Punsalan v Mendoza

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http://www.lawphil.net/judjuris/juri1985/nov1985/gr_l69576_1985.html 1/15

TodayisThursday,July09,2015

RepublicofthePhilippinesSUPREMECOURT

Manila

ENBANC

G.R.No.L69576November19,1985

CICEROJ.PUNSALAN,etc.,petitioner,vs.MINISTERESTELITOP.MENDOZA,etc.,respondent.

CiceroJ.PunzalanandJuanTDavidCesarC.CarreonandDiosdadoRongcalforpetitioner.

FelixQ.AntonioJoseAfricaandEduardoHernandezforrespondent.

WilfredoR.MutucforintervenorR.Nepomuceno.

DELAFUENTE,J.:

Petitionforquowarrantoandprohibitionseekinginteraliatheousteroftherespondent,Hon.EstelitoP.Mendoza,fromthegovernorshipofPampanga.ItisallegedthatpetitionerCiceroJ.Punsalanisthe"rightfulGovernor"andthatheissuingtherespondentasexgovernor...whoreturnedtohisoldpostwhilebeingoccupiedbypetitioner,1respondenthavingalready"losthisseatbyhisownacts.2

AmotionforinterventionwasfiledbycounselforRobinNepomuceno,3"seniormember"oftheSangguniangPanglalawiganwhotookhisoathofofficeas"ViceGovernor"afterthepetitionerbegandischargingthedutiesoftheGovernor.Petitionersubsequentlymanifestedhisconformitytosaidmotion4whichwasgrantedbythisCourt.5Atthehearingofthiscase,petitionerappearedandarguedinhisownbehalf.Respondentlikewiseappeared,submittingpersonallyhisargumentsontheissuesraised.7Counselfortheintervenoralsobrieflyarguedinhisbehalf.8VariouspleadingsandmemorandawerethereafterfiledbythepartiesThiscasewasdeemedsubmittedfordecisionwhenthepetitionerfiledonMay2,1985,amanifestationthathe"willnotfileanyrebuttal"totherejoinder"inordernottocauseadelayinthespeedyresolutionofthiscase.9

Brushingasidetheminutiaethebarefactsandcircumstancesarethefollowing:AsofficialKBL**betsforGovernorandViceGovernorinthe1980localelections,therespondentandthepetitionereasilyvanquishedtheotheraspirants.10AcceptingthemandatefromthepeopleofPampanga,theytookinduetimetheiroathsofoffice,dischargingthereafterthedutiesandresponsibilitiesofGovernorandViceGovernor,respectively.However,inthe1984nationalelectionsforprovincial/city/districtrepresentativestotheBatasan,threeoppositioncandidatesreceivedtheblessingsoftheelectorate.TheonlyKBLsurvivorplacedfourth.Apparentlyjoltedbytheresults,therespondent(whowasKBLcampaignmanager)tenderedonMay17,1984,hisresignationfromtheGovernorshipandhisCabinetpost,11"effectiveatthePresident'spleasure.12OnJune30,1984,oraboutsixweekslater,thePresidentappointedtherespondentMinisterofJusticeand,onJuly14,1984,concurrentlyMemberoftheBatasangPambansa,13

OnJuly13,1984,itappears,respondentagaintenderedhis"resignationasGovernoroftheProvinceofPampanga,effectiveatthepleasureofthePresident.14OnJuly16,1984,hesentaletter15totheMinisteroflocalGovernment,Hon.JoseA.Roo,requestingthathe"beconsideredonleaveofabsence"whilethematterwas"pendingconsiderationbythePresident."OnJuly20,1984,hereceivedtheMinister'sreplyapprovinghisrequest.16OnJuly21,1984,Accordingtotherespondent,headvisedthepetitionertoassume"temporarily"theperformanceofthedutiesandfunctionsoftheGovernor.17WhereuponthepetitionertookhisoathofofficeonJuly23,1984,beforetheProvincialAttorney,as"GobernadorngPampanga"(notActingGovernor),18relyingonanallegedpressreleaseintheJuly23,1984issueofBulletinToday,that"theinhibitionagainstBatasanMembersfromholdingtwoelectivepositionsisaconstitutionalprovisionwhichcannotbecompromised,"butit"allowstheholdingoftwopositionsiftheBatasanMemberisappointedPrimeMinisterorMemberoftheBatasan19Petitionerwasabletodischarge"allthepowersandfunctionsofGovernor"untiltheendoftheyear.

ThecontroversyeruptedonJanuary8,1985,whenpetitionerwasinformedbyhiswifeatabout2:00o'clockP.M.,inAngelesCitywherehewastheguestspeakerattheinductionceremoniesofaruralbankers'federation,that

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respondentunexpectedly"appearedandoccupiedthe[governor's]office...20Earlier,healreadylearnedbyradio,whileinspectinganarearazedbyfireinSexmoanPampanga,thatsoldiershad"gatheredattheProvincialCapitolgrounds.21Heimmediatelydenouncedthetakeover,allegingitwasa"forcibleentrycoupd'etatstyle...withoutpriornoticetopetitioner.22Therespondentavers,inhiscomment,thathe"reassumedthepositionofGovernor...peacefullyand...withouttheuseofforceorpressure[and]...waswelcomedbytheemployees,"addingthatitwasanimplementationoftheKBLcaucusrecommendationapprovedbythePresident.23

Atthispoint,itispertinenttonotethatonJanuary7,1985,soonafterreceiptofnoticeofthesaidapproval,therespondentimmediatelywroteMinisterRootoapprisehimofhisintentiontoreassumethegovernorshipandtorequestthattheMinistry'sRegionalDirectoraswellasthepetitionerbeadvisedaccordingly.24Onthesameday,MinisterRollowrotethreeletterstonotifythemandalso,theintervenorthattherespondentwouldreassumethegovernorshiponJanuary8th25Accordingtothepetitioner,theletteraddressedtohimwasreceivedbyhis"officeonJanuary8,1985,at1:35p.m26Incidentally,respondentresignedfromhisBatasanmembershiponJanuary8,1985,whichresignationwasacceptedbythePresidenttwodayslater.27

Wehavecarefullyexaminedthepleadingsandthelengthymemorandaandannexesthereof,inthelightofthesubmissionandoralargumentsventilatedatthehearingofthiscase.TheissuespresentedtothisCourtboildowntoonedeterminativequestion:CantherespondentvalidlyreassumethegovernorshipofPampangaafterhavingtenderedhisresignationtherefromandhavingacceptedanappointmentasMinisterofJusticeaswellasan"appointive"Batasanseat?

Petitioner'scontention.NO.Reasons:(a)RespondentpermanentlyvacatedtheGovernor'sofficeasaresultofhisresignationandits"impliedacceptance"bythePresident,andofabandonmentwhenhefailedtodischargethedutiesandresponsibilitiesoftheofficefromJuly23,1984uptoJanuary7,1985(b)Respondent'sreassumptionisanunlawful"usurpation"ofthepowersandfunctionsalreadybeingexercisedbythepetitionerasGovernorby"rightofsuccession"(c)RespondenthadforfeitedhisrightandtitletotheofficewhenheacceptedhisappointmentasMinisterofJusticeandthatof"appointive"BatasanMemberbecauseoftheincompatibility"ofthepositionswiththeGovernor'soffice(Section10,Art.VIIIoftheConstitution).

Respondent'ssubmission.YESbecause:(a)Theresignation"effectiveatthepleasureofthePresident"wasnotacceptedexpresslyorimpliedlybythePresidentitwasimplicitly"rejected"(b)Thealleged"abandonmentofoffice"ispredicatedontheerroneousassumptionthathejustlefttheGovernor'spost"withoutanyleaveofabsence.28Hewasgrantedsuchleave"pendingconsideration"ofhisresignation(c)Itcannotbesaidthatheclearlyintendedto"absolutelyrelinquish"thegovernorshipduringhisabsenceheaskedpetitionermerelytoexercise"temporarily"theGovernor'sdutiesandfunctions(d)AsGovernor,respondentiseligibleforappointmentasCabinetMemberpursuanttoSection4(l),ArticleXIIB.AssuchCabinetMember,hemaysubsequentlybechosentoserveintheBatasaninaccordancewithSection2,Art.VIIIand(e)Theprovisioncitedbythepetitionerappliestoan"elective"BatasanMember,butnottoaCabinetMemberwhosemembershipintheBatasanis"temporary"innature.ThedisqualificationsofaCabinetMemberarethosespecificallymentionedinSection7ofArticleIX,asamendeditnolongerincludesbyreference"Section10...ofArticleVIII.

Wefindthepetitioner'sconclusionsfactuallyandlegallyuntenable.

Tobeginwith,neitherthealleged"impliedacceptance"oftherespondent'sresignationnortheimputed"abandonmentofoffice"hasanyfactualsupportintherecord.Therewasatenderofresignation"effectiveatthepleasureofthePresident."Obviously,itwasnotmeanttobeeffectiveimmediatelyacceptancewasstillnecessary.29AbandonmentbytheincumbentofhisofficebeforeacceptanceofhisresignationispunishableundertheRevisedPenalCode.30Petitionerclaimsthattherewas"implied"acceptanceofsaidresignation.Itappears,however,thatactionthereonwasheldinabeyance.ThePresident,apparently,neededmoretimetoconsiderthevalidityoftheviewsubmittedbytherespondentinhismemorandum,31andconfidentialletter.32AsGovernor,therespondentcontended,hecanbeappointedCabinetMinisterand,assuch,assignedlatertotheBatasanwithoutforfeitingthegovernorship.WhenthePresidentfinallyacted,heshelvedtheresignation,approvinginsteadtheKBLcaucusrecommendationfortherespondenttoreassumethegovernorship.Plainly,abandonmentcannotbeinferredfromtheconductoftherespondent.Therewasabandonment,petitionerbelieves,becauserespondentfailedtodischargetheGovernor'sdutiesfor"aperiodofmorethanfive(5)monthswithoutanyleaveofabsence.33Thisisbelied,however,bytheLocalGovernmentMinister'sapprovaloftherequestoftherespondentthathebeconsidered"onleaveofabsence"whilehisresignationwas"pendingconsiderationbythePresident.34Itnowappearsthatthepetitionerwastotallyunawareofthisimportantdetailwhenheassumedofficeas"GobernadorngPampanga,"andevenatthetimeofthefilingoftheinstantpetition.Hisnakedclaimthatthesaidapprovaloftherespondent'sleaveis"highlysuspiciousanddubious35isneitherproofnorsufficientshowingthatthesameisspurious.Goodfaithandtheregularityintheperformanceofofficialdutyarealwayspresumed,intheabsenceofclearandconvincingprooftothecontrary.

Thisbringsustothepivotallegalissue.

AsProvincialGovernor,anelectiveofficial,respondentiseligibleforappointmenttotheCabinetpursuantto

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Section4(1),ArticleXIIB,towit:

SEC.4(1).Unlessotherwiseprovidedbylaw,noelectiveofficialshallbeeligibleforappointmenttoanyofficeorpositionduringhistenureexceptasMemberoftheCabinet.36

Butitisinsistedbypetitioner:"IfacabinetmemberisappointedtotheBatasanandbecomesamemberthereof...Section10ofArticleVIIIappliestohim.Itisthatsimple.37

Wedonotagree.

Theprovisioncitedbythepetitionerreadsasfollows:

SEC.10.AMemberoftheBatasangPambansashallnotholdanyotherofficeoremploymentintheGovernment,oranysubdivision,agencyorinstrumentalitythereof,includinggovernmentownedorcontrolledcorporations,duringhistenureexceptthatofPrimeMinister,MemberoftheCabinetorDeputyMinister.Neithershallhe,duringthetermforwhichhewaselected,beappointedtoanycivilofficewhichmayhavebeencreatedoremolumentsthereofincreasedwhilehewasaMemberoftheBatasangPambansa.

Thepetitionerreliesonthebroadorgeneralimportofthefirstprohibitionwhichprovidesthat"ThatMember"oftheBatasancannot"holdanyotherofficeoremploymentintheGovernment,"etc.,exceptthefourpositionsthereinspecificallymentioned.

Takingintoaccountitscontext,however,aswellasthepertinentandrelatedconstitutionalprovisions,itisquiteclearthatthesaidprohibitionmaynotbeconstruedandappliedbroadlyorexpansively.TheConstitutionitselfdividedtheBatasanmembershipintothreecategories:Theelectiveprovincial/city/districtrepresentativethesectoralrepresentativeswhoareeither"electedorselectedasmaybeprovidedbylaw"andthose"chosen"fromMembersoftheCabinet.38Itisouropinionthattheprohibitioninquestiondoesnotextendtothethirdgroupofmembers,thosechosenfromtheCabinet.

Inthefirstplace,thesecondprohibitioninsaidSection10,whichalsoreferstothesame"member"oftheBatasanforbiddenbythefirstsentencefromholdingconcurrently"anyotherofficeoremployment,"etc.,isquiteexplicit:

...Neithershallhe,duringthetermforwhichhewaselected,beappointedtoanycivilofficewhichmayhavebeencreatedoremolumentsthereofincreasedwhilehewasaMember...(Emphasissupplied.)

Bothprohibitions,undoubtedly,dealwith"aMember"whoenterstheBatasanprimarilyasalegislatorvotedintoofficebytheelectorateofhisconstituency,the"elected"provincialorcityordistrictrepresentativewitha"fixedterm"(6years)ofoffice.39

Secondly,thisconclusionissupportedbythehistoryof"Section10"(Art.VIII)andtheconstitutionalamendmentsadoptedafter1973.Thetwoprohibitionswereintendedbytheframersofthe1973ConstitutiontoapplyonlytothemembersoftheNationalAssembly,anallelectiveparliamentarybody.Ofcourse,saidsectionwasthenmadeapplicablealsotoCabinetmembersbyvirtueofSection8(now7)ofArticleIX,whichexpresslyincorporatedthoseprohibitionsinthefollowingtenor:

SEC.8.ThePrimeMinisterandtheMembersoftheCabinetshallbesubjecttotheprovisionsofSectionstenandelevenofArticleVIIIhereofandmaynotappearascounselbeforeanycourtoradministrativebodyorparticipateinthemanagementofanybusiness,orpracticeanyprofession.(Emphasissupplied.)

ButasamendedinApril1981,suchspecificreferenceto"sectionten"wasdeleted.Inlieuthereof,thephrase"andshallalsobesubjecttosuchotherdisqualifications...wasadded,towit:

SEC.7.ThePrimeMinisterandtheMembersoftheCabinetshallbesubjecttotheprovisionsofSection11,ArticleVIIIhereofandmaynotappear...andshallalsobesubjecttosuchotherdisqualificationsasmaybeprovidedbylaw.40(Emphasissupplied.)

Itmaybepointedout,parenthetically,thatoneofthe1976amendments(whichprovidedforaninterimBatasangPambansainlieuoftheinterimNationalAssembly)includedthisprovision:"theCabinetshallbesubjectonlytosuchdisqualificationsasthePresident(PrimeMinister)mayprescribe..."Thus,evenbefore1981,Section10(Art.VIII)wasnotmeanttoapplyexpropriovigoretoCabinetMembersassignedtositintheinterimBatasaninaccordancewithAmendment1.Suchassignmentwasnotdeemedequivalenttoholdinganofficeseparatefromandindependentoftheircabinetposts.The1981amendment,deletingfromSection8(now7)ofArticleIXtheaforementionedreferenceto"sectionten...ofArticleVIIIhereof,"makesitselfevidentthatitdoesnotextendto,

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andcannotembracewithinitspurviewsuchMembersoftheCabinet.

Thirdly,therearevalidreasonsforthedistinction.The"Cabinetrepresentatives"totheBatasandifferinmanyrespectsfromtheregularBatasanMembers:theelectiveprovincial/city/districtrepresentatives.Thelatter,interalia,(a)arevotedintoofficeforafixedtermof6yearsbytheelectorateofthepoliticalsubdivisionsorunitsthereofthattheyrespectivelyrepresent(b)theSpeakeriselected"fromamongtheelectedprovincial,cityanddistrictrepresentatives41(c)itismandatedthat"amajorityoftheMembersoftheCabinetwhoareheadsofMinistriesshallcomefromtheelectiveprovincial,cityordistrictrepresentatives"42(d)theydonotvacatetheirBatasanseatsincaseofresignationfromtheirCabinetpostsforanycause43and(e)pursuanttotheprohibitionsinArticleVIII,theseelectiveBatasanMembersmayappearbeforeacourtwithappellatejurisdictionbutareforbiddenfromappearingascounselbeforeanycourtinanycivilcasewhereinthegovernmentoranysubdivision,agencyorinstrumentalitythereofistheadverseparty,orinanycriminalcasewhereinanyofficeroremployeeofthegovernmentisaccusedofanoffensecommittedinrelationtohisffice,orbeforeanyadministrativebody,

Ontheotherhand:(a)CabinetMemberswithBatasanassignmentsdonotserveforafixedtermbutatthepleasureofthePresidentandtheysimplyrepresenttheCabinetinsteadofaprovinceorsimilarconstituency(b)theycannotqualifyforelectiontotheSpeakership(c)theybelongtotheminorityofCabinetMemberswhoareheadsofMinistries(d)theyipsofactovacatetheirBatasanseatsuponresignationorseparationfromtheirCabinetpostsand(e)aCabinetMembercannotappearascounselbeforeanycourt...ortakepartinthemanagementofanybusiness,orpracticeanyprofession,andisalso"subjecttosuchotherdisqualificationsasmaybeprescribedbylaw,"asexplicitlyprovidedinSection7,ArticleIX.

Fourthly,reciprocalrepresentationintwobranchestheexecutiveandthelegislativeofthegovernmentisafeatureofourpresentmodifiedPresidentialorsemiparliamentarysystem,resultinginthemodificationtoacertainextentoftheprincipleofseparationofpowers.AtleasthalfoftheCabinetpositionswithMinistriesareallocatedtoandoccupiedbythe"elective"BatasanMembers.NonelectiveCabinetMembers,ontheotherhand,areassignedtoBatasanseatstorepresenttheCabinet(whichis"responsible"totheBatasan"fortheprogramofgovernment')44Nonetheless,forpurposesofthedisqualificationclause,CabinetMinistergivensuchlegislativeassignmentremainsprimarilyaCabinetMemberwhoservesintheBatasaninanexofficiocapacityorasamereincidentofhismembershipintheCabinet.

Needlesstostate,wefinditinadequatetoconsiderjustthebroadconnotationoftheword"member"foundinthefirstprohibitionofSection10,ArticleVIII.Resolutionoftheissueraisedcallsforadifferentapproach,especiallysobecausetherespondentunliketheelectedprovincial/city/districtrepresentativesisoneofseveralCabinetMemberswhositintheBatasannotbecauseofanelectoralmandatebutbyreasonofhisCabinetmembership.OneofthedutiesofaCabinetMemberistoserveintheBatasanifsodirectedbythePresident.WeseenootherconstitutionalprovisionwhichwouldoperatetorestrictorlimitthePresident'schoiceastosuchCabinetrepresentativestotheBatasan.AlocalgovernmentexecutivedraftedintotheCabinetbecauseofcompetencemaybegivensuchassignmentif,inthejudgmentofthePresident,hecaneffectivelyespouseanddefendintheBatasantheCabinet's"programofgovernment."Thisisinconsonancewiththerulethatconstitutionalprovisionsshouldbecoordinated,harmonizedandsoconstruedinordertogiveeffecttoallofthem,afterreconcilingapparentconflicts.45

Therootcauseofthiscontroversymaybetracedtotheoathtakingofthepetitioneras"GobernadorngPampanga"(notActingGovernor)onJuly23,1984,withoutwaitingfortheformalacceptanceoftherespondent'sresignation.Petitionermisreadanewspaperitemmentionedearlierandwasmisledintobelievingthattherewasan"impliedacceptance"thereof.Thesocalledpressrelease,however,merelyattributedtothePresidentastatementtotheeffectthataGovernor(orCityMayor)whowaselectedtotheBatasancannothold"twoelectivepositions."ThisiscorrectasheldrecentlybythisCourtinPacanaus.Adaza46acaseinvolvingaGovernorwhogothimselfelectedMambabatasPambansaandqualifiedassuch,andwhowantedalsotoretainhiselectivegovernorship.Itisnotsointheinstantcase.

WHEREFORE,thepetitionshouldbe,asitishereby,dismissed.Nocosts.

ITISSOORDERED.

Plana,Gutierrez,Jr.,Cuevas,AlampayandPatajo,JJ.,concur.

Makasiar,C.J.andAbadSantos,J.,tooknopart.

Aquino,J.,Iconcur.MinisterMendozadidnotceasetobeGovernorbecausehisresignationwasnotaccepted.HisappointmenttotheBatasandidnotmeanhisdisqualificationfromcontinuingasGovernorbecausesection10ofArticleVIIIoftheConstitutionappliesonlytoelectedBatasanmembers,nottoappointiveMembers.ConcepcionJr.,J.,intheresult.

EscolinJ.,Ireservemyvoteinaseparateopinion.

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Relova,J.,isonleave.

SeparateOpinions

TEEHANKEE,J.,dissenting:

Iamconstrainedtodissentfromthemajoritydecisioninvirtueoftheimperativeconsiderationsthatmilitateagainstitsvalidityandcorrectness,asfollows:

1.ControllingprecedentofAdazavs.Pacan,Jr.1Themajoritydecisionisdeafeninglysilent(butforapassingmentionattheend)aboutthiscontrollingprecedentretheMisamisOrientalgovernorshipresolvingtheselfsameissueperaunanimouscourt2justlastMarch18thofthisyearrulingthattheConstitutioncreatesanincompatibilitybetweenthetwopositionsofmemberofparliamentandprovincialgovernorandconsequentlythegovernor'sassumptionofhisseatasMPintheBatasanPambansa"operatedtovacatehisformerpostandhecannotnowcontinuetooccupythesamenorattempttodischargeitsfunctions."Thereinrespondent(formervicegovernor)Pacana'sassumptionofthegovernorshipwasupheldagainstthereinpetitionerMPAdazawhowasheldtohavevacatedthegovernorship.Therationaleofthesaidcontrollingprecedentis"clearandunambiguous"andisfullyapplicabletothecaseofthePampangagovernorshiphereinquestion,mutatismutandis

TheconstitutionalprohibitionagainstamemberoftheBatasanPambansafromholdinganyotherofficeoremploymentinthegovernmentduringhistenureisclearandunambiguous.Section10,ArticleVIIIofthe1973Constitutionprovidesasfollows:

Section10.AmemberoftheNationalAssembly[nowBatasanPambansa)shallnotholdanyotherofficeoremploymentinthegovernmentoranysubdivision,agencyorinstrumentalitythereof,includinggovernmentownedorcontrolledcorporations,duringhistenure,exceptthatofprimeministerormemberofthecabinet....

Thelanguageusedintheabovecitedsectionisplain,certainandfreefromambiguity.Theonlyexceptionsmentionedthereinaretheofficesofprimeministerandcabinetmember.ThewisdomorexpediencyofthesaidprovisionisamatterwhichisnotwithintheprovinceoftheCourttodetermine.

Apublicofficeisapublictrust.Itiscreatedfortheinterestandthebenefitofthepeople.Assuch,aholderthereofissubjecttosuchregulationsandconditionsasthelawmayimpose'and'hecannotcomplainofanyrestrictionswhichpublicpolicymaydictateonhisholdingofmorethanoneoffice.'Itisthereforeofnoavailtopetitionerthatthesystemofgovernmentinotherstatesallowsalocalelectiveofficialtoactasanelectedmemberoftheparliamentatthesametime.Thedictateofthepeopleinwhomlegalsovereigntyliesisexplicit.Itprovidesnoexceptionssavethetwoofficesspecificallycitedintheabovequotedconstitutionalprovision.Thus,whileitmaybesaidthatwithinthepurelyparliamentarysystemofgovernmentnoincompatibilityexistsinthenatureofthetwoofficesunderconsideration,asincompatibilityisunderstoodincommonlaw,theincompatibilityhereinpresentisonecreatedbynolessthantheconstitutionitself.Inthecaseatbar,thereisnoquestionthatpetitionerhastakenhisoathofofficeasanelectedMambabatasPambansaandhasbeendischarginghisdutiesassuch.Inthelightoftheoftmentionedconstitutionalprovision,thisfactoperatedtovacatehisformerpostandhecannotnowcontinuetooccupythesame,norattempttodischargeitsfunctions.3

2.ThePresidenthimselfcitedtheconstitutionalinhibitionandthecaseofrespondentMendoza"whohadtoresignasgovernorofPampangainordertoassumehiscabinetpositionandhismembershipintheBatasan."Thiswasdulyreportedintheestablishedpresswhichinvariablyreproducesintotoandmaintainscloseliaisonwiththegovernment'sMinistryofpublicinformation.Thus,thelargestcirculationdaily,theBulletinTodayreportedinitsissueofJuly23,1984thePresident'sconfirmationoftheresignationofrespondentMendozaasgovernor:

PresidentMarcossaidyesterdaythattheinhibitionagainstBatasanmembersfromholdingtwoelectivepositionssimultaneouslyisaconstitutionalrevisionwhichcannotbecompromised.

ThePresidentsaidthatthisissueaffectssomemembersofboththerulingKilusangBagongLipunan(KBL)andtheoppositionparties.

Thecharterprovision,however,allowstheholdingoftwopositionsiftheBatasanmemberisappointedPrimeMinisterormemberoftheCabinet,hesaid.

ThePresidentsaid:'Letitbeknownthatthispositionisdictatedbylaw.Itisnotdictatedbyyourwhimsandcaprices.Itissuchthatthelawdoesriotallowonetoholdtwopositionsatthesametime.

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ThePresidentcitedthecaseofJusticeMinisterEstelitoMendozawhohadtoresignasgovernorofPampangainordertoassumehisCabinetypositionandhismembershipintheBatasan.4

BeitnotedthatsuchreportoftheunconditionalandunqualifiedresignationofrespondentinordertoassumehisnewnationalofficesofMinisterofJusticeandMP(asperhisletterofJuly13,1984tothePresident)wasneverdeniednorrepudiatedmuchlesswastheclaimmadeasnowbelatedlyassertedpostlitemmotam,thathewrotethreedayslateronJuly16,1984totheMinisterofLocalGovernment(nottothePresident)"requestingthathe`beconsideredonleaveofabsence'whilethematter[ofhisresignation]was`pendingconsiderationbythePresident.5Albeit,suchresignationwasforthwithacceptedbythePresident,asabovestated.

3.ThePresident'sactionacceptingrespondentMendoza'sresignationisbindingonallsubordinatesandgovernmententities.Allsubsequenteventsborethisout.ThePresidentappointedRespondentonJune30,1984asMinisterofJustice.OnJuly13,1984,respondenttenderedhisresignationasgovernorandonthenextday,July14th,thePresidentappointedrespondentconcurrentlyasMemberoftheBatasanPambansa.OnJuly21,1984,respondentadvisedpetitionertoassumethegovernorshipofPampangaeffectiveJuly23,1984,whentheBatasanPambansawouldconveneandrespondentwouldtakehisoathandassumetheofficeofMP,"sayingthathewouldnotwanthisOfficeofMinistryofJusticetobeinvolvedinacontroversyregardingdualpositions,speciallybecauseitishissaidofficewhichrulesonsaidcontroversyandissuesarisingtherefromforadministrativepurposes.6OnJuly23,1984,RespondentdidassumeofficeasmemberofparliamentandwasnamedchairmanoftheBatasanCommitteeonJustice.Onthesamedate,July23,1984,thePresidentannouncedthrutheestablishedpresshisacceptanceofpetitioner'sresignationfromthegovernorship(aspertheabovequotedpressitem)"inordertoassumehiscabinetpositionandhismembershipintheBatasan".Onthesamedatealso,July23,1984,petitionerdidassumetheofficeofgovernorofPampangaaftertakinghisoathofofficeandsincethenoccupiedanddischargedthesaidofficeandfunctionsofgovernor.OnJuly27,1984,intervenorRobinNepomuceno,asseniormemberoftheSangguniangPanlalawiganofPampanga,thentookhisoathandassumedtheofficeofvicegovernor,succeedingpursuanttolawtothesaidofficevacatedbypetitionerPunsalan.InAugust1984,thePresident,uponrecommendationofrespondent,appointedAtty.OrlandoSantiagoasactingmemberoftheSangguniangPanlalawigantofilltheresultingvacancy.Theywerealldulyrecognizedassuchbyallthenationalofficersincludingrespondentaswellasintheprovince,particularlybytheMinistryofLocalGovernment.Theycollectedandwerepaidallemolumentsandsalariesappertainingtothenewpositionstowhichtheyhadsucceeded.ItisreadilyclearthatrespondentMendozahadtotally,unqualifiedlyandunconditionallyvacatedandresignedhisoldpositionofgovernor.Respondenthadtosoresignandgiveupthegovernorshipwhenheacceptedandassumedtheincompatibleofficeofmemberofparliament.ThePresidenthimselfsoannouncedandsuchpronouncementbindsallexecutiveofficesandsubordinates.RespondentcouldnotvalidlyandlegallybythemereactofresigninghismembershipfromtheBatasanPambansaonJanuary8,1985claimtoretakeandreassumethepositionofgovernorwhichhehadlongvacated,justlikeMPAdazacannotdosowithrespecttotheMisamisOrientalgovernorshipwhichhehadvacated.Thereisnoofficetotakebackorreassume.ThemerefactthatrespondentresignedhisofficeofMemberofParliamentwhenhe"tookback"thegovernorshiponJanuary8,1985withoutdueprocessshowspersethatherealizedtheconstitutionalincompatibilitybetweenthetwoofficesustasoversixmonthsearlieronJuly13,1984,heresignedasgovernoruponhisappointmentasMemberofParliament.

4.Theconcaveandconvexdistinctionssoughttobedrawnbyrespondentbetweenelectedandappointedmembersofparliamentareirrelevantandatanyrateuntenable.WestartfromtheindubitablefactofthePresident'sacceptanceofrespondent'sresignationasgovernoruponhisassumptionoftheofficeoftheMinisterofJusticeandconcurrentlymemberofparliament.Itiselementarythatsuchacceptancerequiresnoparticularformalities.Themereconstitutionalincompatibilitybetweentheoffices,asdeclaredbythePresidenthimself,andconfirmedbythisCourtinAdazaismorethansufficientmanifestationofsuchacceptanceofrespondent'sresignationfromthegovernorship.Hetherebylostalltitleandrighttothegovernorship,andcouldnotclaimatwillto"reassume"or"takeover"fromhislegalsuccessor,petitionerPunsalan.Thedistinctionsdrawnbythemajoritydecisionbetweenanelectedandappointedmemberofparliamentareirrelevant,byvirtueoftheestablishedfactofthePresident'spubliclyannouncedacceptanceofhisresignationasgovernorasconfirmedinthenewspapers.Actually,suchacceptancewasunnecessaryandevensuperfluous,sincetheconstitutionallyincompatiblepositionofMPandlocalgovernorcannotbevalidlyheldatthesametimebyoneman.Respondent'sresignationofthegovernorshipwasthemanifestationofhischoicetoserveashedidserve,asMPandCabinetmember.Theforcedinterpretationgiveninthemajoritydecisionwhichwouldemphasizeirrelevantdistinctionsbetweenanelected,anappointedandananointed("chosen")MP7inrelationtoArticleVIII,Section10oftheConstitution8doesnotcarrythedayforrespondent.

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5.RespondentcannotbegovernorandMPatthesametimePetitionerssubmittalissimple.UndertheConstitution,thereisageneralbanagainstholdingmultipleofficesbyelectiveofficials.Noelectiveofficial(governor)iseligibleforappointmenttoanyofficeexceptascabinetmember.9

Whenrespondent,ascabinetmember,wasappointedMPintheBatasan,hefellalsounderthegeneralbanintheConstitutionagainstMP'sholdinganyotherofficeoremploymentexceptthethenexpressexemptionstherein(PrimeMinister,cabinetmemberordeputyminister).Underbothprohibitons,respondentcouldnotbeagovernorandMPatthesametime.Hence,heresignedpermanentlyasgovernoruponhisappointmentasMPandcouldnotbyafterwardsresigningasMP"ressume"thegovernorshiphehadvacated.

1.Thereisnofactualandlegalbasisforthemajoritydecision's"nonagreement"withpetitioner'ssimplesubmittal.ItsburdenisthattheConstitutionalbandoesnotapplytoanappointedMP,asdistinguishedfromanelectedMP.ButtheConstitutionmakesnosuchdistinction.ThebanisagainstanyMP.Ubilexnondistinguit,necnosdistingueredebemus.10ThecitingofthesecondprohibitioninthesecondsentencethattheMPmaynot"duringthetermforwhichhewaselected"beappointedtoanycivilofficecreatedorwhoseemolumentswereincreasedwhilehewasanMPdoesnotjustifyanydistinctionbetweenelectedandappointedMP's.Certainly,thissecondprohibitionisequallyapplicabletoappointedMP's.Thementionoftheterm"forwhichhewaselected"merelydelimitsthedurationoftheprohibitionandequallyappliestoappointedMP's.Atmostifadistinctionweretobeinsistedupon,itwouldbetoholdthattheappointedMP'sarenotboundbythesecondprohibition,i.e.theymaybeappointedtonewcivilofficescreatedorwithemolumentsincreasedwhiletheywereMP'sassoonastheyresignasMP'sregardlessofthenonexpirationoftheregularsixyeartermofMP'sunderArt.VIII,section3,whichlikewisemakesnodistinctionbetweenelectedandappointedMP's.TosoholdwouldnullifytheconstitutionalbanasagainstappointedMP'samanifestlymischievousandabsurbinterpretation.ThereisnoconceivablereasonwhyappointedMP'swouldhavemoreprivilegesandlessrestictionandpublicaccountabilitythantheelectedMP's.

6.TheextensiveMelencioHerreradissentingopinionstarlinglyshowsthatcontrarytothegeneralimpressiongiventhealleged1984amendmentofthegeneralbanagainstelectiveofficialsholdinganyotherofficesoastoallowappointmentftothecabinetwasneverproposedtonorapprovedbythepeople.Mme.JusticeMelencioHerrerainherdetailedopinion(hereinadoptedandendorsedbyreference)showsbeyondthathisquestionableamendmentwasnowhereincludedinBPBlg.643implementingtheconstituentpowertoproposeconstitutionalamendmentsnorwasiteverincludedintheplebisciteballotnorintheComelec'scertificateofcanvass."henetresultistoleavesec.4(l)ofArticleXIIBasitwasafteritsamendmentinthe1981plebisciteallowingasanexceptionappointmentasmemberoftheExecutiveCommitteewhichwouldsucceedtheincumbentPresident).ButsincetheexecutiveCommitteehadbeendismantledandabolishedwiththeJanuary27,1984amendments,theendresultwastoleaveThesectioninitsoriginalandpristinetextbanningwithoutexemptionappointmentofelectiveofficialstoanyotherofficeorposition,includingthatofcabinetmember.Therefore,asperhervote,"respondentministerofjusticeshouldbeheldashavingtechnicallyabandonedthepositionofgovernorofPampanga[uponhisacceptanceoftheofficeofjusticeminister,rescindingfromhisresignationasgovernor]and...hecannotnowreplacepetitionerinthegovernorship.11

7.BothundertheConstitutionandthelaw(theCivilServiceDecree),theconcurrentholdingofmultiplegovernmentofficesorpositions(suchasthatofMPandgovernor)isprohibited,saveforthefewexceptionsalreadymentioned.TheappointmentinJuly,1984ofrespondent(thengovernor)MendozaasMPcouldnotbevalidlyeffected,unlesshevacatedthefirstofficeofgovernor.Thetextsoftheconstitutionalprohibitionsorcreationofincompatibilityofdoubleormultiplepositionsaresetforthhereinabove.12ThelawitselfpertheCivilServiceDecree(P.D.807)likewiseimposessuchageneralban:

SEC.44.LimitationonAppointment.(1)Noelectiveofficialshallbeeligibleforappointmenttoanyofficeorpositionduringhistermofoffice."

8.Byvirtueoftheconstitutional,legalandphysicalincompatibilityoftheofficesheldbyrespondentwiththatofgovernor,hisacceptanceinJuly,1984ofthesecondandthirdofficesofcabinetmemberandMPvacatedthefirstofficeofgovernorwhichhepubliclyyieldedtopetitioner.ThisissettledinAmericanandPhilippinejurisprudence.Theconstitutionalandlegalincompatibilityoftheofficesinquestionhasalreadybeenhereinabovediscussed.

Therulethatphysicalimpossibilitytoperformthefunctionsofthetwoormoreofficesheldconstituteslegalincompatibility.Theruleisfoundedonlogiccommonlawandcommonsense.

Itisbasedonpublicpolicy."Publicpolicyrequiresthatanyoneacceptingandretainingapublicofficeshouldnotplacehimself,bytheacceptingofanotheroffice,insuchapositionthatitisphysicallyimpossibleforhimproperlytoperformthedutiesofbothoffices,andifthenatureofthetwoofficesissuchthatsuchimpossibilitydoes

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appear,theofficesare'incompatible'andtheacceptanceofthesecondoffice,ipsofacto,vacatesthefirst.Perkinsvs.Manning,122p.857.

...What,then,doesconstituteincompatibilityinoffices?In5Bac,AbrTitleOfficesK,wefindtherulelaiddown,upontheauthorityofLordCoke,inthesewords:'Officesaresaidtobeincompatibleandinconsistent,soastobeexecutedbythesameperson,when,fromthemultiplicityofbusinessinthem,theycannotbeexecutedwithcareandability,...(Emphasissupplied)

ThisCourtadoptedthisruleinNacionalistaPartyvs.Bautista13whereinitwasheldthat...thepermanentofficeoftherespondent[referringtothepositionofSolicitorGeneral]maynot,fromthestrictlegalpointofview,beincompatiblewiththetemporaryone[membershipintheCommissiononElections)whichhehasbeendesignated,testedbythenatureandcharacterofthefunctionshehastoperforminbothoffices,butinabroadsensethereisanincompatibility,becausehisdutiesandfunctionsasSolicitorGeneralrequirethatallhistimebedevotedtotheirefficientperformance.Nothingshortofthatisrequiredandexpectedofhim.

InZanduetavs.delaCosta,14thisCourtlikewiseheldthat"whenajudgeoffirstinstance,presidingoverabranchofaCourtofFirstInstanceofajudicialdistrictbyvirtueofalegalandvalidappointment,acceptsanotherappointmenttopresideoverthesamebranchofthesameCourtofFirstInstance,inadditiontoanothercourtofthesamecategory,bothofwhichbelongtoanewjudicialdistrictformedbytheadditionofanotherCourtofFirstInstancetotheoldone,entersintothedischargeofthefunctionsofhisnewofficeandreceivesthecorrespondingsalary,heabandonshisoldofficeandcannotclaimtobeentitledtorepossessit.

Thebroadertestholdsthat"incompatibilityofofficesexistswherethereisconflictinthedutiesoftheoffices,sothattheperformanceofthedutiesoftheoneinterfereswiththeperformanceofthedutiesoftheother.Theyaregenerallyconsideredincompatiblewheresuchdutiesandfunctionsareinherentlyinconsistentandrepugnant,sothatbecauseofthecontrarietyandantagonismwhichwouldresultfromtheattemptofonepersontodischargefaithfully,impartiallyandefficientlythedutiesofbothoffices,considerationsofpublicpolicyrenderitimproperforanincumbenttoretainboth,15Underthistest,respondenthimselfrealizedsuchconflictandcontrarietywhenhetoldpetitioneruponturningoverthegovernorshipthat"hewouldnotwanthisOfficeofMinistryofJusticetobeinvolvedinacontroversyregardingdualpositions,speciallybecauseitishissaidofficewhichrulesonsaidcontroversyandissuesarisingtherefromforadministrativepurposes.16ThiswasshownallthemorewhenrespondentruledinhisownfavorineffectwheninJanuary,1985he'Reassumedthepositionofgovernor'...(in)implementationoftheKBLCaucusrecommendationapprovedbythePresident,17insteadofdisqualifyinghimselfasaprotagonistinviewoftheseriousconstitutionalandlegalobstacles,

Americanjurisprudencelikewiseholdthatbyrespondent'sacceptanceandqualificationfortheconstitutionallyincompatibleofficeofMP,hevacatedandresignedthefirstofficeofgovernor.

Atcommonlaw,andunderconstitutionalandstatutoryprohibitionsagainsttheholdingofincompatibleoffices,apersonwhoacceptsandqualifiesforasecondandincompatibleofficeisgenerallyheldtovacate.orbyimplicationresign,thefirstoffice,sothatnojudicialproceedingsarenecessarytodeterminethetitle.Thesuccessormayatoncebeelectedorappointed,althoughiftheformeroccupantrefusestovacatetheoffice,hissuccessormaybecompelledtotakethenecessarylegalstepstoousthim.

xxxxxxxxx

Therulethatacceptanceofasecondofficeoperatestovacateonealreadyheld,whennotdeclaredbypositiveprovisionoflaw,seemstobebasedonapresumptionofchoicebetweenthetwoofficesasevidencedbytheacceptanceofthesecond.Itisacertainandreliablerule,andonethatisindispensablefortheprotectionofthepublic.Forthepublichasarighttoknow,inthiscaseofattemptedincompatibleofficeholdingwhichofficeisheldandwhichsurrendered,anditshouldnotbelefttochanceortotheuncertainwhimoftheofficeholdertodetermine.18

Respondent'ssecondresignationfromthesecondofficeofMPinnowaynullifiedhisfirstresignationfromthefirstofficeofgovernornorrestoredanyrighttosaidofficealreadyvacatedbyhim:"Theacceptanceofasecondofficewhichthelawregardsasincompatiblewithonealreadyheldeffectsasurrenderofthefirstoffice.Andsowhentheofficerhasbeenonceinductedintothesecondoffice,hissubsequentresignationofthatofficedoesnotordinarilyrestorehisrightortitletothefirst.19Itofcoursefollowsthat"whenanofficeisonceabandoned,theformerincumbentcannotlegallyrepossessitevenbyforciblereoccupancy.20

9.TheRuleoflawandcardinalrequirementsofdueprocessrequirethatrespondentshouldhavegivenpriornoticetopetitionerofEsintentionto"reassume"thegovernorshipandincaseofpetitioner's,refusaltoturnovertheoffice,takethenecessarylegalstepstorecoverthedisputedofficeratherthanrepossessitbyphysicalreoccupancy,byhaving"aplatoonofsoldiers'secure'the

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provincialcapitolatSanFernandobeforeenteringitspremisesMondaytoannouncehisreturn.21Alessorownerwhosepropertyisdetainedbytheoccupantlessee.whoserightorleasetheretoisclaimedtohaveceased,cannotforciblytakeitoverbutmustgotocourttoupholdhisrighttorepossesstheproperty.Muchmoresoshouldthereberecoursetocourtanddueprocessincaseofadisputedrighttopublicoffice,asinthecaseatbar.Otherwise,theremightensurebloodshedandtragedy,asintheJanuary2,1985slayingofZaragozaMayorRogelioLagmayofNuevaEcijaandinotherpreviousinstances.22Itisimperativebywayofexampleforthepublicgoodthattheproperlegalrecoursebetakenwithprayerforurgentreliefbywayofapreliminarymandatoryorrestrainingorder,ifwarranted.AsJusticeBrandeisenjoined:Inagovernmentoflaws,existenceofthegovernmentwillbeimperilledifitfailstoobservethelawscrupulously.Ourgovernmentisthepotentomnipresentteacher,Forgoodorill,itteachesthewholepeoplebyexample....IftheGovernmentbecomesthelawbreaker,itbreedscontemptforthelaw,inviteseverymantobecomealawuntoitself,itinvitesanarchy.23

ACCORDINGLY,IvotetograntthepetitionandtodeclarepetitionerashavinglawfullysucceededrespondentasgovernorofPampanga.

MELENCIOHERRERA,J.,dissenting:

Thebasicfactsinthisdissentarethefollowing:

A.Theoriginal1973ConstitutionprovidedinitsArticleXII(B),Section4(l),that:

SEC.4.(1)Noelectiveofficialshallbeeligibleforappointmenttoanyofficeorpositionduringhistermofoffice."

ThesectionshallhereinafterbereferredtosimplyasSEC.4.

B.The1981plebisciteresultedinSEC.41beingamendedtoreadasfollows:

SEC.4.(1)Unlessotherwiseprovidedbylaw,

noelectiveofficialshallbeeligibleforappointmenttoanyofficeorpositionduringhistenure,

exceptasmemberoftheexecutivecommitteereferredtoinSection3,ArticleIXhereof."(Paragraphingsupplied)

ThethirdandlastsuppliedparagraphshallhereinafterbereferredtoastheEXECOMCLAUSE.

C.AftertheJanuary27,1984plebiscite,ithasbeentakenforgrantedbymanythatSEC.41wasfurtheramendedtoreadasfollows:

SEC.4.(1)Unlessotherwiseprovidedbylaw,

noelectiveofficialshallbeeligibleforappointmenttoanyofficeorpositionduringhistenure,

exceptasMemberoftheCabinet."(Paragraphingsupplied).

ThethirdandlastsuppliedparagraphshallhereinafterbereferredtoastheCABINETCLAUSE.

TheburdenofthisdissentisthattheinsertionintoSEC.41oftheCABINETCLAUSEhasnotbeenapprovedbythepeople.

Thebackgroundfactsandconsiderationsinrelationtothe1984eliminationoftheEXECOMCLAUSEanditssubstitutionbytheCABINETCLAUSEinSEC.41maynowbestated:

1.In1983,theBatasanPambansa,asgenerallyclaimed,hadapprovedsix(6)resolutionsfortheamendmentoftheConstitutionasfollows:

RESOLUTIONNOS.DATESOFAPPROVAL

104Nov.21,1983

105Nov.21,1983

110Dec.16,1983

111Dec.16,1983

112Dec.16,1983

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113Dec.19,1983

WhatisrelevanttothisdissentisResolutionNo.110(onmodeofpresidentialsuccessionbycreatingtheOfficeofVicePresidentandabolishingtheExecutiveCommittee)anditssectionIS(hereinafterreferredtoastheQUESTIONABLEAMENDMENT)which,inpart,readsasfollows:

SEC.18.ArticleXII(B),Section4oftheConstitutionisherebyproposedtobeamendedsoastoreadasfollows:

SEC.4.(1)Unlessotherwiseprovidedbylaw,noelectiveofficialshallbeeligibleforappointmenttoanyofficeorpositionduringhistenureexceptasMemberoftheCabinet.'

xxx

2.(a)OnDecember21,1983,theBatasanPambansaapprovedBPBlg.643,providingforaplebiscitetobeheldonJanuary27,1984forthesubmissiontothepeopleofamendmentstotheConstitutionofthePhilippineswhichithadproposedduringitsSixthRegularSession.(b)AscrutinyofsaidBPBlg.643reveals,however,thatnowherethereinistheQUESTIONABLEAMENDMENTproposed.

(e)NeitherwastheQUESTIONABLEAMENDMENTincludedintheplebisciteballotnorintheCertificateofCanvasssubmittedbytheCOMELECtothePresidentonFebruary1,1984.

3.Parenthetically,ResolutionNo.113(onurbanlandreformandsocialhousingprogram)approvedonDecember19,1983,two(2)daysbeforethepassageofBPBlg.643onDecember21,1983wasneitherincorporatedinthatlawwhenTheBatasanPambansawassupposedtohaveknownwhatresolutionsfortheconstitutionalamendmentshadbeenapprovedbeforesaiddateofDecember21,1983.BPBig.643.aspublishedintheOfficialGazettespecificallyreferredtoResolutionsnumbered104,105,110,111and112.NomentionwasmadeofResolutionNo.113.ReasonabledoubtthusarisesastowhethersaidamendmenthadbeenlegallyproposedbytheBatasanPambansainaccordancewithconstitutionalprovisions,EvenifthepeoplehadactuallyapprovedtheamendmentproposedinResolutionNo.113throughQuestionNo.4,butifitwasnotlegallyproposedthentheconstitutionalamendmentbasedonthatparticularResolutionNo.113shouldbedeemedinvalid.

Itisdoubtful,too,astowhethertheCOMELEChadauthoritytoformulateQuestionNo.4andincludeitintheballot,whichquestionwasbasedonResolutionNo.113.ReliancecannotbeplacedonSec.4ofBPBlg.643,whichprovided:

SEC.4.IncaseofanyresolutionthatmayhereafterbeapprovedproposingfurtheramendmentoramendmentstotheConstitution,theCommissiononElectionsisempoweredtoformulatetheappropriatequestionorquestionsbasedontheresolutionconcernedforinclusioninthesameballotastheotherquestionstobesubmittedintheplebiscitehereincalled.

asResolutionNo.113wasnot"hereafter"approved.

AftertheapprovalofBPBlg.643onDecember21,1983,BPNo.644wasapprovedonJanuary5,1984,providingfortheamendmentofRA1862,asamended,whichisinregardtoretirementpayforthearmedforces,

ThenextBatasanPambansalegislation,numbered645wasapprovedonMarch7,1984(81Off.Gaz.359),adateafterthe1984plebiscite.

WhathastobenotedisthattheBatasanPambansahadnotapprovedanylegislationbetweenDecember21,1983andJanuary27,1984(thedateoftheplebiscite),inrelationtotheplebiscite.

4.TheforegoingunderscorestheneedforpublicationoflawsintheOfficialGazette.Intheundersigned'sSeparateOpinioninAlmariovs.Alba(127SCRA69,9397[1984],sheobjectedtotheholdingoftheplebisciteonJanuary27,1984onthegroundthattheBPResolutionsinvolved,aswellasBPBlg.643,hadnotyetbeenpublishedintheOfficialGazette.BPBlg.643waspublishedonlyonSeptember3,1984in80O.G.,pp.47324739,andagainonOctober8,1984in80O.G.pp.53435350whileshehasyettoseeanOfficialGazettepublicationofResolutionNo.110,withtheQUESTIONABLEAMENDMENT.

5.TheundersignedisthusconvincedthattheQUESTIONABLEAMENDMENTwasneversubmittedtothepeopleforapprovalordisapproval.InconnectionwithResolutionNo.110,whatwasincorporatedintheplebisciteballotwasQuestionNo.2whichread,complete,asfollows:

QUESTIONNO.2

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DoyouvotefortheapprovalofamendmentstotheConstitutionasproposedbytheBatasangPambansainResolutionNumbered110which,insubstance,provideforadifferentmodeofpresidentialsuccessionwiththefollowingsalientfeatures:

1.AbolitionoftheExecutiveCommitteeandCreationoftheOfficeoftheVicePresident

(2)TheExecutiveCommitteeprovidedinSection3,ArticleIXoftheConstitutionisabolished.

(3)TheOfficeoftheVicePresidentiscreated.TheVicePresidentshallhavethesamequalificationsandtermofofficeandmayberemovedfromofficeinthesamemannerasthePresident.HemaybeappointedasamemberoftheCabinetandhemaybenominatedandelectedasPrimeMinister.HeshallbeelectedwithandinthesamemannerasthePresident.AvoteforthePresidentshallalsobeavotefortheVicePresidentrunningunderthesameticketofapoliticalparty,unlessotherwiseprovidedbylaw,TheagequalificationforPresidentandVicePresidentisreducedto40yearsold.

2.Presidentialsuccessionbeforetheelectionofl987

(1)IncaseavacancyintheOfficeofPresidentoccursbeforethepresidentialelectionof1987,theSpeakeroftheBatasangPambansashallactasPresidentuntilaPresidentandaVicePresidentoreitherofthemshallhavebeenelectedandshallhavequalified.

(2)TheBatasangPambansashallatteno'clockinthemorningofthethirddayafterthevacancyoccurs,conveneinaccordancewithitsRuleswithoutneedofacanandwithinsevendaysenactalawcallingforaspecialelectionforPresidentandVicePresidenttobeheldnotearlierthanfortyfivedaysandnotlaterthansixtydaysfromthetimeofsuchcan.TheconveningoftheBatasangPambansacannotbesuspendednorthespecialelectionpostponed.Nospecialelectionshallbecalledifthevacancyoccurswithinseventydaysbeforethedateofthepresidentialelectionof1987.

(3)ThetenureofofficeofthePresidentandVicePresidentelectedinthespecialelectionshallcommenceatnoonofthetenthdayfollowingtheirproclamation,andshallendatnoononthethirtiethdayofJuneofthesixthyearthereafter.

3.LimitationsonthepowersoftheSpeakeractingasPresident.

(1)TheActingPresidentmaynotdeclaremartiallaworsuspendtheprivilegeofthewritofhabeascorpuswithoutthepriorconsentofatleastamajorityofalltheMembersoftheBatasangPambansa.

(2)Hemaynotissueanydecree,orderorletterofinstructionwhilethelawmakingpowerofthePresidentisinfforce.

(3)HeshallbedeemedautomaticallyonleaveandtheSpeakerProTemporeshallactasSpeaker.WhileactingasPresident,theSpeakermaynotberemoved.

(4)HeshallnotbeeligibleforelectionintheimmediatelysucceedingelectionforPresidentandVicePresident.

(5)AppointmentextendedbytheActingPresidentshallremaineffectiveunlessrevokedbythenewlyelectedPresidentwithinninetydaysfromhisassumptionofoffice."4.Presidentialsuccessionaftertheelectionofl987

(1)IfatthetimefixedforthebeginningofhistermthePresidentelectshaghavedied,theVicePresidentelectshallbecomePresident.IfaPresidentshallnothavebeenchosenbeforethetimefixedforthebeginningofhistermorifthePresidentshaghavefailedtoqualify,thentheVicePresidentshagactasPresidentuntilaPresidentshallhavequalified.

(2)Incaseofpermanentdisability,death,removalfromofficeorresignationofthePresident,theVicePresidentshallbecomethePresidenttoservetheunexpiredterm.

5.Statutorysuccession

(1)TheBatasangPambansashallbylawprovidewhoshallactasPresidentorthemannerinwhichonewhoistoactshallbeselectedifneitheraPresidentelectnoraVicePresidentelectshallhavebeenchosennorshallhavequalified,orbothshallhavediedatthetimefixedforthebeginningoftheirterm.

(2)TheBatasangPambansashallbylawprovideforthedeathpermanentdisabilityorresignationoftheSpeakeratthetimethevacancyintheOfficeofthePresidentoccursorsubsequentlythereafter,declaringwhoshallserveasPresidentuntilthePresidentandtheVicePresidentshallhavebeen

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electedandqualified,subjecttothesamerestrictionsofpowersanddisqualificationsastheSpeakerwhenactingasPresident,

QuestionNo.2canbethoroughlyscrutinized,anditwinbeseenthatnoreferencewhatsoeverwasmadetothesubstitutionoftheEXECOMCLAUSEbytheCABINETCLAUSEinSEC.41Whatcannegativelyappearfromthepeople'saffirmativereplytoQuestionNo.2isthatthepeoplehadneverconsentedtothesubstitutionoftheEXECOMCLAUSEbytheCABINETCLAUSE.AlthoughthesubstitutionhadbeenproposedintheQUESTIONABLEAMENDMENT,itcannotbeimplementedbecauseitwasnotvoteduponbythepeoplethrougha"yes"voteforQuestionNo.2.

ItisquitetruethatinreferencetoResolutionNo.110,itwasproposedinQuestionNo.2thattheExecutiveCommitteebeabolished.ApprovalofthatamendmentcallaffectSEC,41soastoexcludetheEXECOMCLAUSEtherefrom.however,theeliminationoftheEXECOMCLAUSEfromtheprovisionwillnotjustifyitssubstitutionbytheCABINETCLAUSE.Theprovisionshouldnowreverttoitsoriginalphraseologythat"noelectiveofficialshallbeeligibleforappointmenttoanyofficeorpositionduringhistermofoffice".Whetherthephrase"unlessotherwiseprovidedbylaw"shouldberetainedcanbethesubjectofanotherproceeding.Generallyspeaking,thephrase,ifusedinaConstitution,canbetheseedoftheConstitution'sowndestruction.Apracticalconsiderationmayalsobepointedout:

1.TheheadofaMinistry,alsoamemberoftheCabinet,hasstatutoryadministrativedutieswhichhavetoberegularlyperformed.Ontheotherhand,amemberoftheExecutiveCommitteeonlyassiststhePresidentinhisperformanceofpowersandfunctionsasthelatterhimselfmayprescribe.Thus.anelectiveGovernorcanbeamemberoftheExecutiveCommittee,withoutnecessarilyabandoninghisgovernorship,hasdutiesintheExecutiveCommitteebeingonlyassistiveincharacter.ButanelectiveGovernor,sayofDavaodelSur,canhardlyperformhisdutiesasGovernorinhisprovinceand,atthesametime,performstatutoryadministrativefunctionsinMetroManilaasaMinisterwithportfolio.

2.Underthe1981constitutionalamendment,aGovernorwhoisappointedamemberoftheExecutiveCommitteecanresignfromthecommitteewithoutvacatinghisgubernatorialposition(Sec.9,Art.IX)TherecanbenoimpracticabilityintheresignationprovisionbecausemembershipintheExecutivecommittee.insofarastheGovernorisconcerned,ismerelytoassistthePresident.

ArticleIXSection8oftheConstitutionwhichnowreads:

SEC.8.ThePrimeMinister,DeputyPrimeMinisteroranyMemberoftheCabinet,mayresignforanycausewithoutvacatinghisseatasprovincial,city,districtorsectoralrepresentativeintheBatasangPambansa,oranyothergovernmentposition.

cannotdefeattheprovisionsofSEC.41.InthesamemannerasSEC.41wasnotlegallyamended,neitherwasArticleIX,Section8,legallyamendedbecauseofitsnoninclusioninBPBlg.643,norintheplebisciteballotnorintheCertificateofCanvasssubmittedbyCOMELECtothePresidentofthePhilippinesonFebruary1,1984.Itwas,therefore,neversubmittedtothepeopleforapprovalordisapproval.

Allconsidered,underSEC.41,asitisbelieveditshouldnowbeworded,analectedprovincialgovernorcannotbeappointedtoaMinistry.

ItisinviewoftheforegoingconsiderationsthatIvotetograntthepetition,andtoholdthatrespondentMinisterofJusticeshouldbeheldashavingtechnicallyabandonedthepositionofGovernorofPampangaandthathecannotnowreplacepetitionerintheGovernorship.

Footnotes

1Page1,Petition:underscoringsupplied.

2Page2,Replyetc.,page165,Rollo.

3OnJuly25,1985.

4OnFebruary8,1985

5ResolutionofFebruary14,1985.

6AssistedbyAttys.JuanT.David,CesarCarreonandDiosdadoRoncal

7AssistedbyJusticeFelixQ.Antonio,Attys.JoseAfricaandEduardoHernandez.

8Atty.AmelitoMutuc.

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9Page487,Rollo.KilusangBagongLipunan.

10GovernorMendoza,192,769,votesViceGovernorPunsalan,186,919votes.

11ThatofSolicitorGeneral.

12Pages114and399,Rollo.

13ButrespondentassumedofficeassuchmemberonJuly23,

1985.

14Pages115,401and470,Rollo.

15Pages115,471,Ibid.

16Pages116,402,Ibid.

17Itwas"notforatemporaryperiod,"accordingtopetitioner.page182,Ibid:respondent'sversiononpages116and402.

18Annex"B",Petitionpage26,Rollo

19Quotedinfull,page14,Petition:page15,Ibid.

20Page9,Ibid.

21Page8,Ibid.

22Page10,Ibid

23

24Page118,Ibid.

25Pages405,481,482and483,Ibid

26Annex"LL1"",Replypage338,Rollo.

27Pages406,484and485,Ibid.

28Page14,Ibid.

29Gamboavs.CourtofAppeals,108SCRA1.

30Article238.

31SentthePresidentbyletterdatedMay25,1984:page458,Rollo.

32DatedJune21,1984,page463,Ibid.

33Paragraph18ofPetition,page14,Ibid

34SeelettersbothdatedJuly16,1984:pages472and473,Ibid.

35Pages253and293,Ibid.

36AsamendedFebruary1,1984.

37Page1,Rollo.

38Section2,ArticleVII1.

39Section3(l)andSection(7)1,Ibid,

40Asfurtheramendedin1984ratifiedonJanuary27,1984,anddeclaredinfullforceandeffectpursuanttoProclamationNo.2332datedFebruary1,1984.

41Section7(1),ArticleVIII

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42Section1,ArticleIX.

43Section8,Ibid

44Section2,Ibid.

45Cooley.TreatiseonConstitutionalLimitations,8thEd.,Vol.1,pp.128129.

46135SCRA431.Page172

TEEHANKEE.,FOOTNOTES:

1G.R.No.68159prom.March18,1985,reportedin135SCRA431,perEscolinJ.

2TwelveofthefourteenmembersofthisCourtconcurred,andthenChiefJusticeEnriqueM.FernandoandJusticeVicenteAbadSantostooknopart.ThecompositionofthisCourtremainsthesame,exceptfortheretirementlastJuly25thofC.J.FernandoandthesubsequentappointmentofJusticeLinoPatajotofillthevacant14thseat.

3Emphasissupplied

4Emphasissupplied.

5Majoritydecision,atpage3.

6Petition,par.4.

7Atpage7,majoritydecision.

8Thetextreads:"SEC.10.AMemberoftheBatasangPambansashallnotholdanyotherofficeoremploymentintheGovernment,oranysubdivision,agencyorinstrumentalitythereof,includinggovernmentownedorcontrolledcorporations,duringhistenureexceptthatofPrimeMinister,MemberoftheCabinetorDeputyMinister.Neithershallhe,duringthetermforwhichhewaselected,beappointedtoanycivilofficewhichmayhavebeencreatedoremolumentsthereofincreasedwhilehewasaMemberoftheBatasangPambansa."

9ArticleXIIB,sec.4(l)whichreads:"SEC.4(l).Unlessotherwiseprovidedbylaw,noelectiveofficialshallbeeligibleforappointmenttoanyofficeorpositionduringhistenureexceptasMemberoftheCabinet,"(asallegedlyamendedFebruary1,1984.)

10Wherethelawdoesnotdistinguish,weshouldnotdistinguish.

11Noteinbracketssupplied.

12Supra,fns.and9.

1385Phil.1011,109(1949)emphasissupplied.

1466Phil.615(1938)emphasissuppliedseealsoSummersvs.

Ozaeta,81Phil.754(1948).

1563Am.Jur.2d.73emphasissupplied.

16Supra,par.3hereof.

17Majoritydecisionatpage3.

1863Am.Jur2d.77emphasissupplied.

19Idematpage8l.

20Idem.atpage168.

22JesusBigorna.BulletinTodayissueofJan.10,1985.

23ItwillberecalledthatsaidMajorRogelioLagmayandthreeofhiscompanionswereshotdeadatthetownhallwhenhetriedtoreassumethepostfromviceandactingmayorArtermioPagaduanafterhehadbeenclearedofchargesfiledagainsthimbythelatter,andforwhichhehadbeen

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suspendedfromoffice.Murderandfrustratedmurderchargesweresubsequentlyfiledagainstthevicemayorandthirteenothers.BulletinTodayissueofFebruary16,Olmsteadvs.U.S.277U.S.438,dissentingopinion.

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Punsalan v Mendoza