tive Sec$eta$4& s7/$anote #6.
106 11- N.,. !0 ?1-0-@.
!6
!6
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
ton v. St. Pa7l&10 Rice v. Palme$&10 (ott v. ,7$t:&10- State v. PoBell&110 amonot5e$ cases.
T5e$e is no *en4in t5at t5e P5ili//ines is a *emoc$atic an* $e/7blican State.Sove$eint4 $esi*es in t5e /eo/le an* all ove$nment a7t5o$it4 emanates =$om
t5em.111 +oBeve$& ) n* to be ten7o7s t5e asseve$ation t5at t5e a$7ment t5att5e /eo/le t5$o75 initiative cannot /$o/ose s7bstantial amen*ments to c5ane t5eConstit7tion t7$ns sove$eint4 in its 5ea*. At t5e ve$4 least& t5e s7bmissionconst$icts t5e *emoc$atic s/ace =o$ t5e eHe$cise o= t5e *i$ect sove$eint4 o= t5e/eo/le.11% )n eect& it is t5eo$i:e* t5at *es/ite t5e 7nambi7o7s teHt o= Section %&A$ticle Q)) o= t5e Constit7tion Bit55ol*in t5e /oBe$ to $evise it =$om t5e s4stem o=initiative& t5e /eo/le& in t5ei$ sove$ein ca/acit4& can convenientl4 *is$ea$* t5esai* /$ovision.
) st$onl4 tae eHce/tion to t5e vieB t5at t5e /eo/le& in t5ei$ sove$ein ca/acit4&can *is$ea$* t5e Constit7tion altoet5e$. S7c5 a vieB *i$ectl4 cont$avenes t5e=7n*amental constit7tional t5eo$4 t5at B5ile in*ee* t5e 7ltimate sove$eint4 is int5e /eo/le& =$om B5om s/$ins all leitimate a7t5o$it4 nonet5eless& b4 t5eConstit7tion B5ic5 t5e4 establis5& t5e4 not onl4 tie 7/ t5e 5an*s o= t5ei$ oJcial
aencies& b7t t5ei$ oBn 5an*s as Bell an* neit5e$ t5e oJce$s o= t5e state& no$ t5eB5ole /eo/le as an a$eate bo*4& a$e at libe$t4 to tae action in o//osition to t5is=7n*amental laB.11# T5e Constit7tion& it s5o7l* be $emembe$e*& is t5e /$otecto$o= t5e /eo/le& /lace* on 7a$* b4 t5em to save t5e $i5ts o= t5e /eo/le aainstin7$4 b4 t5e /eo/le.11! T5is is t5e essence o= constit7tionalismK
>>>>>>>>>>>>>>>
10 %% Minn. !00 ?16@.
10 -6 S.,. #-6 ?1-06@.
10- 6# N.2. LaB %-.
110 Miss. "!# ?1-00@.
111 Section 1& A$ticle ))& 1- Constit7tion.
11% Dissentin O/inion o= 27stice P7no& /. !-.
11# COOLE3& ATREAT)SE ON T+E CONST)TUT)ONAL L)M)TAT)ONS "6& cite* inEllin5am v. D4e& s7/$a.
eHten* t5e same to t5e $evision t5e$eo=. T5e /etition =o$ initiative& as it /$o/oses toeect t5e $evision t5e$eo=& cont$avenes t5e Constit7tion. T5e =7n*amental laB o=t5e state /$esc$ibes t5e limitations 7n*e$ B5ic5 t5e electo$s o= t5e state ma4c5ane t5e same& an*& 7nless s7c5 co7$se is /7$s7e*& t5e me$e =act t5at a mao$it4o= t5e electo$s a$e in =avo$ o= a c5ane an* 5ave so eH/$esse* t5emselves& *oes not
Bo$ a c5ane. S7c5 a co7$se Bo7l* be $evol7tiona$4& an* t5e Constit7tion o= t5estate Bo7l* become a me$e matte$ o= =o$m.116
T5e ve$4 te$m Constit7tion im/lies an inst$7ment o= a /e$manent an* abi*innat7$e& an* t5e /$ovisions containe* t5e$ein =o$ its $evision in*icate* t5e Bill o= t5e/eo/le t5at t5e 7n*e$l4in /$inci/les 7/on B5ic5 it $ests& as Bell as t5e s7bstantialenti$et4 o= t5e inst$7ment& s5all be o= a lie /e$manent an* abi*in nat7$e.11
T5e ;ili/ino /eo/le 5ave inco$/o$ate* t5e sa=et4 valves o= amen*ment an* $evisionin A$ticle Q)) o= t5e Constit7tion. T5e Co7$t is man*ate* to ens7$e t5at t5ese sa=et4valves embo*ie* in t5e Constit7tion to 7a$* aainst im/$ovi*ent an* 5ast4c5anes t5e$eo= a$e not easil4 t$ie* Bit5. To be s7$e& b4 5avin ove$B5elminl4$atie*
t5e Constit7tion& t5e ;ili/ino /eo/le believe* t5at it is a oo* Constit7tion an* int5e Bo$*s o= t5e lea$ne* 27*e Coole4K
H H H s5o7l* be be4on* t5e $eac5 o= tem/o$a$4 eHcitement an* /o/7la$ ca/$ice o$/assion. )t is nee*e* =o$ stabilit4 an* stea*iness it m7st 4iel* to t5e t5o75t o= t5e
/eo/le not to t5e B5im o= t5e /eo/le& o$ t5e t5o75t evolve* in eHcitement o$ 5otbloo*& b7t t5e sobe$ secon* t5o75t& B5ic5 alone& i= t5e ove$nment is to be sa=e&can be alloBe* eJcienc4. C5anes in ove$nment a$e to be =ea$e* 7nless t5ebenet is ce$tain. As Montain sa4sK All $eat m7tations s5ae an* *iso$*e$ a state.Goo* *oes not necessa$il4 s7ccee* evil anot5e$ evil ma4 s7ccee* an* Bo$se.11
$es/onsibilities involve* in t5e /$esent case& an* 5ave iven to its consi*e$ation t5eea$nest attention B5ic5 its im/o$tance *eman*s. ) 5ave so75t to maintain t5es7/$emac4 o= t5e Constit7tion at B5ateve$ 5a:a$*. ) s5a$e t5e conce$n o= C5ie=
27stice Da4 in 9oe5le$ v. +illK11- it is =o$ t5e /$otection o= mino$ities t5atconstit7tions a$e =$ame*. Sometimes constit7tions m7st be inte$/ose* =o$ t5e
/$otection o= mao$ities even aainst t5emselves. Constit7tions a$e a*o/te* in timeso= /7blic $e/ose& B5en sobe$ $eason 5ol*s 5e$ cita*el& an* a$e *esine* to c5ect5e s7$in /assions in times o= /o/7la$ eHcitement. (7t i= co7$ts co7l* be coe$ce*b4 /o/7la$ mao$ities into a *is$ea$* o= t5ei$ /$ovisions& constit7tions Bo7l*become me$e $o/es o= san*&< an* t5e$e Bo7l* be an en* o= social sec7$it4 an* o=constit7tional =$ee*om. T5e ca7se o= tem/e$ance can s7stain no in7$4 =$om t5e losso= t5is amen*ment B5ic5 Bo7l* be at all com/a$able to t5e in7$4 to $e/7blicaninstit7tions B5ic5 a violation o= t5e constit7tion Bo7l* inict. T5at la$e an*$es/ectable class o= mo$al $e=o$me$s B5ic5 so 7stl4 *eman*s t5e obse$vance an*en=o$cement o= laB& cannot ao$* to tae its $st $e=o$mato$4
>>>>>>>>>>>>>>>
11 Coole4& Am.LaB.Rev. 1-& /. #11& cite* in Ellin5am v. D4e& s7/$a.
11- 1" N.,. 60- ?1#@.
!1
OL. "0"& OCTO(ER %"& %006
!1
Lambino vs. Commission on Elections
ste/ b4 a violation o= t5e constit7tion. +oB can it consistentl4 *eman* o= ot5e$sobe*ience to a constit7tion B5ic5 it violates itsel= T5e /eo/le can in a s5o$t time$e8enact t5e amen*ment. )n t5e manne$ o= a $eat mo$al $e=o$m& t5e loss o= a =eB4ea$s is not5in. T5e constit7tion is t5e /alla*i7m o= $e/7blican =$ee*om. T5e 4o7nmen comin =o$Ba$* 7/on t5e stae o= /olitical action m7st be e*7cate* tovene$ate it t5ose al$ea*4 7/on t5e stae m7st be ta75t to obe4 it. ,5ateve$inte$est ma4 be a*vance* o$ ma4 s7e$& B5oeve$ o$ B5ateve$ ma4 be vote* 7/ o$vote* *oBn&< no sac$ileio7s 5an* m7st be lai* 7/on t5e constit7tion.1%0
,+ERE;ORE& ) vote to D)SM)SS t5e /etition in G.R. No. 1!1"# an* to GRANT t5e/etition in G.R. No. 1!%--.
Sec. #. T5e Con$ess ma4& b4 a vote o= tBo8t5i$*s o= all its Membe$s& call aconstit7tional convention& o$ b4 a mao$it4 vote o= all its Membe$s& s7bmit to t5eelecto$ate t5e I7estion o= callin s7c5 a convention.
Sec. !. An4 amen*ment to& o$ $evision o=& t5is Constit7tion 7n*e$ Section 1 5e$eo=s5all be vali* B5en $atie* b4 a mao$it4 o= t5e votes cast in a /lebiscite B5ic5 s5allbe 5el* not ea$lie$ t5an siHt4 *a4s no$ late$ t5an ninet4 *a4s a=te$ t5e a//$oval o=s7c5 amen*ment o$ $evision.
An4 amen*ment 7n*e$ Section % 5e$eo= s5all be vali* B5en $atie* b4 a mao$it4 o=t5e votes cast in a /lebiscite B5ic5 s5all be 5el* not ea$lie$ t5an siHt4 *a4s no$ late$t5an ninet4 *a4s a=te$ t5e ce$tication b4 t5e Commission on Elections o= t5es7Jcienc4 o= t5e /etition.
T5is A$ticle states t5e /$oce*7$e =o$ c5anin t5e Constit7tion.
As a $es7lt& t5e /oBe$s t5e$ein /$ovi*e* a$e calle* constit7ent /oBe$s. So B5enCon$ess acts 7n*e$ t5is /$ovision& it acts not as a leislat7$e eHe$cisin leislative/oBe$s. )t acts as a constit7ent bo*4 eHe$cisin constit7ent /oBe$s.
Acco$*inl4& since A$ticle Q)) states t5at Con$ess s5all /$ovi*e =o$ t5eim/lementation o= t5e eHe$cise o= t5e /eo/le<s $i5t *i$ectl4 to /$o/oseamen*ments to t5e Constit7tion t5$o75 initiative& t5e act o= Con$ess /7$s7antt5e$eto is not st$ictl4 a leislative action b7t /a$taes o= a constit7ent act.
!#
OL. "0"& OCTO(ER %"& %006
!#
Lambino vs. Commission on Elections
As a $es7lt& Re/7blic Act No. 6#"& t5e act t5at /$ovi*es =o$ t5e eHe$cise o= t5e/eo/le o= t5e $i5t to /$o/ose a laB o$ amen*ments to t5e Constit7tion is& Bit5$es/ect to t5e $i5t to /$o/ose amen*ments to t5e Constit7tion& a constit7ent
meas7$e& not a me$e leislative one. T5e conseI7ence o= t5is s/ecial c5a$acte$ o= t5e enactment& inso=a$ as it $elates to/$o/osin amen*ments to t5e Constit7tion& is t5at t5e $eI7i$ements =o$ stat7to$4enactments& s7c5 as s7Jcienc4 o= stan*a$*s an* t5e lie& *o not an* s5o7l* notst$ictl4 a//l4. As lon as t5e$e is a s7Jcient an* clea$ intent to /$ovi*e =o$ t5eim/lementation o= t5e eHe$cise o= t5e $i5t& it s5o7l* be s7staine*& as it is sim/l4 acom/liance o= t5e man*ate /lace* on Con$ess b4 t5e Constit7tion.
Seen in t5is li5t& t5e /$ovisions o= Re/7blic Act No. 6#" $elatin to t5e /$oce*7$e=o$ /$o/osin amen*ments to t5e Constit7tion& can an* s5o7l* be 7/5el*& *es/ites5o$tcomins /e$5a/s in leislative 5ea*ins an* stan*a$*s.
;o$ t5is $eason& ) conc7$ in t5e vieB t5at Santiao v. Comelec1 s5o7l* be $e8eHamine* an*& a=te$ *oin so& t5at t5e /$ono7ncement t5e$ein $ea$*in t5eins7Jcienc4 o$ ina*eI7ac4 o= t5e meas7$e to s7stain a /eo/le<s initiative to amen*t5e Constit7tion s5o7l* be $econsi*e$e* in =avo$ o= alloBin t5e eHe$cise o= t5issove$ein $i5t.
An* a//l4in t5e *oct$ine state* in Sena$illos v. +e$mosisima&% /enne* b4 27stice 2.(.L. Re4es& in $elation to A$ticle o= t5e Civil Co*e& t5at a *ecision o= t5is Co7$t
inte$/$etin a laB =o$ms /a$t o= t5e laB inte$/$ete* as o= t5e time o= its enactment&Re/7blic Act No. 6#" s5o7l* be *eeme* s7Jcient an* a*eI7ate =$om t5e sta$t.
T5is neHt /oint to a**$ess& t5e$e bein a s7Jcient laB& is B5et5e$ t5e /etition =o$initiative 5e$ein involve* com/lies Bit5 t5e $eI7i$ements o= t5at laB as Bell ast5ose state* in A$ticle Q)) o= t5e Constit7tion.
T$7e it is t5at o7$s is a *emoc$atic state& as eH/licitate* in t5e Decla$ation o=P$inci/les& to em/5asi:e /$ecisel4 t5at t5e$e a$e instances $econi:e* an* /$ovi*e*=o$ in t5e Constit7tion B5e$e o7$ /eo/le
S7c5 is t5e case Bit5 $es/ect to t5e /oBe$ to initiate c5anes in t5e Constit7tion. T5e /oBe$ is s7bect to limitations 7n*e$ t5e Constit7tion itsel=& t57sK T5e /oBe$co7l* not be eHe$cise* =o$ t5e $st ve 4ea$s a=te$ t5e Constit7tion too eect an*t5e$ea=te$ can onl4 be eHe$cise* once eve$4 ve 4ea$s t5e /oBe$ onl4 eHten*s to/$o/osin amen*ments b7t not $evisions an* t5e /oBe$ nee*s an act o= Con$ess/$ovi*in =o$ its im/lementation& B5ic5 act is *i$ecte* an* man*ate*.
Revisions a$e c5anes t5at aect t5e enti$e Constit7tion an* not me$e /a$ts o= it.
T5e $eason B54 $evisions a$e not alloBe* t5$o75 *i$ect /$o/osals b4 t5e /eo/let5$o75 initiative is a /$actical one& namel4& t5e$e is no one to *$a=t s7c5 eHtensivec5anes& since 6.# million /eo/le cannot conceivabl4 come 7/ Bit5 a sinle
eHtensive *oc7ment t5$o75 a *i$ect /$o/osal =$om eac5 o= t5em. Someone Bo7l*5ave to *$a=t it an* t5at is not a7t5o$i:e* as it Bo7l* not be a *i$ect /$o/osal =$omt5e /eo/le. S7c5 in*i$ect /$o/osals can onl4 tae t5e =o$m o= /$o/osals =$omCon$ess as a Constit7ent Assembl4 7n*e$ A$ticle Q))& o$ a Constit7tionalConvention c$eate* 7n*e$ t5e same /$ovision. ;7$t5e$mo$e& t5e$e is a nee* =o$ s7c5
*elibe$ative bo*ies =o$ $evisions beca7se t5ei$ /$ocee*ins an* *ebates a$e *7l4an* oJciall4 $eco$*e*& so t5at =7t7$e cases o= inte$/$etations can be /$o/e$l4 ai*e*b4 $eso$t to t5e $eco$* o= t5ei$ /$ocee*ins.
!"
OL. "0"& OCTO(ER %"& %006
!"
Lambino vs. Commission on Elections
Even a c7$so$4 $ea*in o= t5e /$o/ose* c5anes containe* in t5e /etition =o$initiative 5e$ein involve* Bill s5oB on its =ace t5at t5e /$o/ose* c5anes constit7tea $evision o= t5e Constit7tion. T5e /$o/osal is to c5ane t5e s4stem o= ove$nment=$om t5at B5ic5 is bicame$al8/$esi*ential to one t5at is 7nicame$al8/a$liamenta$4.
,5ile /7$/o$te*l4 onl4 A$ticles )& ))& an* Q))) a$e involve*& t5e =act is& as t5e/etition an* teHt o= t5e /$o/ose* c5anes t5emselves state& eve$4 /$ovision o= t5eConstit7tion Bill 5ave to be eHamine* to see i= t5e4 con=o$m to t5e nat7$e o= a7nicame$al/a$liamenta$4 =o$m o= ove$nment an* c5ane* acco$*inl4 i= t5e4 *onot so con=o$m to it. ;o$ eHam/le& A$ticle ))) on 27*icial De/a$tment cannot stan* asis& in a /a$liamenta$4 s4stem& =o$ 7n*e$ s7c5 a s4stem& t5e Pa$liament is s7/$eme&an* t57s t5e Co7$t<s /oBe$ to *ecla$e its act a $ave ab7se o= *isc$etion an* t57s
voi* Bo7l* be an anomal4.
NoB& B5o is to *o s7c5 eHamination an* B5o is to *o s7c5 c5anes an* 5oB s5o7l*t5e c5anes be Bo$*e* T5e /$o/ose* initiative *oes not sa4 B5o no$ 5oB.
Not onl4& t5e$e=o$e& is t5e /$o/ose* initiative& on t5is sco$e& a /$o5ibite* $evision b7tit also s7e$s =$om bein incom/lete an* ins7Jcient on its ve$4 =ace.
)t& t5e$e=o$e& in t5at =o$m& cannot /ass m7ste$ t5e ve$4 limits containe* in /$ovi*in=o$ t5e /oBe$ 7n*e$ t5e Constit7tion.
Neit5e$ *oes it com/l4 Bit5 Re/7blic Act No. 6#"& B5ic5 states in Section 10 t5atnot mo$e t5an one s7bect s5all be /$o/ose* as an amen*ment o$ amen*ments tot5e Constit7tion. T5e /etition 5e$ein Bo7l* /$o/ose at t5e ve$4 least tBo s7bectsFa 7nicame$al leislat7$e an* a /a$liamenta$4 =o$m o= ove$nment. Aain& =o$ t5isclea$ an* /atent violation o= t5e ve$4 act t5at /$ovi*es =o$ t5e eHe$cise o= t5e /oBe$&t5e /$o/ose* initiative cannot lie.
T5is *oes not mean& 5oBeve$& t5at all is lost =o$ /etitione$s.
;o$ t5e /$o/ose* c5anes can be se/a$ate* an* a$e& in m4 vieB& se/a$able innat7$eFa 7nicame$al leislat7$e is one a /a$liamenta$4 =o$m o= ove$nment isanot5e$. T5e $st is a me$e amen*ment an* contains onl4 one s7bect matte$. T5esecon* is clea$l4 a $evision t5at
!6
!6
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
aects eve$4 a$ticle an* eve$4 /$ovision in t5e Constit7tion to an eHtent not event5e /$o/onents co7l* at /$esent =7ll4 a$tic7late. Petitione$s Lambino& et al. t57s oabo7t /$o/osin c5anes t5e nat7$e an* eHtent o= B5ic5 t5e4 *o not as 4et noBeHactl4 B5at.
T5e /$o/osal& t5e$e=o$e& containe* in t5e /etition =o$ initiative& $ea$*in a c5anein t5e leislat7$e =$om a bicame$al o$ tBo8c5ambe$ bo*4 to t5at o= a 7nicame$al o$one8c5ambe$ bo*4& is s7stainable. T5e teHt o= t5e c5anes nee*e* to ca$$4 it o7ta$e /e$=7ncto$4 an* ministe$ial in nat7$e. Once it is limite* to t5is /$o/osal& t5ec5anes a$e sim/l4 one o= *eletion an* inse$tions& t5e Bo$*ins o= B5ic5 a$e/$acticall4 a7tomatic an* non8*isc$etiona$4.
As an eHam/le& ) attac5 to t5is o/inion an A//en*iH A s5oBin 5oB t5eConstit7tion Bo7l* $ea* i= Be Be$e to c5ane Con$ess =$om one consistin o= t5eSenate an* t5e +o7se o= Re/$esentatives to one consistin onl4 o= t5e +o7se o=Re/$esentatives. )t onl4 aects A$ticle ) on t5e Leislative De/a$tment& some
/$ovisions on A$ticle )) on t5e EHec7tive De/a$tment& as Bell as A$ticle Q) on t5eAcco7ntabilit4 o= P7blic OJce$s& an* A$ticle Q))) on T$ansito$4 P$ovisions. T5ese a$eme$e amen*ments& s7bstantial ones in*ee* b7t still onl4 amen*ments& an* t5e4a**$ess onl4 one s7bect matte$.
S7c5 /$o/osal& mo$eove$& com/lies Bit5 t5e intention an* $ationale be5in* t5e/$esent initiative& B5ic5 is to /$ovi*e =o$ sim/licit4 an* econom4 in ove$nment an*$e*7ce t5e stalemates t5at o=ten /$event nee*e* leislation.
;o$ t5e nonce& t5e$e=o$e& ) vote to D)SM)SS t5e /etition& Bit5o7t /$e7*ice to t5elin o= an a//$o/$iate initiative to /$o/ose amen*ments to t5e Constit7tion toc5ane Con$ess into a 7nicame$al bo*4. T5is is not sa4 t5at ) =avo$ s7c5 a c5ane.
Rat5e$& s7c5 a /$o/osal Bo7l* come Bit5in t5e /7$vieB o= an initiative alloBe*7n*e$ A$ticle Q)) o= t5e Constit7tion an* its im/lementin Re/7blic Act& an* s5o7l*&t5e$e=o$e& be s7bmitte* to o7$ /eo/le in a /lebiscite =o$ t5em to *eci*e in t5ei$sove$ein ca/acit4. A=te$ all is sai* an* *one& t5is is B5at *emoc$ac4 7n*e$ t5e $7leo= laB is abo7t.
Sec. 11. A Membe$ o= t5e +o7se o= Re/$esentatives s5all& in all oenses /7nis5ableb4 not mo$e t5an siH 4ea$s im/$isonment& be /$ivilee* =$om a$$est B5ile t5eCon$ess is in session. No Membe$ s5all be I7estione* no$ be 5el* liable in an4ot5e$ /lace =o$ an4 s/eec5 o$ *ebate in t5e Con$ess o$ in an4 committee t5e$eo=.
Sec. 1%. All Membe$s o= t5e +o7se o= Re/$esentatives s5all& 7/on ass7m/tion o=oJce& mae a =7ll *isclos7$e o= t5ei$ nancial an* b7siness inte$ests. T5e4 s5allnoti=4 t5e +o7se conce$ne* o= a /otential conict o= inte$est t5at ma4 a$ise =$om t5elin o= a /$o/ose* leislation o= B5ic5 t5e4 a$e a7t5o$s.
Sec. 1#. No Membe$ o= t5e +o7se o= Re/$esentatives ma4 5ol* an4 ot5e$ oJce o$em/lo4ment in t5e Gove$nment& o$ an4 s7b*ivision& aenc4& o$ inst$7mentalit4t5e$eo=& incl7*in ove$nment8oBne* o$ cont$olle* co$/o$ations o$ t5ei$s7bsi*ia$ies& *7$in 5is te$m Bit5o7t =o$=eitin 5is seat. Neit5e$ s5all 5e bea//ointe* to an4 oJce B5ic5 ma4 5ave been c$eate* o$ t5e emol7ments t5e$eo=inc$ease* *7$in t5e te$m =o$ B5ic5 5e Bas electe*.
Sec. 1!. No Membe$ o= t5e +o7se o= Re/$esentatives ma4 /e$sonall4 a//ea$ asco7nsel be=o$e an4 co7$t o= 7stice o$ be=o$e t5e Electo$al T$ib7nal& o$ I7asi87*icialan* ot5e$ a*minist$ative bo*ies. Neit5e$ s5all 5e& *i$ectl4 o$ in*i$ectl4& be inte$este*nanciall4 in an4 cont$act Bit5& o$ in an4 =$anc5ise o$ s/ecial /$ivilee $ante* b4t5e Gove$nment& o$ an4 s7b*ivision& aenc4& o$ inst$7mentalit4 t5e$eo=& incl7*inan4 ove$nment8oBne* o$ cont$olle* co$/o$ation& o$ its s7bsi*ia$4& *7$in 5is te$mo= oJce. +e s5all not inte$vene in an4 matte$ be=o$e an4 oJce o= t5e Gove$nment=o$ 5is /ec7nia$4 benet o$ B5e$e 5e ma4 be calle* 7/on to act on acco7nt o= 5isoJce.
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Sec. 16. ?1@. T5e +o7se o= Re/$esentatives s5all elect its S/eae$ b4 a mao$it4 voteo= all its Membe$s. T+E +o7se s5all c5oose s7c5 ot5e$ oJce$s as it ma4 *eemnecessa$4.
?%@ A mao$it4 o= T+E +o7se s5all constit7te a I7o$7m to *o b7siness& b7t a smalle$n7mbe$ ma4 a*o7$n =$om *a4 to *a4 an* ma4 com/el t5e atten*ance o= absentMembe$s in s7c5 manne$& an* 7n*e$ s7c5 /enalties& as T+E +o7se ma4 /$ovi*e.
?#@ T+E +o7se ma4 *ete$mine t5e $7les o= its /$ocee*ins& /7nis5 its Membe$s =o$*iso$*e$l4 be5avio$& an*& Bit5 t5e conc7$$ence o= tBo8t5i$*s o= all its Membe$s&
s7s/en* o$ eH/el a Membe$. A /enalt4 o= s7s/ension& B5en im/ose*& s5all noteHcee* siHt4 *a4s.
?!@ T+E +o7se s5all ee/ a 2o7$nal o= its /$ocee*ins& an* =$om time to time /7blis5t5e same& eHce/tin s7c5 /a$ts as ma4& in its 7*ment& aect
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OL. "0"& OCTO(ER %"& %006
!-
Lambino vs. Commission on Elections
national sec7$it4 an* t5e 4eas an* na4s on an4 I7estion s5all& at t5e $eI7est o=one8=t5 o= t5e Membe$s /$esent& be ente$e* in t5e 2o7$nal.
T+E +o7se s5all also ee/ a Reco$* o= its /$ocee*ins.
S7bsec. ?"@ *elete*.
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Sec. 1. T5e +o7se o= Re/$esentatives s5all 5ave an Electo$al T$ib7nal B5ic5 s5allbe t5e sole 7*e o= all contests $elatin to t5e election& $et7$ns& an* I7alicationso= its Membe$s. T+E Electo$al T$ib7nal s5all be com/ose* o= nine Membe$s& t5$ee o=B5om s5all be 27stices o= t5e S7/$eme Co7$t to be *esinate* b4 t5e C5ie= 27stice&an* t5e $emainin siH s5all be Membe$s o= t5e +o7se o= Re/$esentatives& B5o s5allbe c5osen on t5e basis o= /$o/o$tional $e/$esentation =$om t5e /olitical /a$ties an*t5e /a$ties o$ o$ani:ations $eiste$e* 7n*e$ t5e /a$t48list s4stem $e/$esente*
t5e$ein. T5e senio$ 27stice in t5e Electo$al T$ib7nal s5all be its C5ai$man.Sec. 1. T5e$e s5all be a Commission on A//ointments consistin o= t5e S/eae$ o=t5e +o7se& as eH oJcio C5ai$man& an* T,ENT38;OUR ?%!@ Membe$s o= t5e +o7se o= Re/$esentatives& electe* b4 T+E +o7se on t5e basis o= /$o/o$tional $e/$esentation=$om t5e /olitical /a$ties an* /a$ties o$ o$ani:ations $eiste$e* 7n*e$ t5e /a$t48lists4stem $e/$esente* t5e$ein. T5e c5ai$man o= t5e Commission s5all not vote& eHce/tin case o= a tie. T5e Commission s5all act on all a//ointments s7bmitte* to it Bit5int5i$t4 session *a4s o= t5e Con$ess =$om t5ei$ s7bmission. T5e Commission s5all$7le b4 a mao$it4 vote o= all t5e Membe$s.
Sec. 1-. T5e Electo$al T$ib7nal an* t5e Commission on A//ointments s5all be
constit7te* Bit5in t5i$t4 *a4s a=te$ t5e +o7se o= Re/$esentatives s5all 5ave beeno$ani:e* Bit5 t5e election o= t5e S/eae$. T5e Commission on A//ointments s5allmeet onl4 B5ile t5e Con$ess is in session& at t5e call o= its C5ai$man o$ a mao$it4o= all its Membe$s& to *isc5a$e s7c5 /oBe$s an* =7nctions as a$e 5e$ein con=e$$e*7/on it.
o= t5e P$esi*ent& o$ 7/on t5e $eI7est o= T+E +o7se& as t5e $7les o= T+E +o7se s5all/$ovi*e& a//ea$ be=o$e an* be 5ea$* b4 s7c5 +o7se on an4 matte$ /e$tainin tot5ei$ *e/a$tments. ,$itten I7estions s5all be s7bmitte* to t5e S/eae$ o= t5e +o7seo= Re/$esentatives at least t5$ee *a4s
!0
!0
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Electionsbe=o$e t5ei$ sc5e*7le* a//ea$ance. )nte$/ellations s5all not be limite* to B$ittenI7estions& b7t ma4 cove$ matte$s $elate* t5e$eto. ,5en t5e sec7$it4 o= t5e State o$t5e /7blic inte$est so $eI7i$es an* t5e P$esi*ent so states in B$itin& t5e a//ea$ances5all be con*7cte* in eHec7tive session.
Sec. %#. ?1@ T5e Con$ess& b4 a vote o= tBo8t5i$*s& s5all 5ave t5e sole /oBe$ to*ecla$e t5e eHistence o= a state o= Ba$.
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Sec. %! *elete*
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Sec. %". ?"@ No laB s5all be /asse* a7t5o$i:in an4 t$ans=e$ o= a//$o/$iations5oBeve$& t5e P$esi*ent& t5e S/eae$ o= t5e +o7se o= Re/$esentatives& t5e C5ie=
27stice o= t5e S7/$eme Co7$t& an* t5e 5ea*s o= Constit7tional Commissions ma4& b4laB& be a7t5o$i:e* to a7ment an4 item in t5e ene$al a//$o/$iations laB =o$ t5ei$$es/ective oJces =$om savins in ot5e$ items o= t5ei$ $es/ective a//$o/$iations.
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?%@ No bill /asse* b4 T+E +o7se s5all become a laB 7nless it 5as /asse* t5$ee$ea*ins on se/a$ate *a4s& an* /$inte* co/ies t5e$eo= in its nal =o$m 5ave been
*ist$ib7te* to its Membe$s t5$ee *a4s be=o$e its /assae& eHce/t B5en t5e P$esi*entce$ties to t5e necessit4 o= its imme*iate enactment to meet a /7blic calamit4 o$eme$enc4. U/on t5e last $ea*in o= a bill& no amen*ment t5e$eto s5all be alloBe*&an* t5e vote t5e$eon s5all be taen imme*iatel4 t5e$ea=te$& an* t5e 4eas an* na4sente$e* in t5e 2o7$nal.
Sec. %. ?1@ Eve$4 bill /asse* b4 t5e Con$ess s5all& be=o$e it becomes a laB& be/$esente* to t5e P$esi*ent. )= 5e a//$oves t5e same 5e s5all sin it ot5e$Bise& 5es5all veto it an* $et7$n t5e same Bit5 5is obections to t5e +o7se O;REPRESENTAT)ES& B5ic5 s5all ente$ t5e obections at la$e in its 2o7$nal an*/$ocee* to $econsi*e$ it. )=& a=te$ s7c5 $econsi*e$ation& tBot5i$*s o= all t5e Membe$s
o= T+E +o7se s5all a$ee to /ass t5e bill& it s5all become a laB. )n all s7c5 cases& t5evotes o= T+E +o7se s5all be *ete$mine* b4 4eas o$ na4s& an* t5e names o= t5eMembe$s votin =o$ o$ aainst s5all be ente$e* in its 2o7$nal. T5e P$esi*ent s5allcomm7nicate 5is veto o= an4 bill to t5e +o7se O; REPRESENTAT)ES Bit5in t5i$t4*a4s a=te$ t5e *ate o= $ecei/t t5e$eo=& ot5e$Bise& it s5all become a laB as i= 5e 5a*sine* it.
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!1
OL. "0"& OCTO(ER %"& %006!1
Lambino vs. Commission on Elections
ART)CLE ))
EQECUT)E DEPARTMENT
H H HSec. !. T5e $et7$ns o= eve$4 election =o$ P$esi*ent an* ice8P$esi*ent& *7l4 ce$tie*b4 t5e boa$* o= canvasse$s o= eac5 /$ovince o$ cit4& s5all be t$ansmitte* to t5eCon$ess& *i$ecte* to t5e SPEA9ER O; T+E +OUSE O; REPRESENTAT)ES. U/on$ecei/t o= t5e ce$ticates o= canvass& t5e SPEA9ER O; T+E +OUSE s5all& not late$t5an t5i$t4 *a4s a=te$ t5e *a4 o= t5e election& o/en all t5e ce$ticates in t5e/$esence o= t5e +o7se o= Re/$esentatives in /7blic session& an* t5e Con$ess& 7/on*ete$mination o= t5e a7t5enticit4 an* *7e eHec7tion t5e$eo= in t5e manne$ /$ovi*e*b4 laB& canvass t5e votes.
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Sec. . ,5e$e no P$esi*ent an* ice8P$esi*ent s5all 5ave been c5osen o$ s5all 5aveI7alie*& o$ B5e$e bot5 s5all 5ave *ie* o$ become /e$manentl4 *isable*& t5eS/eae$ o= t5e +o7se o= Re/$esentatives& s5all act as P$esi*ent 7ntil a P$esi*ent o$ aice8P$esi*ent s5all 5ave been c5osen an* I7alie*.
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Sec. . )n case o= *eat5& /e$manent *isabilit4& $emoval =$om oJce& o$ $esination o=t5e P$esi*ent& t5e ice8P$esi*ent s5all become t5e P$esi*ent to se$ve t5e 7neH/i$e*
Sec. -. ,5eneve$ t5e$e is a vacanc4 in t5e OJce o= t5e iceP$esi*ent *7$in t5ete$m =o$ B5ic5 5e Bas electe*& t5e P$esi*ent s5all nominate a ice8P$esi*ent =$omamon t5e Membe$s o= t5e +o7se o= Re/$esentatives B5o s5all ass7me oJce 7/oncon$mation b4 a mao$it4 vote o= all t5e Membe$s o= T+E +o7se.
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Sec. 11. ,5eneve$ t5e P$esi*ent t$ansmits to t5e S/eae$ o= t5e +o7se o=Re/$esentatives 5is B$itten *ecla$ation t5at 5e is 7nable to *isc5a$e t5e /oBe$san* *7ties o= 5is oJce& an* 7ntil 5e t$ansmits to t5em a B$itten *ecla$ation to t5econt$a$4& s7c5 /oBe$s an* *7ties s5all be *isc5a$e* b4 t5e ice8P$esi*ent as
Actin P$esi*ent.!%
!%
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
,5eneve$ a mao$it4 o= all t5e Membe$s o= t5e Cabinet t$ansmit to t5e S/eae$ o=t5e +o7se o= Re/$esentatives t5ei$ B$itten *ecla$ation t5at t5e P$esi*ent is 7nable
/$oclamation o= ma$tial laB o$ t5e s7s/ension o= t5e /$ivilee o= t5e B$it o= 5abeasco$/7s& t5e P$esi*ent s5all s7bmit a $e/o$t in /e$son o$ in B$itin to t5e Con$ess.
T5e Con$ess& b4 a vote o= at least a mao$it4 o= all its Membe$s in $e7la$ o$ s/ecialsession& ma4 $evoe s7c5 /$oclamation o$ s7s/ension& B5ic5 $evocation s5all not beset asi*e b4 t5e P$esi*ent. U/on t5e initiative o= t5e P$esi*ent& t5e Con$ess ma4& in
t5e same manne$& eHten* s7c5 /$oclamation o$ s7s/ension =o$ a /e$io* to be*ete$mine* b4 t5e Con$ess& i= t5e invasion o$ $ebellion s5all /e$sist an* /7blicsa=et4 $eI7i$es it.
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Sec. %1. No t$eat4 o$ inte$national a$eement s5all be vali* an* eective 7nlessconc7$$e* in b4 at least tBo8t5i$*s o= all t5e Membe$s o= t5e +OUSE O;REPRESENTAT)ES.
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ART)CLE Q)
ACCOUNTA()L)T3 O; PU(L)C O;;)CERS
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OL. "0"& OCTO(ER %"& %006
!#
Lambino vs. Commission on Elections
Sec. #. ?!@ )n case t5e ve$ie* com/laint o$ $esol7tion o= im/eac5ment is le* b4 atleast one8t5i$* o= all t5e Membe$s o= t5e +o7se& t5e same s5all constit7te t5eA$ticles o= )m/eac5ment& an* t$ial s5all =o$t5Bit5 /$ocee*.
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?6@ T5e +OUSE O; REPRESENTAT)ES s5all 5ave t5e sole /oBe$ to t$4 an* *eci*e allcases o= im/eac5ment. ,5en sittin =o$ t5at /7$/ose& t5e MEM(ERS s5all be onoat5 o$ aJ$mation. ,5en t5e P$esi*ent o= t5e P5ili//ines is on t$ial& t5e C5ie= 27sticeo= t5e S7/$eme Co7$t s5all /$esi*e& b7t s5all not vote. No /e$son s5all be convicte*Bit5o7t t5e conc7$$ence o= tBot5i$*s o= all t5e Membe$s.
Sec. !. All eHistin t$eaties o$ inte$national a$eements B5ic5 5ave not been $atie*s5all not be $eneBe* o$ eHten*e* Bit5o7t t5e conc7$$ence o= at least tBo8t5i$*s o=all t5e Membe$s o= t5e +OUSE O; REPRESENTAT)ES.
Sec. %". A=te$ t5e eH/i$ation in 1--1 o= t5e A$eement betBeen t5e Re/7blic o= t5eP5ili//ines an* t5e Unite* States o= Ame$ica conce$nin milita$4 bases& =o$einmilita$4 bases& t$oo/s& o$ =acilities s5all not be alloBe*
!!
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SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
in t5e P5ili//ines eHce/t 7n*e$ a t$eat4 *7l4 conc7$$e* in b4 t5e +OUSE O;REPRESENTAT)ES an*& B5en t5e Con$ess so $eI7i$es $atie* b4 a mao$it4 o= t5evotes cast b4 t5e /eo/le in a national $e=e$en*7m 5el* =o$ t5at /7$/ose& an*$econi:e* as a t$eat4 b4 t5e ot5e$ cont$actin State. H H H
SEPARATE OP)N)ON
T)NGA& 2.K
) oin in =7ll t5e o/inion o= Senio$ Associate 27stice P7no. )ts enviable san8=$oi*&inimitable l7ci*it4& an* l7mino7s sc5ola$s5i/ a$e all so c5a$acte$istic o= t5e a7t5o$t5at it is 5a$*l4 a Baste o= /en an* in to B$ite se/a$atel4 i= onl4 to eH/$ess m4
*ee/ a*mi$ation =o$ 5is *isI7isition. )t is com/ellin beca7se it *e$ives =$om t5e=7n*amental *emoc$atic o$*inance t5at sove$eint4 $esi*es in t5e /eo/le& an* itsees to eect7ate t5at /$inci/le t5$o75 t5e act7al em/oBe$ment o= t5e sove$ein/eo/le. 27stice P7no<s o/inion Bill in t5e s5o$t te$m enen*e$ $eactions on itsim/act on /$esent attem/ts to amen* t5e Constit7tion& b7t once t5e /olitical
/assion o= t5e times 5ave been s5o$n& it Bill en*7$e as an 7neI7ivocal messae tot5e taonba4an t5at t5e4 a$e to be t$7ste* to c5a$t t5e co7$se o= t5ei$ =7t7$e.
Not5in t5at ) insc$ibe Bill im/$ove on 27stice P7no<s o/inion. ) onl4 B$ite se/a$atel4to 5i5li5t a =eB ot5e$ /oints B5ic5 also in=o$m m4 vote to $ant t5e /etitions.
).
) a$ee Bit5 27stice P7no t5at Santiao v. COMELEC1 an* P)RMA v. COMELEC% 5a*not acI7i$e* val7e as /$ece*ent an* s5o7l* be $eve$se* in an4 case. ) a** t5at t5eCo7$t 5as lon been min*=7l o= t5e $7le t5at it necessitates a mao$it4& an* notme$el4 a /l7$alit4& in o$*e$ t5at a *ecision can stan* as /$ece*ent. T5at /$inci/le5as in=o$me* t5e membe$s o= t5is Co7$t as t5e4 *elibe$ate* an* vote* 7/on
contentio7s /etitions& even i= t5is consi*e$ation is not 7ltimatel4 $eecte* on t5enal *$a=t $elease* =o$ /$om7lation.
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1 G.R. No. 1%#%"& 1- Ma$c5 1--& %0 SCRA 106.
% G.R. No. 1%-"!& %# Se/tembe$ 1--.
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OL. "0"& OCTO(ER %"& %006
!"
Lambino vs. Commission on Elections
T5e c7$io7s tBist to Santiao an* P)RMA is t5at =o$ all t5e *eni$ation 5ea/e* 7/onRe/. Act No. 6#" in t5ose cases& t5e Co7$t *i* not invali*ate an4 /$ovision o= t5estat7te. All t5e Co7$t sai* t5en Bas t5at t5e laB Bas ina*eI7ate. Since t5isina*eI7ate laB Bas not ann7lle* b4 t5e Co7$t& o$ $e/eale* b4 Con$ess& it$emaine* /a$t o= t5e stat7te boos.#
) maintain t5at even i= Re/. Act No. 6#" is t$7l4 ina*eI7ate& t5e Co7$t in Santiaos5o7l* not 5ave sim/l4 let t5e ins7Jcienc4 stan* iven t5at it Bas not min*e* toinvali*ate t5e laB itsel=. A$ticle - o= t5e Civil Co*e /$ovi*es t5at no 7*e o$ co7$ts5all *ecline to $en*e$ 7*ment b4 $eason o= t5e silence& obsc7$it4 o$ ins7Jcienc4o= t5e laBs.! As eH/laine* b4 t5e Co7$t $ecentl4 in Re4es v. Lim&" A$ticle - calls=o$ t5e a//lication o= eI7it4& B5ic5& in t5e $eve$e* 27stice Ca$*o:o<s Bo$*s& llst5e o/en s/aces in t5e laB.<6 Ce$tainl4& an4 co7$t t5at $e=7ses to $7le on an action/$emise* on Re/. Act No. 6#" on t5e $o7n* t5at t5e laB is ina*eI7ate Bo7l*
5ave been =o7n* in $ave ab7se o= *isc$etion. T5e /$evio7s =ail7$e b4 t5e Co7$t toll t5e o/en s/aces in Santiao =7$t5e$ 5i5li5ts t5at *ecision<s stat7s as an7n=o$t7nate abe$$ation.
) am min*=7l o= t5e nee* to $es/ect sta$e *ecisis& to t5e /oint o= 5avin $ecentl4*ec$ie* a mao$it4 $7lin t5at Bas clea$l4 min*e* to $eve$se seve$al /$ece*ents b7t
$e=7se* to eH/licitl4 sa4 so. 3et t5e
>>>>>>>>>>>>>>>
# Petitione$ A7menta*o a/tl4 $e=e$s to t5e comment o= t5e late Senato$ Ra7l Rocot5at t5e Santiao $7lin c$eate* a t5i$* s/ecie o= invali* laBs& a mon$el t4/e o=constit7tional b7t ina*eI7ate an*& t5e$e=o$e& invali* laB. Memo$an*7m =o$A7menta*o& /. "!.
$7lin in AI7ino& 2$. vs. Milita$4 Commission& 6# SCRA "!6& Ma4 -& 1-"& B5ic5$econi:e* t5e 7$is*iction o= milita$4 t$ib7nals to t$4 civilians =o$ oenses allee*l4committe* *7$in ma$tial laB. T5e Co7$t lieBise $eve$se* itsel= in EPA vs. D7la4&1!- SCRA #0"& A/$il %-& 1-& B5en it vacate* its ea$lie$ $7lin in National +o7sinA7t5o$it4 vs. Re4es& 1%# SCRA %!"& 27ne %-& 1-#& on t5e vali*it4 o= ce$tain/$esi*ential
!
OL. "0"& OCTO(ER %"& %006
!Lambino vs. Commission on Elections
Santiao establis5e* a tenet t5at t5e S7/$eme Co7$t ma4 aJ$m a laB asconstit7tional& 4et *ecla$e its /$ovisions as ina*eI7ate to accom/lis5 t5e leislative/7$/ose& t5en ba$$e* t5e en=o$cement o= t5e laB. T5at $7lin is e$$oneo7s& illoical&an* s5o7l* not be /e$/et7ate*.11
not inconsistent Bit5 o$ =o$ein to t5e ene$al s7bect& an* ma4 be consi*e$e* in=7$t5e$ance o= s7c5 s7bect b4 /$ovi*in =o$ t5e met5o* an* means o= ca$$4in o7tt5e ene$al obect.%1
T5e /$ece*ents ove$nin t5e one8s7bect& one8title $7le 7n*e$ t5e Constit7tions5o7l* a//l4 as Bell in t5e inte$/$etation o= Section 10 o= Re/. Act No. 6#". ;o$ as
lon as it can be establis5e* t5at an initiative /etition emb$aces a sinle ene$als7bect& t5e /etition ma4 be alloBe* no matte$ t5e n7mbe$ o= constit7tional/$ovisions /$o/ose* =o$ amen*ment i= t5e amen*ments a$e e$mane to t5e s7becto= t5e /etition.
(ot5 t5e SiaB n (a4an an* t5e Lambino initiative /etitions eH/$essl4 /$o/ose t5ec5anin o= t5e =o$m o= ove$nment =$om bicame$al8/$esi*ential to 7nicame$al8/a$liamenta$4. S7c5 a /$o/osal ma4 st$ie as com/$e5ensive& necessitatin as it Billt5e $eo$ani:ation o= t5e eHec7tive an* leislative b$anc5es o= ove$nment&neve$t5eless it inel7ctabl4 encom/asses onl4 a sinle ene$al s7bect still.
T5e 1- Constit7tion ?o$ an4 constit7tion =o$ t5at matte$@ is s7sce/tible to *ivision
into seve$al ene$al s/5e$es. To cite t5e b$oa*est o= t5ese s/5e$es b4 Ba4 o=eHam/le& A$ticle ))) en7me$ates t5e 7a$antee* $i5ts o= t5e /eo/le 7n*e$ t5e (ill o= Ri5ts A$ticles )& )) an* ))) /$ovi*e =o$ t5e o$ani:ational st$7ct7$e o=ove$nment B5ile A$ticles ))& Q))& Q))) Z Q)& Q an* Q) en7nciate /olic4 /$inci/leso= t5e State. ,5at Bo7l* clea$l4 be /$o5ibite* 7n*e$ Section 10 o= Re/. Act No.6#" is an initiative /etition t5at sees to amen* /$ovisions B5ic5 *o not belon tot5e same s/5e$e. ;o$ eHam/le& 5a* a sinle initiative /etition so75t not onl4 toc5ane t5e =o$m o= ove$nment =$om /$esi*ential to /a$liamenta$4 b7t also toamen* t5e (ill o= Ri5ts& sai* /etition Bo7l* a$7abl4 5ave been ba$$e* 7n*e$Section 10& as t5at /etition ostensibl4 emb$aces mo$e t5an one s7bect& Bit5 eac5s7bect bea$in no =7nctional $elation to t5e ot5e$. (7t t5at is not t5e case Bit5 t5e
/$esent initiative /etitions. >>>>>>>>>>>>>>>
%1 See Tio v. i*eo$am Re7lato$4 (oa$*& G.R. No. L8"6-& 1 27ne 1-& 1"1SCRA %0& %1!8%1" citin P7blic Se$vice Co.& RectenBal*& %-0 )ll. #1!& A.L.R.!66& !0. See also ;a$iYas v. EHec7tive Sec$eta$4& G.R. Nos. 1!# Z 1"%161& 10Decembe$ %00#& !1 SCRA "0#& "1-.
!-0
!-0
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
Neit5e$ can it be a$7e* t5at t5e initiative /etitions emb$ace mo$e t5an one s7bectsince t5e /$o/ose* amen*ments see to aect tBo se/a$ate b$anc5es o=
ove$nment. T5e ve$4 /7$/ose o= t5e initiative /etitions is to =7se t5e /oBe$s o= t5eeHec7tive an* leislative b$anc5es o= ove$nment 5ence& t5e amen*mentsinten*e* to eect s7c5 ene$al intent necessa$il4 aects t5e tBo b$anc5es. )= it$eI7i$e* t5at to /$o/ose a s5i=t in ove$nment =$om /$esi*ential to /a$liamenta$4&t5e amen*ments to A$ticle )) ?EHec7tive ($anc5@ 5ave to be se$eate* to a
*ie$ent /etition =$om t5at B5ic5 Bo7l* /$o/ose amen*ments to A$ticle )?Leislative ($anc5@& t5en t5e $es7lt Bo7l* be tBo initiative /etitionsFbot5 s7bectto se/a$ate a7t5entications& consi*e$ation an* even /lebiscites& all to eect oneene$al /$o/osition. T5is scena$io& B5ic5 ente$tains t5e /ossibilit4 t5at one /etitionBo7l* 7ltimatel4 =ail B5ile t5e ot5e$ s7ccee*s& co7l* t57s alloB =o$ t5e $is t5at t5eeHec7tive b$anc5 co7l* be abolis5e* Bit5o7t t$ans=e$$in eHec7tive /oBe$ to t5eleislative b$anc5. An abs7$* $es7lt& in*ee*.
) am not even enti$el4 com=o$table Bit5 t5e t5eo$etical 7n*e$/innins o= Section 10. T5e Constit7tion in*7bitabl4 $ants t5e /eo/le t5e $i5t to see amen*ment o= t5ec5a$te$ t5$o75 initiative& an* man*ates Con$ess to /$ovi*e =o$ t5eim/lementation o= t5e eHe$cise o= t5is $i5t. )n *oin so& Con$ess ma4 not $est$ict
t5e $i5t to initiative on $o7n*s t5at a$e not /$ovi*e* =o$ in t5e Constit7tion. )= =o$eHam/le t5e im/lementin laB also /$ovi*es t5at ce$tain /$ovisions o= t5eConstit7tion ma4 not be amen*e* t5$o75 initiative& t5at /$o5ibition s5o7l* not bes7staine*. Con$ess is tase* Bit5 t5e im/lementation& an* not t5e $est$iction o=t5e $i5t to initiative.
T5e one8s7bect $eI7i$ement 7n*e$ Section 10 is not /$ovi*e* =o$ as a ba$ toamen*ment 7n*e$ t5e Constit7tion. A$7ments can be s7//lie* =o$ t5e me$it o=s7c5 a $eI7i$ement& since it Bo7l* ao$* a meas7$e o= o$*e$liness B5en t5e vitalI7estion o= amen*in t5e Constit7tion a$ises. T5e one8s7bect $eI7i$ement *oesalloB t5e vote$s =oc7s B5en *elibe$atin B5et5e$ o$ not to vote =o$ t5eamen*ments. T5ese =acto$s o= *esi$abilit4 nonet5eless =ail to *et$act =$om t5e =actt5at t5e one8s7bect $eI7i$ement im/oses an a**itional $est$iction on t5e $i5t toinitiative not contem/late* b4 t5e Constit7tion. S5o$t o= invali*atin t5e$eI7i$ement& a bette$ co7$se o= action Bo7l* be to
!-1
OL. "0"& OCTO(ER %"& %006
!-1
Lambino vs. Commission on Elections
insist 7/on its libe$al inte$/$etation. A=te$ all& t5e Co7$t 5as consistentl4 a*5e$e* toa libe$al inte$/$etation o= t5e one8s7bect& one8title $7le.%% T5e$e is no ca7se toa*o/t a st$icte$ inte$/$etative $7le Bit5 $ea$* to t5e one8s7bect $7le 7n*e$ Section10 o= Re/. Act No. 6#".
D7$in t5e 5ea$in on t5e /etitions& t5e a$7ment Bas $aise* t5at /$ovisions o= t5eConstit7tion amen*e* t5$o75 initiative Bo7l* not 5ave t5e benet o= a $e=e$enceso7$ce =$om t5e $eco$* o= a *elibe$ative bo*4 s7c5 as Con$ess o$ a constit7tionalconvention. )t Bas s7bmitte* t5at t5is consi*e$ation in7ence* t5e Constit7tionalCommission as it *$a=te* Section %& A$ticle Q))& B5ic5 eH/$essl4 /$ovi*e* t5at onl4
amen*ments& an* not $evisions& ma4 be t5e s7bect o= initiative /etitions. T5is a$7ment clea$l4 /$ocee*s =$om a /$emise t5at acco$*s s7/$eme val7e to t5e$eco$* o= *elibe$ations o= a constit7tional convention o$ commission in t5einte$/$etation o= t5e c5a$te$. 3et i= t5e absence o= a $eco$* o= *elibe$ations stan*s asso se$io7s a aB as to invali*ate o$ const$ict /$ocesses B5ic5 c5ane a constit7tiono$ its /$ovisions& t5en t5e enti$e initiative /$ocess a7t5o$i:e* b4 t5e Constit7tions5o7l* be sca$let8ma$e* as Bell.
Even i= t5is /osition can be iven an4 Bei5t in t5e consi*e$ation o= t5ese /etitions&) Bo7l* lie to /oint o7t t5at $eso$t to t5e $eco$*s o= *elibe$ations is onl4 one o=man4 ai*s to constit7tional const$7ction. ;o$ one& it s5o7l* be ab5o$$e* i= t5e/$ovision 7n*e$ st7*4 is itsel= clea$& /lain& an* =$ee =$om ambi7it4. As t5e Co7$t5el* in Civil Libe$ties Union v. EHec7tive Sec$eta$4K%#
,5ile it is /e$missible in t5is 7$is*iction to cons7lt t5e *ebates an* /$ocee*ins o=t5e constit7tional convention in o$*e$ to a$$ive at t5e $eason an* /7$/ose o= t5e$es7ltin Constit7tion& $eso$t t5e$eto ma4 be 5a* onl4
>>>>>>>>>>>>>>>
%% As a /olic4& t5is Co7$t 5as a*o/te* a libe$al const$7ction o= t5e one titleFones7bect $7le. Tata* v. Sec$eta$4 o= De/a$tment o= Ene$4& #!6 P5il. #%1& #"- %%
SCRA ##& #!- ?1--@.%# Civil Libe$ties Union v. EHec7tive Sec$eta$4& G.R. Nos. #-6 Z #1" %%;eb$7a$4 1--1& 1-! SCRA #1.
!-%
!-%
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
B5en ot5e$ 7i*es =ail as sai* /$ocee*ins a$e /oBe$less to va$4 t5e te$ms o= t5eConstit7tion B5en t5e meanin is clea$. Debates in t5e constit7tional conventiona$e o= val7e as s5oBin t5e vieBs o= t5e in*ivi*7al membe$s& an* as in*icatin t5e$easons =o$ t5ei$ votes& b7t t5e4 ive 7s no li5t as to t5e vieBs o= t5e la$emao$it4 B5o *i* not tal . . . ,e t5in it sa=e$ to const$7e t5e constit7tion =$omB5at a//ea$s 7/on its =ace.%!
Even i= t5e$e is nee* to $e=e$ to eHt$insic so7$ces in ai* o= constit7tionalinte$/$etation& t5e constit7tional $eco$* *oes not /$ovi*e t5e eHcl7sive o$ *enitiveansBe$ on 5oB to inte$/$et t5e /$ovision. T5e intent o= a constit7tional convention isnot cont$ollin b4 itsel=& an* B5ile t5e 5isto$ical *isc7ssion on t5e oo$ o= t5econstit7tional convention is val7able& it is not necessa$il4 *ecisive. T5e Co7$t 5as
even 5el* in e$a v. Avelino%" t5at t5e /$ocee*ins o= t5e constit7tionalconvention a$e less concl7sive o= t5e /$o/e$ const$7ction o= t5e =7n*amental laBt5an a$e leislative /$ocee*ins o= t5e /$o/e$ const$7ction o= a stat7te& since in t5elatte$ case it is t5e intent o= t5e leislat7$e t5at co7$ts see& B5ile in t5e =o$me$co7$ts a$e en*eavo$in to a$$ive at t5e intent o= t5e /eo/le t5$o75 t5e *isc7ssionsan* *elibe$ations o= t5ei$ $e/$esentatives.%6 T5e /$o/e$ inte$/$etation o= aconstit7tion *e/en*s mo$e on 5oB it Bas 7n*e$stoo* b4 t5e /eo/le a*o/tin it t5ant5e =$ame$s< 7n*e$stan*in t5e$eo=.%
>>>>>>>>>>>>>>>
%! )*.& at /. ##. ) 5ave /$evio7sl4 eH/$esse* m4 oBn *o7bts in $el4in on t5econstit7tional o$ leislative *elibe$ations as a *enitive so7$ce o= const$7ction. )t iseas4 to selectivel4 cite /assaes& sometimes o7t o= t5ei$ /$o/e$ conteHt& in o$*e$ toasse$t a mislea*in inte$/$etation. T5e eect can be *ane$o7s. Mino$it4 o$ solita$4vieBs& anec*otal $7minations& o$ even t5e occasional c$7*e Bitticisms& ma4im/$o/e$l4 acI7i$e t5e mantle o= leislative intent b4 t5e sole vi$t7e o= t5ei$/7blication in t5e a7t5o$itative con$essional $eco$*. +ence& $eso$t to leislative*elibe$ations is alloBable B5en t5e stat7te is c$a=te* in s7c5 a manne$ as to leave$oom =o$ *o7bt on t5e $eal intent o= t5e leislat7$e. So7t5e$n C$oss CementCo$/o$ation v. P5il. Cement Man7=act7$e$s& G.R. No. 1""!0& 27l4 %00!& !#! SCRA6"& -".
%" P5il. 1-% ?1-!6@.
%6 )*.& at /. %1".
% Civil Libe$ties Union v. EHec7tive Sec$eta$4& s7/$a note %#& at /. ## citin+o7se5ol* ;inance Co$/o$ation v. S5ane$& %0# S.,. %* #!& #"6 Mo. 0.
!-#
OL. "0"& OCTO(ER %"& %006
!-#Lambino vs. Commission on Elections
)= t5e$e is =ea$ in t5e absence o= a constit7tional $eco$* as 7i*e =o$ inte$/$etation o= an4 amen*ments a*o/te* via initiative& s7c5 absence Bo7l* not /$ecl7*e t5e co7$ts=$om inte$/$etin s7c5 amen*ments in a manne$ consistent Bit5 5oB co7$tsene$all4 const$7e t5e Constit7tion. ;o$ eHam/le& $eliance Bill be /lace* on t5eot5e$ /$ovisions o= t5e Constit7tion to a$$ive at a 5a$moni:e* an* 5olistic
constit7tional =$ameBo$. T5e constit7tional $eco$* is 5a$*l4 t5e Rosetta Stone t5at7nlocs t5e meanin o= t5e Constit7tion.
.
) =7ll4 a$ee Bit5 27stice P7no t5at all iss7es $elatin to t5e s7Jcienc4 o= t5e
initiative /etitions s5o7l* be $eman*e* to t5e COMELEC. Re/. Act No. 6#" clea$l4$e/oses on t5e COMELEC t5e tas o= *ete$minin t5e s7Jcienc4 o= t5e /etitions&incl7*in t5e asce$tainment o= B5et5e$ tBelve /e$cent ?1%V@ o= all $eiste$e*vote$s& incl7*in t5$ee /e$cent ?#V@ o= $eiste$e* vote$s in eve$4 leislative *ist$ict5ave in*ee* sine* t5e initiative /etitions.% )t s5o7l* be $emembe$e* t5at t5eCOMELEC 5a* *ismisse* t5e initiative /etitions o7t$i5t& an* 5a* 4et to 7n*e$taet5e *ete$mination o= s7Jcienc4 as $eI7i$e* b4 laB.
)t 5as been s7este* to t5e en* o= lea*in t5e Co7$t to stie t5e initiative /etitionst5at t5e Co7$t ma4 at t5is 7nct7$e /$ono7nce t5e initiative /etitions as ins7Jcient.
T5e *e$ivation o= t5e =act7al /$e*icates lea*in to t5e s7estion is 7nce$tain&consi*e$in t5at t5e t$ie$ o= =acts& t5e COMELEC in t5is instance& 5as 4et to
T5at /$emise is 5i5l4 *7bitable. 3et t5e mo$e =7n*amental I7estion t5at Be s5o7l*as& ) s7bmit& is B5et5e$ it se$ves Bell on t5e Co7$t to 7s7$/ t$ie$ o= =acts evenbe=o$e t5e latte$ eHe$cises its =7nctions )= t5e Co7$t& at t5is stae& Be$e to *ecla$et5e /etitions as in8
>>>>>>>>>>>>>>>
% See Sections "?b@ Z & Re/. Act No. 6#". See also 1- CONST.& Sec. %& A$t. Q).
!-!
!-!
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
s7Jcient& it Bo7l* be ain to t5e Co7$t /$ono7ncin an acc7se* as 7ilt4 even
Petitione$ in t5is case cannot ene$vate t5e COMELEC<s n*ins b4 int$o*7cinneB evi*ence be=o$e t5is Co7$t& B5ic5 in an4 case is not a t$ie$ o= =acts& an* t5enas it to s7bstit7te its oBn 7*ment an* *isc$etion =o$ t5at o= t5e COMELEC.
T5e $7le in a//ellate /$oce*7$e is t5at a =act7al I7estion ma4 not be $aise* =o$ t5e$st time on a//eal& an* *oc7ments =o$min no /a$t o= t5e /$oo=s be=o$e t5ea//ellate co7$t Bill not be consi*e$e* in *is/osin o= t5e iss7es o= an action. T5is ist$7e B5et5e$ t5e *ecision elevate* =o$ $evieB o$iinate* =$om a $e7la$ co7$t o$ ana*minist$ative aenc4 o$ I7asi87*icial bo*4& an* B5et5e$ it Bas $en*e$e* in a civil
case& a s/ecial /$ocee*in& o$ a c$iminal case. Piecemeal /$esentation o= evi*ence issim/l4 not in acco$* Bit5 o$*e$l4 7stice.#0
An4 /$esent *ete$mination b4 t5e Co7$t on t5e s7Jcienc4 o= t5e /etitionsconstit7tes in eect a t$ial *e novo& t5e 27stices o= t5e S7/$eme Co7$t vi$t7all4*escen*in to t5e level o= t$ial co7$t 7*es. T5is is an 7nbecomin $eco7$se& an* itsim/l4 is not *one.
).
T5e Bo$st /osition t5is Co7$t co7l* n* itsel= in is to acI7iesce to a /lea t5at it maet5e c5oice B5et5e$ to amen* t5e Constit7tion o$ not. T5is is a matte$ B5ic5 s5o7l*not be le=t to =teen maist$ates B5o 5ave not been electe* b4 t5e /eo/le to mae
t5e c5oice =o$ t5em.
A vote to $ant t5e /etitions is not a vote to amen* t5e 1- Constit7tion. )t isme$el4 a vote to alloB t5e /eo/le to *i$ectl4 eHe$cise t5at o/tion. )n =act& t5e/osition o= 27stice P7no B5ic5 ) s5a$e Bo7l* not even 7a$antee t5at t5e Lambinoan* SiaB n (a4an initiative /etitions Bo7l* be s7bmitte* to t5e /eo/le in a$e=e$en*7m. T5e
/$o/ose*& o$ t5e im/7te* motives be5in* t5e amen*ments. A $e=e$en*7m& s5o7l*t5e COMELEC n* t5e /etitions as s7Jcient& Bo7l* alloB t5em to conve4 t5ei$7neasiness to t5e /7blic at la$e& as Bell as =o$ t5e /$o/onents o= t5e amen*ment to*e=en* t5ei$ /$o/osal. T5e cam/ain /e$io* alone Bo7l* alloB t5e /7blic to beinvolve* in t5e sinicant *elibe$ation on t5e co7$se o7$ nation s5o7l* tae& Bit5
t5e ens7in net benet o= a mo$e in=o$me*& mo$e /oliticall4 aBa$e /o/7lace. An* o=co7$se& t5e c5oice on B5et5e$ t5e Constit7tion s5o7l* be amen*e* Bo7l* lie*i$ectl4 Bit5 t5e /eo/le. T5e initiative /$ocess involves /a$tici/ato$4 *emoc$ac4 atits most elemental B5e$ein t5e conseI7ential *ebate Bo7l* not be conne* to t5ea77st 5alls o= Con$ess o$ t5e 5alloBe* c5ambe$s o= t5is Co7$t& as it Bo7l* s/illove$ to t5e /7blic sI7a$es an* toBn 5alls& t5e aca*emic 4a$*s an* t5e )nte$netbloos/5e$e& t5e *inin a$eas in t5e 5omes o= t5e aX7ent an* t5e im/ove$is5e*alie.
T5e /$os/ect o= in=o$me* an* Bi*es/$ea* *isc7ssion on constit7tional c5aneenae* in b4 a /eo/le B5o a$e act7all4 em/oBe$e* in 5avin a sa4 B5et5e$ t5esec5anes s5o7l* be enacte*& ives =$7ition to t5e o$iinal vision o= /7$e *emoc$ac4&
as =o$m7late* in At5ens tBo an* a 5al= millennia ao. T5e $eat 5e$o o= At5enian*emoc$ac4& Pe$icles& Bas $eco$*e* as sa4in in 5is =ame* ;7ne$al O$ation& ,e*ie$ =$om ot5e$ states in $ea$*in t5e man B5o ee/s aloo= =$om /7blic li=e not as/$ivate< b7t as 7seless Be *eci*e o$ *ebate& ca$e8
>>>>>>>>>>>>>>>
#1 See Sections "?b@ Z & Re/. Act No. 6#". See also 1- CONST.& Sec. %& A$t. Q).
!-6
!-6
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
=7ll4 an* in /e$son all matte$s o= /olic4& an* Be 5ol*& not t5at Bo$*s an* *ee*s o illtoet5e$& b7t t5at acts a$e =o$e*oome* to =ail7$e B5en 7n*e$taen 7n*isc7sse*.#%
Un=o$t7natel4& iven t5e 5i5l4 /olitici:e* c5a$e o= t5e times& it 5as been /e**le*t5at an act o$ vote t5at assists t5e initiative /$ocess is one =o$ t5e Bill=7l eHtinctiono= *emoc$ac4 o$ *emoc$atic instit7tions. S7c5 a consi*e$ation s5o7l* o= co7$se/$o/e$l4 /la4 its co7$se in t5e /7blic *ebates an* *elibe$ations atten*ant to t5einitiative /$ocess. 3et as a $es7lt o= t5e 5a$7m8sca$7m& t5e tem/tation lies 5eav4 =o$a membe$ o= t5is Co7$t /e$t7$be* Bit5 t5e /$os/ect o= constit7tional c5ane to$elieve t5ose anHieties b4 sim/l4 votin to enoin an4 leal /$oce*7$e t5at initiatest5e amen*ment o$ $evision o= t5e =7n*amental laB& even at t5e eH/ense o= t5e/eo/le<s Bill o$ B5at t5e Constit7tion alloBs. A vote so o$iente* taes t5econse$vative /at5 o= least $esistance& even as it ma4 ain t5e a*mi$ation o= t5oseB5o *o not Bant to see t5e Constit7tion amen*e*.
Still& t5e biases Be s5o7l* en=o$ce as maist$ates a$e t5ose o= t5e Constit7tion an*t5e elements o= *emoc$ac4 on B5ic5 o7$ $7le o= laB is =o7n*e*. Di$ect *emoc$ac4&as embo*ie* in t5e initiative /$ocess& is b7t a c7lmination o= t5e evol7tion ove$ t5ecent7$ies o= *emoc$atic $i5ts o= c5oice an* sel=8ove$nance. T5e $eeme$ence o=t5e At5enian *emoc$atic i*eal a=te$ cent7$ies o= t4$annical $7les a$$ive* ve$4 sloBl4&
t5e benets /a$cele* o7t at $st onl4 to =avo$e* classes. T5e Mana Ca$ta $ante*limite* $i5ts to sel=8*ete$mination an* sel=ove$nance onl4 to a =eB Enlis5 noblest5e Ame$ican Constit7tion Bas o$iinall4 inten*e* to ive a meanin=7l voice onl4 to=$ee men& mostl4 Ca7casian& B5o met t5e /$o/e$t485ol*in $eI7i$ements set b4 t5estates =o$ votin. 3et even t5e ve$4 i*ea o= /o/7la$ votin& limite* as it ma4 5aveal$ea*4 been Bit5in t5e $st =eB 4ea$s o= t5e Ame$ican Union& met $esistance =$omno less a $eve$e* 7$e as AleHan*e$ +amilton& to B5om t5e /$o$essive 5isto$ian+oBa$* inn att$ib7tes t5ese *isconce$tin Bo$*sK
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#% ;$om t5e ;7ne$al O$ation b4 Pe$icles& as $eco$*e* b4 T57c4*i*es in t5e +isto$4o= t5e Pelo/onnesian ,a$.
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OL. "0"& OCTO(ER %"& %006
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Lambino vs. Commission on Elections
T5e voice o= t5e /eo/le 5as been sai* to be t5e voice o= Go* an* 5oBeve$ene$all4 t5is maHim 5as been I7ote* an* believe*& it is not t$7e in =act. T5e /eo/lea$e t7$b7lent an* c5anin t5e4 sel*om 7*e o$ *ete$mine $i5t. Give t5e$e=o$e tot5e $st class a *istinct /e$manent s5a$e in t5e ove$nment] Can a *emoc$aticassembl4 B5o ann7all4 $evolve in t5e mass o= t5e /eo/le be s7//ose* stea*il4 to/7$s7e t5e /7blic oo* Not5in b7t a /e$manent bo*4 can c5ec t5e im/$7*enceo= *emoc$ac4]##
T5is 7tte$l4 /ate$nalistic an* biote* vieB 5as not s7$vive* into t5e /$esent ae o=mo*e$n *emoc$ac4 B5e$e a /e$son<s /ove$t4& colo$& o$ en*e$ no lone$ im/e*est5e eHe$cise o= =7ll *emoc$atic $i5ts. 3et a *emoc$ac4 t5at me$el4 7a$antees itsciti:ens t5e $i5t to live t5ei$ lives =$eel4 is incom/lete i= t5e$e is no co$$es/on*in
alloBance =o$ a means b4 B5ic5 t5e /eo/le 5ave a *i$ect c5oice in *ete$minin t5ei$co7nt$4<s *i$ection. )nitiative as a mo*e o= amen*in a constit7tion ma4 seemincom/atible Bit5 $e/$esentative *emoc$ac4& 4et it embo*ies an even /7$e$ =o$m o=*emoc$ac4. )nitiative& B5ic5 o7$ 1- Constit7tion saB t to $ant to t5e /eo/le& is a/$o$essive meas7$e t5at is b7t a contin7ation o= t5e line o= evol7tion o= t5e*emoc$atic i*eal.
(4 alloBin t5e sove$ein /eo/le to *i$ectl4 /$o/ose an* enact constit7tionalamen*ments& t5e initiative /$ocess s5o7l* be acnoBle*e* as t5e /7$est
im/lement o= *emoc$atic $7le 7n*e$ laB. T5is $i5t $ante* to ove$ siHt4 million;ili/inos cannot be *enie* b4 t5e votes o= less t5an ei5t maist$ates =o$ $easonst5at bea$ no coitation on t5e Constit7tion.
) OTE to GRANT t5e /etitions.
D)SSENT)NG OP)N)ONC+)CO8NAAR)O& 2.K
T5e /eo/le ma*e t5e constit7tion& an* t5e /eo/le can 7nmae it. )t is t5e c$eat7$eo= t5ei$ Bill& an* lives onl4 b4 t5ei$ Bill. (7t t5is s7/$eme an* i$$esistible /oBe$ tomae o$ 7nmae& $esi*es onl4 in t5e B5ole bo*4 o= t5e /eo/le not in an4s7b*ivision o= t5em.
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## +. inn& APEOPLE<S+)STOR3 O; T+E UN)TED STATES ?1-0 e*.@& at -".
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SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
FMa$s5all& C.2.& Co5ens v. i$inia ?1%1& US@ 6
,5eat %6!& #-& " L e*. %"& %.
) eH/$ess m4 conc7$$ence in t5e *isc7ssions an* concl7sions /$esente* in t5e/e$s7asive an* e$7*ite *issent o= 27stice Re4nato S. P7no. +oBeve$& ) mae somea**itional obse$vations in connection Bit5 m4 conc7$$ence.
,5ile it is b7t /$o/e$ to acco$* $eat $es/ect an* $eve$ence to t5e P5ili//ineConstit7tion o= 1- =o$ bein t5e s7/$eme laB o= t5e lan*& Be s5o7l* not lose si5to= t5e t$7t5 t5at t5e$e is an 7ltimate a7t5o$it4 to B5ic5 t5e Constit7tion is alsos7bo$*inateFt5e Bill o= t5e /eo/le. No less t5an its ve$4 $st /a$a$a/5& t5eP$eamble&1 eH/$essl4 $econi:es t5at t5e Constit7tion came to be beca7se it Bas
o$*aine* an* /$om7late* b4 t5e sove$ein ;ili/ino /eo/le. )t is a /$inci/le$eite$ate* 4et aain in A$ticle ))& Section 1& o= t5e Constit7tion& B5ic5 eH/licitl4*ecla$es t5at t5e P5ili//ines is a *emoc$atic an* $e/7blican State. Sove$eint4$esi*es in t5e /eo/le an* all ove$nment a7t5o$it4 emanates =$om t5em. T57s& t5e$esol7tion o= t5e iss7es an* cont$ove$sies $aise* b4 t5e instant Petition s5o7l* be7i*e* acco$*inl4 b4 t5e =o$eoin /$inci/le.
T5e a=o$e8I7ote* section *oes not con=e$ on t5e ;ili/ino /eo/le t5e $i5t to amen*t5e Constit7tion beca7se& as /$evio7sl4 *isc7sse*& s7c5 $i5t is in5e$ent in t5em.
T5e section onl4 $e*7ces into B$itin t5is $i5t to initiate amen*ments to t5eConstit7tion B5e$e t5e4 collectivel4 an* Bill=7ll4 a$ee* in t5e manne$ b4 B5ic5t5e4 s5all eHe$cise t5is $i5tK ?a@ t5$o75 t5e lin o= a /etition ?b@ s7//o$te* b4 at
least tBelve /e$cent ?1%V@ o= t5e total n7mbe$ o= $eiste$e* vote$s nationBi*e ?c@Bit5 eac5 leislative *ist$ict $e/$esente* b4 at least t5$ee /e$cent ?#V@ o= t5e$eiste$e* vote$s t5e$ein ?*@ s7bect to t5e limitation t5at no s7c5 /etition ma4 bele* Bit5in ve 4ea$s a=te$ t5e $atication o= t5e Constit7tion& an* not o=tene$ t5anonce eve$4 ve 4ea$s t5e$ea=te$ an* ?e@ a *eleation to Con$ess o= t5e
)t is m4 ea$nest o/inion t5at t5e $i5t o= t5e sove$ein /eo/le to *i$ectl4 /$o/oseamen*ments to t5e Constit7tion t5$o75 initiative is mo$e s7/e$io$ t5an t5e /oBe$
t5e4 *eleate* to Con$ess o$ to a constit7tional convention to amen* o$ $evise t5eConstit7tion. T5e initiative /$ocess ives t5e sove$ein /eo/le t5e voice to eH/$esst5ei$ collective Bill& an* B5en t5e /eo/le s/ea& Be m7st be $ea*4 to listen. A$ticleQ))& Section % o= t5e Constit7tion $econi:es an* 7a$antees t5e sove$ein /eo/le<s$i5t to initiative& $at5e$ t5an limits it. T5e enablin laB B5ic5 Con$ess 5as beentase* to enact m7st ive li=e to t5e sai* /$ovision an* mae t5e eHe$cise o= t5e$i5t to initiative /ossible& not $e7late& limit& o$ $est$ict it in an4 Ba4 t5at Bo7l*$en*e$ t5e /eo/le<s o/tion o= $eso$tin to initiative to amen* t5e Constit7tion mo$est$inent& *iJc7lt& an* less =easible& as com/a$e* to t5e ot5e$ constit7tional meansto amen* o$ $evise t5e Constit7tion. )n =act& it is Bo$t5 $ecallin t5at 7n*e$ A$ticle)& Section 1 o= t5e Constit7tion& t5e leislative /oBe$ o= Con$ess is limite* to t5e
eHtent $ese$ve* to t5e /eo/le b4 t5e /$ovisions on initiative an* $e=e$en*7m.)t is Bit5 t5is =$ame o= min* t5at ) $evieB t5e iss7es $aise* in t5e instant Petitions&an* B5ic5 5as le* me to t5e concl7sions& in s7//o$t o= t5e *issent o= 27stice P7no&t5at ?a@ T5e Commission on Election ?COMELEC@ 5a* in*ee* committe* $ave ab7seo= *isc$etion in s7mma$il4 *ismissin t5e /etition =o$ initiative to amen* t5eConstit7tion le* b4 5e$ein /etitione$s Ra7l L. Lambino an* E$ico (. A7menta*o ?b@
T5e Co7$t s5o7l* $evisit t5e /$ono7ncements it ma*e in Santiao v. Commission onElections# ?c@ )t is t5e sove$ein /eo/le<s in5e$ent $i5t to /$o/ose c5anes to t5e
SUPREME COURT REPORTS ANNOTATEDLambino vs. Commission on Elections
*@ ORDER)NG t5e Commission on Elections to =o$t5Bit5 D)SM)SS t5e DEL;)N /etition?UND8-680#@.
T5e Tem/o$a$4 Rest$ainin O$*e$ iss7e* on 1 Decembe$ 1--6 is ma*e /e$manentas aainst t5e Commission on Elections& b7t is L);TED as aainst /$ivate$es/on*ents.
Resol7tion on t5e matte$ o= contem/t is 5e$eb4 $ese$ve*.
)t is clea$ =$om t5e =allo& as it is $e/$o*7ce* above& t5at t5e Co7$t ma*e /e$manentt5e Tem/o$a$4 Rest$ainin O$*e$ ?TRO@ it iss7e* on 1 Decembe$ 1--6 aainst t5eCOMELEC. T5e sai* TRO enoine* t5e COMELEC =$om /$ocee*in Bit5 t5e DelnPetition& an* Albe$to an* Ca$men Pe*$osa =$om con*7ctin a sinat7$e *$ive =o$/eo/le<s initiative." )t Bas t5is $est$ainin o$*e$& mo$e /a$tic7la$l4 t5e /o$tiont5e$eo= $e=e$$in to t5e Deln Petition& B5ic5 Bas eH/$essl4 ma*e /e$manent b4 t5eCo7$t. )t Bo7l* seem to me t5at t5e COMELEC an* all ot5e$ o//osito$s to Lambinoan* A7menta*o<s /etition =o$ initiative ave 7nBa$$ante* sinicance an* Bei5t tot5e $st /a$a$a/5 o= t5e Concl7sion in t5e Santiao case. T5e $st an* secon*/a$a$a/5s o= t5e Concl7sion& /$ece*in t5e *is/ositive /o$tion& me$el4 eH/$ess t5eo/inion o= t5e /onente B5ile t5e *enite o$*e$s o= t5e Co7$t =o$ im/lementation a$e
=o7n* in t5e *is/ositive /o$tion.,e 5ave /$evio7sl4 5el* t5atF
T5e *is/ositive /o$tion o$ t5e =allo is B5at act7all4 constit7tes t5e $esol7tion o= t5eco7$t an* B5ic5 is t5e s7bect o= eHec7tion& alt5o75 t5e ot5e$ /a$ts o= t5e *ecisionma4 be $eso$te* to in o$*e$ to *ete$mine t5e $atio *eci*en*i =o$ s7c5 a $esol7tion.,5e$e t5e$e is conict betBeen t5e *is/ositive /a$t an* t5e o/inion o= t5e co7$tcontaine* in t5e teHt o= t5e *ecision& t5e =o$me$ m7st /$evail ove$ t5e latte$ on t5e
PEDROSAS& as Bell as t5e ot5e$s oinin t5em& =$om t5e o/e$ation o= t5e /$inci/le o= $es 7*icata& B5ic5 nee*s no =7$t5e$ elabo$ation.-
,5ile t5e Santiao case ba$s t5e P)RMA case beca7se o= $es 7*icata& t5e samecannot be sai* to t5e Petition at ba$. Res 7*icata is an absol7te ba$ to a s7bseI7entaction =o$ t5e same ca7se an* its $eI7isites a$eK ?a@ t5e =o$me$ 7*ment o$ o$*e$m7st be nal ?b@ t5e 7*ment o$ o$*e$ m7st be one on t5e me$its ?c@ it m7st 5avebeen $en*e$e* b4 a co7$t 5avin 7$is*iction ove$ t5e s7bect matte$ an*
Even t5o75 it is conce*e* t5at t5e $st t5$ee $eI7isites a$e /$esent 5e$ein& t5e last5as not been com/lie* Bit5. Un*o7bte*l4& t5e Santiao case an* t5e /$esentPetition involve *ie$ent /a$ties& s7bect matte$& an* ca7ses o= action& an* t5e=o$me$ s5o7l* not ba$ t5e latte$.
)n t5e Santiao case& t5e /etition =o$ initiative to amen* t5e Constit7tion Bas le*b4 Deln alone. +is /etition *oes not I7ali=4 as t5e initiato$4 /lea*in ove$ B5ic5t5e COMELEC can acI7i$e 7$is*iction& bein 7ns7//o$te* b4 t5e $eI7i$e* n7mbe$ o= $eiste$e* vote$s& an* act7all4 im/osin 7/on t5e COMELEC t5e tas o= at5e$int5e vote$s< sinat7$es. )n t5e case be=o$e 7s& t5e /etition =o$ initiative to amen* t5eConstit7tion Bas le* b4 Lambino an* A7menta*o& on be5al= o= t5e 6.# million
$eiste$e* vote$s B5o aJHe* t5ei$ sinat7$es on t5e sinat7$e s5eets attac5e*t5e$eto. T5ei$ /etition /$a4s t5at t5e COMELEC iss7e an O$*e$F
1. ;in*in t5e /etition to be s7Jcient /7$s7ant to Section !& A$ticle Q)) o= t5e 1-Constit7tion
%. Di$ectin t5e /7blication o= t5e /etition in ;ili/ino an* Enlis5 at least tBice inneBs/a/e$s o= ene$al an* local ci$c7lation an*
#. Callin a /lebiscite to be 5el* not ea$lie$ t5an siHt4 no$ late$ t5an ninet4 *a4sa=te$ t5e Ce$tication b4 t5e COMELEC o= t5e s7Jcienc4 o= t5e /etition& to alloB t5e;ili/ino /eo/le to eH/$ess t5ei$ sove$ein Bill on t5e /$o/osition.
Alt5o75 bot5 cases involve t5e $i5t o= t5e /eo/le to initiate amen*ments to t5eConstit7tion& t5e /e$sonalities conce$ne* an* t5e ot5e$ =act7al ci$c7mstancesatten*ant in t5e tBo cases *ie$. Also *issimila$ a$e t5e /a$tic7la$ /$a4e$ an* $elie=sso75t b4 t5e /a$ties =$om t5e COMELEC& as Bell as =$om t5is Co7$t.
im/e$ative obliation o= t5e COMELEC to ?a@ *ete$mine t5e s7Jcienc4 o= t5e/etition =o$ initiative on amen*ments to t5e Constit7tion an* iss7e a ce$tication onits n*ins an* ?b@ in case s7c5 /etition is =o7n* to be s7Jcient& to set t5e *ate =o$t5e /lebiscite on t5e /$o/ose* amen*ments not ea$lie$ t5an 60 *a4s no$ late$ t5an-0 *a4s a=te$ its ce$tication.
T5e COMELEC s5o7l* not be alloBe* to s57n its constit7tional man*ate 7n*e$ t5esecon* /a$a$a/5 o= A$ticle Q))& Section !& t5$o75 t5e s7mma$4 *ismissal o= t5e/etition =o$ initiative le* b4 Lambino an* A7menta*o& B5en s7c5 /etition is
s7//o$te* b4 6.# million sinat7$es o= $eiste$e* vote$s. S5o7l* all o= t5esesinat7$es be a7t5entic an* $e/$esentative o= t5e $eI7i$e* /e$centaes o=$eiste$e* vote$s =o$ eve$4 leislative *ist$ict an* t5e B5ole nation& t5en t5einitiative is a t$7e an* leitimate eH/$ession o= t5e Bill o= t5e /eo/le to amen* t5eConstit7tion& an* COMELEC 5a* ca7se* t5em $ave in7stice b4 silencin t5ei$ voicebase* on a /atentl4 ina//licable /e$manent in7nction.
))
,e s5o7l* lieBise tae t5e o//o$t7nit4 to $evisit t5e /$ono7ncements ma*e b4 t5eCo7$t in its Decision in t5e Santiao case& es/eciall4 as $ea$*s t5e s7//ose*ins7Jcienc4 o$ ina*eI7ac4 o= Re/7blic Act No. 6#" as t5e enablin laB =o$ t5e
im/lementation o= t5e /eo/le<s $i5t to initiative on amen*ments to t5eConstit7tion.
T5e *ecla$ation o= t5e Co7$t t5at Re/7blic Act No. 6#" is ins7Jcient o$ ina*eI7ateact7all4 ave $ise to mo$e I7estions $at5e$ t5an ansBe$s& *7e to t5e =act t5at t5e$e5as neve$ been a 7*icial /$ece*ent B5e$ein t5e Co7$t invali*ate* a laB =o$ins7Jcienc4 o$ ina*eI7ac4. T5e con=7sion ove$ s7c5 a *ecla$ation t5e$eb4 im/elle*=o$me$ C5ie= 27stice Davi*e& 2$.& t5e /onente in t5e Santiao case& to /$ovi*e t5e=olloBin cla$ication in 5is se/a$ate o/inion to t5e Resol7tion in t5e P)RMA case&t57sF
Sim/l4 /7t& Santiao *i*& in $ealit4& *ecla$e as 7nconstit7tional t5at /o$tion o= R.A.
No. 6#" $elatin to Constit7tional initiatives =o$ =ail7$e to com/l4 Bit5 t5ecom/leteness an* s7Jcient stan*a$* tests Bit5 $es/ect to /e$missible *eleationo= leislative /oBe$ o$ s7bo$*inate leislation. +oB8
eve$ /etitione$s attem/t to tBist t5e lan7ae in Santiao& t5e concl7sion isinevitable t5e /o$tion o= R.A. No. 6#" Bas 5el* to be 7nconstit7tional.
)t is im/o$tant to note& 5oBeve$& t5at B5ile t5e Decision in t5e Santiao case/$ono7nce* $e/eate*l4 t5at Re/7blic Act No. 6#" Bas ins7Jcient an* ina*eI7ate&t5e$e is no cateo$ical *ecla$ation t5e$ein t5at t5e sai* stat7te Bas7nconstit7tional. T5e eH/$ess n*in t5at Re/7blic Act No. 6#" is 7nconstit7tionalcan onl4 be =o7n* in t5e se/a$ate o/inion o= =o$me$ C5ie= 27stice Davi*e to t5eResol7tion in t5e P)RMA case& B5ic5 Bas not conc7$$e* in b4 t5e ot5e$ membe$s o=t5e Co7$t.
Even ass7min a$7en*o t5at t5e *ecla$ation in t5e Santiao case& t5at Re/7blicAct No. 6#" is ins7Jcient an* ina*eI7ate& is al$ea*4 tantamo7nt to a *ecla$ationt5at t5e stat7te is 7nconstit7tional& it Bas $en*e$e* in violation o= establis5e* $7les
in stat7to$4 const$7ction& B5ic5 state t5atFAll /$es7m/tions a$e in*7le* in =avo$ o= constit7tionalit4 one B5o attacs astat7te& allein 7nconstit7tionalit4 m7st /$ove its invali*it4 be4on* a $easonable*o7bt ?icto$iano v. Eli:al*e Ro/e ,o$e$s< Union& "- SCRA "! 1-!@. )n =act& t5isCo7$t *oes not *eci*e I7estions o= a constit7tional nat7$e 7nless t5at I7estion is/$o/e$l4 $aise* an* /$esente* in a//$o/$iate cases an* is necessa$4 to a*ete$mination o= t5e case& i.e.& t5e iss7e o= constit7tionalit4 m7st be lis mota/$esente* ?T$o/ical +omes v. National +o7sin A7t5o$it4& 1"% SCRA "!0 1-@.
;i$st& t5e Co7$t& in t5e Santiao case& co7l* 5ave ve$4 Bell avoi*e* t5e iss7e o=constit7tionalit4 o= Re/7blic Act No. 6#" b4 o$*e$in t5e COMELEC to *ismiss t5e
T5e Co7$t& actin en banc on t5e Petition at ba$& can $evisit its Decision in t5eSantiao case an* aain o/en to 7*icial $evieB t5e constit7tionalit4 o= Re/7blic ActNo. 6#" in B5ic5 case& ) s5all cast m4 vote in =avo$ o= its constit7tionalit4& 5avinsatise* t5e com/leteness an* s7Jcienc4 o= stan*a$*s tests =o$ t5e vali**eleation o= leislative /oBe$. ) =7ll4 a$ee in t5e concl7sion ma*e b4 27stice P7no
on t5is matte$ in 5is *issentin o/inion1% in t5e Santiao case& t5at $ea*sFR.A. No. 6#" s7Jcientl4 states t5e /olic4 an* t5e stan*a$*s to 7i*e t5eCOMELEC in /$om7latin t5e laB<s im/lementin $7les an* $e7lations o= t5e laB.As a=o$estate*& Section % s/ells o7t t5e /olic4 o= t5e laB vi:.K T5e /oBe$ o= t5e/eo/le 7n*e$ a s4stem o= initiative an* $e=e$en*7m to *i$ectl4 /$o/ose& enact&a//$ove o$ $eect& in B5ole o$ in /a$t& t5e Constit7tion& laBs& o$*inances& o$$esol7tions /asse* b4 an4 leislative bo*4 7/on com/liance Bit5 t5e $eI7i$ementso= t5is Act is 5e$eb4 aJ$me*& $econi:e* an* 7a$antee*. S/$ea* o7t all ove$ R.A.No. 6#" a$e t5e stan*a$*s to canali:e t5e *eleate* /oBe$ to t5e COMELEC to/$om7late $7les an* $e7lations =$om ove$oBin. T57s& t5e laB states t5e n7mbe$o= sinat7$es necessa$4 to sta$t a /eo/le<s initiative& *i$ects 5oB initiative
/$ocee*in is commence*& B5at t5e COMELEC s5o7l* *o 7/on lin o= t5e /etition=o$ initiative& 5oB a /$o/osition is a//$ove*& B5en a /lebiscite ma4 be 5el*& B5ent5e amen*ment taes eect& an* B5at matte$s ma4 not be t5e s7bect o= an4initiative. (4 an4 meas7$e& t5ese stan*a$*s a$e a*eI7ate.
)))
T5e *issent o= 27stice P7no 5as al$ea*4 a Bell8/$esente* *isco7$se on t5e *ie$encebetBeen an amen*ment an* a $evision o= t5e Constit7tion. AlloB me also toa$tic7late m4 a**itional t5o75ts on t5e matte$.
O//osito$s to Lambino an* A7menta*o<s /etition =o$ initiative a$7e t5at t5e/$o/ose* c5anes t5e$ein to t5e /$ovisions o= t5e Consti8
>>>>>>>>>>>>>>>
1% Santiao v. Commission on Elections& s7/$a note % at //. 10811.
"10
"10
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
t7tion al$ea*4 amo7nt to a $evision t5e$eo=& B5ic5 is not alloBe* to be *one t5$o75/eo/le<s initiative A$ticle Q))& Section % o= t5e Constit7tion on /eo/le<s initiative$e=e$s onl4 to /$o/osals =o$ amen*ments to t5e Constit7tion. T5e4 asse$t t5et$a*itional *istinction betBeen an amen*ment an* a $evision& Bit5 amen*ment
$e=e$$in to isolate* o$ /iecemeal c5ane onl4& B5ile $evision as a $evam/ o$$eB$itin o= t5e B5ole inst$7ment.1#
+oBeve$& as /ointe* o7t b4 27stice P7no in 5is *issent& t5e$e is no I7antitative o$I7alitative test t5at can establis5 Bit5 *eniteness t5e *istinction betBeen anamen*ment an* a $evision& o$ betBeen a s7bstantial an* sim/le c5ane o= t5e
Constit7tion.
T5e c5anes /$o/ose* to t5e Constit7tion b4 Lambino an* A7menta*o<s /etition =o$initiative basicall4 aect onl4 A$ticle ) on t5e Leislative De/a$tment an* A$ticle ))on t5e EHec7tive De/a$tment. ,5ile t5e /$o/ose* c5anes Bill *$asticall4 alte$ t5econstit7tion o= o7$ ove$nment b4 vestin bot5 leislative an* eHec7tive /oBe$s ina 7nicame$al Pa$liament& Bit5 t5e P$esi*ent as t5e +ea* o= State an* t5e P$imeMiniste$ eHe$cisin t5e eHec7tive /oBe$ t5e4 Bo7l* not essentiall4 aect t5e ot5e$16 A$ticles o= t5e Constit7tion. T5e 100 o$ so c5anes co7nte* b4 t5e o//osito$s tot5e ot5e$ /$ovisions o= t5e Constit7tion a$e constit7te* mostl4 o= t5e nominals7bstit7tion o= one Bo$* =o$ t5e ot5e$& s7c5 as Pa$liament =o$ Con$ess& o$ P$imeMiniste$ =o$ P$esi*ent. As eloI7entl4 /ointe* o7t in t5e *issent o= 27stice P7no& t5ec5anes /$o/ose* to t$ans=o$m o7$ =o$m o= ove$nment =$om bicame$al8/$esi*entialto 7nicame$al8/a$liamenta$4& Bo7l* not aect t5e =7n*amental nat7$e o= o7$ stateas a *emoc$atic an* $e/7blican state. )t Bill still be a $e/$esentative ove$nmentB5e$e oJcials contin7e to be acco7ntable to t5e /eo/le an* t5e /eo/le maintaincont$ol ove$ t5e ove$nment t5$o75 t5e election o= membe$s o= t5e Pa$liament.
;7$t5e$mo$e& s5o7l* t5e /eo/le t5emselves Bis5 to c5ane a s7bstantial /o$tion o$even t5e B5ole o= t5e Constit7tion& B5at o$ B5o is to sto/ t5em A$ticle Q))&Section % o= t5e Constit7tion B5ic5& b4 t5e Ba4 it is Bo$*e*& $e=e$s onl4 to t5ei$ $i5tto initiative on amen*8
/eo/le<s Bill clamo$ =o$ a $evision o= t5e Constit7tion& it is t5ei$ Bill B5ic5 s5o7l*/$evail. Even t5e =act t5at t5e /eo/le $atie* t5e 1- Constit7tion& incl7*inA$ticle Q))& Section % t5e$eo=& as it is Bo$*e*& s5o7l* not /$event t5e eHe$cise b4t5e sove$ein /eo/le o= t5ei$ in5e$ent $i5t to c5ane t5e Constit7tion& even i= s7c5c5ane Bo7l* be tantamo7nt to a s7bstantial amen*ment o$ $evision t5e$eo=& =o$
t5ei$ act7al eHe$cise o= t5e sai* $i5t s5o7l* be a clea$ $en7nciation o= t5e limitationB5ic5 t5e sai* /$ovision im/oses 7/on it. )t is t5e in5e$ent $i5t o= t5e /eo/le assove$ein to c5ane t5e Constit7tion& $ea$*less o= t5e eHtent t5e$eo=.
)
Lastl4& ) =ail to see t5e in7stice in alloBin t5e COMELEC to ive *7e co7$se to an*tae coni:ance o= Lambino an* A7menta*o<s /etition =o$ initiative to amen* t5eConstit7tion. ) $eite$ate t5at it Bo7l* be a $eate$ evil i= one s7c5 /etition B5ic5 isostensibl4 s7//o$te* b4 t5e $eI7i$e* n7mbe$ o= $eiste$e* vote$s all ove$ t5eco7nt$4& be s7mma$il4 *ismisse*.
Givin *7e co7$se an* tain coni:ance o= t5e /etition Bo7l* not necessa$il4 mean
t5at t5e same Bo7l* be =o7n* s7Jcient an* set =o$ /lebiscite. T5e COMELEC still=aces t5e tas o= $evieBin t5e /etition to *ete$mine B5et5e$ it com/lies Bit5 t5e$eI7i$ements =o$ a vali* eHe$cise o= t5e $i5t to initiative. 7estions $aise* b4 t5eo//osito$s to t5e /etition& s7c5 as t5ose on t5e a7t5enticit4 o= t5e $eiste$e* vote$s<sinat7$es o$ com/liance Bit5 t5e $eI7isite n7mbe$ o= $eiste$e* vote$s =o$ eve$4leislative *ist$ict& a$e al$ea*4 =act7al in nat7$e an* $eI7i$e t5e $ece/tion an*eval7ation o= evi*ence o= t5e
"1%
"1%SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
/a$ties. S7c5 I7estions a$e best /$esente* an* $esolve* be=o$e t5e COMELEC sincet5is Co7$t is not a t$ie$ o= =acts.
)n vieB o= t5e =o$eoin& ) am o= t5e /osition t5at t5e Resol7tion o= t5e COMELEC*ate* #1 A77st %006 *en4in *7e co7$se to t5e Petition =o$ )nitiative le* b4Lambino an* A7menta*o be $eve$se* an* set asi*e =o$ 5avin been iss7e* in $aveab7se o= *isc$etion& amo7ntin to lac o= 7$is*iction& an* t5at t5e Petition be
$eman*e* to t5e COMELEC =o$ =7$t5e$ /$ocee*ins.)n s5o$t& ) vote to GRANT t5e /etition =o$ )nitiative o= Lambino an* A7menta*o.
T5e iss7e o= t5e /eo/le<s /oBe$ to /$o/ose amen*ments to t5e Constit7tion Basonce *isc7sse* in t5e lan*ma$ case o= Santiao v. COMELEC.1 Almost a *eca*elate$& t5e iss7e is once aain be=o$e t5e Co7$t& an* ) $ml4 believe it is time to$eeval7ate t5e /$ono7ncements ma*e in t5at case.
T5e iss7e o= C5a$te$ C5ane is one t5at 5as s5a$/l4 *ivi*e* t5e nation& an* its
/$o/onents an* o//onents Bill 7n*e$stan*abl4 tae
>>>>>>>>>>>>>>>
1 G.R. No. 1%"#"& Ma$c5 1-& 1--& %0 SCRA 106.
"1#
OL. "0"& OCTO(ER %"& %006
"1#
Lambino vs. Commission on Elections
all meas7$es to a*vance t5ei$ /osition an* *e=eat t5at o= t5ei$ o//onents. T5eBis*om o$ =oll4 o= C5a$te$ C5ane *oes not conce$n t5e Co7$t. T5e onl4 t5in t5att5e Co7$t m7st $evieB is t5e vali*it4 o= t5e /$esent ste/ taen b4 t5e /$o/onents o=C5a$te$ C5ane& B5ic5 is t5e Peo/le<s )nitiative& as set *oBn in A$ticle Q))& Sec. % o= t5e 1- Constit7tionK
Amen*ments to t5is Constit7tion ma4 lieBise be *i$ectl4 /$o/ose* b4 t5e /eo/let5$o75 initiative 7/on a /etition o= at least tBelve /e$ cent7m o= t5e total n7mbe$
o= $eiste$e* vote$s& o= B5ic5 eve$4 leislative *ist$ict m7st be $e/$esente* b4 atleast t5$ee /e$ cent7m o= t5e $eiste$e* vote$s t5e$ein. No amen*ment 7n*e$ t5issection s5all be a7t5o$i:e* Bit5in ve 4ea$s =olloBin t5e $atication o= t5isConstit7tion no$ o=tene$ t5an once eve$4 ve 4ea$s t5e$ea=te$.
im/lementation o= t5e eHe$cise o= t5e /eo/le<s initiative& B5en it 5el* t5at Re/7blicAct No. 6#"& o$ T5e )nitiative an* Re=e$en*7m Act& Bas ina*eI7ate to cove$ t5es4stem o= initiative on amen*ments to t5e Constit7tion& an* to 5ave =aile* to/$ovi*e s7Jcient stan*a$* =o$ s7bo$*inate leislation.%
,it5 all *7e $es/ect to t5ose 27stices B5o ma*e t5at *ecla$ation& ) m7st *isa$ee.
Re/7blic Act No. 6#" is t5e /$o/e$ laB =o$ /$o/osin constit7tional amen*mentsan* it s5o7l* not 5ave been consi*e$e* ina*eI7ate.
T5e *ecision in Santiao =oc7se* on B5at it /e$ceive* to be =atal aBs in t5e*$a=tin o= t5e laB& in t5e =ailins o= t5e Ba4 t5e laB Bas st$7ct7$e*& to come to t5econcl7sion t5at t5e laB Bas ina*eI7ate. T5e Co7$t itsel= $econi:e* t5e leislato$s<intent& b7t *is$ea$*e* t5is intent. T5e laB Bas =o7n* Bantin. T5e Co7$t t5en saBt5e in8
>>>>>>>>>>>>>>>
% )*.
"1!
"1!
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
cl7sion o= t5e Constit7tion in RA 6#" as an a=te$t5o75t. +oBeve$& it Bas incl7*e*&
an* it s5o7l* not be eHcl7*e* b4 t5e Co7$t via a st$aine* anal4sis o= t5e laB. T5e*iJc7lt const$7ction o= t5e laB s5o7l* not se$ve to =$7st$ate t5e intent o= t5e=$ame$s o= t5e 1- Constit7tionK to ive t5e /eo/le t5e /oBe$ to /$o/oseamen*ments as t5e4 saB t. )t is a basic /$ece/t in stat7to$4 const$7ction t5at t5eintent o= t5e leislat7$e is t5e cont$ollin =acto$ in t5e inte$/$etation o= a stat7te.#
T5e intent o= t5e leislat7$e Bas clea$& an* 4et RA 6#" Bas *ecla$e* ina*eI7ate. )tBas not s/ecicall4 st$7c *oBn o$ *ecla$e* 7nconstit7tional& me$el4 incom/lete.
T5e Co7$t =oc7se* on B5at RA 6#" Bas not& an* lost si5t o= B5at RA 6#" Bas.
)t is m4 vieB t5at t5e $ea*in o= RA 6#" in Santiao s5o7l* 5ave been mo$eeHible. )t is also a basic /$ece/t o= stat7to$4 const$7ction t5at stat7tes s5o7l* be
const$7e* not so m7c5 acco$*in to t5e lette$ t5at illet5 b7t in line Bit5 t5e/7$/ose =o$ B5ic5 t5e4 5ave been enacte*.! T5e $ea*in o= t5e laB s5o7l* not 5avebeen Bit5 t5e vieB o= its *e=eat& b7t Bit5 t5e oal o= 7/5ol*in it& es/eciall4 Bit5 itsavoBe* noble /7$/ose.
Con$ess 5as *one its /a$t in em/oBe$in t5e /eo/le t5emselves to /$o/oseamen*ments to t5e Constit7tion& in acco$*ance Bit5 t5e Constit7tion itsel=. )t s5o7l*not be t5e S7/$eme Co7$t t5at sties t5e /eo/le& an* lets t5ei$ c$ies =o$ c5ane o7n5ea$*& es/eciall4 B5en t5e Constit7tion itsel= $ants t5em t5at /oBe$.
*@ ORDER)NG t5e Commission on Elections to =o$t5Bit5 D)SM)SS t5e DEL;)N /etition?UND8-680#@.
T5e Tem/o$a$4 Rest$ainin O$*e$ iss7e* on 1 Decembe$ 1--6 is ma*e /e$manentas aainst t5e Commission on Elections& b7t is L);TED aainst /$ivate $es/on*ents.
Resol7tion on t5e matte$ o= contem/t is 5e$eb4 $ese$ve*.
SO ORDERED.
T5e I7estion noB is i= t5e $7lin in Santiao is *ecisive in t5is case. )t is elementa$4t5at B5en t5e$e is conict betBeen t5e *is/ositive /o$tion o$ =allo o= t5e *ecisionan* t5e o/inion o= t5e co7$t con8
"16
"16
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
taine* in t5e teHt o$ bo*4 o= t5e 7*ment& t5e =o$me$ /$evails ove$ t5e latte$. Ano$*e$ o= eHec7tion is base* on t5e *is/osition& not on t5e bo*4& o= t5e *ecision."
T5e *is/ositive /o$tion is its *ecisive $esol7tion t57s& it is t5e s7bect o= eHec7tion. T5e ot5e$ /a$ts o= t5e *ecision ma4 be $eso$te* to in o$*e$ to *ete$mine t5e $atio
*eci*en*i =o$ t5e *is/osition. ,5e$e t5e$e is conict betBeen t5e *is/ositive /a$tan* t5e o/inion o= t5e co7$t containe* in t5e teHt o$ bo*4 o= t5e *ecision& t5e =o$me$m7st /$evail ove$ t5e latte$ on t5e t5eo$4 t5at t5e *is/ositive /o$tion is t5e nalo$*e$& B5ile t5e o/inion is me$el4 a statement o$*e$in not5in. +ence& t5eeHec7tion m7st con=o$m Bit5 t5at B5ic5 is o$*aine* o$ *ec$ee* in t5e *is/ositive/o$tion o= t5e *ecision.6
A 7*ment m7st be *istin7is5e* =$om an o/inion. T5e latte$ is an in=o$maleH/$ession o= t5e vieBs o= t5e co7$t an* cannot /$evail aainst its nal o$*e$ o$*ecision. ,5ile t5e tBo ma4 be combine* in one inst$7ment& t5e o/inion =o$ms no/a$t o= t5e 7*ment. So t5e$e is a *istinction betBeen t5e n*ins an* concl7sionso= a co7$t an* its 27*ment. ,5ile t5e4 ma4 constit7te its *ecision an* amo7nt to
t5e $en*ition o= a 7*ment& t5e4 a$e not t5e 7*ment itsel=. )t is not in=$eI7ent t5att5e $o7n*s o= a *ecision =ail to $eect t5e eHact vieBs o= t5e co7$t& es/eciall4 t5oseo= conc7$$in 7stices in a colleiate co7$t. ,e o=ten enco7nte$ in 7*icial *ecisionsla/ses& n*ins& loose statements an* ene$alities B5ic5 *o not bea$ on t5e iss7eso$ a$e a//a$entl4 o//ose* to t5e ot5e$Bise so7n* an* consi*e$e* $es7lt $eac5e* b4t5e co7$t as eH/$esse* in t5e *is/ositive /a$t& so calle*& o= t5e *ecision.
)n s7m& t5e COMELEC still $etains its 7$is*iction to tae coni:ance o= an4 /etitionon initiative 7n*e$ RA 6#" an* it can $7le on t5e /etition an* its action can onl4 be/asse* 7/on b4 t5e Co7$t B5en t5e same is elevate* t5$o75 a /etition =o$ce$tio$a$i. COMELEC cannot be ba$$e* =$om actin on sai* /etitions since 7$is*ictionis con=e$$e* b4 laB ?RA 6#"@ an* sai* laB 5as not been *ecla$e* 7nconstit7tionalan* 5ence still vali* t5o75 consi*e$e* ina*eI7ate in t5e Santiao case.
Res/on*ents& 5oBeve$& claim t5at t5e Co7$t in t5e s7bseI7ent case o= P)RMA v.Commission on Elections con$me* t5e statement o= t5e Co7$t in t5e Santiaocase t5at t5e COMELEC Bas /e$manentl4 enoine* =$om ente$tainin o$ tainconi:ance o= an4 /etition =o$ initiative on amen*ments. M7c5 $eliance is /lace*on t5e $7lin containe* in a Min7te Resol7tion B5ic5 $ea*sK
T5e Co7$t $7le*& $st& b4 a 7nanimo7s vote& t5at no $ave ab7se o= Disc$etion co7l*be att$ib7te* to t5e /7blic $es/on*ent COMELEC in Dismissin t5e /etition le* b4P)RMA t5e$ein& it a//ea$in t5at it onl4 Com/lie* Bit5 t5e D)SPOS)T)ONS in t5e
Decision o= t5is Co7$t in G.R. No. 1%#%"& /$om7late* on Ma$c5 1-& 1--& an* itsResol7tion o= 27ne 10& 1--.
>>>>>>>>>>>>>>>
G.R. No. 1%-"!& Se/tembe$ %#& 1--.
"1
"1
SUPREME COURT REPORTS ANNOTATED
Lambino vs. Commission on Elections
Tae note t5at t5e Co7$t s/ecicall4 $e=e$$e* to *is/ositions in t5e Ma$c5 1-& 1--
Decision. To $eite$ate& t5e *is/ositions in t5e Santiao case *ecision $e=e$s/ecicall4 to t5e Decembe$ 1& 1--6 TRO bein ma*e /e$manent aainst t5eCOMELEC b7t *o not /e$tain to a /e$manent in7nction aainst an4 ot5e$ /etition=o$ initiative on amen*ment. T57s& B5at Bas con$me* o$ even aJ$me* in t5eMin7te Resol7tion in t5e P)RMA case /e$tains solel4 to t5e Decembe$ 1& 1--6 TROB5ic5 became /e$manent& t5e *ecla$ation o= t5e ina*eI7ac4 o= RA 6#"& an* t5eann7lment o= ce$tain /a$ts o= Resol7tion No. %#00 b7t ce$tainl4 not t5e allee*/e$/et7al in7nction aainst t5e initiative /etition. T57s& t5e $esol7tion in t5e P)RMAcase cannot be consi*e$e* $es 7*icata to t5e Lambino /etition.
Amen*ment o$ Revision
One last matte$ to be consi*e$e* is B5et5e$ t5e /etition ma4 be alloBe* 7n*e$ RA6#"& since onl4 amen*ments to t5e Constit7tion ma4 be t5e s7bect o= a /eo/le<sinitiative.
T5e Lambino /etition cannot be consi*e$e* an act o= $evisin t5e Constit7tion it isme$el4 an attem/t to amen* it. T5e te$m amen*ment 5as to be libe$all4 const$7e*so as to eect7ate t5e /eo/le<s eo$ts to amen* t5e Constit7tion.
As an eminent constit7tionalist& Dean icente G. Sinco&- eH/laine*K
St$ictl4 s/eain& t5e act o= $evisin a constit7tion involves alte$ations o= *ie$ent/o$tions o= t5e enti$e *oc7ment. )t ma4 $es7lt in t5e $eB$itin eit5e$ o= t5e B5oleconstit7tion& o$ t5e $eate$ /o$tion o= it& o$ /e$5a/s onl4 some o= its im/o$tant
/$ovisions. (7t B5ateve$ $es7lts t5e $evision ma4 /$o*7ce& t5e =acto$ t5atc5a$acte$i:es it as an act o= $evision is t5e o$iinal intention an* /lan a7t5o$i:e* tobe ca$$ie* o7t. T5at intention an* /lan m7st contem/late a consi*e$ation o= all t5e/$ovisions o= t5e constit7tion to *ete$mine B5ic5 one s5o7l* be alte$e* o$s7//$esse* o$ B5et5e$ t5e B5ole *oc7ment s5o7l* be $e/lace* Bit5 an enti$el4 neBone.
- Sinco& icente G.& P+)L)PP)NE POL)T)CAL LA,&PR)NC)PLES AND CONCEPT !6?1-6%@.
"1-
OL. "0"& OCTO(ER %"& %006
"1-
Lambino vs. Commission on Elections
T5e act o= amen*in a constit7tion& on t5e ot5e$ 5an*& envisaes a c5ane o= onl4 a=eB s/ecic /$ovisions. T5e intention o= an act to amen* is not to consi*e$ t5ea*visabilit4 o= c5anin t5e enti$e constit7tion o$ o= consi*e$in t5at /ossibilit4. T5eintention $at5e$ is to im/$ove s/ecic /a$ts o= t5e eHistin constit7tion o$ to a** toit /$ovisions *eeme* essential on acco7nt o= c5ane* con*itions o$ to s7//$ess/o$tions o= it t5at seem obsolete& o$ *ane$o7s& o$ mislea*in in t5ei$ eect.
)n t5is case& t5e Lambino /etition is not conce$ne* Bit5 $eB$itin t5e enti$eConstit7tion. )t Bas neve$ its intention to $evise t5e B5ole Constit7tion. )t me$el4conce$ns itsel= Bit5 amen*in a =eB /$ovisions in o7$ =7n*amental c5a$te$.
,5en t5e$e a$e $a4 a$eas in leislation& es/eciall4 in matte$s t5at /e$tain to t5esove$ein /eo/le<s /olitical $i5ts& co7$ts m7st lean mo$e toBa$*s a mo$e libe$alinte$/$etation =avo$in t5e /eo/le<s $i5t to eHe$cise t5ei$ sove$ein /oBe$.
Concl7sion
Sove$eint4 $esi*in in t5e /eo/le is t5e 5i5est =o$m o= sove$eint4 an* t57s*ese$ves t5e 5i5est $es/ect even =$om t5e co7$ts. )t is not somet5in t5at can beove$$7le*& set asi*e& ino$e* o$ stom/e* ove$ b4 B5ateve$ amo7nt o= tec5nicalities&bl7$$e* o$ va7e /$ovisions o= t5e laB.
As ) n* RA 6#" to be a*eI7ate as t5e im/lementin laB =o$ t5e Peo/le<s )nitiative&) vote to $ant t5e /etition in G.R. No. 1!1"# an* *ismiss t5e /etition in G.R. No.1!%--. T5e Amen*e* Petition =o$ )nitiative le* b4 /etitione$s Ra7l L. Lambino an*E$ico (. A7menta*o s5o7l* be $eman*e* to t5e COMELEC =o$ *ete$mination B5et5e$o$ not t5e /etition is s7Jcient 7n*e$ RA 6#"& an* i= t5e /etition is s7Jcient& tosc5e*7le an* 5ol* t5e necessa$4 /lebiscite as $eI7i$e* b4 RA 6#".
)t is time to let t5e /eo/le<s voice be 5ea$* once aain as it Bas tBent4 4ea$s ao.An* s5o7l* t5is voice *eman* a c5ane in t5e Constit7tion& t5e S7/$eme Co7$ts5o7l* not be one to stan* in its Ba4.
