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Present:
PUNO, C.J.,
CARPIO,
CORONA,
CARPIO MORALES,
CHICO-NAZARIO,
VELASCO, JR.,
- versus -
NACHURA,
LEONARDO-DE CASTRO,
BRION,
PERALTA,
BERSAMIN,
DEL CASTILLO,
ABAD, and
VILLARAMA, JR., JJ.
COMMISSION ON
ELECTIONS,
Respondent.
Promulgated:
December 1, 2009
x-----------------------------------------------------------------------------------------x
DECISION
NACHURA, J.:
Before the Court is a petition for prohibition and certiorari, with prayer for
the issuance of a temporary restraining order and a writ of preliminary injunction,
assailing Section 4(a) of Resolution No. 8678 of the Commission on Elections
The Antecedents
This controversy actually stems from the law authorizing the COMELEC to
use an automated election system (AES).
On December 22, 1997, Congress enacted Republic Act (R.A.) No. 8436,
entitled AN ACT AUTHORIZING THE COMMISSION ON ELECTIONS TO
USE AN AUTOMATED ELECTION SYSTEM IN THE MAY 11, 1998
NATIONAL OR LOCAL ELECTIONS AND IN SUBSEQUENT NATIONAL
AND LOCAL ELECTORAL EXERCISES, PROVIDING FUNDS THEREFOR
AND FOR OTHER PURPOSES. Section 11 thereof reads:
SEC. 11. Official Ballot.The Commission shall prescribe the size and
form of the official ballot which shall contain the titles of the positions to be filled
and/or the propositions to be voted upon in an initiative, referendum or plebiscite.
Under each position, the names of candidates shall be arranged alphabetically by
surname and uniformly printed using the same type size. A fixed space where the
chairman of the Board of Election inspectors shall affix his/her signature to
authenticate the official ballot shall be provided.
Both sides of the ballots may be used when necessary.
For this purpose, the deadline for the filing of certificate of
candidacy/petition for registration/manifestation to participate in the election
shall not be later than one hundred twenty (120) days before the elections:
Provided, That, any elective official, whether national or local, running for
any office other than the one which he/she is holding in a permanent
capacity, except for president and vice president, shall be deemed resigned
only upon the start of the campaign period corresponding to the position for
which he/she is running: Provided, further, That, unlawful acts or omissions
applicable to a candidate shall take effect upon the start of the aforesaid
campaign period: Provided, finally, That, for purposes of the May 11, 1998
elections, the deadline for filing of the certificate of candidacy for the positions of
President, Vice President, Senators and candidates under the Party-List System as
well as petitions for registration and/or manifestation to participate in the PartyList System shall be on February 9, 1998 while the deadline for the filing of
certificate of candidacy for other positions shall be on March 27, 1998.
The official ballots shall be printed by the National Printing Office and/or
the Bangko Sentral ng Pilipinas at the price comparable with that of private
printers under proper security measures which the Commission shall adopt. The
Commission may contract the services of private printers upon certification by the
National Printing Office/Bangko Sentral ng Pilipinas that it cannot meet the
printing requirements. Accredited political parties and deputized citizens' arms of
the Commission may assign watchers in the printing, storage and distribution of
official ballots.
To prevent the use of fake ballots, the Commission through the Committee
shall ensure that the serial number on the ballot stub shall be printed in magnetic
ink that shall be easily detectable by inexpensive hardware and shall be
impossible to reproduce on a photocopying machine and that identification marks,
magnetic strips, bar codes and other technical and security markings, are provided
on the ballot.
The official ballots shall be printed and distributed to each
city/municipality at the rate of one (1) ballot for every registered voter with a
provision of additional four (4) ballots per precinct.
Almost a decade thereafter, Congress amended the law on January 23, 2007
by enacting R.A. No. 9369, entitled AN ACT AMENDING REPUBLIC ACT NO.
8436, ENTITLED AN ACT AUTHORIZING THE COMMISSION ON
ELECTIONS TO USE AN AUTOMATED ELECTION SYSTEM IN THE MAY
11, 1998 NATIONAL OR LOCAL ELECTIONS AND IN SUBSEQUENT
NATIONAL AND LOCAL ELECTORAL EXERCISES, TO ENCOURAGE
TRANSPARENCY,
CREDIBILITY,
FAIRNESS
AND
ACCURACY
OF
SEC. 13. Section 11 of Republic Act No. 8436 is hereby amended to read
as follows:
Section 15. Official Ballot.The Commission shall prescribe the format
of the electronic display and/or the size and form of the official ballot, which shall
contain the titles of the position to be filled and/or the propositions to be voted
upon in an initiative, referendum or plebiscite. Where practicable, electronic
displays must be constructed to present the names of all candidates for the same
position in the same page or screen, otherwise, the electronic displays must be
constructed to present the entire ballot to the voter, in a series of sequential pages,
and to ensure that the voter sees all of the ballot options on all pages before
completing his or her vote and to allow the voter to review and change all ballot
choices prior to completing and casting his or her ballot. Under each position to
be filled, the names of candidates shall be arranged alphabetically by surname and
uniformly indicated using the same type size. The maiden or married name shall
be listed in the official ballot, as preferred by the female candidate. Under each
proposition to be vote upon, the choices should be uniformly indicated using the
same font and size.
A fixed space where the chairman of the board of election inspectors
shall affix his/her signature to authenticate the official ballot shall be provided.
For this purpose, the Commission shall set the deadline for the filing
of certificate of candidacy/petition of registration/manifestation to
participate in the election. Any person who files his certificate of candidacy
within this period shall only be considered as a candidate at the start of the
campaign period for which he filed his certificate of candidacy: Provided,
That, unlawful acts or omissions applicable to a candidate shall take effect
only upon the start of the aforesaid campaign period: Provided, finally, That
any person holding a public appointive office or position, including active
members of the armed forces, and officers and employees in governmentowned or -controlled corporations, shall be considered ipso facto resigned
from his/her office and must vacate the same at the start of the day of the
filing of his/her certificate of candidacy.
Alarmed that they will be deemed ipso facto resigned from their offices the
moment they file their CoCs, petitioners Eleazar P. Quinto and Gerino A.
Tolentino, Jr., who hold appointive positions in the government and who intend to
run in the coming elections, filed the instant petition for prohibition and certiorari,
seeking the declaration of the afore-quoted Section 4(a) of Resolution No. 8678 as
null and void.
Petitioners contend that the COMELEC gravely abused its discretion when it
issued the assailed Resolution. They aver that the advance filing of CoCs for the
2010 elections is intended merely for the purpose of early printing of the official
ballots in order to cope with time limitations. Such advance filing does not
automatically make the person who filed the CoC a candidate at the moment of
filing. In fact, the law considers him a candidate only at the start of the campaign
period. Petitioners then assert that this being so, they should not be deemed ipso
facto resigned from their government offices when they file their CoCs, because at
such time they are not yet treated by law as candidates. They should be considered
resigned from their respective offices only at the start of the campaign period when
they are, by law, already considered as candidates.
Petitioners also contend that Section 13 of R.A. No. 9369, the basis of the
assailed COMELEC resolution, contains two conflicting provisions. These must be
harmonized or reconciled to give effect to both and to arrive at a declaration that
they are not ipso facto resigned from their positions upon the filing of their CoCs.
Petitioners further posit that the provision considering them as ipso facto
resigned from office upon the filing of their CoCs is discriminatory and violates
the equal protection clause in the Constitution.
On the procedural aspect of the petition, the Office of the Solicitor General
(OSG), representing respondent COMELEC, argues that petitioners have no legal
standing to institute the suit. Petitioners have not yet filed their CoCs, hence, they
are not yet affected by the assailed provision in the COMELEC resolution. The
OSG further claims that the petition is premature or unripe for judicial
determination. Petitioners have admitted that they are merely planning to file their
CoCs for the coming 2010 elections. Their interest in the present controversy is
thus merely speculative and contingent upon the filing of the same. The OSG
likewise contends that petitioners availed of the wrong remedy. They are
questioning an issuance of the COMELEC made in the exercise of the latters rulemaking power. Certiorari under Rule 65 is then an improper remedy.
On the substantive aspect, the OSG maintains that the COMELEC did not
gravely abuse its discretion in phrasing Section 4(a) of Resolution No. 8678 for it
merely copied what is in the law. The OSG, however, agrees with petitioners that
there is a conflict in Section 13 of R.A. No. 9369 that should be resolved.
According to the OSG, there seems to be no basis to consider appointive officials
as ipso facto resigned and to require them to vacate their positions on the same day
that they file their CoCs, because they are not yet considered as candidates at that
time. Further, this deemed resigned provision existed in Batas Pambansa Bilang
(B.P. Blg.) 881, and no longer finds a place in our present election laws with the
innovations brought about by the automated system.
Our Ruling
I.
At first glance, the petition suffers from an incipient procedural defect. What
petitioners assail in their petition is a resolution issued by the COMELEC in the
exercise of its quasi-legislative power. Certiorari under Rule 65, in relation to Rule
64, cannot be availed of, because it is a remedy to question decisions, resolutions
and issuances made in the exercise of a judicial or quasi-judicial function.
The transcendental nature and paramount importance of the issues raised and
the compelling state interest involved in their early resolutionthe period for the
filing of CoCs for the 2010 elections has already started and hundreds of civil
servants intending to run for elective offices are to lose their employment, thereby
causing imminent and irreparable damage to their means of livelihood and, at the
same time, crippling the governments manpowerfurther dictate that the Court
must, for propriety, if only from a sense of obligation, entertain the petition so as to
expedite the adjudication of all, especially the constitutional, issues.
In any event, the Court has ample authority to set aside errors of practice or
technicalities of procedure and resolve the merits of a case. Repeatedly stressed in
our prior decisions is the principle that the Rules were promulgated to provide
guidelines for the orderly administration of justice, not to shackle the hand that
dispenses it. Otherwise, the courts would be consigned to being mere slaves to
technical rules, deprived of their judicial discretion.
II.
For this purpose, the Commission shall set the deadline for the filing of
certificate of candidacy/petition for registration/manifestation to participate in the
election. Any person who files his certificate of candidacy within this period shall
only be considered as a candidate at the start of the campaign period for which he
filed his certificate of candidacy: Provided, That, unlawful acts or omissions
applicable to a candidate shall take effect only upon the start of the aforesaid
campaign period: Provided, finally, That any person holding a public
appointive office or position, including active members of the armed forces,
and officers and employees in government-owned or -controlled
corporations, shall be considered ipso facto resigned from his/her office and
must vacate the same at the start of the day of the filing of his/her certificate
of candidacy.
Notably, this proviso is not present in Section 11 of R.A. No. 8436, the law
amended by R.A. No. 9369. The proviso was lifted from Section 66 of B.P. Blg.
881 or the Omnibus Election Code (OEC) of the Philippines, which reads:
owned or controlled corporations, shall be considered ipso facto resigned from his
office upon the filing of his certificate of candidacy.
Much earlier, R.A. No. 6388, or the Election Code of 1971, likewise stated
in its Section 23 the following:
Going further back in history, R.A. No. 180, or the Revised Election Code
approved on June 21, 1947, also provided that
During the Commonwealth era, Commonwealth Act (C.A.) No. 725, entitled
AN ACT TO PROVIDE FOR THE NEXT ELECTION FOR PRESIDENT AND
VICE-PRESIDENT OF THE PHILIPPINES, SENATORS AND MEMBERS OF
THE HOUSE OF REPRESENTATIVES, AND APPROPRIATING THE
NECESSARY FUNDS THEREFOR, approved on January 5, 1946, contained, in
the last paragraph of its Section 2, the following:
Significantly, however, C.A. No. 666, entitled AN ACT TO PROVIDE FOR THE
FIRST ELECTION FOR PRESIDENT AND VICE-PRESIDENT OF THE
PHILIPPINES,
SENATORS, AND
REPRESENTATIVES,
UNDER
MEMBERS
THE
OF
THE
CONSTITUTION
HOUSE
AND
OF
THE
Nevertheless, C.A. No. 357, or the Election Code approved on August 22,
1938, had, in its Section 22, the same verbatim provision as Section 26 of R.A. No.
180.
The earliest recorded Philippine law on the subject is Act No. 1582, or the
Election Law enacted by the Philippine Commission in 1907, the last paragraph of
Section 29 of which reads:
From this brief historical excursion, it may be gleaned that the second
proviso in the third paragraph of Section 13 of R.A. No. 9369that any person
holding a public appointive office or position, including active members of the
armed forces, and officers, and employees in government-owned or controlled
corporations, shall be considered ipso facto resigned from his/her office and must
vacate the same at the start of the day of the filing of his/her certificate of
candidacytraces its roots to the period of the American occupation.
In fact, during the deliberations of Senate Bill No. 2231, the bill later to be
consolidated with House Bill No. 5352 and enacted as R.A. No. 9369, Senator
Richard Gordon, the principal author of the bill, acknowledged that the said
proviso in the proposed legislative measure is an old provision which was merely
copied from earlier existing legislation, thus
Senator Osmea. May I just opine here and perhaps obtain the opinion of
the good Sponsor. This reads like, ANY PERSON HOLDING [means currently]
A PUBLIC APPOINTIVE POSITION SHALL BE CONSIDERED IPSO
FACTO RESIGNED [which means that the prohibition extends only to
appointive officials] INCLUDING ACTIVE MEMBERS OF THE ARMED
FORCES, OFFICERS AND EMPLOYEES This is a prohibition, Mr.
President. This means if one is chairman of SSS or PDIC, he is deemed ipso facto
resigned when he files his certificate of candidacy. Is that the intention?
Senator Gordon. This is really an old provision, Mr. President.
Senator Osmea. It is in bold letters, so I think it was a Committee
amendment.
Senator Gordon. No, it has always been there.
Senator Osmea. I see.
Senator Gordon. I guess the intention is not to give them undue
advantage, especially certain people.
Senator Osmea. All right.
Senator Santiago. On page 15, line 31, I know that this is a losing cause,
so I make this point more as a matter of record than of any feasible hope that it
can possibly be either accepted or if we come to a division of the House, it will be
upheld by the majority.
I am referring to page 15, line 21. The proviso begins: PROVIDED
FINALLY, THAT ANY PERSON HOLDING A PUBLIC APPOINTIVE
OFFICESHALL BE CONSIDERED IPSO FACTO RESIGNED FROM
HIS/HER OFFICE.
The point that I made during the appropriate debate in the past in this Hall
is that there is, for me, no valid reason for exempting elective officials from this
inhibition or disqualification imposed by the law. If we are going to consider
appointive officers of the government, including AFP members and officers of
government-owned and controlled corporations, or any other member of the
appointive sector of the civil service, why should it not apply to the elective sector
for, after all, even senators and congressmen are members of the civil service as
well?
Further, it is self-serving for the Senate, or for the Congress in general, to
give an exception to itself which is not available to other similarly situated
officials of government. Of course, the answer is, the reason why we are special
is that we are elected. Since we are imposing a disqualification on all other
government officials except ourselves, I think, it is the better part of delicadeza to
inhibit ourselves as well, so that if we want to stay as senators, we wait until our
term expires. But if we want to run for some other elective office during our
term, then we have to be considered resigned just like everybody else. That is my
proposed amendment. But if it is unacceptable to the distinguished Sponsor,
because of sensitivity to the convictions of the rest of our colleagues, I will
understand.
Senator Gordon. Mr. President, I think the suggestion is well-thought of.
It is a good policy. However, this is something that is already in the old law
which was upheld by the Supreme court in a recent case that the rider was not
upheld and that it was valid.
employees holding political offices, are obviously expressly allowed to take part
in political and electoral activities.
By repealing Section 67 but retaining Section 66 of the Omnibus Election
Code, the legislators deemed it proper to treat these two classes of officials
differently with respect to the effect on their tenure in the office of the filing of the
certificates of candidacy for any position other than those occupied by them.
Again, it is not within the power of the Court to pass upon or look into the
wisdom of this classification.
Since the classification justifying Section 14 of Rep. Act No. 9006, i.e.,
elected officials vis-a-vis appointive officials, is anchored upon material and
significant distinctions and all the persons belonging under the same classification
are similarly treated, the equal protection clause of the Constitution is, thus, not
infringed.
III.
The instant case presents a rare opportunity for the Court, in view of the
constitutional challenge advanced by petitioners, once and for all, to settle the issue
of whether the second proviso in the third paragraph of Section 13 of R.A. No.
9369, a reproduction of Section 66 of the OEC, which, as shown above, was based
on provisions dating back to the American occupation, is violative of the equal
protection clause.
But before delving into the constitutional issue, we shall first address the
issues on legal standing and on the existence of an actual controversy.
The Court, nevertheless, finds that, while petitioners are not yet candidates,
they have the standing to raise the constitutional challenge, simply because they
are qualified voters. A restriction on candidacy, such as the challenged measure
herein, affects the rights of voters to choose their public officials. The rights of
voters and the rights of candidates do not lend themselves to neat separation; laws
that affect candidates always have at least some theoretical, correlative effect on
voters. The Court believes that both candidates and voters may challenge, on
grounds of equal protection, the assailed measure because of its impact on voting
rights.
In any event, in recent cases, this Court has relaxed the stringent direct
injury test and has observed a liberal policy allowing ordinary citizens, members of
Congress,
and
civil
organizations
to
prosecute
actions
involving
the
We have also stressed in our prior decisions that the exercise by this Court of
judicial power is limited to the determination and resolution of actual cases and
controversies. The Court, in this case, finds that an actual case or controversy
exists between the petitioners and the COMELEC, the body charged with the
enforcement and administration of all election laws. Petitioners have alleged in a
precise manner that they would engage in the very acts that would trigger the
enforcement of the provisionthey would file their CoCs and run in the 2010
elections. Given that the assailed provision provides for ipso facto resignation upon
the filing of the CoC, it cannot be said that it presents only a speculative or
hypothetical obstacle to petitioners candidacy.
IV.
Having hurdled what the OSG posed as obstacles to judicial review, the
Court now delves into the constitutional challenge.
It is noteworthy to point out that the right to run for public office touches on
two fundamental freedoms, those of expression and of association. This premise is
best explained in Mancuso v. Taft, viz.:
It is impossible to ignore the additional fact that the right to run for office
also affects the freedom to associate. In Williams v. Rhodes, supra, the Court used
strict review to invalidate an Ohio election system that made it virtually
impossible for third parties to secure a place on the ballot. The Court found that
the First Amendment protected the freedom to associate by forming and
promoting a political party and that that freedom was infringed when the state
effectively denied a party access to its electoral machinery. The Cranston charter
provision before us also affects associational rights, albeit in a slightly different
way. An individual may decide to join or participate in an organization or political
party that shares his beliefs. He may even form a new group to forward his ideas.
And at some juncture his supporters and fellow party members may decide that he
is the ideal person to carry the group's standard into the electoral fray. To thus
restrict the options available to political organization as the Cranston charter
provision has done is to limit the effectiveness of association; and the freedom to
associate is intimately related with the concept of making expression effective.
Party access to the ballot becomes less meaningful if some of those selected by
party machinery to carry the party's programs to the people are precluded from
doing so because those nominees are civil servants.
Whether the right to run for office is looked at from the point of view of
individual expression or associational effectiveness, wide opportunities exist for
the individual who seeks public office. The fact of candidacy alone may open
previously closed doors of the media. The candidate may be invited to discuss his
views on radio talk shows; he may be able to secure equal time on television to
elaborate his campaign program; the newspapers may cover his candidacy; he
may be invited to debate before various groups that had theretofore never heard of
him or his views. In short, the fact of candidacy opens up a variety of
communicative possibilities that are not available to even the most diligent of
picketers or the most loyal of party followers. A view today, that running for
public office is not an interest protected by the First Amendment, seems to us an
outlook stemming from an earlier era when public office was the preserve of the
professional and the wealthy. Consequently we hold that candidacy is both a
protected First Amendment right and a fundamental interest. Hence any
legislative classification that significantly burdens that interest must be subjected
to strict equal protection review.
down the said proviso for being violative of the equal protection clause and for
being overbroad.
The first requirement means that there must be real and substantial
differences between the classes treated differently. As illustrated in the fairly recent
The third requirement means that the classification must be enforced not
only for the present but as long as the problem sought to be corrected continues to
exist. And, under the last requirement, the classification would be regarded as
invalid if all the members of the class are not treated similarly, both as to rights
conferred and obligations imposed.
Applying the four requisites to the instant case, the Court finds that the
differential treatment of persons holding appointive offices as opposed to those
holding elective ones is not germane to the purposes of the law.
The obvious reason for the challenged provision is to prevent the use of a
governmental position to promote ones candidacy, or even to wield a dangerous or
coercive influence on the electorate. The measure is further aimed at promoting the
efficiency, integrity, and discipline of the public service by eliminating the danger
that the discharge of official duty would be motivated by political considerations
rather than the welfare of the public. The restriction is also justified by the
proposition that the entry of civil servants to the electoral arena, while still in
office, could result in neglect or inefficiency in the performance of duty because
they would be attending to their campaign rather than to their office work.
If we accept these as the underlying objectives of the law, then the assailed
provision cannot be constitutionally rescued on the ground of valid classification.
Glaringly absent is the requisite that the classification must be germane to the
purposes of the law. Indeed, whether one holds an appointive office or an elective
one, the evils sought to be prevented by the measure remain. For example, the
Executive Secretary, or any Member of the Cabinet for that matter, could wield the
same influence as the Vice-President who at the same time is appointed to a
Cabinet post (in the recent past, elected Vice-Presidents were appointed to take
charge of national housing, social welfare development, interior and local
government, and foreign affairs). With the fact that they both head executive
offices, there is no valid justification to treat them differently when both file their
CoCs for the elections. Under the present state of our law, the Vice-President, in
the example, running this time, let us say, for President, retains his position during
the entire election period and can still use the resources of his office to support his
campaign.
V.
The challenged provision also suffers from the infirmity of being overbroad.
First, the provision pertains to all civil servants holding appointive posts
without distinction as to whether they occupy high positions in government or not.
Certainly, a utility worker in the government will also be considered as ipso facto
resigned once he files his CoC for the 2010 elections. This scenario is absurd for,
indeed, it is unimaginable how he can use his position in the government to wield
influence in the political world.
While it may be admitted that most appointive officials who seek public
elective office are those who occupy relatively high positions in government, laws
cannot be legislated for them alone, or with them alone in mind. For the right to
seek public elective office is universal, open and unrestrained, subject only to the
qualification standards prescribed in the Constitution and in the laws. These
qualifications are, as we all know, general and basic so as to allow the widest
participation of the citizenry and to give free rein for the pursuit of ones highest
aspirations to public office. Such is the essence of democracy.
Second, the provision is directed to the activity of seeking any and all public
offices, whether they be partisan or nonpartisan in character, whether they be in the
national, municipal or barangay level. Congress has not shown a compelling state
interest to restrict the fundamental right involved on such a sweeping scale.
Specific evils require specific treatments, not through overly broad measures
that unduly restrict guaranteed freedoms of the citizenry. After all, sovereignty
resides in the people, and all governmental power emanates from them.
On a final note, it may not be amiss to state that the Americans, from whom
we copied the provision in question, had already stricken down a similar measure
for being unconstitutional. It is high-time that we, too, should follow suit and, thus,
uphold fundamental liberties over age-old, but barren, restrictions to such
freedoms.
SO ORDERED.
WE CONCUR:
REYNATO S. PUNO
Chief Justice
RENATO C. CORONA
ANTONIO T. CARPIO
Associate Justice
Associate Justice
MINITA V. CHICO-NAZARIO
Associate Justice
Associate Justice
Associate Justice
ARTURO D. BRION
DIOSDADO M. PERALTA
Associate Justice
Associate Justice
LUCAS P. BERSAMIN
Associate Justice
Associate Justice
ROBERTO A. ABAD
Associate Justice
Associate Justice
C E R T I F I C AT I O N
Pursuant to Section 13, Article VIII of the Constitution, I certify that the
conclusions in the above decision had been reached in consultation before the case
was assigned to the writer of the opinion of the Court.
REYNATO S. PUNO
Chief Justice
Salvacion v. Central Bank of the Philippines, G.R. No. 94723, August 21, 1997, 278
SCRA 27, 28.
Emphasis supplied.
Emphasis supplied.
Promulgated on October 6, 2009.
Petitioner Eleazar P. Quinto is the Undersecretary for Field Operations of the
Department of Environment and Natural Resources (DENR). He intends to run for
Representative in the 4th Congressional District of Pangasinan. Petitioner Gerino A. Tolentino, Jr.
is the OIC-Director of the Land Management Bureau of the DENR. He likewise desires to run
for City Councilor in the 4th District of Manila. (Rollo, pp. 8-9.)
Rollo, pp. 10-13.
Id. at 11.
Id. at 12-13.
Id. at 27-40.
The first paragraph of Sec. 1 of Rule 65 provides:
SECTION 1. Petition for certiorari.When any tribunal, board or officer exercising
judicial or quasi-judicial functions has acted without or in excess of its or his jurisdiction, or with
grave abuse of discretion amounting to lack or excess of jurisdiction, and there is no appeal, nor
any plain, speedy, and adequate remedy in the ordinary course of law, a person aggrieved thereby
may file a verified petition in the proper court, alleging the facts with certainty and praying that
judgment be rendered annulling or modifying the proceedings of such tribunal, board or officer,
and granting such incidental reliefs as law and justice may require. (See Patalinghug v.
Commission on Elections, G.R. No. 178767, January 30, 2008, 543 SCRA 175, 184-185.)
The first paragraph of Sec. 1 of Rule 63 provides:
SECTION 1. Who may file petition.Any person interested under a deed, will,
contract or other written instrument, or whose rights are affected by a statute, executive order or
regulation, ordinance, or any other governmental regulation may, before breach or violation
thereof, bring an action in the appropriate Regional Trial Court to determine any question of
construction or validity arising, and for a declaration of his rights or duties, thereunder. (See
Almeda v. Bathala Marketing Industries, Inc., G.R. No. 150806, January 28, 2008, 542 SCRA
470, 478-479; John Hay Peoples Alternative Coalition v. Lim, G.R. No. 119775, October 24,
2003, 414 SCRA 356, 369.)
Salvacion v. Central Bank of the Philippines, supra note 1, at 39.
MCC Industrial Sales Corporation v. Ssangyong Corporation, G.R. No. 170633, October
17, 2007, 536 SCRA 408, 433.
Emphasis supplied.
Record of the Senate, Vol. III, Session No. 29, September 27, 2006, pp. 69-70.
Record of the Senate, Vol. III, Session No. 12, August 16, 2006, pp. 71-72.
Senate Records and Archives, 13th CP, 3rd Regular Session, Vol. III, August 1, 2006, p. 25.
Entitled AN ACT TO ENHANCE THE HOLDING OF FREE, ORDERLY, HONEST,
PEACEFUL AND CREDIBLE ELECTIONS THROUGH FAIR ELECTION PRACTICES,
approved on February 12, 2001.
Sec. 14 of R.A. No. 9006 provides:
Province of Batangas v. Romulo, G.R. No. 152774, May 27, 2004, 429 SCRA 736, 755.
Bullock v. Carter, 405 U.S. 134, 143 (1972).
Mancuso v. Taft, 476 F.2d 187, 190 (1973).
David v. Macapagal-Arroyo, G.R. Nos. 171396, 171409, 171485, 171483, 171400,
171489 and 171424, May 3, 2006, 489 SCRA 160, 218.
Dumlao v. COMELEC, G.R. No. L-52245, January 22, 1980, 95 SCRA 392, 401. This
case explains the standards that have to be followed in the exercise of the power of judicial
review, namely: (1) the existence of an appropriate case; (2) an interest personal and substantial
by the party raising the constitutional question; (3) the plea that the function be exercised at the
earliest opportunity; and (4) the necessity that the constitutional question be passed upon in order
to decide the case.
Clements v. Fashing, 457 U.S. 957, 960; 102 S.Ct. 2836, 2843 (1982).
Supra note 25, at 195-196.
Citations omitted.
Fort v. Civil Service Commission of the County of Alameda, 61 Cal.2d 331, 336; 392 P.2d
385, 388; 38 Cal.Rptr. 625, 628 (1964).