BRION, J.

On June 30, 2011, Republic Act (RA) No. 10153, entitled An Act Providing for the Synchronization of the Elections in the Autonomous Region in Muslim Mindanao (ARMM) with the National and Local Elections and for ther Pur!oses was enacted. !e law "eset t!e AR## elections $"o% t!e &t! o$ Au'ust 2011, to t!e second #onda( o$ #a( 2013 and e)e"( t!"ee (3) (ea"s t!e"ea$te", to coincide wit! t!e count"(*s "e'ula" national and local elections. !e law as well '"anted t!e +"esident t!e powe" to appoint o$$ice"s,in,c!a"'e ( "#s) $o" t!e O$$ice o$ t!e Re'ional -o)e"no", t!e Re'ional .ice,-o)e"no", and t!e #e%be"s o$ t!e Re'ional /e'islati)e Asse%bl(, w!o s!all pe"$o"% t!e $unctions pe"tainin' to t!e said o$$ices until t!e o$$icials dul( elected in t!e #a( 2013 elections s!all !a)e 0uali$ied and assu%ed o$$ice. 1)en be$o"e its $o"%al passa'e, t!e bills t!at beca%e RA No. 10153 al"ead( spawned petitions a'ainst t!ei" )alidit(2 3ouse 4ill No. 5156 and 7enate 4ill No. 2856 we"e c!allen'ed in petitions $iled wit! t!is 9ou"t. petitions %ultiplied a$te" RA No. 10153 was passed. Factual Antecedents !e 7tate, t!"ou'! 7ections 15 to 22, A"ticle : o$ t!e 1;&8 9onstitution, %andated t!e c"eation o$ autono%ous "e'ions in #usli% #indanao and t!e 9o"dille"as. 7ection 15 states< 7ection 15. !e"e s!all be c"eated autono%ous "e'ions in #usli% #indanao and in t!e 9o"dille"as consistin' o$ p"o)inces, cities, %unicipalities, and 'eo'"ap!ical a"eas s!a"in' co%%on and distincti)e !isto"ical and cultu"al !e"ita'e, econo%ic and social st"uctu"es, and ot!e" "ele)ant c!a"acte"istics wit!in t!e $"a%ewo"= o$ t!is 9onstitution and t!e national so)e"ei'nt( as well as te""ito"ial inte'"it( o$ t!e Republic o$ t!e +!ilippines. 7ection 1& o$ t!e A"ticle, on t!e ot!e" !and, di"ected 9on'"ess to enact an o"'anic act $o" t!ese autono%ous "e'ions to conc"etel( ca""( into e$$ect t!e '"anted autono%(. 7ection 1&. !e 9on'"ess s!all enact an o"'anic act $o" eac! autono%ous "e'ion wit! t!e assistance and pa"ticipation o$ t!e "e'ional consultati)e co%%ission co%posed o$ "ep"esentati)es appointed b( t!e +"esident $"o% a list o$ no%inees $"o% %ultisecto"al bodies. !e o"'anic act s!all de$ine t!e basic st"uctu"e o$ 'o)e"n%ent $o" t!e "e'ion consistin' o$ t!e e>ecuti)e depa"t%ent and le'islati)e asse%bl(, bot! o$ w!ic! s!all be electi)e and "ep"esentati)e o$ t!e constituent political units. !e o"'anic acts s!all li=ewise p"o)ide $o" special cou"ts wit! pe"sonal, $a%il( and p"ope"t( law ?u"isdiction consistent wit! t!e p"o)isions o$ t!is 9onstitution and national laws. !e c"eation o$ t!e autono%ous "e'ion s!all be e$$ecti)e w!en app"o)ed b( a %a?o"it( o$ t!e )otes cast b( t!e constituent units in a plebiscite called $o" t!e pu"pose, p"o)ided t!at onl( p"o)inces, cities, and 'eo'"ap!ic a"eas )otin' $a)o"abl( in suc! plebiscite s!all be included in t!e autono%ous "e'ion. !ese

On Au'ust 1, 1;&; o" two (ea"s a$te" t!e e$$ecti)it( o$ t!e 1;&8 9onstitution, 9on'"ess acted t!"ou'! Republic Act (RA) No. 6835 entitled An Act Providing for an rganic Act for the Autonomous Region in Muslim !e initiall( assentin' p"o)inces Mindanao. A plebiscite was !eld onNo)e%be" 6, 1;;0 as "e0ui"ed b( 7ection 1&(2), A"ticle : o$ RA No. 6835, t!us $ull( establis!in' t!e Autono%ous Re'ion o$ #usli% #indanao ( ARMM). we"e /anao del 7u", #a'uindanao, 7ulu and awi,tawi. RA No. 6835 sc!eduled t!e $i"st "e'ula" elections $o" t!e "e'ional o$$icials o$ t!e AR## on a date not ea"lie" t!an 60 da(s no" late" t!an ;0 da(s a$te" its "ati$ication. RA No. ;055 (entitled An Act to Strengthen and E$!and the rganic Act for the Autonomous Region in !is law p"o)ided $u"t!e"

Muslim Mindanao% Amending for the Pur!ose Re!u&lic Act No' ()*+% entitled An Act Providing for the Autonomous Region in Muslim Mindanao% as Amended ) was t!e ne>t le'islati)e act passed. t!e AR## "e'ional o$$icials to t!e second #onda( o$ 7epte%be" 2001. 9on'"ess passed t!e ne>t law a$$ectin' AR## @ RA No. ;150 A1B , on June 22, 2001. to "ati$( RA No. ;055 to not late" t!anAu'ust 15, 2001. RA No. ;055 was "ati$ied in a plebiscite !eld on Au'ust 15, 2001. !is law "eset t!e "e$ine%ent in t!e basic AR## st"uctu"e $i"st de$ined in t!e o"i'inal o"'anic act, and "eset t!e "e'ula" elections $o"

$i"st "e'ula" elections o"i'inall( sc!eduled unde" RA No. ;055, to No)e%be" 26, 2001. Ct li=ewise set t!e plebiscite

!e p"o)ince o$ 4asilan and #a"awi 9it( )oted to ?oin AR## on t!e sa%e date. RA No. ;333A2B was subse0uentl( passed b( 9on'"ess to "eset t!e AR## "e'ional elections to t!e 2nd #onda( o$ Au'ust 2005, and on t!e sa%e date e)e"( 3 (ea"s t!e"ea$te". Dnli=e RA No. 6835 and RA No. ;055, RA No. ;333 was not "ati$ied in a plebiscite. +u"suant to RA No. ;333, t!e ne>t AR## "e'ional elections s!ould !a)e been !eld on Au'ust &, 2011. 9O#1/19 !ad be'un p"epa"ations $o" t!ese elections and !ad accepted ce"ti$icates o$ candidacies $o" t!e )a"ious "e'ional o$$ices to be elected. 4ut on June 30, 2011, RA No. 10153 was enacted, "esettin' t!e AR## elections to #a( 2013, to coincide wit! t!e "e'ula" national and local elections o$ t!e count"(. RA No. 10153 o"i'inated in t!e 3ouse o$ Rep"esentati)es as 3ouse 4ill ( ,-) No. 5156, see=in' t!e postpone%ent o$ t!e AR## elections sc!eduled on Au'ust &, 2011. On #a"c! 22, 2011, t!e 3ouse o$ Rep"esentati)es passed 34 No. 5156, wit! one !und"ed ninet( one (1;1) #e%be"s )otin' in its $a)o". A$te" t!e 7enate "ecei)ed 34 No. 5156, it adopted its own )e"sion, 7enate 4ill No. 2856 (74 No. 2856), on June 6, 2011. into law. !i"teen (13) 7enato"s )oted $a)o"abl( $o" its passa'e. On June 8, 2011, t!e 3ouse o$ Rep"esentati)e concu""ed wit! t!e 7enate a%end%ents, and on June 30, 2011, t!e +"esident si'ned RA No. 10153

As %entioned, t!e ea"l( c!allen'e to RA No. 10153 ca%e t!"ou'! a petition $iled wit! t!is 9ou"t @ G.R. No. 196271A3B -assailin' t!e constitutionalit( o$ bot! 34 No. 5156 and 74 No. 2856, and c!allen'in' t!e )alidit( o$ RA No. ;333 as well $o" non,co%pliance wit! t!e constitutional plebiscite "e0ui"e%ent.
A5B

!e"ea$te",

petitione" 4asa"i #apupuno in G.R. No. 196305 $iled anot!e" petition also assailin' t!e )alidit( o$ RA No. ;333. Eit! t!e enact%ent into law o$ RA No. 10153, t!e 9O#1/19 stopped its p"epa"ations $o" t!e AR## elections. a) !e law 'a)e "ise as well to t!e $ilin' o$ t!e $ollowin' petitions a'ainst its constitutionalit(< +etition $o" #ertiorari and +"o!ibitionA5B $iled b( Rep. 1dcel /a'%an as a %e%be" o$ t!e 3ouse o$ Rep"esentati)es a'ainst +a0uito Oc!oa, J". (in !is capacit( as t!e 1>ecuti)e 7ec"eta"() and t!e 9O#1/19, doc=eted as G.R. No. 197221; b) +etition $o" #anda%us and +"o!ibitionA6B $iled b( Att(. Ro%ulo #acalintal as a ta>pa(e" a'ainst t!e 9O#1/19, doc=eted asG.R. No. 1972 2; c) +etition $o" #ertiorari and #anda%us, Cn?unction and +"eli%ina"( Cn?unction A8B $iled b( /ouis 4a"o= 4i"ao'o a'ainst t!e 9O#1/19 and 1>ecuti)e 7ec"eta"( +a0uito N. Oc!oa, J"., doc=eted as G.R. No. 1973922 and d) +etition $o" #ertiorari and #anda%usA&B $iled b( Jacinto +a"as as a %e%be" o$ t!e 3ouse o$ Rep"esentati)es a'ainst 1>ecuti)e 7ec"eta"( +a0uito Oc!oa, J". and t!e 9O#1/19, doc=eted as G.R. No. 197!5!. +etitione"s Ala%a"i% 9enti illa! and Fatu 9asan 9ondin' 9ana as "e'iste"ed )ote"s $"o% t!e AR##, wit! t!e +a"tido Fe%o="ati=o +ilipino /a=as n' 4a(an (a political pa"t( wit! candidates in t!e AR## "e'ional elections sc!eduled $o" Au'ust &, 2011), also $iled a +etition $o" +"o!ibition and #anda%us A;B a'ainst t!e 9O#1/19, doc=eted as G.R. No. 1972 0, to assail t!e constitutionalit( o$ RA No. ;150, RA No. ;333 and RA No. 10153. 7ubse0uentl(, Ana= #indanao +a"t(,/ist, #ino"it( Ri'!ts Go"u% +!ilippines, Cnc. and 4an'sa%o"o 7olida"it( #o)e%ent $iled t!ei" own #otion $o" /ea)e to Ad%it t!ei" #otion $o" Cnte")ention and 9o%%ent,in, Cnte")ention dated Jul( 1&, 2011. On Jul( 26, 2011, t!e 9ou"t '"anted t!e %otion. Cn t!e sa%e Resolution, t!e 9ou"t o"de"ed t!e consolidation o$ all t!e petitions "elatin' to t!e constitutionalit( o$ 34 No. 5156, 74 No. 2856, RA No. ;333, and RA No. 10153. O"al a"'u%ents we"e !eld on Au'ust ;, 2011 and Au'ust 16, 2011. sub%it t!ei" "especti)e %e%o"anda wit!in twent( (20) da(s. !e"ea$te", t!e pa"ties we"e inst"ucted to

On 7epte%be" 13, 2011, t!e 9ou"t issued a te%po"a"( "est"ainin' o"de" en?oinin' t!e i%ple%entation o$ RA No. 10153 and o"de"in' t!e incu%bent electi)e o$$icials o$ AR## to continue to pe"$o"% t!ei" $unctions s!ould t!ese cases not be decided b( t!e end o$ t!ei" te"% on 7epte%be" 30, 2011. "#e A$%u&ents !e petitione"s assailin' RA No. ;150, RA No. ;333 and RA No. 10153 asse"t t!at t!ese laws a%end RA No. ;055 and t!us, !a)e to co%pl( wit! t!e supe"%a?o"it( )ote and plebiscite "e0ui"e%ents p"esc"ibed unde" 7ections 1 and 3, A"ticle :.CC o$ RA No. ;0;5 in o"de" to beco%e e$$ecti)e. !e petitions assailin' RA No. 10153 $u"t!e" %aintain t!at it is unconstitutional $o" its $ailu"e to co%pl( wit! t!e t!"ee,"eadin' "e0ui"e%ent o$ 7ection 26(2), A"ticle .C o$ t!e 9onstitution. Also cited as '"ounds a"e t!e alle'ed )iolations o$ t!e "i'!t o$ su$$"a'e o$ t!e people o$ AR##, as well as t!e $ailu"e to ad!e"e to t!e electi)e and "ep"esentati)e c!a"acte" o$ t!e e>ecuti)e and le'islati)e depa"t%ents o$ t!e AR##. /astl(, t!e petitione"s c!allen'ed t!e '"ant to t!e +"esident o$ t!e powe" to appoint OC9s to unde"ta=e t!e $unctions o$ t!e electi)e AR## o$$icials until t!e o$$icials elected unde" t!e #a( 2013 "e'ula" elections s!all !a)e assu%ed o$$ice. 9o""ola"il(, t!e( also a"'ue t!at t!e powe" o$ appoint%ent also 'a)e t!e +"esident t!e powe" o$ cont"ol o)e" t!e AR##, in co%plete )iolation o$ 7ection 16, A"ticle : o$ t!e 9onstitution. "#e Issues

G"o% t!e pa"ties* sub%issions, t!e $ollowin' issues we"e "eco'niHed and a"'ued b( t!e pa"ties in t!e o"al a"'u%ents o$ Au'ust ; and 16, 2011< C. CC. E!et!e" t!e 1;&8 9onstitution %andates t!e s(nc!"oniHation o$ elections E!et!e" t!e passa'e o$ RA No. 10153 )iolates 7ection 26(2), A"ticle .C o$ t!e 1;&8 9onstitution CCC. E!et!e" t!e passa'e o$ RA No. 10153 "e0ui"es a supe"%a?o"it( )ote and plebiscite A. Foes t!e postpone%ent o$ t!e AR## "e'ula" elections constitute an a%end%ent to 7ection 8, A"ticle :.CCC o$ RA No. ;055I

4. Foes t!e "e0ui"e%ent o$ a supe"%a?o"it( )ote $o" a%end%ents o" "e)isions to RA No. ;055 )iolate 7ection 1 and 7ection 16(2), A"ticle .C o$ t!e 1;&8 9onstitution and t!e co"olla"( doct"ine on i""epealable lawsI 9. Foes t!e "e0ui"e%ent o$ a plebiscite appl( onl( in t!e c"eation o$ autono%ous "e'ions unde" pa"a'"ap! 2, 7ection 1&, A"ticle : o$ t!e 1;&8 9onstitutionI C.. E!et!e" RA No. 10153 )iolates t!e autono%( '"anted to t!e AR##

.. E!et!e" t!e '"ant o$ t!e powe" to appoint OC9s )iolates< A. 7ection 15, A"ticle : o$ t!e 1;&8 9onstitution 4. 7ection 16, A"ticle : o$ t!e 1;&8 9onstitution 9. 7ection 1&, A"ticle : o$ t!e 1;&8 9onstitution .C. E!et!e" t!e p"oposal to !old special elections is constitutional and le'al. Ee s!all discuss t!ese issues in t!e o"de" t!e( a"e p"esented abo)e.

O'R R'(ING Ee "esol)e to )I*+I** t!e petitions and t!e"eb( ',-O() t#e const.tut.onal.t/ o0 RA No. 10153 in toto. I. Synchronization as a recognized constitutional mandate !e "espondent O$$ice o$ t!e 7olicito" -ene"al ( S.) a"'ues t!at t!e 9onstitution %andates s(nc!"oniHation, and in suppo"t o$ t!is position, cites 7ections 1, 2 and 5, A"ticle :.CCC ( "ansito"( +"o)isions) o$ t!e 1;&8 9onstitution, w!ic! p"o)ides< 7ection 1. !e $i"st elections o$ #e%be"s o$ t!e 9on'"ess unde" t!is 9onstitution s!all be !eld on t!e second #onda( o$ #a(, 1;&8. !e $i"st local elections s!all be !eld on a date to be dete"%ined b( t!e +"esident, w!ic! %a( be si%ultaneous wit! t!e election o$ t!e #e%be"s o$ t!e 9on'"ess. Ct s!all include t!e election o$ all #e%be"s o$ t!e cit( o" %unicipal councils in t!e #et"opolitan #anila a"ea.

7ection 2. !e 7enato"s, #e%be"s o$ t!e 3ouse o$ Rep"esentati)es and t!e local o$$icials $i"st elected unde" t!is 9onstitution shall serve until noonof /une *0% 1223. O$ t!e 7enato"s elected in t!e election in 1;;2, t!e $i"st twel)e obtainin' t!e !i'!est nu%be" o$ )otes s!all se")e $o" si> (ea" and t!e "e%ainin' twel)e $o" t!"ee (ea"s. >>> 7ection 5. !e si>,(ea" te"% o$ t!e incu%bent +"esident and .ice +"esident elected in t!e Geb"ua"( 8, 1;&6 election is, for !ur!oses of synchronization of elections% here&y e$tended to noon of /une *0% 1223. !e $i"st "e'ula" elections $o" +"esident and .ice,+"esident unde" t!is 9onstitution s!all be !eld on t!e second #onda( o$ #a(, 1;;2.

1e a%$ee 2.t# t#.s 3os.t.on. E!ile t!e 9onstitution does not e>p"essl( state t!at 9on'"ess !as to s(nc!"oniHe national and local elections, t!e clea" intent towa"ds t!is ob?ecti)e can be 'leaned $"o% t!e "ansito"( +"o)isions (A"ticle :.CCC) o$ t!e 9onstitution,A10B w!ic! s!ow t!e e>tent to w!ic! t!e 9onstitutional 9o%%ission, b( delibe"atel( %a=in' ad?ust%ents to t!e te"%s o$ t!e incu%bent o$$icials, sou'!t to attain s(nc!"oniHation o$ elections. A11B !e ob?ecti)e be!ind settin' a co%%on te"%ination date $o" all electi)e o$$icials, done a%on' ot!e"s t!"ou'! t!e s!o"tenin' t!e te"%s o$ t!e twel)e winnin' senato"s wit! t!e least nu%be" o$ )otes, is to s(nc!"oniHe t!e !oldin' o$ all $utu"e elections @ w!et!e" national o" local @ to once e)e"( t!"ee (ea"s. A12B !is intention $inds $ull suppo"t in t!e discussions du"in' t!e 9onstitutional 9o%%ission delibe"ations. A13B !ese 9onstitutional 9o%%ission e>c!an'es, "ead wit! t!e p"o)isions o$ t!e "ansito"( +"o)isions o$ t!e 9onstitution, all se")e as patent indicato"s o$ t!e constitutional %andate to !old s(nc!"oniHed national and local elections, sta"tin' t!e second #onda( o$ #a(, 1;;2 and $o" all t!e $ollowin' elections. !is 9ou"t was not le$t be!ind in "eco'niHin' t!e s(nc!"oniHation o$ t!e national and local elections as a constitutional %andate. Cn sme4a v' #ommission on Elections,A15B we e>plained< Ct is clea" $"o% t!e a$o"e0uoted p"o)isions o$ t!e 1;&8 9onstitution t!at t!e te"%s o$ o$$ice o$ 7enato"s, #e%be"s o$ t!e 3ouse o$ Rep"esentati)es, t!e local o$$icials, t!e +"esident and t!e .ice,+"esident !a)e been s(nc!"oniHed to end on t!e sa%e !ou", date and (ea" J noon o$ June 30, 1;;2. Ct is li=ewise e)ident $"o% t!e wo"din' o$ t!e abo)e,%entioned 7ections t!at t!e te"% o$ synchronization is used s(non(%ousl( as t!e p!"ase holding simultaneously since t!is is t!e p"ecise intent in te"%inatin' t!ei" O$$ice enu"e on t!e sa%e day or occasion. !is co%%on te"%ination date will s(nc!"oniHe $utu"e elections to once e)e"( t!"ee (ea"s (4e"nas, t!e 9onstitution o$ t!e Republic o$ t!e +!ilippines, .ol. CC, p. 605). !at t!e election $o" 7enato"s, #e%be"s o$ t!e 3ouse o$ Rep"esentati)es and t!e local o$$icials (unde" 7ec. 2, A"t. :.CCC) will !a)e to be s(nc!"oniHed wit! t!e election $o" +"esident and .ice +"esident (unde" 7ec. 5, A"t. :.CCC) is li=ewise e)ident $"o% t!e > > > "eco"ds o$ t!e p"oceedin's in t!e 9onstitutional 9o%%ission. A1%p!asis supplied.B

Alt!ou'! called "e'ional elections, t!e AR## elections s!ould be included a%on' t!e elections to be s(nc!"oniHed as it is a local election based on t!e wo"din' and st"uctu"e o$ t!e 9onstitution. A basic "ule in constitutional const"uction is t!at t!e wo"ds used s!ould be unde"stood in t!e sense t!at t!e( !a)e in co%%on use and 'i)en t!ei" o"dina"( %eanin', e>cept w!en tec!nical te"%s a"e e%plo(ed, in w!ic! case t!e si'ni$icance t!us attac!ed to t!e% p"e)ails. A15B As t!is 9ou"t e>plained in Peo!le v' 5erilo,A16B AaBs t!e 9onstitution is not p"i%a"il( a law(e"*s docu%ent, its lan'ua'e s!ould be unde"stood in t!e sense t!at it %a( !a)e in co%%on. Cts wo"ds s!ould be 'i)en t!ei" o"dina"( %eanin' e>cept w!e"e tec!nical te"%s a"e e%plo(ed. Dnde"stood in its o"dina"( sense, t!e wo"d local "e$e"s to so%et!in' t!at p"i%a"il( se")es t!e needs o$ a pa"ticula" li%ited dist"ict, o$ten a co%%unit( o" %ino" political subdi)ision. A18B Re'ional elections in t!e AR## $o" t!e positions o$ 'o)e"no", )ice,'o)e"no" and "e'ional asse%bl( "ep"esentati)es ob)iousl( $all wit!in t!is classi$ication, since t!e( pe"tain to t!e elected o$$icials w!o will se")e wit!in t!e li%ited "e'ion o$ AR##. G"o% t!e pe"specti)e o$ t!e 9onstitution, autono%ous "e'ions a"e conside"ed one o$ t!e $o"%s o$ local 'o)e"n%ents, as e)ident $"o% A"ticle : o$ t!e 9onstitution entitled /ocal -o)e"n%ent. Autono%ous "e'ions a"e establis!ed and discussed unde" 7ections 15 to 21 o$ t!is A"ticle @ t!e a"ticle w!oll( de)oted to /ocal -o)e"n%ent. !at an autono%ous "e'ion is conside"ed a $o"% o$ local 'o)e"n%ent is also "e$lected in 7ection 1, A"ticle : o$ t!e 9onstitution, w!ic! p"o)ides< 7ection 1. !e te""ito"ial and political subdi)isions o$ t!e Republic o$ t!e +!ilippines a"e t!e p"o)inces, cities, %unicipalities, and ba"an'a(s. !e"e s!all be autono%ous "e'ions in #usli% #indanao, and t!e 9o"dille"as as !e"eina$te" p"o)ided.

!us, we $ind t!e contention @ t!at t!e s(nc!"oniHation %andated b( t!e 9onstitution does not include t!e "e'ional elections o$ t!e AR## @un%e"ito"ious. Ee s!all "e$e" to s(nc!"oniHation in t!e cou"se o$ ou" discussions below, as t!is concept pe"%eates t!e conside"ation o$ t!e )a"ious issues posed in t!is case and %ust be "ecalled ti%e and a'ain $o" its co%plete "esolution.

II. The Presidents Certification on the Urgency of RA No. ! "# !e petitione"s in G.R. No. 1972 0 also c!allen'e t!e )alidit( o$ RA No. 10153 $o" its alle'ed $ailu"e to co%pl( wit! 7ection 26(2), A"ticle .C o$ t!e 9onstitution A1&B w!ic! p"o)ides t!at be$o"e bills passed b( eit!e" t!e 3ouse o" t!e 7enate can beco%e laws, t!e( %ust pass t!"ou'! t!"ee "eadin's on sepa"ate da(s. !e e>ception is w!en t!e +"esident ce"ti$ies to t!e necessit( o$ t!e bill*s i%%ediate enact%ent.

!e 9ou"t, in 6olentino v' Secretary of 7inance ,A1;B e>plained t!e e$$ect o$ t!e +"esident*s ce"ti$ication o$ necessit( in t!e $ollowin' %anne"< !e p"esidential ce"ti$ication dispensed wit! t!e "e0ui"e%ent not onl( o$ p"intin' but also t!at o$ "eadin' t!e bill on sepa"ate da(s. !e p!"ase Ke>cept w!en t!e +"esident ce"ti$ies to t!e necessit( o$ its i%%ediate enact%ent, etc.K in A"t. .C, 7ection 26A2B 0uali$ies t!e two stated conditions be$o"e a bill can beco%e a law< AiB t!e bill !as passed t!"ee "eadin's on sepa"ate da(s and AiiB it !as been p"inted in its $inal $o"% and dist"ibuted t!"ee da(s be$o"e it is $inall( app"o)ed. >>> !at upon t!e ce"ti$ication o$ a bill b( t!e +"esident, t!e "e0ui"e%ent o$ t!"ee "eadin's on sepa"ate da(s and o$ p"intin' and dist"ibution can be dispensed wit! is suppo"ted b( t!e wei'!t o$ le'islati)e p"actice. Go" e>a%ple, t!e bill de$inin' t!e ce"tio"a"i ?u"isdiction o$ t!is 9ou"t w!ic!, in consolidation wit! t!e 7enate )e"sion, beca%e Republic Act No. 5550, was passed on second and t!i"d "eadin's in t!e 3ouse o$ Rep"esentati)es on t!e sa%e da( A#a( 15, 1;6&B a$te" t!e bill !ad been ce"ti$ied b( t!e +"esident as u"'ent.

Cn t!e p"esent case, t!e "eco"ds s!ow t!at t!e +"esident w"ote to t!e 7pea=e" o$ t!e 3ouse o$ Rep"esentati)es to ce"ti$( t!e necessit( o$ t!e i%%ediate enact%ent o$ a law s(nc!"oniHin' t!e AR## elections wit! t!e national and local elections.A20B Gollowin' ou" 6olentino "ulin', t!e +"esident*s ce"ti$ication e>e%pted bot! t!e 3ouse and t!e 7enate $"o% !a)in' to co%pl( wit! t!e t!"ee sepa"ate "eadin's "e0ui"e%ent. On t!e $ollow,up contention t!at no necessit( e>isted $o" t!e i%%ediate enact%ent o$ t!ese bills since t!e"e was no public cala%it( o" e%e"'enc( t!at !ad to be %et, a'ain we !a"= bac= to ou" "ulin' in 6olentino< !e su$$icienc( o$ t!e $actual basis o$ t!e suspension o$ t!e w"it o$ ha&eas cor!us o" decla"ation o$ %a"tial law A"t. .CC, 7ection 1&, o" t!e e>istence o$ a national e%e"'enc( ?usti$(in' t!e dele'ation o$ e>t"ao"dina"( powe"s to t!e +"esident unde" A"t. .C, 7ection 23(2) is sub?ect to ?udicial "e)iew because basic "i'!ts o$ indi)iduals %a( be o$ !aHa"d. But t#e 0actual 4as.s o0 3$es.dent.al ce$t.0.cat.on o0 4.lls, 2#.c# .n5ol5es do.n% a2a/ 2.t# 3$ocedu$al $e6u.$e&ents des.%ned to .nsu$e t#at 4.lls a$e dul/ cons.de$ed 4/ &e&4e$s o0 7on%$ess, ce$ta.nl/ s#ould el.c.t a d.00e$ent standa$d o0 $e5.e2. A1%p!asis supplied.B

!e 3ouse o$ Rep"esentati)es and t!e 7enate @ in t!e e>e"cise o$ t!ei" le'islati)e disc"etion @ 'a)e $ull "eco'nition to t!e +"esident*s ce"ti$ication and p"o%ptl( enacted RA No. 10153. Dnde" t!e ci"cu%stances, not!in' s!o"t o$ '"a)e abuse o$ disc"etion on t!e pa"t o$ t!e two !ouses o$ 9on'"ess can ?usti$( ou" int"usion unde" ou" powe" o$ ?udicial "e)iew.A21B !e petitione"s, !owe)e", $ailed to p"o)ide us wit! an( cause o" ?usti$ication $o" t!is cou"se o$ action. 3ence, w!ile t!e ?udicial depa"t%ent and t!is 9ou"t a"e not bound b( t!e acceptance o$ t!e +"esidentLs ce"ti$ication b( bot! t!e 3ouse o$ Rep"esentati)es and t!e 7enate, p"udent e>e"cise o$ ou" powe"s and "espect due

ou" co,e0ual b"anc!es o$ 'o)e"n%ent in %atte"s co%%itted to t!e% b( t!e 9onstitution, caution a sta( o$ t!e ?udicial !and.A22B Cn an( case, despite t!e +"esident*s ce"ti$ication, t!e two,$old pu"pose t!at unde"lies t!e "e0ui"e%ent $o" t!"ee "eadin's on sepa"ate da(s o$ e)e"( bill %ust alwa(s be obse")ed to enable ou" le'islato"s and ot!e" pa"ties inte"ested in pendin' bills to intelli'entl( "espond to t!e%. 7peci$icall(, t!e pu"pose wit! "espect to #e%be"s o$ 9on'"ess is< (1) to in$o"% t!e le'islato"s o$ t!e %atte"s t!e( s!all )ote on and (2) to 'i)e t!e% notice t!at a %easu"e is in p"o'"ess t!"ou'! t!e enact%ent p"ocess.A23B Ee $ind, based on t!e "eco"ds o$ t!e delibe"ations on t!e law, t!at bot! ad)ocates and t!e opponents o$ t!e p"oposed %easu"e !ad su$$icient oppo"tunities to p"esent t!ei" )iews. Cn t!is li'!t, no "eason e>ists to nulli$( RA No. 10153 on t!e cited '"ound. III. A. RA No. $### and RA No. ! "# are not amendments to RA No. $!"% !e e$$ecti)it( o$ RA No. ;333 and RA No. 10153 !as also been c!allen'ed because t!e( did not co%pl( wit! 7ections 1 and 3, A"ticle :.CC o$ RA No. ;055 in a%endin' t!is law. !ese p"o)isions "e0ui"e< 7ection 1. 9onsistent wit! t!e p"o)isions o$ t!e 9onstitution, t!is O"'anic Act %a( be "ea%ended o" "e)ised b( t!e 9on'"ess o$ t!e +!ilippines upon a )ote o$ two,t!i"ds (2M3) o$ t!e #e%be"s o$ t!e 3ouse o$ Rep"esentati)es and o$ t!e 7enate )otin' sepa"atel(. 7ection 3. An( a%end%ent to o" "e)ision o$ t!is O"'anic Act s!all beco%e e$$ecti)e onl( w!en app"o)ed b( a %a?o"it( o$ t!e )ote cast in a plebiscite called $o" t!e pu"pose, w!ic! s!all be !eld not ea"lie" t!an si>t( (60) da(s o" late" t!an ninet( (;0) da(s a$te" t!e app"o)al o$ suc! a%end%ent o" "e)ision. 1e 0.nd no &e$.t .n t#.s content.on. Cn t!e $i"st place, neit!e" RA No. ;333 no" RA No. 10153 a%ends RA No. ;055. As an e>a%ination o$ t!ese laws will s!ow, RA No. ;055 onl( p"o)ides $o" t!e sc!edule o$ t!e first AR## elections and does not $i> t!e date o$ t!e "e'ula" elections. A need t!e"e$o"e e>isted $o" t!e 9on'"ess to $i> t!e date o$ t!e su&se'uent AR## "e'ula" elections, w!ic! it did b( enactin' RA No. ;333 and t!e"ea$te", RA No. 10153. Ob)iousl(, t!ese subse0uent laws @ RA No. $### and RA No. ! "# @ cannot &e considered amendments to RA No. $!"% as they did not change or re(ise any )ro(ision in the latter la* 2 t!e( %e"el( $illed in a 'ap in RA No. ;055 o" supple%ented t!e law b( p"o)idin' t!e date o$ t!e subse0uent "e'ula" elections. !is )iew @ t!at 9on'"ess t!ou'!t it best to lea)e t!e dete"%ination o$ t!e date o$ succeedin' AR## elections to le'islati)e disc"etion @ $inds suppo"t in AR##*s "ecent !isto"(. o "ecall, RA No. 10153 is not t!e $i"st law passed t!at "esc!eduled t!e AR## elections. !e Gi"st

O"'anic Act @ RA No. 6835 @ not onl( did not $i> t!e date o$ t!e subse0uent elections2 it did not e)en $i> t!e

speci$ic date o$ t!e $i"st AR## elections, A25Blea)in' t!e date to be $i>ed in anot!e" le'islati)e enact%ent. 9onse0uentl(, RA No. 8658,A25B RA No. &186,A26B RA No. &856,A28BRA No. &853,A2&B and RA No. ;012A2;B we"e all enacted b( 9on'"ess to $i> t!e dates o$ t!e AR## elections. 7ince t!ese laws did not c!an'e o" %odi$( an( pa"t o" p"o)ision o$ RA No. 6835, t!e( we"e not a%end%ents to t!is latte" law. 9onse0uentl(, t!e"e was no need to sub%it t!e% to an( plebiscite $o" "ati$ication. !e 7econd O"'anic Act @ RA No. 905! @ w!ic! lapsed into law on #a"c! 31, 2001, p"o)ided t!at t!e $i"st elections would be !eld on t!e second #onda( o$ 7epte%be" 2001. !e"ea$te", 9on'"ess passed RA No. ;150 A30B to "eset t!e date o$ t!e AR## elections. 7i'ni$icantl(, w!ile RA No. ;150 also sc!eduled t!e plebiscite $o" t!e "ati$ication o$ t!e 7econd O"'anic Act (RA No. ;055), t#e ne2 date o0 t#e AR++ $e%.onal elect.ons 0.8ed .n RA No. 91!0 2as not a&on% t#e 3$o5.s.ons $at.0.ed .n t#e 3le4.sc.te #eld to a33$o5e RA No. 905! . !e"ea$te", 9on'"ess passed RA No. ;333,A31B w!ic! $u"t!e" "eset t!e date o$ t!e AR## "e'ional elections. A'ain, t!is law was not "ati$ied t!"ou'! a plebiscite. G"o% t!ese le'islati)e actions, we see t!e clea" intention o$ 9on'"ess to t"eat t!e laws w!ic! $i> t!e date o$ t!e subse0uent AR## elections as sepa"ate and distinct $"o% t!e O"'anic Acts. 9on'"ess onl( acted consistentl( wit! t!is intent w!en it passed RA No. 10153 wit!out "e0ui"in' co%pliance wit! t!e a%end%ent p"e"e0uisites e%bodied in 7ection 1 and 7ection 3, A"ticle :.CC o$ RA No. ;055. III. B. Su)erma+ority (oting re'uirement unconstitutional for gi(ing RA No. $!"% the character of an irre)eala&le la* 1)en assu%in' t!at RA No. ;333 and RA No. 10153 did in $act a%end RA No. ;055, t!e supe"%a?o"it( (2M3) )otin' "e0ui"e%ent "e0ui"ed unde" 7ection 1, A"ticle :.CC o$ RA No. ;055 A32B !as to be st"uc= down $o" 'i)in' RA No. ;055 t!e c!a"acte" o$ an i""epealable law b( "e0ui"in' %o"e t!an w!at t!e 9onstitution de%ands. 7ection 16(2), A"ticle .C o$ t!e 9onstitution p"o)ides t!at a %a?o"it( o$ eac! 3ouse s!all constitute a 0uo"u% to do business. Cn ot!e" wo"ds, as lon' as %a?o"it( o$ t!e %e%be"s o$ t!e 3ouse o$ Rep"esentati)es o" t!e 7enate a"e p"esent, t!ese bodies !a)e t!e 0uo"u% needed to conduct business and !old session. Eit!in a 0uo"u%, a )ote o$ %a?o"it( is 'ene"all( su$$icient to enact laws o" app"o)e acts. Cn cont"ast, 7ection 1, A"ticle :.CC o$ RA No. ;055 "e0ui"es a )ote o$ no less t!an two,t!i"ds (2M3) o$ t!e #e%be"s o$ t!e 3ouse o$ Rep"esentati)es and o$ t!e 7enate, )otin' sepa"atel(, in o"de" to e$$ecti)el( a%end RA No. ;055. 9lea"l(, t!is 2M3 )otin' "e0ui"e%ent is !i'!e" t!an w!at t!e 9onstitution "e0ui"es $o" t!e passa'e o$ bills, and se")ed to "est"ain t!e plena"( powe"s o$ 9on'"ess to a%end, "e)ise o" "epeal t!e laws it !ad passed. p"onounce%ent in #ity of 5avao v' .S"S unconstitutionalit(<
A33B

!e 9ou"t*s

on t!is sub?ect best e>plains t!e basis and "eason $o" t!e

#o"eo)e", it would be no>ious anat#e&a to de&oc$at.c 3$.nc.3les $o" a le'islati)e bod( to !a)e t!e abilit( to bind t!e actions o$ $utu"e le'islati)e bod(, conside"in' t!at bot! asse%blies a"e "e'a"ded wit! e0ual $ootin', e>e"cisin' as t!e( do t!e sa%e plena"( powe"s. ,e$3etual .n0all.4.l.t/ .s not one o0 t#e att$.4utes des.$ed .n a le%.slat.5e 4od/, and a le%.slatu$e 2#.c# atte&3ts to 0o$estall 0utu$e a&end&ents o$ $e3eals o0 .ts enact&ents la4o$s unde$ delus.ons o0 o&n.sc.ence. >>> A state le'islatu"e !as a plena"( law,%a=in' powe" o)e" all sub?ects, w!et!e" pe"tainin' to pe"sons o" t!in's, wit!in its te""ito"ial ?u"isdiction, eit!e" to int"oduce new laws o" "epeal t!e old, unless p"o!ibited e>p"essl( o" b( i%plication b( t!e $ede"al constitution o" li%ited o" "est"ained b( its own. Ct cannot bind itsel$ o" its successo"s b( enactin' i""epealable laws e>cept w!en so "est"ained. 1)e"( le'islati)e bod( %a( %odi$( o" abolis! t!e acts passed b( itsel$ o" its p"edecesso"s. !is powe" o$ "epeal %a( be e>e"cised at t!e sa%e session at w!ic! t!e o"i'inal act was passed2 and e)en w!ile a bill is in its p"o'"ess and be$o"e it beco%es a law. "#.s le%.slatu$e cannot 4.nd a 0utu$e le%.slatu$e to a 3a$t.cula$ &ode o0 $e3eal. It cannot decla$e .n ad5ance t#e .ntent o0 su4se6uent le%.slatu$es o$ t#e e00ect o0 su4se6uent le%.slat.on u3on e8.st.n% statutes .A35B(1%p!asis ou"s.)

!us, w!ile a supe"%a?o"it( is not a total ban a'ainst a "epeal, it is a li%itation in e>cess o$ w!at t!e 9onstitution "e0ui"es on t!e passa'e o$ bills and is constitutionall( obno>ious because it si'ni$icantl( const"icts t!e $utu"e le'islato"s* "oo% $o" action and $le>ibilit(. III. 7. Section #, Article -.// of RA No. $!"% e0cessi(ely enlarged the )le&iscite re'uirement found in Section 1, Article - of the Constitution !e "e0ui"e%ents o$ RA No. ;055 not onl( "e0ui"ed an unwa""anted supe"%a?o"it(, but enla"'ed as well t!e plebiscite "e0ui"e%ent, as e%bodied in its 7ection 3, A"ticle :.CC o$ t!at Act. As we did on t!e supe"%a?o"it( "e0ui"e%ent, we $ind t!e enla"'e%ent o$ t!e plebiscite "e0ui"e%ent "e0ui"ed unde" 7ection 1&, A"ticle : o$ t!e 9onstitution to be e>cessi)e to point o$ absu"dit( and, !ence, a )iolation o$ t!e 9onstitution. 7ection 1&, A"ticle : o$ t!e 9onstitution states t!at t!e plebiscite is "e0ui"ed onl( $o" t!e c"eation o$ autono%ous "e'ions and $o" dete"%inin' w!ic! p"o)inces, cities and 'eo'"ap!ic a"eas will be included in t!e autono%ous "e'ions. E!ile t!e settled "ule is t!at a%end%ents to t!e O"'anic Act !a)e to co%pl( wit! t!e plebiscite "e0ui"e%ent in o"de" to beco%e e$$ecti)e, A35B 0uestions on t!e e>tent o$ t!e %atte"s "e0ui"in' "ati$ication %a( una)oidabl( a"ise because o$ t!e see%in'l( 'ene"al te"%s o$ t!e 9onstitution and t!e ob)ious absu"dit( t!at would "esult i$ a plebiscite we"e to be "e0ui"ed $o" every statuto"( a%end%ent. 7ection 1&, A"ticle : o$ t!e 9onstitution plainl( states t!at !e c"eation o$ t!e autono%ous "e'ion s!all be e$$ecti)e w!en app"o)ed b( t!e %a?o"it( o$ t!e )otes case b( t!e constituent units in a plebiscite called $o" t!e pu"pose. Eit! t!ese wo"din's as standa"d, we inte"p"et t!e "e0ui"e%ent to %ean t!at onl( a%end%ents to, o" "e)isions o$, t!e O"'anic Act constitutionall(,essential to t!e c"eation o$ autono%ous "e'ions @ i'e., t!ose aspects speci$icall( %entioned in t!e 9onstitution w!ic! 9on'"ess %ust p"o)ide $o" in t!e O"'anic Act @ "e0ui"e "ati$ication t!"ou'! a plebiscite. !ese a%end%ents to t!e O"'anic Act a"e t!ose t!at "elate to< (a) t!e basic st"uctu"e o$ t!e "e'ional 'o)e"n%ent2 (b) t!e "e'ion*s ?udicial s(ste%, i'e', t!e special cou"ts wit! pe"sonal, $a%il(, and p"ope"t(

law ?u"isdiction2 and, (c) t!e '"ant and e>tent o$ t!e le'islati)e powe"s constitutionall( conceded to t!e "e'ional 'o)e"n%ent unde" 7ection 20, A"ticle : o$ t!e 9onstitution.A36B !e date o$ t!e AR## elections does not $all unde" an( o$ t!e %atte"s t!at t!e 9onstitution speci$icall( %andated 9on'"ess to p"o)ide $o" in t!e O"'anic Act. !e"e$o"e, e)en assu%in' t!at t!e supe"%a?o"it( )otes and t!e plebiscite "e0ui"e%ents a"e )alid, an( c!an'e in t!e date o$ elections cannot be const"ued as a substantial a%end%ent o$ t!e O"'anic Act t!at would "e0ui"e co%pliance wit! t!ese "e0ui"e%ents. I9. The synchronization issue As we discussed abo)e, s(nc!"oniHation o$ national and local elections is a constitutional %andate t!at 9on'"ess %ust p"o)ide $o" and t!is s(nc!"oniHation %ust include t!e AR## elections. On t!is point, an e>istin' law in $act al"ead( e>ists @ RA No. 8166 @ as t!e $o"e"unne" o$ t!e cu""ent RA No. 10153. RA No. 8166 al"ead( p"o)ides $o" t!e s(nc!"oniHation o$ local elections wit! t!e national and con'"essional elections. No. 10153 p"o)ides is an old %atte" $o" local 'o)e"n%ents (wit! !us, w!at RA t!e e>ception

o$ &arangay and Sanggunian 8a&ataan elections w!e"e t!e te"%s a"e not constitutionall( p"o)ided) and is tec!nicall( a "eite"ation o$ w!at is al"ead( "e$lected in t!e law, 'i)en t!at "e'ional elections a"e in "ealit( local elections b( e>p"ess constitutional "eco'nition.A38B o ac!ie)e s(nc!"oniHation, 9on'"ess necessarily !as to "econcile t!e sc!edule o$ t!e AR##*s "e'ula" elections (w!ic! s!ould !a)e been !eld in Au'ust 2011 based on RA No. ;333) wit! t!e $i>ed sc!edule o$ t!e national and local elections ($i>ed b( RA No. 8166 to be !eld in #a( 2013). Fu"in' t!e o"al a"'u%ents, t!e 9ou"t identi$ied t!e t!"ee options open to 9on'"ess in o"de" to "esol)e t!is p"oble%. !ese options a"e< (1) to allow t!e electi)e o$$icials in t!e AR## to "e%ain in o$$ice in a !old o)e" capacit(, pu"suant to 7ection 8(1), A"ticle .CC o$ RA No. ;055, until t!ose elected in t!e s(nc!"oniHed elections assu%e o$$ice2A3&B (2) to !old special elections in t!e AR##, wit! t!e te"%s o$ t!ose elected to e>pi"e w!en t!ose elected in t!e s(nc!"oniHed elections assu%e o$$ice2 o" (3) to aut!o"iHe t!e +"esident to appoint OC9s, pu"suant to 7ection 3 o$ RA No. 10153, also until t!ose elected in t!e s(nc!"oniHed elections assu%e o$$ice. As will be abundantl( clea" in t!e discussion below, 9on'"ess, in c!oosin' to '"ant t!e +"esident t!e powe" to appoint OC9s, c!ose t!e co""ect option and passed RA No. 10153 as a co%pletel( )alid law. 9. A. "#e 7onst.tut.onal.t/ o0 RA No. 10153 2asic Underlying Premises

o $ull( app"eciate t!e a)ailable options, ce"tain unde"l(in' %ate"ial p"e%ises %ust be $ull( unde"stood. !e first is t!e e>tent o$ t!e powe"s o$ 9on'"ess to le'islate2 t!e second is t!e constitutional %andate

$o" t!e s(nc!"oniHation o$ elections2 and t!e third is on t!e concept o$ autono%( as "eco'niHed and establis!ed unde" t!e 1;&8 9onstitution.

!e '"ant o$ le'islati)e powe" to 9on'"ess is b"oad, 'ene"al and co%p"e!ensi)e. A3;B !e le'islati)e bod( possesses plena"( powe" $o" all pu"poses o$ ci)il 'o)e"n%ent. A50B An( powe", dee%ed to be le'islati)e b( usa'e and t"adition, is necessa"il( possessed b( 9on'"ess, unless t!e 9onstitution !as lod'ed it elsew!e"e. A51B 1>cept as li%ited b( t!e 9onstitution, eit!e" e>p"essl( o" i%pliedl(, le'islati)e powe" e%b"aces all sub?ects and e>tends to all %atte"s o$ 'ene"al conce"n o" co%%on inte"est.A52B !e constitutional li%itations on le'islati)e powe" a"e eit!e" e>p"ess o" i%plied. !e e>p"ess li%itations a"e 'ene"all( p"o)ided in so%e p"o)isions o$ t!e Fecla"ation o$ +"inciples and 7tate +olicies (A"ticle 2) and in t!e p"o)isions 4ill o$ Ri'!ts (A"ticle 3). Ot!e" constitutional p"o)isions (suc! as t!e initiati)e and "e$e"endu% clause o$ A"ticle 6, 7ections 1 and 32, and t!e autono%( p"o)isions o$ A"ticle :) p"o)ide t!ei" own e>p"ess li%itations. !e i%plied li%itations a"e $ound in t!e e)ident pu"pose w!ic! was in )iew and t!e ci"cu%stances and !isto"ical e)ents w!ic! led to t!e enact%ent o$ t!e pa"ticula" p"o)ision as a pa"t o$ o"'anic law.A53B

!e constitutional p"o)isions on autono%( @ speci$icall(, 7ections 15 to 21 o$ A"ticle : o$ t!e 9onstitution @ constitute e>p"ess li%itations on le'islati)e powe" as t!e( de$ine autono%(, its "e0ui"e%ents and its pa"a%ete"s, t!us li%itin' w!at is ot!e"wise t!e unli%ited powe" o$ 9on'"ess to le'islate on t!e 'o)e"nance o$ t!e autono%ous "e'ion.

O$ pa"ticula" "ele)ance to t!e issues o$ t!e p"esent case a"e t!e li%itations posed b( t!e p"esc"ibed basic st"uctu"e o$ 'o)e"n%ent @ i'e'% t!at t!e 'o)e"n%ent %ust !a)e an e>ecuti)e depa"t%ent and a le'islati)e asse%bl(, bot! o$ w!ic! %ust be electi)e and "ep"esentati)e o$ t!e constituent political units2 national 'o)e"n%ent, too, %ust not enc"oac! on t!e le'islati)e powe"s '"anted unde" 7ection 20, A"ticle :. 9on)e"sel( and as e>p"essl( "e$lected in 7ection 18, A"ticle :, 9all !owers and functions not granted &y this #onstitution or &y law to the autonomous regions shall &e vested in the National .overnment':

!e totalit( o$ 7ections 15 to 21 o$ A"ticle : s!ould li=ewise se")e as a standa"d t!at 9on'"ess %ust obse")e in dealin' wit! le'islation touc!in' on t!e a$$ai"s o$ t!e autono%ous "e'ions. !e te"%s o$ t!ese sections lea)e no doubt on w!at t!e 9onstitution intends @ t!e idea o$ sel$,"ule o" sel$,'o)e"n%ent, in pa"ticula", t!e powe" to le'islate on a wide a""a( o$ social, econo%ic and ad%inist"ati)e %atte"s. 4ut e0uall( clea" unde" t!ese p"o)isions a"e the !ermeating !rinci!les of national sovereignty and the territorial integrity of the Re!u&lic% as e>p"essed in t!e abo)e,0uoted 7ection 18 and in 7ection 15.A55B Cn ot!e" wo"ds, t!e 9onstitution and t!e suppo"tin' ?u"isp"udence, as

t!e( now stand, "e?ect t!e notion o$ im!erium et im!erioA55B in t!e "elations!ip between t!e national and t!e "e'ional 'o)e"n%ents.

Cn "elation wit! s(nc!"oniHation, bot! autono%( and t!e s(nc!"oniHation o$ national and local elections a"e "eco'niHed and establis!ed constitutional %andates, wit! one bein' as co%pellin' as t!e ot!e". C$ t!ei" co%pellin' $o"ce di$$e"s at all, t!e di$$e"ence is in t!ei" co)e"a'e2 s(nc!"oniHation ope"ates on and a$$ects t!e w!ole count"(, w!ile "e'ional autono%( @ as t!e te"% su''ests @ di"ectl( ca""ies a na""owe" "e'ional e$$ect alt!ou'! its national e$$ect cannot be discounted. !ese unde"l(in' basic concepts c!a"acte"iHe t!e powe"s and li%itations o$ 9on'"ess w!en it acted on RA No. 10153. o succinctl( desc"ibe t!e le'al situation t!at $aced 9on'"ess t!en, its decision to s(nc!"oniHe t!e "e'ional elections wit! t!e national, con'"essional and all ot!e" local elections (sa)e $o" &arangay and sangguniang ;a&ataan elections) le$t it wit! t!e p"oble% o$ ho* to )ro(ide the AR33 *ith go(ernance in the inter(ening )eriod between t!e e>pi"ation o$ t!e te"% o$ t!ose elected in Au'ust 200& and t!e assu%ption to o$$ice @ twent(,one (21) %ont!s awa( @ o$ t!ose w!o will win in t!e s(nc!"oniHed elections on #a( 13, 2013. !e p"oble%, in ot!e" wo"ds, was $o" interim measures $o" t!is pe"iod, consistent wit! t!e te"%s o$ t!e 9onstitution and its establis!ed suppo"tin' ?u"isp"udence, and wit! t!e "espect due to t!e concept o$ autono%(. Cnte"i% %easu"es, to be su"e, is not a st"an'e p!eno%enon in t!e +!ilippine le'al landscape. 9onstitution*s !e "ansito"( +"o)isions t!e%sel)es collecti)el( p"o)ide %easu"es $o" t"ansition $"o% t!e old "ansito"(

constitution to t!e newA56B and $o" t!e int"oduction o$ new concepts.A58B As p"e)iousl( %entioned, t!e ad?ust%ent o$ electi)e te"%s and o$ elections towa"ds t!e 'oal o$ s(nc!"oniHation $i"st t"anspi"ed unde" t!e +"o)isions. t!at s(nc!"oniHin' "e'ional autono%ous elections would entail2 t!us, t!e p"esent p"oble% is wit! us toda(. !e c"eation o$ local 'o)e"n%ent units also "ep"esents instances w!en inte"i% %easu"es a"e "e0ui"ed. Cn t!e c"eation o$ NueHon del 7u"A5&B and Fina'at Cslands,A5;B t!e c"eatin' statutes aut!o"iHed t!e +"esident to appoint an inte"i% 'o)e"no", )ice,'o)e"no" and %e%be"s o$ t!e sangguniang !anlalawigan alt!ou'! t!ese positions a"e essentiall( electi)e in c!a"acte"2 t!e appointi)e o$$icials we"e to se")e until a new set o$ p"o)incial o$$icials s!all !a)e been elected and 0uali$ied.A50B A si%ila" aut!o"it( to appoint is p"o)ided in t!e t"ansition o$ a local 'o)e"n%ent $"o% a sub,p"o)ince to a p"o)ince.A51B Cn all t!ese, t!e need $o" inte"i% %easu"es is dictated b( necessit(2 out,o$,t!e,wa( a""an'e%ents and app"oac!es we"e adopted o" used in o"de" to ad?ust to t!e 'oal o" ob?ecti)e in si'!t in a %anne" t!at does not do )iolence to t!e 9onstitution and to "easonabl( accepted no"%s. Dnde" t!ese li%itations, t!e c!oice o$ %easu"es was a 0uestion o$ wisdo% le$t to con'"essional disc"etion. !e ad?ust%ents, !owe)e", $ailed to loo= $a" enou'! o" deepl( enou'!, pa"ticula"l( into t!e p"oble%s

o "etu"n to t!e unde"l(in' basic concepts, t!ese concepts s!all se")e as t!e 'uideposts and %a"=e"s in ou" discussion o$ t!e options a)ailable to 9on'"ess to add"ess t!e p"oble%s b"ou'!t about b( t!e s(nc!"oniHation o$ t!e AR## elections, p"ope"l( unde"stood as inte"i% %easu"es t!at 9on'"ess !ad to p"o)ide. !e p"ope" unde"standin' o$ t!e options as inte"i% %easu"es assu%e p"i%e %ate"ialit( as it is under these terms that the )assage of RA No. ! "# should &e measured, i.e., gi(en the constitutional o&+ecti(e of synchronization that cannot legally &e faulted, did Congress gra(ely a&use its discretion or (iolate the Constitution *hen it addressed through RA No. ! "# the concomitant )ro&lems that the ad+ustment of elections necessarily &rought *ith it4 2. 5oldo(er 6)tion is Unconstitutional Ee "ule out t!e $i"st option @ !oldo)e" $o" t!ose w!o we"e elected in e>ecuti)e and le'islati)e positions in t!e AR## du"in' t!e 200&,2011 te"% @ as an option t!at 9on'"ess could !a)e c!osen because a !oldo)e" )iolates 7ection &, A"ticle : o$ t!e 9onstitution. !is p"o)ision states<

7ection &. !e te$& o0 o00.ce o0 elect.5e local o00.c.als , e>cept ba"an'a( o$$icials, w!ic! s!all be dete"%ined b( law, s#all 4e t#$ee /ea$sand no suc! o$$icial s!all se")e $o" %o"e t!an t!"ee consecuti)e te"%s. Ae%p!ases ou"sB

7ince electi)e AR## o$$icials a"e local o$$icials, t!e( a"e co)e"ed and &ound b( t!e t!"ee,(ea" te"% li%it p"esc"ibed b( t!e 9onstitution2 t!e( cannot e>tend t!ei" te"% t!"ou'! a !oldo)e". As t!is 9ou"t put in # MELE#<
A52B

sme4a v'

Ct is not co%petent $o" t!e le'islatu"e to e>tend t!e te"% o$ o$$ice"s b( p"o)idin' t!at t!e( s!all !old o)e" until t!ei" successo"s a"e elected and 0uali$ied w!e"e t!e constitution !as in e$$ect o" b( clea" i%plication p"esc"ibed t!e te"% and w!en t!e 9onstitution $i>es t!e da( on w!ic! t!e o$$icial te"% s!all be'in, t!e"e is no le'islati)e aut!o"it( to continue t!e o$$ice be(ond t!at pe"iod, e)en t!ou'! t!e successo"s $ail to 0uali$( wit!in t!e ti%e. Cn A%e"ican Ju"isp"udence it !as been stated as $ollows< Ct !as been b"oadl( stated t!at t#e le%.slatu$e cannot, 4/ an act 3ost3on.n% t#e elect.on to 0.ll an o00.ce t#e te$& o0 2#.c# .s l.&.ted 4/ t#e 7onst.tut.on, e8tend t#e te$& o0 t#e .ncu&4ent 4e/ond t#e 3e$.od as l.&.ted 4/ t#e 7onst.tut.on. A1%p!asis ou"s.B Cndependentl( o$ t!e sme4a "ulin', t!e p"i%ac( o$ t!e 9onstitution as t!e sup"e%e law o$ t!e land dictates t!at w!e"e t!e 9onstitution !as itsel$ %ade a dete"%ination o" 'i)en its %andate, t!en t!e %atte"s so dete"%ined o" %andated s!ould be "espected until t!e 9onstitution itsel$ is c!an'ed b( a%end%ent o" "epeal t!"ou'! t!e applicable constitutional p"ocess. A necessa"( co"olla"( is t!at none o$ t!e t!"ee b"anc!es o$ 'o)e"n%ent can de)iate $"o% t!e constitutional %andate e>cept onl( as t!e 9onstitution itsel$ %a( allow. A53B C$ at all, 9on'"ess %a( onl( pass le'islation $ilin' in details to $ull( ope"ationaliHe t!e constitutional co%%and o" to i%ple%ent it b( le'islation i$ it is

non,sel$,e>ecutin'2 t!is 9ou"t, on t!e ot!e" !and, %a( onl( inte"p"et t!e %andate i$ an inte"p"etation is app"op"iate and called $o".A55B Cn t!e case o$ t!e te"%s o$ local o$$icials, t!ei" te"% !as been $i>ed clea"l( and une0ui)ocall(, allowin' no "oo% $o" an( i%ple%entin' le'islation wit! "espect to t!e $i>ed te"% itsel$ and no )a'ueness t!at would allow an inte"p"etation $"o% t!is 9ou"t. !us, t!e te"% o$ t!"ee (ea"s $o" local o$$icials s!ould sta( at t!"ee (3) (ea"s as $i>ed b( t!e 9onstitution and cannot be e>tended b( !oldo)e" b( 9on'"ess. C$ it will be clai%ed t!at t!e !oldo)e" pe"iod is e$$ecti)el( anot!e" te"% %andated b( 9on'"ess, t!e net "esult is $o" 9on'"ess to c"eate a new te"% and to appoint t!e occupant $o" t!e new te"%. !is )iew @ li=e t!e e>tension o$ t!e electi)e te"% @ is constitutionall( in$i"% because 9on'"ess cannot do indi"ectl( w!at it cannot do di"ectl(, i'e', to act in a wa( t!at would e$$ecti)el( e>tend t!e te"% o$ t!e incu%bents. Cndeed, i$ acts t!at cannot be le'all( done di"ectl( can be done indi"ectl(, t!en all laws would be illuso"(. A55B 9on'"ess cannot also c"eate a new te"% and e$$ecti)el( appoint t!e occupant o$ t!e position $o" t!e new te"%. !is is e$$ecti)el( an act o$ appoint%ent b( 9on'"ess and an unconstitutional int"usion into t!e constitutional appoint%ent powe" o$ t!e +"esident. A56B 3ence, !oldo)e" @ w!ic!e)e" wa( it is )iewed @ is a constitutionall( in$i"% option t!at 9on'"ess could not !a)e unde"ta=en. Ju"isp"udence, o$ cou"se, is not wit!out e>a%ples o$ cases w!e"e t!e 0uestion o$ !oldo)e" was b"ou'!t be$o"e, and 'i)en t!e i%p"i%atu" o$ app"o)al b(, t!is 9ou"t. !e p"esent case t!ou'! di$$e"s si'ni$icantl( $"o% past cases wit! cont"a"( "ulin's, pa"ticula"l( $"o% Sam&arani v' # MELE#,A58B Ada! v' #omelec,A5&B and Montesclaros v' #omelec%A5;B w!e"e t!e 9ou"t "uled t!at t!e electi)e o$$icials could !old on to t!ei" positions in a !old o)e" capacit(. All t!ese past cases "e$e" to electi)e &arangay o" sangguniang ;a&ataan o$$icials w!ose te"%s o$ o$$ice a"e not e>plicitl( p"o)ided $o" in t!e 9onstitution; t!e p"esent case, on t!e ot!e" !and, "e$e"s to local electi)e o$$icials @ t!e AR## -o)e"no", t!e AR## .ice,-o)e"no", and t!e %e%be"s o$ t!e Re'ional /e'islati)e Asse%bl( @ w!ose te"%s $all wit!in t!e t!"ee,(ea" te"% li%it set b( 7ection &, A"ticle : o$ t!e 9onstitution. 4ecause o$ t!ei" constitutionall( li%ited te"%, 9on'"ess cannot le'islate an e>tension be(ond t!e te"% $o" w!ic! t!e( we"e o"i'inall( elected. 1)en assu%in' t!at !oldo)e" is constitutionall( pe"%issible, and t!e"e !ad been statuto"( basis $o" it (na%el( 7ection 8, A"ticle .CC o$ RA No. ;055) in t!e past, A60B we !a)e to "e%e%be" t!at t#e $ule o0 #oldo5e$ can onl/ a33l/ as an a5a.la4le o3t.on 2#e$e no e83$ess o$ .&3l.ed le%.slat.5e .ntent to t#e cont$a$/ e8.sts; .t cannot a33l/ 2#e$e suc# cont$a$/ .ntent .s e5.dent.A61B 9on'"ess, in passin' RA No. 10153, %ade it e>plicitl( clea" t!at it !ad t!e intention o$ supp"essin' t!e !oldo)e" "ule t!at p"e)ailed unde" RA No. ;055 b( co%pletel( "e%o)in' t!is p"o)ision. !e deletion is a polic( decision t!at is w!oll( wit!in t!e disc"etion o$ 9on'"ess to %a=e in t!e e>e"cise o$ its plena"( le'islati)e powe"s2 t!is 9ou"t cannot pass upon =uestions o$ wisdom, ?ustice o" e>pedienc( o$ le'islation, A62B e>cept w!e"e an attendant unconstitutionalit( o" '"a)e abuse o$ disc"etion "esults.

7. The C63787C has no authority to order s)ecial elections Anot!e" option p"oposed b( t!e petitione" in -.R. No. 1;82&2 is $o" t!is 9ou"t to co%pel 9O#1/19 to i%%ediatel( conduct special elections pu"suant to 7ection 5 and 6 o$ 4atas +a%bansa 4ilan' (4+) &&1. !e powe" to $i> t!e date o$ elections is essentiall( le'islati)e in natu"e, as e)ident $"o%, and e>e%pli$ied b(, t!e $ollowin' p"o)isions o$ t!e 9onstitution< 7ection &, A"ticle .C, applicable to t!e le'islatu"e, p"o)ides< 7ection &. 'nless ot#e$2.se 3$o5.ded 4/ la2 , t!e "e'ula" election o$ t!e 7enato"s and t!e #e%be"s o$ t!e 3ouse o$ Rep"esentati)es s!all be !eld on t!e second #onda( o$ #a(. A1%p!asis ou"sB

7ection 5(3), A"ticle .CC, wit! t!e sa%e teno" but applicable solel( to t!e +"esident and .ice,+"esident, states< >>>> 7ection 5. >>> 'nless ot#e$2.se 3$o5.ded 4/ la2, t!e "e'ula" election $o" +"esident and .ice,+"esident s!all be !eld on t!e second #onda( o$ #a(. A1%p!asis ou"sB

w!ile 7ection 3, A"ticle :, on local 'o)e"n%ent, p"o)ides< 7ection 3. "#e 7on%$ess s#all enact a local %o5e$n&ent code w!ic! s!all p"o)ide $o" >>> t!e 0uali$ications, elect.on, appoint%ent and "e%o)al, te"%, sala"ies, powe"s and $unctions and duties o$ local o00.c.als:.B A1%p!ases ou"sB !ese p"o)isions suppo"t t!e conclusion t!at no elections %a( be !eld on an( ot!e" date $o" t!e positions o$ +"esident, .ice +"esident, #e%be"s o$ 9on'"ess and local o$$icials, e>cept w!en so p"o)ided b( anot!e" Act o$ 9on'"ess, o" upon o"de"s o$ a bod( o" o$$ice" to w!o% 9on'"ess %a( !a)e dele'ated eit!e" t!e powe" o" t!e aut!o"it( to asce"tain o" $ill in t!e details in t!e e>ecution o$ t!at powe". A63B Notabl(, 9on'"ess !as acted on t!e AR## elections b( postponin' t!e sc!eduled Au'ust 2011 elections and settin' anot!e" date @ #a( 13, 2011 @ $o" "e'ional elections s(nc!"oniHed wit! t!e p"esidential, con'"essional and ot!e" local elections. 4( so doin', 9on'"ess itsel$ !as %ade a )olicy decision in the e0ercise of its legislati(e *isdom that it shall not call s)ecial elections as an ad?ust%ent %easu"e in s(nc!"oniHin' t!e AR## elections wit! t!e ot!e" elections. A$te" 9on'"ess !as so acted, neit!e" t!e 1>ecuti)e no" t!e Judicia"( can act to t!e cont"a"( b( o"de"in' special elections instead at t!e call o$ t!e 9O#1/19. !is 9ou"t, pa"ticula"l(, cannot %a=e t!is call wit!out

t!e"eb( supplantin' t!e le'islati)e decision and e$$ecti)el( le'islatin'.

o be su"e, t!e 9ou"t is not wit!out t!e

powe" to decla"e an act o$ 9on'"ess null and )oid $o" bein' unconstitutional o" $o" !a)in' been e>e"cised in '"a)e abuse o$ disc"etion.A65B 2ut our )o*er rests on (ery narro* ground and is merely to annul a contra(ening act of Congress9 it is not to su))lant the decision of Congress nor to mandate *hat Congress itself should ha(e done in the e0ercise of its legislati(e )o*ers. !us, cont"a"( to w!at t!e petition in -.R. No. 1;82&2 u"'es, we cannot co%pel 9O#1/19 to call $o" special elections. Gu"t!e"%o"e, we !a)e to bea" in %ind t!at t!e constitutional powe" o$ t!e 9O#1/19, in cont"ast wit! t!e powe" o$ 9on'"ess to call $o", and to set t!e date o$, elections, is li%ited to en$o"cin' and ad%iniste"in' all laws and "e'ulations "elati)e to t!e conduct o$ an election. A65B 7tatuto"il(, 9O#1/19 !as no powe" to call $o" t!e !oldin' o$ special elections unless pu"suant to a speci$ic statuto"( '"ant. "ue, 9on'"ess did '"ant, via 7ections 5 and 6 o$ 4+ &&1, 9O#1/19 wit! t!e powe" to postpone elections to anot!e" date. 3owe)e", t!is powe" is li%ited to, and can onl( be e>e"cised wit!in, t!e speci$ic te"%s and ci"cu%stances p"o)ided $o" in t!e law. Ee 0uote< 7ection 5. Post!onement of election' > E!en $o" an( se"ious cause suc! as 5.olence, te$$o$.s&, loss o$ dest$uct.on o0 elect.on 3a$a3#e$nal.a o" "eco"ds, 0o$ce &a;eu$e, and ot#e$ analo%ous causes o$ suc! a natu"e t!at t!e !oldin' o$ a $"ee, o"de"l( and !onest election s!ould beco%e i%possible in an( political subdi)ision, t!e 9o%%ission, motu !ro!rio o" upon a )e"i$ied petition b( an( inte"ested pa"t(, and a$te" due notice and !ea"in', w!e"eb( all inte"ested pa"ties a"e a$$o"ded e0ual oppo"tunit( to be !ea"d, s!all 3ost3one t#e elect.on t#e$e.n to a date 2#.c# s#ould 4e $easona4l/ close to t#e date o0 t#e elect.on not #eld, sus3ended o$ 2#.c# $esulted .n a 0a.lu$e to elect but not late" t!an t!i"t( da(s a$te" t!e cessation o$ t!e cause $o" suc! postpone%ent o" suspension o$ t!e election o" $ailu"e to elect. 7ection 6. Gailu"e o$ election. , C$, on account o$ 0o$ce &a;eu$e, 5.olence, te$$o$.s&, 0$aud, o" ot#e$ analo%ous causes t#e elect.on .n an/ 3oll.n% 3lace #as not 4een #eld on t#e date 0.8ed, o" #ad 4een sus3ended be$o"e t!e !ou" $i>ed b( law $o" t!e closin' o$ t!e )otin', o" a$te" t!e )otin' and du"in' t!e p"epa"ation and t!e t"ans%ission o$ t!e election "etu"ns o" in t!e custod( o" can)ass t!e"eo$, suc# elect.on $esults .n a 0a.lu$e to elect, and in an( o$ suc! cases t!e $ailu"e o" suspension o$ election would a$$ect t!e "esult o$ t!e election, t!e 9o%%ission s!all, on t!e basis o$ a )e"i$ied petition b( an( inte"ested pa"t( and a$te" due notice and !ea"in', call $o" t!e !oldin' o" continuation o$ t!e election not !eld, suspended o" w!ic! "esulted in a $ailu"e to elect on a date "easonabl( close to t!e date o$ t!e election not !eld, suspended o" w!ic! "esulted in a $ailu"e to elect but not late" t!an t!i"t( da(s a$te" t!e cessation o$ t!e cause o$ suc! postpone%ent o" suspension o$ t!e election o" $ailu"e to elect. A1%p!asis ou"sB

A close "eadin' o$ 7ection 5 o$ 4+ &&1 "e)eals t!at it is %eant to add"ess instances w!e"e elect.ons #a5e al$ead/ 4een sc#eduled to ta<e 3lace 4ut #a5e to 4e 3ost3oned because o$ (a) )iolence, (b) te""o"is%, (c) loss o" dest"uction o$ election pa"ap!e"nalia o" "eco"ds, (d) force ma?eure, and (e) ot!e" analo'ous causes of such a nature that the holding of a free% orderly and honest election should &ecome im!ossi&le in any !olitical su&division . Dnde" t!e p"inciple o$ e?usdem generis% t!e te"% analo'ous causes will be "est"icted to t!ose un0o$eseen o" une83ected e)ents t!at p"e)ent t!e !oldin' o$ t!e sc!eduled elections. should &ecome im!ossi&le. !ese analo'ous

causes a"e $u"t!e" de$ined b( t!e p!"ase of such nature that the holding of a free% orderly and honest election

7i%ila"l(, 7ection 6 o$ 4+ &&1 applies onl( to t!ose situations w!e"e elections !a)e al"ead( been sc!eduled but do not ta=e place because o$ (a) 0o$ce &a;eu$e, (b) 5.olence, (c) te$$o$.s&, (d) 0$aud, o" (e) ot#e$ analo%ous causes t#e elect.on .n an/ 3oll.n% 3lace #as not 4een #eld on t#e date 0.8ed, o" #ad 4een sus3ended be$o"e t!e !ou" $i>ed b( law $o" t!e closin' o$ t!e )otin', o" a$te" t!e )otin' and du"in' t!e p"epa"ation and t!e t"ans%ission o$ t!e election "etu"ns o" in t!e custod( o" can)ass t!e"eo$, suc# elect.on $esults .n a 0a.lu$e to elect. As in 7ection 5 o$ 4+ &&1, 7ection 6 add"esses instances w!e"e t!e elections do not occu" o" !ad to be suspended because o$ une83ected and un0o$eseen ci"cu%stances. Cn t!e p"esent case, t#e 3ost3one&ent o0 t#e AR++ elect.ons .s 4/ la2 @ i'e., b( con'"essional polic( @ and is 3u$suant to t#e const.tut.onal &andate o0 s/nc#$on.=at.on o$ national and local elections. 4( no st"etc! o$ t!e i%a'ination can t!ese "easons be 'i)en t!e sa%e c!a"acte" as t!e ci"cu%stances conte%plated b( 7ection 5 o" 7ection 6 o$ 4+ &&1, w!ic! all pe"tain to e>t"ale'al causes t!at obst"uct t!e !oldin' o$ elections. 9ou"ts, to be su"e, cannot enla"'e t!e scope o$ a statute unde" t!e 'uise o$ inte"p"etation, no" include situations not p"o)ided no" intended b( t!e law%a=e"s. A66B 9lea"l(, neit!e" 7ection 5 no" 7ection 6 o$ 4+ &&1 can appl( to t!e p"esent case and t!is 9ou"t !as absolutel( no le'al basis to co%pel t!e 9O#1/19 to !old special elections. ). The Court has no )o*er to shorten the terms of electi(e officials

1)en assu%in' t!at it is le'all( pe"%issible $o" t!e 9ou"t to co%pel t!e 9O#1/19 to !old special elections, no le'al basis li=ewise e>ists to "ule t!at t!e newl( elected AR## o$$icials s!all !old o$$ice onl( until t!e AR## o$$icials elected in t!e s(nc!"oniHed elections s!all !a)e assu%ed o$$ice. Cn t!e $i"st place, t!e 9ou"t is not e%powe"ed to ad?ust t!e te"%s o$ electi)e o$$icials. 4ased on t!e 9onstitution, t!e powe" to $i> t!e te"% o$ o$$ice o$ electi)e o$$icials, w!ic! can be e>e"cised onl( in t!e case o$ &arangay o$$icials,A68B is speci$icall( 'i)en to 9on'"ess. 1)en 9on'"ess itsel$ %a( be denied suc! powe", as s!own w!en t!e 9onstitution s!o"tened t!e te"%s o$ twel)e 7enato"s obtainin' t!e least )otes, A6&B and e>tended t!e te"%s o$ t!e +"esident and t!e .ice,+"esidentA6;B in o"de" to s(nc!"oniHe elections2 9on'"ess was not '"anted t!is sa%e powe". !e settled "ule is t!at te"%s $i>ed b( t!e 9onstitution cannot be c!an'ed b( %e"e statute. A80B #o"e pa"ticula"l(, not e)en 9on'"ess and ce"tainl( not t!is 9ou"t, !as t!e aut!o"it( to $i> t!e te"%s o$ electi)e local o$$icials in t!e AR## $o" less, or more, than the constitutionally mandated three years A81B as t!is tin=e"in' would di"ectl( cont"a)ene 7ection &, A"ticle : o$ t!e 9onstitution as we "uled in smena' !us, in t!e sa%e wa( t!at t!e te"% o$ electi)e AR## o$$icials cannot be e>tended t!"ou'! a !oldo)e", t!e te"% cannot be s!o"tened 4/ 3utt.n% an e83.$at.on date ea$l.e$ t#an t#e t#$ee >3? /ea$s t#at t#e 7onst.tut.on .tsel0 co&&ands. "#.s .s 2#at 2.ll #a33en @ a te$& o0 less t#an t2o /ea$s @ .0 a call 0o$ s3ec.al elect.ons s#all 3$e5a.l. Cn su%, w!ile s(nc!"oniHation is ac!ie)ed, t!e "esult is at t!e cost o$ a )iolation o$ an e>p"ess p"o)ision o$ t!e 9onstitution.

Neit!e" we no" 9on'"ess can opt to s!o"ten t!e tenu"e o$ t!ose o$$icials to be elected in t!e AR## elections instead o$ actin' on t!ei" te"% (w!e"e t!e te"% %eans t!e ti%e du"in' w!ic! t!e o$$ice" %a( clai% to !old o$$ice as o$ "i'!t and $i>es t!e inte")al a$te" w!ic! t!e se)e"al incu%bents s!all succeed one anot!e", w!ile t!e tenu"e "ep"esents t!e te"% du"in' w!ic! t!e incu%bent actuall( !olds t!e o$$ice). A82B As wit! t!e $i>in' o$ t!e electi)e te"%, neit!e" 9on'"ess no" t!e 9ou"t !as an( le'al basis to s!o"ten t!e tenu"e o$ electi)e AR## o$$icials. !e( would co%%it an unconstitutional act and '"a)el( abuse t!ei" disc"etion i$ t!e( do so. A. The Presidents Po*er to A))oint 6/Cs !e abo)e conside"ations lea)e onl( 9on'"ess* c!osen inte"i% %easu"e @ RA No. 10153 and t!e appoint%ent b( t!e +"esident o$ OC9s to 'o)e"n t!e AR## du"in' t!e p"e,s(nc!"oniHation pe"iod pu"suant to 7ections 3, 5 and 5 o$ t!is law @ as t!e onl( %easu"e t!at 9on'"ess can %a=e. e>a%ined $o" an( attendant constitutional in$i"%it(. At t!e outset, t!e powe" to appoint is essentiall( e>ecuti)e in natu"e, and t!e li%itations on o" 0uali$ications to t!e e>e"cise o$ t!is powe" s!ould be st"ictl( const"ued2 t!ese li%itations o" 0uali$ications %ust be clea"l( stated in o"de" to be "eco'niHed.A83B !e appointin' powe" is e%bodied in 7ection 16, A"ticle .CC o$ t!e 9onstitution, w!ic! states< 7ection 16. !e +"esident s!all no%inate and, wit! t!e consent o$ t!e 9o%%ission on Appoint%ents, appoint t!e !eads o$ t!e e>ecuti)e depa"t%ents, a%bassado"s, ot!e" public %iniste"s and consuls o" o$$ice"s o$ t!e a"%ed $o"ces $"o% t!e "an= o$ colonel o" na)al captain, and ot!e" o$$ice"s w!ose appoint%ents a"e )ested in !i% in t!is 9onstitution. -e s#all also a33o.nt all ot#e$ o00.ce$s o0 t#e Go5e$n&ent 2#ose a33o.nt&ents a$e not ot#e$2.se 3$o5.ded 0o$ 4/ la2, and t#ose 2#o& #e &a/ 4e aut#o$.=ed 4/ la2 to a33o.nt. !e 9on'"ess %a(, b( law, )est t!e appoint%ent o$ ot!e" o$$ice"s lowe" in "an= in t!e +"esident alone, in t!e cou"ts, o" in t!e !eads o$ depa"t%ents, a'encies, co%%issions, o" boa"ds. Ae%p!asis ou"sB !is c!oice itsel$, !owe)e", s!ould be

!is p"o)ision classi$ies into $ou" '"oups t!e o$$ice"s t!at t!e +"esident can appoint. !ese a"e< 7irst, t!e !eads o$ t!e e>ecuti)e depa"t%ents2 a%bassado"s2 ot!e" public %iniste"s and consuls2 o$$ice"s o$ t!e A"%ed Go"ces o$ t!e +!ilippines, $"o% t!e "an= o$ colonel o" na)al captain2 and ot!e" o$$ice"s w!ose appoint%ents a"e )ested in t!e +"esident in t!is 9onstitution2 Second, all ot!e" o$$ice"s o$ t!e 'o)e"n%ent w!ose appoint%ents a"e not ot!e"wise p"o)ided $o" b( law2 Third, those *hom the President may &e authorized &y la* to a))oint9 and 7ourth, o$$ice"s lowe" in "an= w!ose appoint%ents t!e 9on'"ess %a( b( law )est in t!e +"esident alone.A85B

7ince t!e +"esident*s aut!o"it( to appoint OC9s e%anates $"o% RA No. 10153, it $alls unde" t!e t!i"d '"oup o$ o$$icials t!at t!e +"esident can appoint pu"suant to 7ection 16, A"ticle .CC o$ t!e 9onstitution. !us, t!e assailed law facially "ests on clea" constitutional basis. C$ at all, t!e '"a)est c!allen'e posed b( t!e petitions to t!e aut!o"it( to appoint OC9s unde" 7ection 3 o$ RA No. 10153 is t!e asse"tion t!at t!e 9onstitution "e0ui"es t!at t!e AR## e>ecuti)e and le'islati)e o$$icials to be electi)e and "ep"esentati)e o$ t!e constituent political units. !is "e0ui"e%ent indeed is an e>p"ess li%itation w!ose non,obse")ance in t!e assailed law lea)es t!e appoint%ent o$ OC9s constitutionall( de$ecti)e. A$te" $ull( e>a%inin' t!e issue, we !old t!at t!is alle'ed constitutional p"oble% is %o"e appa"ent t!an "eal and beco%es )e"( "eal onl( i$ RA No. 10153 we"e to be mista:enly read as a la* that changes the electi(e and re)resentati(e character of AR33 )ositions. RA No. 10153, !owe)e", does not in an( wa( a%end w!at t!e o"'anic law o$ t!e AR## (RA No. ;055) sets outs in te"%s o$ st"uctu"e o$ 'o)e"nance. E!at RA No. 10153 in $act onl( does is to 9a!!oint officers>in>charge for the ffice of the Regional .overnor% Regional @ice .overnor and Mem&ers of the Regional Legislative Assem&ly who shall !erform the functions !ertaining to the said offices until the officials duly elected in the May 301* elections shall have =ualified and assumed office': !is powe" is $a" di$$e"ent $"o% appointin' electi)e AR## o$$icials $o" t!e abb"e)iated te"% endin' on t!e assu%ption to o$$ice o$ t!e o$$icials elected in t!e #a( 2013 elections. As we !a)e al"ead( establis!ed in ou" discussion o$ t!e supe"%a?o"it( and plebiscite "e0ui"e%ents, t!e le'al "ealit( is t!at RA No. 10153 d.d not a&end RA No. 905!. RA No. ! "#, in fact, )ro(ides only for synchronization of elections and for the interim measures that must in the mean*hile )re(ail. And t!is is !ow RA No. 10153 s!ould be "ead @ in t!e %anne" it was w"itten and based on its una%bi'uous $acial te"%s. A85B Aside from its order for synchronization, it is )urely and sim)ly an interim measure res)onding to the ad+ustments that the synchronization re'uires. !us, t!e app"op"iate 0uestion to as= is w!et!e" t!e inte"i% %easu"e is an un"easonable %o)e $o" 9on'"ess to adopt, 'i)en t!e le'al situation t!at t!e s(nc!"oniHation una)oidabl( b"ou'!t wit! it. Cn %o"e conc"ete te"%s and based on t!e abo)e conside"ations, gi(en the )lain unconstitutionality of )ro(iding for a holdo(er and the una(aila&ility of constitutional )ossi&ilities for lengthening or shortening the term of the elected AR33 officials, is the choice of the Presidents )o*er to a))oint ; for a fi0ed and s)ecific )eriod as an interim measure, and as allo*ed under Section <, Article .// of the Constitution ; an unconstitutional or unreasona&le choice for Congress to ma:e4 Ad%ittedl(, t!e '"ant o$ t!e powe" to t!e +"esident under other situations o" where the !ower of a!!ointment would e$tend &eyond the ad?ustment !eriod for synchronization would be to $oste" a 'o)e"n%ent t!at is not de%oc"atic and "epublican. Go" t!en, t!e people*s "i'!t to c!oose t!e leade"s to 'o)e"n t!e% %a( be said to

be systemically wit!d"awn to t!e point o$ $oste"in' an unde%oc"atic "e'i%e.

!is is t!e '"ant t!at would $"ontall(

b"eac! t!e electi)e and "ep"esentati)e 'o)e"nance "e0ui"e%ent o$ 7ection 1&, A"ticle : o$ t!e 9onstitution. 4ut t!is conclusion would not be t"ue unde" t!e )e"( li%ited ci"cu%stances conte%plated in RA No. 10153 w!e"e t!e pe"iod is $i>ed and, %o"e i%po"tantl(, t!e te"%s o$ 'o)e"nance @ bot! unde" 7ection 1&, A"ticle : o$ t!e 9onstitution and RA No. ;055 @ will not systemically be touc!ed no" a$$ected at all. o "epeat w!at !as p"e)iousl( been said, RA No. ;055 will 'o)e"n unc!an'ed and continuousl(, wit! $ull e$$ect in acco"dance wit! t!e 9onstitution, sa)e onl( $o" t!e inte"i% and te%po"a"( %easu"es t!at s(nc!"oniHation o$ elections "e0ui"es. .iewed $"o% anot!e" pe"specti)e, s(nc!"oniHation will te%po"a"il( dis"upt t!e election p"ocess in a local co%%unit(, t!e AR##, as well as t!e co%%unit(*s c!oice o$ leade"s, but t!is will ta=e place unde" a situation o$ necessit( and as an inte"i% %easu"e in t!e %anne" t!at inte"i% %easu"es !a)e been adopted and used in t!e c"eation o$ local 'o)e"n%ent unitsA86B and t!e ad?ust%ents o$ sub,p"o)inces to t!e status o$ p"o)inces. A88B !ese %easu"es, too, a"e used in li'!t o$ t!e wide" national de%and $o" t!e s(nc!"oniHation o$ elections (conside"ed vis>A>vis t!e "e'ional inte"ests in)ol)ed). !e adoption o$ t!ese %easu"es, in ot!e" wo"ds, is no di$$e"ent $"o% t!e e>e"cise b( 9on'"ess o$ t!e in!e"ent police powe" o$ t!e 7tate, w!e"e one o$ t!e essential tests is t!e "easonableness o$ t!e inte"i% %easu"e ta=en in li'!t o$ t!e 'i)en ci"cu%stances. Gu"t!e"%o"e, t!e "ep"esentati)e c!a"acte" o$ t!e c!osen leade"s need not necessa"il( be a$$ected b( t!e appoint%ent o$ OC9s as t!is "e0ui"e%ent is "eall( a $unction o$ t!e appoint%ent p"ocess2 onl( t!e electi)e aspect s!all be supplanted b( t!e appoint%ent o$ OC9s. Cn t!is "e'a"d, RA No. 10153 si'ni$icantl( see=s to add"ess conce"ns a"isin' $"o% t!e appoint%ents b( p"o)idin', unde" 7ections 3, 5 and 5 o$ t!e assailed law, conc"ete te"%s in t!e Appoint%ent o$ OC9, t!e #anne" and +"ocedu"e o$ Appointin' OC9s, and t!ei" Nuali$ications. 4ased on t!ese conside"ations, we !old t!at RA No. 10153 @ )iewed in its p"ope" conte>t @ is a law t!at is not )iolati)e o$ t!e 9onstitution (speci$icall(, its autono%( p"o)isions), and one t!at is "easonable as well unde" t!e ci"cu%stances. 9I. 6ther Constitutional Concerns Outside o$ t!e abo)e conce"ns, it !as been a"'ued du"in' t!e o"al a"'u%ents t!at up!oldin' t!e constitutionalit( o$ RA No. 10153 would set a dan'e"ous p"ecedent o$ 'i)in' t!e +"esident t!e powe" to cancel elections an(w!e"e in t!e count"(, t!us allowin' !i% to "eplace electi)e o$$icials wit! OC9s. !is clai% appa"entl( %isunde"stands t!at an ac"oss,t!e,boa"d cancellation o$ elections is a %atte" $o" 9on'"ess, not $o" t!e +"esident, to add"ess. Ct is a powe" t!at $alls wit!in t!e powe"s o$ 9on'"ess in t!e e>e"cise o$ its le'islati)e powe"s. 1)en 9on'"ess, as discussed abo)e, is li%ited in w!at it can le'islati)el( unde"ta=e wit! "espect to elections.

C$ RA No. 10153 cancelled t!e "e'ula" Au'ust 2011 elections, it was $o" a )e"( speci$ic and li%ited pu"pose @ t!e s(nc!"oniHation o$ elections. Ct was a te%po"a"( %eans to a lastin' end @ t!e s(nc!"oniHation o$ elections. !us, RA No. 10153 and t!e suppo"t t!at t!e 9ou"t 'i)es t!is le'islation a"e li=ewise clea" and speci$ic, and cannot be t"ans$e""ed o" applied to an( ot!e" cause $o" t!e cancellation o$ elections. An( ot!e" localiHed cancellation o$ elections and call $o" special elections can occu" onl( in acco"dance wit! t!e powe" al"ead( dele'ated b( 9on'"ess to t!e 9O#1/19, as abo)e discussed. -i)en t!at t!e incu%bent AR## electi)e o$$icials cannot continue to act in a !oldo)e" capacit( upon t!e e>pi"ation o$ t!ei" te"%s, and t!is 9ou"t cannot co%pel t!e 9O#1/19 to conduct special elections, t!e 9ou"t now !as to deal wit! t!e dile%%a o$ a )acuu% in 'o)e"nance in t!e AR##. o e%p!asiHe t!e di"e situation a )acuu% b"in's, it s!ould not be $o"'otten t!at a pe"iod o$ 21 %ont!s @ o" close to 2 (ea"s @ inte")enes $"o% t!e ti%e t!at t!e incu%bent AR## electi)e o$$icials* te"%s e>pi"ed and t!e ti%e t!e new AR## electi)e o$$icials be'in t!ei" te"%s in 2013. As t!e lessons o$ ou" #indanao !isto"( @ past and cu""ent @ teac! us, %an( de)elop%ents, so%e o$ t!e% c"itical and ad)e"se, can t"anspi"e in t!e count"(*s #usli% a"eas in t!is span o$ ti%e in t!e wa( t!e( t"anspi"ed in t!e past. A8&B Asse%bl( can be done awa( wit! e)en te%po"a"il(. ci"cu%stances is an absolute necessit(. 7i'ni$icantl(, t!e '"ant to t!e +"esident o$ t!e powe" to appoint OC9s to unde"ta=e t!e $unctions o$ t!e electi)e %e%be"s o$ t!e Re'ional /e'islati)e Asse%bl( is neit!e" no)el no" inno)ati)e. Ee !a"= bac= to ou" ea"lie" p"onounce%ent in Menzon v' Petilla% etc'% et al.<A8;B Ct %a( be noted t!at unde" 9o%%onwealt! Act No. 5&& and t!e Re)ised Ad%inist"ati)e 9ode o$ 1;&8, t!e +"esident is e%powe"ed to %a=e te%po"a"( appoint%ents in ce"tain public o$$ices, in case o$ an( )acanc( t!at %a( occu". Al4e.t 4ot# la2s deal onl/ 2.t# t#e 0.ll.n% o0 5acanc.es .n a33o.nt.5e 3os.t.ons. -o2e5e$, .n t#e a4sence o0 an/ cont$a$/ 3$o5.s.on .n t#e (ocal Go5e$n&ent 7ode and .n t#e 4est .nte$est o0 3u4l.c se$5.ce, 2e see no co%ent $eason 2#/ t#e 3$ocedu$e t#us outl.ned 4/ t#e t2o la2s &a/ not 4e s.&.la$l/ a33l.ed .n t#e 3$esent case. !e "espondents contend t!at t!e p"o)incial boa"d is t!e co""ect appointin' powe". !is a"'u%ent !as no %e"it. As between t!e +"esident w!o !as supe")ision o)e" local 'o)e"n%ents as p"o)ided b( law and t!e %e%be"s o$ t!e boa"d w!o a"e ?unio" to t!e )ice,'o)e"no", we !a)e no p"oble% "ulin' in $a)o" o$ t!e +"esident, until t!e law p"o)ides ot!e"wise. A )acanc( c"eates an ano%alous situation and $inds no app"obation unde" t!e law $o" it dep"i)es t!e constituents o$ t!ei" "i'!t o$ "ep"esentation and 'o)e"nance in t!ei" own local 'o)e"n%ent. Cn a "epublican $o"% o$ 'o)e"n%ent, t!e %a?o"it( "ules t!"ou'! t!ei" c!osen $ew, and i$ one o$ t!e% is incapacitated o" absent, etc., t!e %ana'e%ent o$ 'o)e"n%ental a$$ai"s is, to t!at e>tent, %a( be !a%pe"ed. Necessa$.l/, t#e$e 2.ll 4e a conse6uent dela/ .n t#e del.5e$/ o0 4as.c se$5.ces to t#e 3eo3le o0 (e/te .0 t#e Go5e$no$ o$ t#e 9.ce-Go5e$no$ .s &.ss.n% .A&0B(1%p!asis ou"s.) !us, it would be "ec=less to assu%e t!at t!e p"esence o$ an actin' AR## -o)e"no", an actin' .ice,-o)e"no" and a $ull( $unctionin' Re'ional /e'islati)e o ou" %ind, t!e appoint%ent o$ OC9s unde" t!e p"esent

As in Menzon, lea)in' t!e positions o$ AR## -o)e"no", .ice -o)e"no", and %e%be"s o$ t!e Re'ional /e'islati)e Asse%bl( )acant $o" 21 %ont!s, o" al%ost 2 (ea"s, would clea"l( cause dis"uptions and dela(s in t!e deli)e"( o$ basic se")ices to t!e people, in t!e p"ope" %ana'e%ent o$ t!e a$$ai"s o$ t!e "e'ional 'o)e"n%ent, and in "espondin' to c"itical de)elop%ents t!at %a( a"ise. E!en )iewed in t!is conte>t, allowin' t!e +"esident in t!e e>e"cise o$ !is constitutionall(,"eco'niHed appoint%ent powe" to appoint OC9s is, in ou" ?ud'%ent, a "easonable %easu"e to ta=e. B. Autonomy in the AR33 Ct is $u"t!e" a"'ued t!at w!ile s(nc!"oniHation %a( be constitutionall( %andated, it cannot be used to de$eat o" to i%pede t!e autono%( t!at t!e 9onstitution '"anted to t!e AR##. +!"ased in t!is %anne", one would p"esu%e t!at t!e"e e>ists a con$lict between two "eco'niHed 9onstitutional %andates @ s(nc!"oniHation and "e'ional autono%( @ suc! t!at it is necessa"( to c!oose one o)e" t!e ot!e". Ee $ind t!is to be an e""oneous app"oac! t!at )iolates a basic p"inciple in constitutional const"uction @ ut magis valeat =uam !ereat< t!at t!e 9onstitution is to be inte"p"eted as a w!ole, A&1B and one %andate s!ould not be 'i)en i%po"tance o)e" t!e ot!e" e>cept w!e"e t!e p"i%ac( o$ one o)e" t!e ot!e" is clea". A&2B Ee "e$e" to t!e 9ou"t*s decla"ation in Ang>Angco v' #astillo% et al'%A&3Bt!us< A p"o)ision o$ t!e constitution s!ould not be const"ued in isolation $"o% t!e "est. Rat!e", t!e constitution %ust be inte"p"eted as a w!ole, and appa"entl(, con0l.ct.n% 3$o5.s.ons s#ould 4e $econc.led and #a$&on.=ed .n a &anne$ t#at &a/ %.5e to all o0 t#e& 0ull 0o$ce and e00ect. A1%p!asis supplied.B 7(nc!"oniHation is an inte"est t!at is as constitutionall( ent"enc!ed as "e'ional autono%(. !e( a"e inte"ests t!at t!is 9ou"t s!ould "econcile and 'i)e e$$ect to, in t!e wa( t!at 9on'"ess did in RA No. 10153 w!ic! p"o)ides t!e %easu"e to t"ansit to s(nc!"oniHed "e'ional elections wit! t!e least distu"bance on t!e inte"ests t!at %ust be "espected. +a"ticula"l(, "e'ional autono%( will be "espected instead o$ bein' sidelined, as t!e law does not in an( wa( alte", c!an'e o" %odi$( its 'o)e"nin' $eatu"es, e>cept in a )e"( te%po"a"( %anne" and onl( as necessitated b( t!e attendant ci"cu%stances. 1lsew!e"e, it !as also been a"'ued t!at t!e AR## elections s!ould not be s(nc!"oniHed wit! t!e national and local elections in o"de" to %aintain t!e autono%( o$ t!e AR## and insulate its own electo"al p"ocesses $"o% t!e "ou'! and tu%ble o$ nationwide and local elections. !is a"'u%ent lea)es us $a" $"o% con)inced o$ its %e"its.

As !e"eto$o"e %entioned and discussed, w!ile autono%ous "e'ions a"e '"anted political autono%(, t!e $"a%e"s o$ t!e 9onstitution ne)e" e0uated autono%( wit! independence. !e AR## as a "e'ional entit( t!us continues to ope"ate wit!in t!e la"'e" $"a%ewo"= o$ t!e 7tate and is still sub?ect to t!e national policies set b( t!e national 'o)e"n%ent, sa)e onl( $o" t!ose speci$ic a"eas "ese")ed b( t!e 9onstitution $o" "e'ional autono%ous dete"%ination. As "e$lected du"in' t!e constitutional delibe"ations o$ t!e p"o)isions on autono%ous "e'ions<

#". 4enna'en. >>> Ee do not see !e"e a co%plete sepa"ation $"o% t!e cent"al 'o)e"n%ent, but "at!e" an e$$icient wo"=in' "elations!ip between t!e autono%ous "e'ion and t!e cent"al 'o)e"n%ent. Ee see t!is as an e$$ecti)e pa"tne"s!ip, not a sepa"ation. #". Ro%ulo. independence. !e"e$o"e, co%plete autono%( is not "eall( t!ou'!t o$ as co%plete

#". Ople. 1e de0.ne .t as a &easu$e o0 sel0-%o5e$n&ent 2.t#.n t#e la$%e$ 3ol.t.cal 0$a&e2o$< o0 t#e nat.on.A&5B A1%p!asis supplied.B !is e>c!an'e o$ cou"se is $ull( and e>p"essl( "e$lected in t!e abo)e,0uoted 7ection 18, A"ticle : o$ t!e 9onstitution, and b( t!e e>p"ess "ese")ation unde" 7ection 1 o$ t!e sa%e A"ticle t!at autono%( s!all be 9within the framewor; of this #onstitution and the national sovereignty as well as the territorial integrity of the Re!u&lic of the Phili!!ines': Cnte"estin'l(, t!e $"a%e"s o$ t!e 9onstitution initiall( p"oposed to "e%o)e 7ection 18 o$ A"ticle :, belie)in' it to be unnecessa"( in li'!t o$ t!e enu%e"ation o$ powe"s '"anted to autono%ous "e'ions in 7ection 20, A"ticle : o$ t!e 9onstitution. Dpon $u"t!e" "e$lection, t!e $"a%e"s decided to "einstate t!e p"o)ision in o"de" to %a=e it clea", once and $o" all, t!at t!ese a"e t!e li%its o$ t!e powe"s o$ t!e autono%ous 'o)e"n%ent. "#ose not enu&e$ated a$e actuall/ to 4e e8e$c.sed 4/ t#e nat.onal %o5e$n&ent A.BA&5BO$ note is t!e 9ou"t*s p"onounce%ent in Pimentel% /r' v' ,on' AguirreA&6B w!ic! we 0uote< Dnde" t!e +!ilippine concept o$ local autono%(, t!e national 'o)e"n%ent !as not co%pletel( "elin0uis!ed all its powe"s o)e" local 'o)e"n%ents, includin' autono%ous "e'ions. Onl( ad%inist"ati)e powe"s o)e" local a$$ai"s a"e dele'ated to political subdi)isions. !e pu"pose o$ t!e dele'ation is to %a=e 'o)e"nance %o"e di"ectl( "esponsi)e and e$$ecti)e at t!e local le)els. Cn tu"n, econo%ic, political and social de)elop%ent at t!e s%alle" political units a"e e>pected to p"opel social and econo%ic '"owt! and de)elop%ent. But to ena4le t#e count$/ to de5elo3 as a 2#ole, t#e 3$o%$a&s and 3ol.c.es e00ected locall/ &ust 4e .nte%$ated and coo$d.nated to2a$ds a co&&on nat.onal %oal. "#us, 3ol.c/-sett.n% 0o$ t#e ent.$e count$/ st.ll l.es .n t#e ,$es.dent and 7on%$ess. A1%p!asis ou"s.B Cn ot!e" wo"ds, t!e autono%( '"anted to t!e AR## cannot be in)o=ed to de$eat national policies and conce"ns. 7ince t!e s(nc!"oniHation o$ elections is not ?ust a "e'ional conce"n but a national one, t!e AR## is sub?ect to it2 t!e "e'ional autono%( '"anted to t!e AR## cannot be used to e>e%pt t!e "e'ion $"o% !a)in' to act in acco"dance wit! a national polic( %andated b( no less t!an t!e 9onstitution.

7onclus.on 9on'"ess acted wit!in its powe"s and pu"suant to a constitutional %andate @ t!e s(nc!"oniHation o$ national and local elections @ w!en it enacted RA No. 10153. !is 9ou"t cannot 0uestion t!e %anne" b( w!ic! 9on'"ess unde"too= t!is tas=2 t!e Judicia"( does not and cannot pass upon 0uestions o$ wisdo%, ?ustice o" e>pedienc( o$

le'islation.A&8B As ?ud'es, we can onl( inte"p"et and appl( t!e law and, despite ou" doubts about its wisdo%, cannot "epeal o" a%end it.A&&B No" can t!e 9ou"t p"esu%e to dictate t!e %eans b( w!ic! 9on'"ess s!ould add"ess w!at is essentiall( a le'islati)e p"oble%. Ct is not wit!in t!e 9ou"t*s powe" to enla"'e o" ab"id'e laws2 ot!e"wise, t!e 9ou"t will be 'uilt( o$ usu"pin' t!e e>clusi)e p"e"o'ati)e o$ 9on'"ess. A&;B !e petitione"s, in as=in' t!is 9ou"t to co%pel 9O#1/19 to !old special elections despite its lac= o$ aut!o"it( to do so, a"e essentiall( as=in' us to )entu"e into t!e "eal% o$ ?udicial le'islation, w!ic! is ab!o""ent to one o$ t!e %ost basic p"inciples o$ a "epublican and de%oc"atic 'o)e"n%ent @ t!e sepa"ation o$ powe"s. !e petitione"s alle'e, too, t!at we s!ould act because 9on'"ess acted wit! '"a)e abuse o$ disc"etion in enactin' RA No. 10153. -"a)e abuse o$ disc"etion is suc! cap"icious and w!i%sical e>e"cise o$ ?ud'%ent t!at is patent and '"oss as to a%ount to an e)asion o$ a positi)e dut( o" to a )i"tual "e$usal to pe"$o"% a dut( en?oined b( law o" to act at all in conte%plation o$ t!e law as w!e"e t!e powe" is e>e"cised in an a"bit"a"( and despotic %anne" b( "eason o$ passion and !ostilit(. A;0B Ee $ind t!at 9on'"ess, in passin' RA No. 10153, acted st"ictl( wit!in its constitutional %andate. -i)en an a""a( o$ c!oices, it acted wit!in due constitutional bounds and wit! %a"=ed "easonableness in li'!t o$ t!e necessa"( ad?ust%ents t!at s(nc!"oniHation de%ands. 9on'"ess, t!e"e$o"e, cannot be accused o$ an( e)asion o$ a positi)e dut( o" o$ a "e$usal to pe"$o"% its dut(. Ee t!us $ind no "eason to acco"d %e"it to t!e petitione"s* clai%s o$ '"a)e abuse o$ disc"etion. On t!e 'ene"al clai% t!at RA No. 10153 is unconstitutional, we can onl( "eite"ate t!e establis!ed "ule t!at e)e"( statute is p"esu%ed )alid. A;1B 9on'"ess, t!us, !as in its $a)o" t!e p"esu%ption o$ constitutionalit( o$ its acts, and t!e pa"t( c!allen'in' t!e )alidit( o$ a statute !as t!e one"ous tas= o$ "ebuttin' t!is p"esu%ption. A;2B An( "easonable doubt about t!e )alidit( o$ t!e law s!ould be "esol)ed in $a)o" o$ its constitutionalit(. A;3B As t!is 9ou"t decla"ed in .arcia v' E$ecutive Secretary<A;5B !e polic( o$ t!e cou"ts is to a)oid "ulin' on constitutional 0uestions and to p"esu%e t!at t!e acts o$ t!e political depa"t%ents a"e )alid in t!e absence o$ a clea" and un%ista=able s!owin' to t!e cont"a"(. o doubt is to sustain. !is p"esu%ption is based on t!e doct"ine o$ sepa"ation o$ powe"s w!ic! en?oins upon eac! depa"t%ent a beco%in' "espect $o" t!e acts o$ t!e ot!e" depa"t%ents. !e t!eo"( is t!at as t#e ;o.nt act o0 7on%$ess and t#e ,$es.dent o0 t#e ,#.l.33.nes, a la2 #as 4een ca$e0ull/ stud.ed and dete$&.ned to 4e .n acco$dance 2.t# t#e 0unda&ental la2 4e0o$e .t 2as 0.nall/ enacted.A;5B A1%p!asis ou"s.B -i)en t!e $ailu"e o$ t!e petitione"s to "ebut t!e p"esu%ption o$ constitutionalit( in $a)o" o$ RA No. 10153, we %ust suppo"t and con$i"% its )alidit(. 1-ARAFORA, p"e%ises conside"ed, we )I*+I** t!e consolidated petitions assailin' t!e )alidit( o$ RA No. 10153 $o" lac= o$ %e"it, and ',-O() t!e constitutionalit( o$ t!is law. Ee li=ewise (IF" t!e te%po"a"( "est"ainin' o"de" we issued in ou" Resolution o$ 7epte%be" 13, 2011. No costs