Regina Reyes FULL TEXT
Regina Reyes FULL TEXT
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.
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; 1 (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;2
(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;3
(4) that she is not a permanent resident of another country when she is a permanent resident or an
immigrant4 of the United States of America; 5 and
(5) that she is a Filipino citizen when she is, in fact, an American citizen. 6
In her Answer, petitioner countered that, 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.7 Consequently, petitioner argues that
as she is not duty-bound to live with Congressman Mandanas, then his residence cannot be
attributed to her.8 As to her date of birth, the Certificate of Live Birth issued by the National
Statistics Office shows that it was on 3 July 1964.9 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.10
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"11 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 Resolution12 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.
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: (1) to take an oath of allegiance to the Republic of the Philippines; and (2)
to make a personal and sworn renunciation of her American citizenship before any public officer
authorized to administer an oath. In addition, the COMELEC First Division ruled that she did not
have the oneyear residency requirement under Section 6, Article VI of the 1987 Constitution.13
Thus, she is ineligible to run for the position of Representative for the lone district of
Marinduque.
Not agreeing with the Resolution of the COMELEC First Division, petitioner filed a Motion for
Reconsideration14 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.
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 Finality16 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.17
On same day, petitioner took her oath of office18 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.
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:19
31) 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.
32) 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.
33) 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.
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.
According to petitioner, the COMELEC was ousted of its jurisdiction when she was duly
proclaimed20 because pursuant to Section 17, Article VI of the 1987 Constitution, the HRET has
the exclusive jurisdiction to be the "sole judge of all contests relating to the election, returns and
qualifications" of the Members of the House of Representatives.
Contrary to petitioner’s claim, however, the COMELEC retains jurisdiction for the following
reasons:
First, the HRET does not acquire jurisdiction over the issue of petitioner’s qualifications, as well
as over the assailed COMELEC Resolutions, unless a petition is duly filed with said tribunal.
Petitioner has not averred that she has filed such action.
Second, 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
As held in Marcos v. COMELEC,21 the HRET does not have jurisdiction over a candidate who is
not a member of the House of Representatives, to wit:
The next inquiry, then, is when is a candidate considered a Member of the House of
Representatives?
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. (Emphasis supplied.)
This pronouncement was reiterated in the case of Limkaichong v. COMELEC,25 wherein the
Court, referring to the jurisdiction of the COMELEC vis-a-vis the HRET, held 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. (Emphasis supplied.)
After proclamation, taking of oath and assumption of office by Gonzalez, jurisdiction over the
matter of his qualifications, as well as questions regarding the conduct of election and contested
returns – were transferred to the HRET as the constitutional body created to pass upon the same.
(Emphasis supplied.)
From the foregoing, it is then clear that to be considered a Member of the House of
Representatives, there must be a concurrence of the following requisites: (1) a valid
proclamation, (2) a proper oath, and (3) assumption of office.
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.
For instance, in the case of Dimaporo v. COMELEC,27 the Court upheld the jurisdiction of the
HRET against that of the COMELEC only after the candidate had been proclaimed, taken his
oath of office before the Speaker of the House, and assumed the duties of a Congressman on 26
September 2007, or after the start of his term on 30 June 2007, to wit:
On October 8, 2007, private respondent Belmonte filed his comment in which he brought to Our
attention that on September 26, 2007, even before the issuance of the status quo ante order of the
Court, he had already been proclaimed by the PBOC as the duly elected Member of the House of
Representatives of the First Congressional District of Lanao del Norte. On that very same day, he
had taken his oath before Speaker of the House Jose de Venecia, Jr. and assumed his duties
accordingly.
In light of this development, jurisdiction over this case has already been transferred to the House
of Representatives Electoral Tribunal (HRET). (Emphasis supplied.)
Apparently, the earlier cases were decided after the questioned candidate had already assumed
office, and hence, was already considered a Member of the House of Representatives, unlike in
the present case.
Here, the petitioner cannot be considered a Member of the House of Representatives because,
primarily, she has not yet assumed office. To repeat what has earlier been said, the term of office
of a Member of the House of Representatives begins only "at noon on the thirtieth day of June
next following their election."28 Thus, until such time, the COMELEC retains jurisdiction.
In her attempt to comply with the second requirement, petitioner attached a purported Oath Of
Office taken before Hon. Feliciano Belmonte Jr. on 5 June 2013. However, this is not the oath of
office which confers membership to the House of Representatives.
Section 6. Oath or Affirmation of Members. – Members shall take their oath or affirmation either
collectively or individually before the Speaker in open session.
Consequently, before there is a valid or official taking of the oath it must be made (1) before the
Speaker of the House of Representatives, and (2) in open session. Here, although she made the
oath before Speaker Belmonte, there is no indication that it was made during plenary or in open
session and, thus, it remains unclear whether the required oath of office was indeed complied
with.
More importantly, we cannot disregard a fact basic in this controversy – that before the
proclamation of petitioner on 18 May 2013, the COMELEC En Banc had already finally
disposed of the issue of petitioner’s lack of Filipino citizenship and residency via its Resolution
dated 14 May 2013. After 14 May 2013, there was, before the COMELEC, no longer any
pending case on petitioner’s qualifications to run for the position of Member of the House of
Representative. We will inexcusably disregard this fact if we accept the argument of the
petitioner that the COMELEC was ousted of jurisdiction when she was proclaimed, which was
four days after the COMELEC En Banc decision. The Board of Canvasser which proclaimed
petitioner cannot by such act be allowed to render nugatory a decision of the COMELEC En
Banc which affirmed a decision of the COMELEC First Division.
Indeed, the assailed Resolution of the COMELEC First Division 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:
Section 3. Decisions Final after five days. Decisions in pre-proclamation cases and petitions to
deny due course to or cancel certificates of candidacy, to declare nuisance candidate or to
disqualify a candidate, and to postpone or suspend elections shall become final and executory
after the lapse of five (5) days from their promulgation unless restrained by the Supreme Court.
To prevent the assailed Resolution dated 14 May 2013 from becoming final and executory,
petitioner should have availed herself of Section 1, Rule 3729 of the COMELEC Rules of
Procedure or Rule 6430 of the Rules of Court by filing a petition before this Court within the 5-
day period, but she failed to do so. She would file the present last hour petition on 10 June 2013.
Hence, on 5 June 2013, respondent COMELEC rightly issued a Certificate of Finality.
As to the issue of whether petitioner failed to prove her Filipino citizenship, as well as her one-
year residency in Marinduque, suffice it to say that the COMELEC committed no grave abuse 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 when it took cognizance of
"newly-discovered evidence" without the same having been testified on and offered and admitted
in evidence. She assails the admission of the blog article of Eli Obligacion as hearsay and the
photocopy of the Certification from the Bureau of Immigration. She likewise contends that there
was a violation of her right to due process of law because she was not given the opportunity to
question and present controverting evidence.
It must be emphasized that the COMELEC is not bound to strictly adhere to the technical rules
of procedure in the presentation of evidence. Under Section 2 of Rule I, the COMELEC Rules of
Procedure "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."
In view of the fact that the proceedings in a petition to deny due course or to cancel certificate of
candidacy are summary in nature, then the "newly discovered evidence" was properly admitted
by respondent COMELEC.
Furthermore, there was no denial of due process in the case at bar as petitioner was given every
opportunity to argue her case before the COMELEC. From 10 October 2012 when Tan’s petition
was filed up to 27 March 2013 when the First Division rendered its resolution, petitioner had a
period of five (5) months to adduce evidence. Unfortunately, she did not avail herself of the
opportunity given her.
Also, in administrative proceedings, procedural due process only requires that the party be given
the opportunity or right to be heard. As held in the case of Sahali v. COMELEC:31
The petitioners should be reminded that due process does not necessarily mean or require a
hearing, but simply an opportunity or right to be heard. One may be heard, not solely by verbal
presentation but also, and perhaps many times more creditably and predictable than oral
argument, through pleadings. In administrative proceedings moreover, technical rules of
procedure and evidence are not strictly applied; administrative process cannot be fully equated
with due process in its strict judicial sense. Indeed, deprivation of due process cannot be
successfully invoked where a party was given the chance to be heard on his motion for
reconsideration. (Emphasis supplied)
As to the ruling that petitioner is ineligible to run for office on the ground of citizenship, the
COMELEC First Division, discoursed as follows:
"x x x for respondent to reacquire her Filipino citizenship and become eligible for public office,
the law requires that she must have accomplished the following acts: (1) take the oath of
allegiance to the Republic of the Philippines before the Consul-General of the Philippine
Consulate in the USA; and (2) make a personal and sworn renunciation of her American
citizenship before any public officer authorized to administer an oath.
In the case at bar, there is no showing that respondent complied with the aforesaid requirements.
Early on in the proceeding, respondent hammered on petitioner’s lack of proof regarding her
American citizenship, contending that it is petitioner’s burden to present a case. She, however,
specifically denied that she has become either a permanent resident or naturalized citizen of the
USA.
Let us look into the events that led to this petition: In moving for the cancellation of petitioner’s
COC, respondent submitted records of the Bureau of Immigration showing that petitioner is a
holder of a US passport, and that her status is that of a "balikbayan." At this point, the burden of
proof shifted to petitioner, imposing upon her the duty to prove that she is a natural-born Filipino
citizen and has not lost the same, 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.
Notably, in her Motion for Reconsideration before the COMELEC En Banc, petitioner admitted
that she is a holder of a US passport, but she averred that she is only a dual Filipino-American
citizen, thus the requirements of R.A. No. 9225 do not apply to her.33 Still, attached to the said
motion is an Affidavit of Renunciation of Foreign Citizenship dated 24 September 2012.34
Petitioner explains that she attached said Affidavit "if only to show her desire and zeal to serve
the people and to comply with rules, even as a superfluity."35 We cannot, however, subscribe to
petitioner’s explanation. If petitioner executed said Affidavit "if only to comply with the rules,"
then it is an admission that R.A. No. 9225 applies to her. Petitioner cannot claim that she
executed it to address the observations by the COMELEC as the assailed Resolutions were
promulgated only in 2013, while the Affidavit was executed in September 2012.
Moreover, in the present petition, petitioner added a footnote to her oath of office as Provincial
Administrator, to this effect: "This does not mean that Petitioner did not, prior to her taking her
oath of office as Provincial Administrator, take her oath of allegiance for purposes of
reacquisition of natural-born Filipino 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."36 This statement raises a lot of questions – Did petitioner execute an oath of
allegiance for re-acquisition of natural-born Filipino status? If she did, why did she not present it
at the earliest opportunity before the COMELEC? And is this an admission that she has indeed
lost her natural-born Filipino status?
To cover-up her apparent lack of an oath of allegiance as required by R.A. No. 9225, petitioner
contends that, since she took her oath of allegiance in connection with her appointment as
Provincial Administrator of Marinduque, she is deemed to have reacquired her status as a
natural-born Filipino citizen.
This contention is misplaced. For one, this issue is being presented for the first time before this
Court, as it was never raised before the COMELEC. For another, 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.
These circumstances, taken together, show that a doubt was clearly cast on petitioner’s
citizenship. Petitioner, however, failed to clear such doubt.
As to the issue of residency, proceeding from the finding that petitioner has lost her natural-born
status, we quote with approval the ruling of the COMELEC First Division that petitioner cannot
be considered a resident of Marinduque:
"Thus, a Filipino citizen who becomes naturalized elsewhere effectively abandons his domicile
of origin. Upon re-acquisition of Filipino citizenship pursuant to RA 9225, he must still show
that he chose to establish his domicile in the Philippines through positive acts, and the period of
his residency shall be counted from the time he made it his domicile of choice.
In this case, there is no showing whatsoever that petitioner had already re-acquired her Filipino
citizenship pursuant to RA 9225 so as to conclude that she has regained her domicile in the
Philippines. There being no proof that petitioner had renounced her American citizenship, it
follows that she has not abandoned her domicile of choice in the USA.
The only proof presented by petitioner to show that she has met the one-year residency
requirement of the law and never abandoned her domicile of origin in Boac, Marinduque is her
claim that she served as Provincial Administrator of the province from January 18, 2011 to July
13, 2011. But such fact alone is not sufficient to prove her one-year residency. For, petitioner has
never regained her domicile in Marinduque as she remains to be an American citizen. No amount
of her stay in the said locality can substitute the fact that she has not abandoned her domicile of
choice in the USA."37 (Emphasis supplied.)
All in all, considering that the petition for denial and 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 whether or not the COC should be cancelled.
We held in Mastura v. COMELEC:38
The rule that factual findings of administrative bodies will not be 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.1âwphi1
Time and again, We emphasize that the "grave abuse of discretion" which warrants this Court’s
exercise of certiorari jurisdiction has a welldefined meaning. Guidance is found in Beluso v.
Commission on Elections39 where the Court held:
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. (Emphasis supplied.)
Here, this Court finds that petitioner failed to adequately and substantially show that grave abuse
of discretion exists.
Lastly, anent the proposition of petitioner that the act of the COMELEC in enforcing the
provisions of R.A. No. 9225, insofar as it adds to the qualifications of Members of the House of
Representatives other than those enumerated in the Constitution, is unconstitutional, We find the
same meritless.
The COMELEC did not impose additional qualifications on candidates for the House of
Representatives who have 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.