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Reyes v. Comelec, G.R. No. 207264 June 25 2013
Reyes v. Comelec, G.R. No. 207264 June 25 2013
REGINA ONGSIAKO REYES, Petitioner, vs. COMMISSION ON ELECTIONS and JOSEPH SOCORRO B. TAN, Respondents.
RESOLUTION
PEREZ, J.:
Before the Court is a Petition for Certiorari with Prayer for Temporary Restraining Order and/or Preliminary Injunction
and/or Status Quo Ante Order dated 7 June 2013 filed by petitioner Regina Ongsiako Reyes, assailing the Resolutions dated 27
March 2013 and 14 May 2013 issued by public respondent Commission on Elections (COMELEC) in SPA No. 13-053. The assailed
Resolutions ordered the cancellation of the Certificate of Candidacy of petitioner for the position of Representative of the lone district
of Marinduque.
FACTS:
On 31 October 2012, respondent Joseph Socorro Tan, a registered voter and resident of the Municipality of Torrijos,
Marinduque, filed before the COMELEC an Amended Petition to Deny Due Course or to Cancel the Certificate of Candidacy
(COC) of petitioner on the ground that it contained material misrepresentations, specifically:
1) that she is single when she is married to Congressman Herminaldo I. Mandanas of Batangas;
2) that she is a resident of Brgy. Lupac, Boac, Marinduque when she is a resident of Bauan, Batangas which is the residence
of her husband, and at the same time, when she is also a resident of 135 J.P. Rizal, Brgy. Milagrosa, Quezon City as
admitted in the Directory of Congressional Spouses of the House of Representatives;
3) that her date of birth is 3 July 1964 when other documents show that her birthdate is either 8 July 1959 or 3 July 1960;
4) that she is not a permanent resident of another country when she is a permanent resident or an immigrant of the United
States of America; and
5) that she is a Filipino citizen when she is, in fact, an American citizen.
PETITIONER’S CONTENTION:
1. while she is publicly known to be the wife of Congressman Herminaldo I. Mandanas (Congressman Mandanas), there is no
valid and binding marriage between them. According to petitioner, although her marriage with Congressman Mandanas was
solemnized in a religious rite, it did not comply with certain formal requirements prescribed by the Family Code, rendering it
void ab initio.
2. Consequently, petitioner argues that as she is not duty-bound to live with Congressman Mandanas, then his residence
cannot be attributed to her.
3. As to her date of birth, the Certificate of Live Birth issued by the National Statistics Office shows that it was on 3 July 1964.
4. Lastly, petitioner notes that the allegation that she is a permanent resident and/or a citizen of the United States of America
is not supported by evidence.
During the course of the proceedings, on 8 February 2013, respondent filed a "Manifestation with Motion to Admit Newly
Discovered Evidence and Amended List of Exhibits"consisting of, among others:
1) a copy of an article published on the internet on 8 January 2013 entitled "Seeking and Finding the Truth about Regina O.
Reyes" with an Affidavit of Identification and Authenticity of Document executed by its author Eliseo J. Obligacion, which
provides a database record of the Bureau of Immigration indicating that petitioner is an American citizen and a holder of a
U.S. passport;
2) a Certification of Travel Records of petitioner, issued by Simeon Sanchez, Acting Chief, Verification and Certification Unit
of the Bureau of Immigration which indicates that petitioner used a U.S. Passport in her various travels abroad.
On 27 March 2013, the COMELEC First Division issued a Resolution cancelling petitioner’s COC, to wit:
WHEREFORE, in view of the foregoing, the instant Petition is GRANTED. Accordingly, the Certificate of Candidacy of respondent
REGINA ONGSIAKO REYES is hereby CANCELLED.
COMELEC’s RULING:
The COMELEC First Division found that, contrary to the declarations that she made in her COC, petitioner is not a citizen of the
Philippines because of her failure to comply with the requirements of Republic Act (R.A.) No. 9225 or the Citizenship Retention and
Re-acquisition Act of 2003, namely:
Not agreeing with the Resolution of the COMELEC First Division, petitioner filed a Motion for Reconsideration on 8 April 2013
claiming that she is a natural-born Filipino citizen and that she has not lost such status by simply obtaining and using an American
passport. Additionally, petitioner surmised that the COMELEC First Division relied on the fact of her marriage to an American citizen
in concluding that she is a naturalized American citizen. Petitioner averred, however, that such marriage only resulted into dual
citizenship, thus there is no need for her to fulfill the twin requirements under R.A. No. 9225. Still, petitioner attached an Affidavit of
Renunciation of Foreign Citizenship sworn to before a Notary Public on 24 September 2012. As to her alleged lack of the one-year
residency requirement prescribed by the Constitution, she averred that, as she never became a naturalized citizen, she never lost
her domicile of origin, which is Boac, Marinduque.
On 14 May 2013, the COMELEC En Banc, promulgated a Resolution denying petitioner’s Motion for Reconsideration for lack of merit.
Four days thereafter or on 18 May 2013, petitioner was proclaimed winner of the 13 May 2013 Elections.
On 5 June 2013, the COMELEC En Banc issued a Certificate of Finality declaring the 14 May 2013 Resolution of the
COMELEC En Banc final and executory, considering that more than twenty-one (21) days have elapsed from the
date of promulgation with no order issued by this Court restraining its execution.
On same day (5 June 2013), petitioner took her oath of office before Feliciano R. Belmonte Jr., Speaker of the House of
Representatives.
Petitioner has yet to assume office, the term of which officially starts at noon of 30 June 2013.
ISSUES:
In the present Petition for Certiorari with Prayer for Temporary Restraining Order and/or Preliminary Injunction and/or Status Quo
Ante Order, petitioner raises the following issues:
1. Whether or not Respondent Comelec is without jurisdiction over Petitioner who is a duly proclaimed winner and who has
already taken her oath of office for the position of Member of the House of Representatives for the lone congressional
district of Marinduque.
2. Whether or not Respondent Comelec committed grave abuse of discretion amounting to lack or excess of jurisdiction when
it took cognizance of Respondent Tan’s alleged "newly-discovered evidence" without the same having been testified on and
offered and admitted in evidence which became the basis for its Resolution of the case without giving the petitioner the
opportunity to question and present controverting evidence, in violation of Petitioner’s right to due process of law.
3. Whether or not Respondent Comelec committed grave abuse of discretion amounting to lack or excess of jurisdiction when
it declared that Petitioner is not a Filipino citizen and did not meet the residency requirement for the position of Member of
the House of Representatives.
4. Whether or not Respondent Commission on Elections committed grave abuse of discretion amounting to lack or excess of
jurisdiction when, by enforcing the provisions of Republic Act No. 9225, it imposed additional qualifications to the
qualifications of a Member of the House of Representatives as enumerated in Section 6 of Article VI of the 1987 Constitution
of the Philippines.
SC’s RULING:
At the outset, it is observed that the issue of jurisdiction of respondent COMELEC vis-a-vis that of House of Representatives
Electoral Tribunal (HRET) appears to be a non-issue.
Petitioner is taking an inconsistent, if not confusing, stance for while she seeks remedy before this Court, she is asserting that it is
the HRET which has jurisdiction over her. Thus, she posits that the issue on her eligibility and qualifications to be a Member of the
House of Representatives is best discussed in another tribunal of competent jurisdiction. It appears then that petitioner’s recourse to
this Court was made only in an attempt to enjoin the COMELEC from implementing its final and executory judgment in SPA No. 13-
053.
Nevertheless, we pay due regard to the petition, and consider each of the issues raised by petitioner. The need to do so, and at
once, was highlighted during the discussion En Banc on 25 June 2013 where and when it was emphasized that the term
of office of the Members of the House of Representatives begins on the thirtieth day of June next following their
election.
CONTENTIONS RULING:
According to petitioner, the COMELEC was ousted of its Contrary to petitioner’s claim, however, the COMELEC retains
jurisdiction when she was duly proclaimed because pursuant to jurisdiction for the following reasons:
Section 17, Article VI of the 1987 Constitution, the HRET has the 1. the HRET does not acquire jurisdiction over the issue of
exclusive jurisdiction to be the "sole judge of all contests relating petitioner’s qualifications, as well as over the assailed
to the election, returns and qualifications" of the Members of the COMELEC Resolutions, unless a petition is duly filed with
House of Representatives. said tribunal. Petitioner has not averred that she has
filed such action.
2. the jurisdiction of the HRET begins only after the
candidate is considered a Member of the House of
Representatives, as stated in Section 17, Article VI of
the 1987 Constitution:
Section 17. The Senate and the House of Representatives shall
each have an Electoral Tribunal which shall be the sole judge of
all contests relating to the election, returns, and qualifications of
their respective Members. x x x
when is a candidate considered a Member of the House of In Vinzons-Chato v. COMELEC, citing Aggabao v. COMELEC
Representatives? and Guerrero v. COMELEC, the Court ruled that:
The Court has invariably held that once a winning candidate has
been proclaimed, taken his oath, and assumed office as a
Member of the House of Representatives, the COMELEC's
jurisdiction over election contests relating to his election,
returns, and qualifications ends, and the HRET's own jurisdiction
begins.
Nota bene: Indeed, in some cases, this Court has made the
pronouncement that once a proclamation has been made,
COMELEC’s jurisdiction is already lost and, thus, its jurisdiction
over contests relating to elections, returns, and qualifications
ends, and the HRET’s own jurisdiction begins. However, it must
be noted that in these cases, the doctrinal pronouncement
was made in the context of a proclaimed candidate who
had not only taken an oath of office, but who had also
assumed office.
In her attempt to comply with the second requirement, petitioner - However, this is not the oath of office which confers
attached a purported Oath Of Office taken before Hon. Feliciano membership to the House of Representatives.
Belmonte Jr. on 5 June 2013.
Section 6, Rule II (Membership) of the Rules of the House
of Representatives provides:
More importantly, we cannot disregard a fact basic in this We will inexcusably disregard this fact if we accept the argument
controversy – that before the proclamation of petitioner on 18 of the petitioner that the COMELEC was ousted of jurisdiction
May 2013, the COMELEC En Banc had already finally when she was proclaimed, which was four days after the
disposed of the issue of petitioner’s lack of Filipino COMELEC En Banc decision. The Board of Canvasser which
citizenship and residency via its Resolution dated 14 May proclaimed petitioner cannot by such act be allowed to
2013. render nugatory a decision of the COMELEC En Banc which
affirmed a decision of the COMELEC First Division.
After 14 May 2013, there was, before the COMELEC, no longer
any pending case on petitioner’s qualifications to run for the Indeed, the assailed Resolution of the COMELEC First Division
position of Member of the House of Representative. which was promulgated on 27 March 2013, and the assailed
Resolution of the COMELEC En Banc which was promulgated on
14 May 2013, became final and executory on 19 May 2013
based on Section 3, Rule 37 of the COMELEC Rules of
Procedure which provides:
As to the issue of whether petitioner failed to prove her Filipino suffice it to say that the COMELEC committed no grave abuse
citizenship, as well as her one-year residency in Marinduque of discretion in finding her ineligible for the position of
Member of the House of Representatives
Petitioner alleges that the COMELEC gravely abused its discretion Her contentions are incorrect.
when it took cognizance of "newly-discovered evidence" without
the same having been testified on and offered and admitted in It must be emphasized that the COMELEC is not bound to
evidence. strictly adhere to the technical rules of procedure in the
presentation of evidence.
She assails the admission of the blog article of Eli Obligacion as
hearsay and the photocopy of the Certification from the Bureau Under Section 2 of Rule I, the COMELEC Rules of Procedure
of Immigration. "shall be liberally construed in order x xx to achieve just,
expeditious and inexpensive determination and disposition of
every action and proceeding brought before the Commission."
Early on in the proceeding, respondent hammered on petitioner’s Due to petitioner’s submission of newly-discovered
lack of proof regarding her American citizenship, contending that evidence thru a Manifestation dated February 7, 2013,
it is petitioner’s burden to present a case. She, however, however, establishing the fact that respondent is a holder
specifically denied that she has become either a permanent of an American passport which she continues to use until
resident or naturalized citizen of the USA. June 30, 2012, petitioner was able to substantiate his
allegations.
Unless and until she can establish that she had availed of the
privileges of RA 9225 by becoming a dual Filipino-American
citizen, and thereafter, made a valid sworn renunciation of her
American citizenship, she remains to be an American citizen and
is, therefore, ineligible to run for and hold any elective public
office in the Philippines."
Let us look into the events that led to this petition:
1. In moving for the cancellation of petitioner’s COC, 1. At this point, the burden of proof shifted to petitioner,
respondent submitted records of the Bureau of imposing upon her the duty to prove that she is a
Immigration showing that petitioner is a holder of a US natural-born Filipino citizen and has not lost the same,
passport, and that her status is that of a "balikbayan." or that she has reacquired such status in accordance
with the provisions of R.A. No. 9225.
- Aside from the bare allegation that she is a natural-born
citizen, however, petitioner submitted no proof to support such
contention. Neither did she submit any proof as to the
inapplicability of R.A. No. 9225 to her.
2. Notably, in her Motion for Reconsideration before the 2. We cannot, however, subscribe to petitioner’s
COMELEC En Banc, petitioner admitted that she is a explanation.
holder of a US passport, but she averred that she -If petitioner executed said Affidavit "if only to comply
is only a dual Filipino-American citizen, thus the with the rules," then it is an admission that R.A. No.
requirements of R.A. No. 9225 do not apply to her. 9225 applies to her.
-Still, attached to the said motion is an Affidavit of -Petitioner cannot claim that she executed it to address
Renunciation of Foreign Citizenship dated 24 September the observations by the COMELEC as the assailed
2012.34 Resolutions were promulgated only in 2013, while the
-Petitioner explains that she attached said Affidavit "if Affidavit was executed in September 2012.
only to show her desire and zeal to serve the people
and to comply with rules, even as a superfluity."
3. Moreover, in the present petition, petitioner added a 3. This statement raises a lot of questions – Did petitioner
footnote to her oath of office as Provincial execute an oath of allegiance for re-acquisition of
Administrator, to this effect: "This does not mean that natural-born Filipino status? If she did, why did she not
Petitioner did not, prior to her taking her oath of office present it at the earliest opportunity before the
as Provincial Administrator, take her oath of allegiance COMELEC? And is this an admission that she has indeed
for purposes of reacquisition of natural-born Filipino lost her natural-born Filipino status?
status, which she reserves to present in the proper
proceeding. The reference to the taking of oath of office
is in order to make reference to what is already part of
the records and evidence in the present case and to
avoid injecting into the records evidence on matters of
fact that was not previously passed upon by Respondent
COMELEC."
To cover-up her apparent lack of an oath of allegiance as This contention is misplaced.
required by R.A. No. 9225, petitioner contends that, since she
took her oath of allegiance in connection with her REASONS:
appointment as Provincial Administrator of Marinduque,
she is deemed to have reacquired her status as a natural- 1. this issue is being presented for the first time before
born Filipino citizen. this Court, as it was never raised before the COMELEC.
2. said oath of allegiance cannot be considered
compliance with Sec. 3 of R.A. No. 9225 as certain
requirements have to be met as prescribed by
Memorandum Circular No. AFF-04-01, otherwise known
as the Rules Governing Philippine Citizenship under R.A.
No. 9225 and Memorandum Circular No. AFF-05-002
(Revised Rules) and Administrative Order No. 91, Series
of 2004 issued by the Bureau of Immigration. Thus,
petitioner’s oath of office as Provincial
Administrator cannot be considered as the oath of
allegiance in compliance with R.A. No. 9225.
As to the issue of residency, proceeding from the finding that we quote with approval the ruling of the COMELEC First Division
petitioner has lost her natural-born status that petitioner cannot be considered a resident of Marinduque:
The only proof presented by petitioner to show that she has met But such fact alone is not sufficient to prove her one-year
the one-year residency requirement of the law and never residency. For, petitioner has never regained her domicile in
abandoned her domicile of origin in Boac, Marinduque is her Marinduque as she remains to be an American citizen. No
claim that she served as Provincial Administrator of the province amount of her stay in the said locality can substitute the fact
from January 18, 2011 to July 13, 2011. that she has not abandoned her domicile of choice in the USA."
All in all, considering that the petition for denial and We held in Mastura v. COMELEC:
cancellation of the COC is summary in nature, the COMELEC
is given much discretion in the evaluation and admission of
evidence pursuant to its principal objective of determining of The rule that factual findings of administrative bodies will not be
whether or not the COC should be cancelled. disturbed by courts of justice except when there is absolutely no
evidence or no substantial evidence in support of such findings
should be applied with greater force when it concerns the
COMELEC, as the framers of the Constitution intended to place
the COMELEC — created and explicitly made independent by the
Constitution itself — on a level higher than statutory
administrative organs. The COMELEC has broad powers to
ascertain the true results of the election by means available to it.
For the attainment of that end, it is not strictly bound by the
rules of evidence.
Time and again, We emphasize that the "grave abuse of Guidance is found in Beluso v. Commission on Elections
discretion" which warrants this Court’s exercise of certiorari where the Court held:
jurisdiction has a welldefined meaning.
x x x A petition for certiorari will prosper only if grave abuse
of discretion is alleged and proved to exist. "Grave abuse of
discretion," under Rule 65, has a specific meaning. It is the
arbitrary or despotic exercise of power due to passion,
prejudice or personal hostility; or the whimsical, arbitrary,
or capricious exercise of power that amounts to an
evasion or refusal to perform a positive duty enjoined by
law or to act at all in contemplation of law. For an act to be
struck down as having been done with grave abuse of discretion,
the abuse of discretion must be patent and gross.
Lastly, anent the proposition of petitioner that the act of the We find the same meritless.
COMELEC in enforcing the provisions of R.A. No. 9225, insofar
as it adds to the qualifications of Members of the House of The COMELEC did not impose additional qualifications on
Representatives other than those enumerated in the candidates for the House of Representatives who have
Constitution, is unconstitutional acquired foreign citizenship. It merely applied the
qualifications prescribed by Section 6, Article VI of the 1987
Constitution that the candidate must be a natural-born citizen of
the Philippines and must have one-year residency prior to the
date of elections.
Such being the case, the COMELEC did not err when it inquired
into the compliance by petitioner of Sections 3 and 5 of R.A. No.
9225 to determine if she reacquired her status as a natural-born
Filipino citizen. It simply applied the constitutional provision and
nothing more.
IN VIEW OF THE FOREGOING, the instant petition is DISMISSED, finding no grave abuse of discretion on the part of the
Commission on Elections. The 14 May 2013 Resolution of the COMELEC En Bane affirming the 27 March 2013 Resolution of the
COMELEC First Division is upheld.
SO ORDERED.