Poe Llamanzares v. Commission On Elections

EN BANC
[G.R. No. 221697. March 8, 2016.]
MARY GRACE NATIVIDAD S. POE-LLAMANZARES , petitioner, vs.

COMMISSION ON ELECTIONS AND ESTRELLA C. ELAMPARO ,
respondents.
[G.R. Nos. 221698-700. March 8, 2016.]
MARY GRACE NATIVIDAD S. POE-LLAMANZARES , petitioner, vs.

COMMISSION ON ELECTIONS, FRANCISCO S. TATAD, ANTONIO P.
VALDEZ respondents.
CONTRERAS AND AMADO D. VALDEZ,
DECISION
PEREZ J :
PEREZ, p
Before the Court are two consolidated petitions under Rule 64 in relation to Rule
65 of the Rules of Court with extremely urgent application for an ex parte issuance of
temporary restraining order/status quo ante order and/or writ of preliminary injunction
assailing the following: (1) 1 December 2015 Resolution of the Commission on
Elections (COMELEC) Second Division; (2) 23 December 2015 Resolution of the
COMELEC En Banc, in SPA No. 15-001 (DC); (3) 11 December 2015 Resolution of the
COMELEC First Division; and (4) 23 December 2015 Resolution of the COMELEC En
Banc, in SPA No. 15-002 (DC), SPA No. 15-007 (DC) and SPA No. 15-139 (DC) for
having been issued without jurisdiction or with grave abuse of discretion amounting to
lack or excess of jurisdiction.
The Facts
Mary Grace Natividad S. Poe-Llamanzares (petitioner) was found abandoned as a
newborn infant in the Parish Church of Jaro, Iloilo by a certain Edgardo Militar
(Edgardo) on 3 September 1968. Parental care and custody over petitioner was passed
on by Edgardo to his relatives, Emiliano Militar (Emiliano) and his wife. Three days after,
6 September 1968, Emiliano reported and registered petitioner as a foundling with the
Of ce of the Civil Registrar of Iloilo City (OCR-Iloilo). In her Foundling Certi cate and
Certi cate of Live Birth, the petitioner was given the name "Mary Grace Natividad
Contreras Militar." 1
When petitioner was ve (5) years old, celebrity spouses Ronald Allan Kelley Poe
(a.k.a. Fernando Poe, Jr.) and Jesusa Sonora Poe (a.k.a. Susan Roces) led a petition
for her adoption with the Municipal Trial Court (MTC) of San Juan City. On 13 May 1974,
the trial court granted their petition and ordered that petitioner's name be changed
from "Mary Grace Natividad Contreras Militar" to "Mary Grace Natividad Sonora Poe."
Although necessary notations were made by OCR-Iloilo on petitioner's foundling
certi cate re ecting the court decreed adoption, 2 the petitioner's adoptive mother
discovered only sometime in the second half of 2005 that the lawyer who handled
petitioner's adoption failed to secure from the OCR-Iloilo a new Certi cate of Live Birth
indicating petitioner's new name and the name of her adoptive parents. 3 Without delay,
CD Technologies Asia, Inc. 2016 cdasiaonline.com
petitioner's mother executed an af davit attesting to the lawyer's omission which she
submitted to the OCR-Iloilo. On 4 May 2006, OCR-Iloilo issued a new Certi cate of Live
Birth in the name of Mary Grace Natividad Sonora Poe. 4
Having reached the age of eighteen (18) years in 1986, petitioner registered as a
voter with the local COMELEC Of ce in San Juan City. On 13 December 1986, she
received her COMELEC Voter's Identi cation Card for Precinct No. 196 in Greenhills,
San Juan, Metro Manila. 5
On 4 April 1988, petitioner applied for and was issued Philippine Passport No.
F927287 6 by the Department of Foreign Affairs (DFA). Subsequently, on 5 April 1993
and 19 May 1998, she renewed her Philippine passport and respectively secured
Philippine Passport Nos. L881511 and DD156616. 7
Initially, the petitioner enrolled and pursued a degree in Development Studies at
the University of the Philippines 8 but she opted to continue her studies abroad and left
for the United States of America (U.S.) in 1988. Petitioner graduated in 1991 from
Boston College in Chestnuts Hill, Massachusetts where she earned her Bachelor of Arts
degree in Political Studies. 9
On 27 July 1991, petitioner married Teodoro Misael Daniel V. Llamanzares
(Llamanzares), a citizen of both the Philippines and the U.S., at Sanctuario de San Jose
Parish in San Juan City. 10 Desirous of being with her husband who was then based in
the U.S., the couple ew back to the U.S. two days after the wedding ceremony or on 29
July 1991. 11
While in the U.S., the petitioner gave birth to her eldest child Brian Daniel (Brian)
on 16 April 1992. 12 Her two daughters Hanna MacKenzie (Hanna) and Jesusa Anika
(Anika) were both born in the Philippines on 10 July 1998 and 5 June 2004,
respectively. 13
On 18 October 2001, petitioner became a naturalized American citizen. 14 She
obtained U.S. Passport No. 017037793 on 19 December 2001. 15
On 8 April 2004, the petitioner came back to the Philippines together with Hanna
to support her father's candidacy for President in the May 2004 elections. It was during
this time that she gave birth to her youngest daughter Anika. She returned to the U.S.
with her two daughters on 8 July 2004. 16
After a few months, speci cally on 13 December 2004, petitioner rushed back to
the Philippines upon learning of her father's deteriorating medical condition. 17 Her
father slipped into a coma and eventually expired. The petitioner stayed in the country
until 3 February 2005 to take care of her father's funeral arrangements as well as to
assist in the settlement of his estate. 18
According to the petitioner, the untimely demise of her father was a severe blow
to her entire family. In her earnest desire to be with her grieving mother, the petitioner
and her husband decided to move and reside permanently in the Philippines sometime
in the rst quarter of 2005. 19 The couple began preparing for their resettlement
including noti cation of their children's schools that they will be transferring to
Philippine schools for the next semester; 20 coordination with property movers for the
relocation of their household goods, furniture and cars from the U.S. to the Philippines;
21 and inquiry with Philippine authorities as to the proper procedure to be followed in
bringing their pet dog into the country. 22 As early as 2004, the petitioner already quit
her job in the U.S. 23
Finally, petitioner came home to the Philippines on 24 May 2005 24 and without
delay, secured a Tax Identi cation Number from the Bureau of Internal Revenue. Her
three (3) children immediately followed 25 while her husband was forced to stay in the
U.S. to complete pending projects as well as to arrange the sale of their family home
there. 26
The petitioner and her children brie y stayed at her mother's place until she and
her husband purchased a condominium unit with a parking slot at One Wilson Place
Condominium in San Juan City in the second half of 2005. 27 The corresponding
Condominium Certi cates of Title covering the unit and parking slot were issued by the
Register of Deeds of San Juan City to petitioner and her husband on 20 February 2006.
28 Meanwhile, her children of school age began attending Philippine private schools.
On 14 February 2006, the petitioner made a quick trip to the U.S. to supervise the
disposal of some of the family's remaining household belongings. 29 She travelled back
to the Philippines on 11 March 2006. 30
In late March 2006, petitioner's husband of cially informed the U.S. Postal
Service of the family's change and abandonment of their address in the U.S. 31 The
family home was eventually sold on 27 April 2006. 32 Petitioner's husband resigned
from his job in the U.S. in April 2006, arrived in the country on 4 May 2006 and started
working for a major Philippine company in July 2006. 33
In early 2006, petitioner and her husband acquired a 509-square meter lot in
Corinthian Hills, Quezon City where they built their family home 34 and to this day, is
where the couple and their children have been residing. 35 A Transfer Certi cate of Title
covering said property was issued in the couple's name by the Register of Deeds of
Quezon City on 1 June 2006.
On 7 July 2006, petitioner took her Oath of Allegiance to the Republic of the
Philippines pursuant to Republic Act (R.A.) No. 9225 or the Citizenship Retention and
Re-acquisition Act of 2003. 36 Under the same Act, she led with the Bureau of
Immigration (BI) a sworn petition to reacquire Philippine citizenship together with
petitions for derivative citizenship on behalf of her three minor children on 10 July
2006. 37 As can be gathered from its 18 July 2006 Order, the BI acted favorably on
petitioner's petitions and declared that she is deemed to have reacquired her Philippine
citizenship while her children are considered as citizens of the Philippines. 38
Consequently, the BI issued Identi cation Certi cates (ICs) in petitioner's name and in
the names of her three (3) children. 39
Again, petitioner registered as a voter of Barangay Santa Lucia, San Juan City on
31 August 2006. 40 She also secured from the DFA a new Philippine Passport bearing
the No. XX4731999. 41 This passport was renewed on 18 March 2014 and she was
issued Philippine Passport No. EC0588861 by the DFA. 42
On 6 October 2010, President Benigno S. Aquino III appointed petitioner as
Chairperson of the Movie and Television Review and Classi cation Board (MTRCB). 43
Before assuming her post, petitioner executed an "Af davit of Renunciation of
Allegiance to the United States of America and Renunciation of American Citizenship"
before a notary public in Pasig City on 20 October 2010, 44 in satisfaction of the legal
requisites stated in Section 5 of R.A. No. 9225. 45 The following day, 21 October 2010
petitioner submitted the said af davit to the BI 46 and took her oath of of ce as
Chairperson of the MTRCB. 47 From then on, petitioner stopped using her American
passport. 48
On 12 July 2011, the petitioner executed before the Vice Consul of the U.S.
Embassy in Manila an "Oath/Af rmation of Renunciation of Nationality of the United
States." 49 On that day, she accomplished a sworn questionnaire before the U.S. Vice
Consul wherein she stated that she had taken her oath as MTRCB Chairperson on 21
October 2010 with the intent, among others, of relinquishing her American citizenship.
50 In the same questionnaire, the petitioner stated that she had resided outside of the
U.S., speci cally in the Philippines, from 3 September 1968 to 29 July 1991 and from
May 2005 to present. 51
On 9 December 2011, the U.S. Vice Consul issued to petitioner a "Certi cate of
Loss of Nationality of the United States" effective 21 October 2010. 52
On 2 October 2012, the petitioner led with the COMELEC her Certi cate of
Candidacy (COC) for Senator for the 2013 Elections wherein she answered "6 years and
6 months" to the question "Period of residence in the Philippines before May 13, 2013."
53 Petitioner obtained the highest number of votes and was proclaimed Senator on 16
May 2013. 54
On 19 December 2013, petitioner obtained Philippine Diplomatic Passport No.
DE0004530. 55
On 15 October 2015, petitioner led her COC for the Presidency for the May
2016 Elections. 56 In her COC, the petitioner declared that she is a natural-born citizen
and that her residence in the Philippines up to the day before 9 May 2016 would be ten
(10) years and eleven (11) months counted from 24 May 2005. 57 The petitioner
attached to her COC an "Af davit Af rming Renunciation of U.S.A. Citizenship"
subscribed and sworn to before a notary public in Quezon City on 14 October 2015. 58
Petitioner's ling of her COC for President in the upcoming elections triggered
the ling of several COMELEC cases against her which were the subject of these
consolidated cases.
Origin of Petition for Certiorari in G.R. No. 221697
A day after petitioner led her COC for President, Estrella Elamparo (Elamparo)
led a petition to deny due course or cancel said COC which was docketed as SPA No.
15-001 (DC) and raf ed to the COMELEC Second Division. 59 She is convinced that the
COMELEC has jurisdiction over her petition. 60 Essentially, Elamparo's contention is
that petitioner committed material misrepresentation when she stated in her COC that
she is a natural-born Filipino citizen and that she is a resident of the Philippines for at
least ten (10) years and eleven (11) months up to the day before the 9 May 2016
Elections. 61
On the issue of citizenship, Elamparo argued that petitioner cannot be
considered as a natural-born Filipino on account of the fact that she was a foundling. 62
Elamparo claimed that international law does not confer natural-born status and
Filipino citizenship on foundlings. 63 Following this line of reasoning, petitioner is not
quali ed to apply for reacquisition of Filipino citizenship under R.A. No. 9225 for she is
not a natural-born Filipino citizen to begin with. 64 Even assuming arguendo that
petitioner was a natural-born Filipino, she is deemed to have lost that status when she
became a naturalized American citizen. 65 According to Elamparo, natural-born
citizenship must be continuous from birth. 66
On the matter of petitioner's residency, Elamparo pointed out that petitioner was
bound by the sworn declaration she made in her 2012 COC for Senator wherein she
indicated that she had resided in the country for only six (6) years and six (6) months as
of May 2013 Elections. Elamparo likewise insisted that assuming arguendo that
petitioner is quali ed to regain her natural-born status under R.A. No. 9225, she still fell
short of the ten-year residency requirement of the Constitution as her residence could
only be counted at the earliest from July 2006, when she reacquired Philippine
citizenship under the said Act. Also on the assumption that petitioner is quali ed to
reacquire lost Philippine Citizenship, Elamparo is of the belief that she failed to
reestablish her domicile in the Philippines. 67
Petitioner seasonably filed her Answer wherein she countered that:
(1) the COMELEC did not have jurisdiction over Elamparo's petition as it was
actually a petition for quo warranto which could only be led if Grace Poe
wins in the Presidential elections, and that the Department of Justice
(DOJ) has primary jurisdiction to revoke the BI's July 18, 2006 Order;
(2) the petition failed to state a cause of action because it did not contain
allegations which, if hypothetically admitted, would make false the
statement in her COC that she is a natural-born Filipino citizen nor was
there any allegation that there was a willful or deliberate intent to
misrepresent on her part;
(3) she did not make any material misrepresentation in the COC regarding her
citizenship and residency qualifications for:
a. the 1934 Constitutional Convention deliberations show
that foundlings were considered citizens;
b. foundlings are presumed under international law to have
been born of citizens of the place where they are found;
c. she reacquired her natural-born Philippine citizenship
under the provisions of R.A. No. 9225;
d. she executed a sworn renunciation of her American
citizenship prior to the ling of her COC for President in the May 9,
2016 Elections and that the same is in full force and effect and
has not been withdrawn or recanted;
e. the burden was on Elamparo in proving that she did not
possess natural-born status;
f. residence is a matter of evidence and that she
reestablished her domicile in the Philippines as early as May 24,
2005;
g. she could reestablish residence even before she
reacquired natural-born citizenship under R.A. No. 9225;
h. statement regarding the period of residence in her 2012
COC for Senator was an honest mistake, not binding and should
give way to evidence on her true date of reacquisition of domicile;
i. Elamparo's petition is merely an action to usurp the
sovereign right of the Filipino people to decide a purely political
question, that is, should she serve as the country's next leader. 68
After the parties submitted their respective Memoranda, the petition was
deemed submitted for resolution.
On 1 December 2015, the COMELEC Second Division promulgated a Resolution
nding that petitioner's COC, led for the purpose of running for the President of the
Republic of the Philippines in the 9 May 2016 National and Local Elections, contained
material representations which are false. The fallo of the aforesaid Resolution reads:
WHEREFORE,
WHEREFORE in view of all the foregoing considerations, the instant
Petition to Deny Due Course to or Cancel Certi cate of Candidacy is hereby
GRANTED . Accordingly, the Certi cate of Candidacy for President of the
Republic of the Philippines in the May 9, 2016 National and Local Elections led
by respondent Mary Grace Natividad Sonora Poe Llamanzares is hereby
CANCELLED . 69
Motion for Reconsideration of the 1 December 2015 Resolution was led by
petitioner which the COMELEC En Banc resolved in its 23 December 2015 Resolution
by denying the same. 70
Origin of Petition for Certiorari in G.R. Nos. 221698-700
This case stemmed from three (3) separate petitions led by Francisco S. Tatad
(Tatad), Antonio P. Contreras (Contreras) and Amado D. Valdez (Valdez) against
petitioner before the COMELEC which were consolidated and raf ed to its First
Division.
In his petition to disqualify petitioner under Rule 25 of the COMELEC Rules of
Procedure, 71 docketed as SPA No. 15-002 (DC), Tatad alleged that petitioner lacks the
requisite residency and citizenship to qualify her for the Presidency. 72
Tatad theorized that since the Philippines adheres to the principle of jus
sanguinis, persons of unknown parentage, particularly foundlings, cannot be considered
natural-born Filipino citizens since blood relationship is determinative of natural-born
status. 73 Tatad invoked the rule of statutory construction that what is not included is
excluded. He averred that the fact that foundlings were not expressly included in the
categories of citizens in the 1935 Constitution is indicative of the framers' intent to
exclude them. 74 Therefore, the burden lies on petitioner to prove that she is a natural-
born citizen. 75
Neither can petitioner seek refuge under international conventions or treaties to
support her claim that foundlings have a nationality. 76 According to Tatad, international
conventions and treaties are not self-executory and that local legislations are necessary
in order to give effect to treaty obligations assumed by the Philippines. 77 He also
stressed that there is no standard state practice that automatically confers natural-
born status to foundlings. 78
Similar to Elamparo's argument, Tatad claimed that petitioner cannot avail of the
option to reacquire Philippine citizenship under R.A. No. 9225 because it only applies to
former natural-born citizens and petitioner was not as she was a foundling. 79
Referring to petitioner's COC for Senator, Tatad concluded that she did not
comply with the ten (10)-year residency requirement. 80 Tatad opined that petitioner
acquired her domicile in Quezon City only from the time she renounced her American
citizenship which was sometime in 2010 or 2011. 81 Additionally, Tatad questioned
petitioner's lack of intention to abandon her U.S. domicile as evinced by the fact that her
husband stayed thereat and her frequent trips to the U.S. 82
In support of his petition to deny due course or cancel the COC of petitioner,
docketed as SPA No. 15-139 (DC), Valdez alleged that her repatriation under R.A. No.
9225 did not bestow upon her the status of a natural-born citizen. 83 He advanced the
view that former natural-born citizens who are repatriated under the said Act reacquires
only their Philippine citizenship and will not revert to their original status as natural-born
citizens. 84
He further argued that petitioner's own admission in her COC for Senator that she
had only been a resident of the Philippines for at least six (6) years and six (6) months
prior to the 13 May 2013 Elections operates against her. Valdez rejected petitioner's
claim that she could have validly reestablished her domicile in the Philippines prior to
her reacquisition of Philippine citizenship. In effect, his position was that petitioner did
not meet the ten (10)-year residency requirement for President.
Unlike the previous COMELEC cases led against petitioner, Contreras' petition,
85 docketed as SPA No. 15-007 (DC), limited the attack to the residency issue. He
claimed that petitioner's 2015 COC for President should be cancelled on the ground
that she did not possess the ten-year period of residency required for said candidacy
and that she made false entry in her COC when she stated that she is a legal resident of
the Philippines for ten (10) years and eleven (11) months by 9 May 2016. 86 Contreras
contended that the reckoning period for computing petitioner's residency in the
Philippines should be from 18 July 2006, the date when her petition to reacquire
Philippine citizenship was approved by the BI. 87 He asserted that petitioner's physical
presence in the country before 18 July 2006 could not be valid evidence of
reacquisition of her Philippine domicile since she was then living here as an American
citizen and as such, she was governed by the Philippine immigration laws. 88
In her defense, petitioner raised the following arguments:

First, Tatad's petition should be dismissed outright for failure to state a cause of
action. His petition did not invoke grounds proper for a disquali cation case as
enumerated under Sections 12 and 68 of the Omnibus Election Code. 89 Instead, Tatad
completely relied on the alleged lack of residency and natural-born status of petitioner
which are not among the recognized grounds for the disquali cation of a candidate to
an elective office. 90
Second, the petitions led against her are basically petitions for quo warranto as
they focus on establishing her ineligibility for the Presidency. 91 A petition for quo
warranto falls within the exclusive jurisdiction of the Presidential Electoral Tribunal
(PET) and not the COMELEC. 92
Third, the burden to prove that she is not a natural-born Filipino citizen is on the
respondents. 93 Otherwise stated, she has a presumption in her favor that she is a
natural-born citizen of this country.
Fourth, customary international law dictates that foundlings are entitled to a
nationality and are presumed to be citizens of the country where they are found. 94
Consequently, the petitioner is considered as a natural-born citizen of the Philippines. 95
Fifth, she claimed that as a natural-born citizen, she has every right to be
repatriated under R.A. No. 9225 or the right to reacquire her natural-born status. 96
Moreover, the of cial acts of the Philippine Government enjoy the presumption of
regularity, to wit: the issuance of the 18 July 2006 Order of the BI declaring her as
natural-born citizen, her appointment as MTRCB Chair and the issuance of the decree of
adoption of San Juan RTC. 97 She believed that all these acts reinforced her position
that she is a natural-born citizen of the Philippines. 98
Sixth, she maintained that as early as the rst quarter of 2005, she started
reestablishing her domicile of choice in the Philippines as demonstrated by her
children's resettlement and schooling in the country, purchase of a condominium unit in
San Juan City and the construction of their family home in Corinthian Hills. 99
Seventh, she insisted that she could legally reestablish her domicile of choice in
the Philippines even before she renounced her American citizenship as long as the three
determinants for a change of domicile are complied with. 100 She reasoned out that
there was no requirement that renunciation of foreign citizenship is a prerequisite for
the acquisition of a new domicile of choice. 101
Eighth, she reiterated that the period appearing in the residency portion of her
COC for Senator was a mistake made in good faith. 102
In a Resolution 103 promulgated on 11 December 2015, the COMELEC First
Division ruled that petitioner is not a natural-born citizen, that she failed to complete the
ten (10)-year residency requirement, and that she committed material
misrepresentation in her COC when she declared therein that she has been a resident of
the Philippines for a period of ten (10) years and eleven (11) months as of the day of
the elections on 9 May 2016. The COMELEC First Division concluded that she is not
quali ed for the elective position of President of the Republic of the Philippines. The
dispositive portion of said Resolution reads:
WHEREFORE, premises considered, the Commission RESOLVED, as it
hereby RESOLVES, to GRANT the Petitions and cancel the Certi cate of
Candidacy of MARY GRACE NATIVIDAD SONORA POE-LLAMANZARES
for the elective position of President of the Republic of the Philippines in
connection with the 9 May 2016 Synchronized Local and National Elections.
Petitioner led a motion for reconsideration seeking a reversal of the COMELEC
First Division's Resolution. On 23 December 2015, the COMELEC En Banc issued a
Resolution denying petitioner's motion for reconsideration.
Alarmed by the adverse rulings of the COMELEC, petitioner instituted the present
petitions for certiorari with urgent prayer for the issuance of an ex parte temporary
restraining order/status quo ante order and/or writ of preliminary injunction. On 28
December 2015, temporary restraining orders were issued by the Court enjoining the
COMELEC and its representatives from implementing the assailed COMELEC
Resolutions until further orders from the Court. The Court also ordered the
consolidation of the two petitions led by petitioner in its Resolution of 12 January
2016. Thereafter, oral arguments were held in these cases.
The Court GRANTS the petition of Mary Grace Natividad S. Poe-Llamanzares and
to ANNUL and SET ASIDE the:
1. Resolution dated 1 December 2015 rendered through its Second Division, in
SPA No. 15-001 (DC), entitled Estrella C. Elamparo, petitioner, vs. Mary
Grace Natividad Sonora Poe-Llamanzares.
2. Resolution dated 11 December 2015, rendered through its First Division, in the
consolidated cases SPA No. 15-002 (DC) entitled Francisco S. Tatad,
petitioner, vs. Mary Grace Natividad Sonora Poe-Llamanzares, respondent;
SPA No. 15-007 (DC) entitled Antonio P. Contreras, petitioner, vs. Mary
Grace Natividad Sonora Poe-Llamanzares, respondent; and SPA No. 15-
139 (DC) entitled Amado D. Valdez, petitioner, v. Mary Grace Natividad
Sonora Poe-Llamanzares, respondent.
3. Resolution dated 23 December 2015 of the Commission En Banc, upholding
the 1 December 2015 Resolution of the Second Division.
4. Resolution dated 23 December 2015 of the Commission En Banc, upholding
the 11 December 2015 Resolution of the First Division.
The procedure and the conclusions from which the questioned Resolutions
emanated are tainted with grave abuse of discretion amounting to lack of jurisdiction.
The petitioner is a QUALIFIED CANDIDATE for President in the 9 May 2016 National
Elections.
The issue before the COMELEC is whether or not the COC of petitioner should be
denied due course or cancelled "on the exclusive ground" that she made in the
certi cate a false material representation. The exclusivity of the ground should hedge in
the discretion of the COMELEC and restrain it from going into the issue of the
quali cations of the candidate for the position, if, as in this case, such issue is yet
undecided or undetermined by the proper authority. The COMELEC cannot itself, in the
same cancellation case, decide the qualification or lack thereof of the candidate.
We rely, rst of all, on the Constitution of our Republic, particularly its provisions
in Article IX, C, Section 2:
Section 2. The Commission on Elections shall exercise the following
powers and functions:
(1) Enforce and administer all laws and regulations relative to the conduct
of an election, plebiscite, initiative, referendum, and recall.
(2) Exercise exclusive original jurisdiction over all contests relating to the
elections, returns, and quali cations of all elective regional,
provincial, and city of cials, and appellate jurisdiction over all
contests involving elective municipal officials decided by trial courts
of general jurisdiction, or involving elective barangay of cials
decided by trial courts of limited jurisdiction.
Decisions, nal orders, or rulings of the Commission on election contests
involving elective municipal and barangay of ces shall be nal,
executory, and not appealable.
(3) Decide, except those involving the right to vote, all questions affecting
elections, including determination of the number and location of
polling places, appointment of election of cials and inspectors, and
registration of voters.
(4) Deputize, with the concurrence of the President, law enforcement
agencies and instrumentalities of the Government, including the
Armed Forces of the Philippines, for the exclusive purpose of
ensuring free, orderly, honest, peaceful, and credible elections.
(5) Register, after suf cient publication, political parties, organizations, or
coalitions which, in addition to other requirements, must present
their platform or program of government; and accredit citizens' arms
of the Commission on Elections. Religious denominations and sects
shall not be registered. Those which seek to achieve their goals
through violence or unlawful means, or refuse to uphold and adhere
to this Constitution, or which are supported by any foreign
government shall likewise be refused registration.
Financial contributions from foreign governments and their agencies to
political parties, organizations, coalitions, or candidates related to
elections constitute interference in national affairs, and, when
accepted, shall be an additional ground for the cancellation of their
registration with the Commission, in addition to other penalties that
may be prescribed by law.
(6) File, upon a veri ed complaint, or on its own initiative, petitions in court
for inclusion or exclusion of voters; investigate and, where
appropriate, prosecute cases of violations of election laws,
including acts or omissions constituting election frauds, offenses,
and malpractices.
(7) Recommend to the Congress effective measures to minimize election
spending, including limitation of places where propaganda
materials shall be posted, and to prevent and penalize all forms of
election frauds, offenses, malpractices, and nuisance candidacies.
(8) Recommend to the President the removal of any of cer or employee it
has deputized, or the imposition of any other disciplinary action, for
violation or disregard of, or disobedience to its directive, order, or
decision.
(9) Submit to the President and the Congress a comprehensive report on
the conduct of each election, plebiscite, initiative, referendum, or
recall.
Not any one of the enumerated powers approximate the exactitude of the
provisions of Article VI, Section 17 of the same basic law stating that:
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 quali cations of their respective Members. Each Electoral
Tribunal shall be composed of nine Members, three of whom shall be Justices
of the Supreme Court to be designated by the Chief Justice, and the remaining
six shall be Members of the Senate or the House of Representatives, as the case
may be, who shall be chosen on the basis of proportional representation from
the political parties and the parties or organizations registered under the party-
list system represented therein. The senior Justice in the Electoral Tribunal shall
be its Chairman.
or of the last paragraph of Article VII, Section 4 which provides that:

The Supreme Court, sitting en banc, shall be the sole judge of all contests
relating to the election, returns, and quali cations of the President or Vice-
President, and may promulgate its rules for the purpose.
The tribunals which have jurisdiction over the question of the quali cations of the
President, the Vice-President, Senators and the Members of the House of
Representatives was made clear by the Constitution. There is no such provision for
candidates for these positions.
Can the COMELEC be such judge?
The opinion of Justice Vicente V. Mendoza in Romualdez-Marcos v. Commission
on Elections, 104 which was af rmatively cited in the En Banc decision in Fermin v.
COMELEC 105 is our guide. The citation in Fermin reads:
Apparently realizing the lack of an authorized proceeding for declaring
the ineligibility of candidates, the COMELEC amended its rules on February 15,
1993 so as to provide in Rule 25 1, the following:
Grounds for disquali cation. Any candidate who does
not possess all the quali cations of a candidate as provided for
by the Constitution or by existing law or who commits any act
declared by law to be grounds for disquali cation may be
disqualified from continuing as a candidate.
The lack of provision for declaring the ineligibility of candidates,
however, cannot be supplied by a mere rule. Such an act is equivalent to the
creation of a cause of action which is a substantive matter which the COMELEC,
in the exercise of its rule-making power under Art. IX, A, 6 of the Constitution,
cannot do it. It is noteworthy that the Constitution withholds from the COMELEC
even the power to decide cases involving the right to vote, which essentially
involves an inquiry into qualifications based on age, residence and citizenship
of voters. [Art. IX, C, 2(3)]
The assimilation in Rule 25 of the COMELEC rules of grounds for
ineligibility into grounds for disquali cation is contrary to the evident intention
of the law. For not only in their grounds but also in their consequences are
proceedings for "disquali cation" different from those for a declaration of
"ineligibility." "Disquali cation" proceedings, as already stated, are based on
grounds speci ed in 12 and 68 of the Omnibus Election Code and in 40 of
the Local Government Code and are for the purpose of barring an individual
from becoming a candidate or from continuing as a candidate for public of ce.
In a word, their purpose is to eliminate a candidate from the race either from the
start or during its progress. "Ineligibility," on the other hand, refers to the lack of
the quali cations prescribed in the Constitution or the statutes for holding
public office and the purpose of the proceedings for declaration of ineligibility is
to remove the incumbent from office.
Consequently, that an individual possesses the quali cations for a public
of ce does not imply that he is not disquali ed from becoming a candidate or
continuing as a candidate for a public of ce and vice versa. We have this sort
of dichotomy in our Naturalization Law. (C.A. No. 473) That an alien has the
quali cations prescribed in 2 of the Law does not imply that he does not
suffer from any of [the] disqualifications provided in 4.
Before we get derailed by the distinction as to grounds and the consequences of
the respective proceedings, the importance of the opinion is in its statement that "the
lack of provision for declaring the ineligibility of candidates, however, cannot be
supplied by a mere rule". Justice Mendoza lectured in Romualdez-Marcos that:
Three reasons may be cited to explain the absence of an authorized
proceeding for determining before election the qualifications of a candidate.
First is the fact that unless a candidate wins and is proclaimed elected,
there is no necessity for determining his eligibility for the of ce. In contrast,
whether an individual should be disquali ed as a candidate for acts
constituting election offenses (e.g., vote buying, over spending, commission of
prohibited acts) is a prejudicial question which should be determined lest he
wins because of the very acts for which his disquali cation is being sought.
That is why it is provided that if the grounds for disquali cation are established,
a candidate will not be voted for; if he has been voted for, the votes in his favor
will not be counted; and if for some reason he has been voted for and he has
won, either he will not be proclaimed or his proclamation will be set aside.
Second is the fact that the determination of a candidates' eligibility, e.g.,
his citizenship or, as in this case, his domicile, may take a long time to make,
extending beyond the beginning of the term of the of ce. This is amply
demonstrated in the companion case (G.R. No. 120265, Agapito A. Aquino v.
COMELEC) where the determination of Aquino's residence was still pending in
the COMELEC even after the elections of May 8, 1995. This is contrary to the
summary character proceedings relating to certi cates of candidacy. That is
why the law makes the receipt of certi cates of candidacy a ministerial duty of
the COMELEC and its of cers. The law is satis ed if candidates state in their
certi cates of candidacy that they are eligible for the position which they seek
to ll, leaving the determination of their quali cations to be made after the
election and only in the event they are elected. Only in cases involving charges
of false representations made in certi cates of candidacy is the COMELEC
given jurisdiction.
Third is the policy underlying the prohibition against pre-proclamation
cases in elections for President, Vice President, Senators and members of the
House of Representatives. (R.A. No. 7166, 15) The purpose is to preserve the
prerogatives of the House of Representatives Electoral Tribunal and the other
Tribunals as "sole judges" under the Constitution of the election, returns and
qualifications of members of Congress of the President and Vice President, as
the case may be. 106
To be sure, the authoritativeness of the Romualdez pronouncements as
reiterated in Fermin, led to the amendment through COMELEC Resolution No. 9523, on
25 September 2012 of its Rule 25. This, the 15 February 1993 version of Rule 25, which
states that:
Grounds for disquali cation. Any candidate who does not possess all the
quali cations of a candidate as provided for by the Constitution or by existing
law or who commits any act declared by law to be grounds for disquali cation
may be disqualified from continuing as a candidate. 107
was in the 2012 rendition, drastically changed to:
Grounds. Any candidate who, in action or protest in which he is a party, is
declared by nal decision of a competent court, guilty of, or found by the
Commission to be suffering from any disquali cation provided by law or the
Constitution.
A Petition to Disqualify a Candidate invoking grounds for a Petition to Deny to
or Cancel a Certi cate of Candidacy or Petition to Declare a Candidate as a
Nuisance Candidate, or a combination thereof, shall be summarily dismissed.
Clearly, the amendment done in 2012 is an acceptance of the reality of absence
of an authorized proceeding for determining before election the quali cations of
candidate. Such that, as presently required, to disqualify a candidate there must be a
declaration by a nal judgment of a competent court that the candidate sought to be
disquali ed "is guilty of or found by the Commission to be suffering from any
disqualification provided by law or the Constitution."
Insofar as the quali cation of a candidate is concerned, Rule 25 and Rule 23 are
ipsides of one to the other. Both do not allow, are not authorizations, are not vestment
of jurisdiction, for the COMELEC to determine the qualification of a candidate. The facts
of quali cation must beforehand be established in a prior proceeding before an
authority properly vested with jurisdiction. The prior determination of quali cation may
be by statute, by executive order or by a judgment of a competent court or tribunal.
If a candidate cannot be disquali ed without a prior nding that he or she is
suffering from a disquali cation "provided by law or the Constitution," neither can the
certi cate of candidacy be cancelled or denied due course on grounds of false
representations regarding his or her quali cations, without a prior authoritative nding
that he or she is not quali ed, such prior authority being the necessary measure by
which the falsity of the representation can be found. The only exception that can be
conceded are self-evident facts of unquestioned or unquestionable veracity and judicial
confessions. Such are, anyway, bases equivalent to prior decisions against which the
falsity of representation can be determined.
The need for a predicate nding or nal pronouncement in a proceeding under
Rule 23 that deals with, as in this case, alleged false representations regarding the
candidate's citizenship and residence, forced the COMELEC to rule essentially that
since foundlings 108 are not mentioned in the enumeration of citizens under the 1935
Constitution, 109 they then cannot be citizens. As the COMELEC stated in oral
arguments, when petitioner admitted that she is a foundling, she said it all. This borders
on bigotry. Oddly, in an effort at tolerance, the COMELEC, after saying that it cannot rule
that herein petitioner possesses blood relationship with a Filipino citizen when "it is
certain that such relationship is indemonstrable," proceeded to say that "she now has
the burden to present evidence to prove her natural filiation with a Filipino parent."
The fact is that petitioner's blood relationship with a Filipino citizen is
DEMONSTRABLE.
At the outset, it must be noted that presumptions regarding paternity is neither
unknown nor unaccepted in Philippine Law. The Family Code of the Philippines has a
whole chapter on Paternity and Filiation. 110 That said, there is more than suf cient
evidence that petitioner has Filipino parents and is therefore a natural-born Filipino.
Parenthetically, the burden of proof was on private respondents to show that petitioner
is not a Filipino citizen. The private respondents should have shown that both of
petitioner's parents were aliens. Her admission that she is a foundling did not shift the
burden to her because such status did not exclude the possibility that her parents were
Filipinos, especially as in this case where there is a high probability, if not certainty, that
her parents are Filipinos.
The factual issue is not who the parents of petitioner are, as their identities are
unknown, but whether such parents are Filipinos. Under Section 4, Rule 128:
Sec. 4. Relevancy, collateral matters Evidence must have such a
relation to the fact in issue as to induce belief in its existence or non-existence.
Evidence on collateral matters shall not be allowed, except when it tends in any
reasonable degree to establish the probability of improbability of the fact in
issue.
The Solicitor General offered of cial statistics from the Philippine Statistics
Authority (PSA) 111 that from 1965 to 1975, the total number of foreigners born in the
Philippines was 15,986 while the total number of Filipinos born in the country was
10,558,278. The statistical probability that any child born in the Philippines in that
decade is natural-born Filipino was 99.83%.
99.83% For her part, petitioner presented census
statistics for Iloilo Province for 1960 and 1970, also from the PSA. In 1960, there were
962,532 Filipinos and 4,734 foreigners in the province; 99.62% of the population were
Filipinos. In 1970, the gures were 1,162,669 Filipinos and 5,304 foreigners, or 99.55%.
99.55%
Also presented were gures for the child producing ages (15-49). In 1960, there were
230,528 female Filipinos as against 730 female foreigners or 99.68%.
99.68% In the same
year, there were 210,349 Filipino males and 886 male aliens, or 99.58%.
99.58% In 1970, there
were 270,299 Filipino females versus 1,190 female aliens, or 99.56%.
99.56% That same year,
there were 245,740 Filipino males as against only 1,165 male aliens or 99.53%. 99.53%
COMELEC did not dispute these gures. Notably, Commissioner Arthur Lim admitted,
during the oral arguments, that at the time petitioner was found in 1968, the majority of
the population in Iloilo was Filipino. 112
Other circumstantial evidence of the nationality of petitioner's parents are the
fact that she was abandoned as an infant in a Roman Catholic Church in Iloilo City. She
also has typical Filipino features: height, at nasal bridge, straight black hair, almond
shaped eyes and an oval face.
There is a disputable presumption that things have happened according to the
ordinary course of nature and the ordinary habits of life. 113 All of the foregoing
evidence, that a person with typical Filipino features is abandoned in Catholic Church in
a municipality where the population of the Philippines is overwhelmingly Filipinos such
that there would be more than a 99% chance that a child born in the province would be a
Filipino, would indicate more than ample probability if not statistical certainty, that
petitioner's parents are Filipinos. That probability and the evidence on which it is based
are admissible under Rule 128, Section 4 of the Revised Rules on Evidence.
To assume otherwise is to accept the absurd, if not the virtually impossible, as
the norm. In the words of the Solicitor General:
Second. It is contrary to common sense because foreigners do not come
to the Philippines so they can get pregnant and leave their newborn babies
behind. We do not face a situation where the probability is such that every
foundling would have a 50% chance of being a Filipino and a 50% chance of
being a foreigner. We need to frame our questions properly. What are the
chances that the parents of anyone born in the Philippines would be foreigners?
Almost zero. What are the chances that the parents of anyone born in the
Philippines would be Filipinos? 99.9%.
According to the Philippine Statistics Authority, from 2010 to 2014, on a
yearly average, there were 1,766,046 children born in the Philippines to Filipino
parents, as opposed to 1,301 children in the Philippines of foreign parents.
Thus, for that sample period, the ratio of non-Filipino children to natural born
Filipino children is 1:1357. This means that the statistical probability that any
child born in the Philippines would be a natural born Filipino is 99.93%.
From 1965 to 1975, the total number of foreigners born in the Philippines
is 15,986 while the total number of Filipinos born in the Philippines is
15,558,278. For this period, the ratio of non-Filipino children is 1:661. This
means that the statistical probability that any child born in the Philippines on
that decade would be a natural born Filipino is 99.83%.
We can invite statisticians and social anthropologists to crunch the
numbers for us, but I am con dent that the statistical probability that a child
born in the Philippines would be a natural born Filipino will not be affected by
whether or not the parents are known. If at all, the likelihood that a foundling
would have a Filipino parent might even be higher than 99.9%. Filipinos
abandon their children out of poverty or perhaps, shame. We do not imagine
foreigners abandoning their children here in the Philippines thinking those
infants would have better economic opportunities or believing that this country
is a tropical paradise suitable for raising abandoned children. I certainly doubt
whether a foreign couple has ever considered their child excess baggage that is
best left behind.
To deny full Filipino citizenship to all foundlings and render them
stateless just because there may be a theoretical chance that one among the
thousands of these foundlings might be the child of not just one, but two,
foreigners is downright discriminatory, irrational, and unjust. It just doesn't make
any sense. Given the statistical certainty 99.9% that any child born in the
Philippines would be a natural born citizen, a decision denying foundlings such
status is effectively a denial of their birthright. There is no reason why this
Honorable Court should use an improbable hypothetical to sacri ce the
fundamental political rights of an entire class of human beings. Your Honor,
constitutional interpretation and the use of common sense are not separate
disciplines.
As a matter of law, foundlings are as a class, natural-born citizens. While the
1935 Constitution's enumeration is silent as to foundlings, there is no restrictive
language which would de nitely exclude foundlings either. Because of silence and
ambiguity in the enumeration with respect to foundlings, there is a need to examine the
intent of the framers. In Nitafan v. Commissioner of Internal Revenue, 114 this Court held
that:
The ascertainment of that intent is but in keeping with the fundamental
principle of constitutional construction that the intent of the framers of the
organic law and of the people adopting it should be given effect. The primary
task in constitutional construction is to ascertain and thereafter assure the
realization of the purpose of the framers and of the people in the adoption of
the Constitution. It may also be safely assumed that the people in ratifying the
Constitution were guided mainly by the explanation offered by the framers. 115
As pointed out by petitioner as well as the Solicitor General, the deliberations of
the 1934 Constitutional Convention show that the framers intended foundlings to be
covered by the enumeration. The following exchange is recorded:
Sr. Rafols:
For an amendment. I propose that after subsection 2, the following is inserted:
"The natural children of a foreign father and a Filipino mother not
recognized by the father.
xxx xxx xxx
President:
[We] would like to request a clari cation from the proponent of the amendment.
The gentleman refers to natural children or to any kind of illegitimate
children?
Sr. Rafols:
To all kinds of illegitimate children. It also includes natural children of unknown
parentage, natural or illegitimate children of unknown parents.
Sr. Montinola:
For clari cation. The gentleman said "of unknown parents." Current codes
consider them Filipino, that is, I refer to the Spanish Code wherein all
children of unknown parentage born in Spanish territory are considered
Spaniards, because the presumption is that a child of unknown parentage
is the son of a Spaniard. This may be applied in the Philippines in that a
child of unknown parentage born in the Philippines is deemed to be
Filipino, and there is no need. . . .

Sr. Rafols:
There is a need, because we are relating the conditions that are [required] to be
Filipino.
Sr. Montinola:
But that is the interpretation of the law, therefore, there is no [more] need for
amendment.
Sr. Rafols:
The amendment should read thus: "Natural or illegitimate of a foreign father and
a Filipino mother recognized by one, or the children of unknown
parentage."
Sr. Briones:
The amendment [should] mean children born in the Philippines of unknown
parentage.
Sr. Rafols:
The son of a Filipina to a Foreigner, although this [person] does not recognize the
child, is not unknown.
President:
Does the gentleman accept the amendment or not?
Sr. Rafols:
I do not accept the amendment because the amendment would exclude the
children of a Filipina with a foreigner who does not recognize the child.
Their parentage is not unknown and I think those of overseas Filipino
mother and father [whom the latter] does not recognize, should also be
considered as Filipinos.
President:
The question in order is the amendment to the amendment from the Gentleman
from Cebu, Mr. Briones.
Sr. Busion:
Mr. President, don't you think it would be better to leave this matter in the hands
of the Legislature?
Sr. Roxas:
Mr. President, my humble opinion is that these cases are few and far in between,
that the constitution need [not] refer to them. By international law the
principle that children or people born in a country of unknown parents are
citizens in this nation is recognized, and it is not necessary to include a
provision on the subject exhaustively. 116
Though the Rafols amendment was not carried out, it was not because there was
any objection to the notion that persons of "unknown parentage" are not citizens but
only because their number was not enough to merit speci c mention. Such was the
account, 117 cited by petitioner, of delegate and constitution law author Jose Aruego
who said:
During the debates on this provision, Delegate Rafols presented an

amendment to include as Filipino citizens the illegitimate children with a foreign
father of a mother who was a citizen of the Philippines, and also foundlings; but
this amendment was defeated primarily because the Convention believed that
the cases, being too few to warrant the inclusion of a provision in the
Constitution to apply to them, should be governed by statutory legislation.
Moreover, it was believed that the rules of international law were already clear to
the effect that illegitimate children followed the citizenship of the mother, and
that foundlings followed the nationality of the place where they were found,
thereby making unnecessary the inclusion in the Constitution of the proposed
amendment.
This explanation was likewise the position of the Solicitor General during the 16
February 2016 Oral Arguments:
We all know that the Rafols proposal was rejected. But note that what
was declined was the proposal for a textual and explicit recognition of
foundlings as Filipinos. And so, the way to explain the constitutional silence is
by saying that it was the view of Montinola and Roxas which prevailed that
there is no more need to expressly declare foundlings as Filipinos.
Obviously, it doesn't matter whether Montinola's or Roxas' views were
legally correct. Framers of a constitution can constitutionalize rules based on
assumptions that are imperfect or even wrong. They can even overturn existing
rules. This is basic. What matters here is that Montinola and Roxas were able to
convince their colleagues in the convention that there is no more need to
expressly declare foundlings as Filipinos because they are already impliedly so
recognized.
In other words, the constitutional silence is fully explained in terms of
linguistic ef ciency and the avoidance of redundancy. The policy is clear: it is to
recognize foundlings, as a class, as Filipinos under Art. IV, Section 1 (3) of the
1935 Constitution. This inclusive policy is carried over into the 1973 and 1987
Constitution. It is appropriate to invoke a famous scholar as he was
paraphrased by Chief Justice Fernando: the constitution is not silently silent, it
is silently vocal. 118
The Solicitor General makes the further point that the framers "worked to create
a just and humane society," that "they were reasonable patriots and that it would be
unfair to impute upon them a discriminatory intent against foundlings." He exhorts that,
given the grave implications of the argument that foundlings are not natural-born
Filipinos, the Court must search the records of the 1935, 1973 and 1987 Constitutions
"for an express intention to deny foundlings the status of Filipinos. The burden is on
those who wish to use the constitution to discriminate against foundlings to show that
the constitution really intended to take this path to the dark side and in ict this across
the board marginalization."
We nd no such intent or language permitting discrimination against foundlings.
On the contrary, all three Constitutions guarantee the basic right to equal protection of
the laws. All exhort the State to render social justice. Of special consideration are
several provisions in the present charter: Article II, Section 11 which provides that the
"State values the dignity of every human person and guarantees full respect for human
rights," Article XIII, Section 1 which mandates Congress to "give highest priority to the
enactment of measures that protect and enhance the right of all the people to human
dignity, reduce social, economic, and political inequalities . . ." and Article XV, Section 3
which requires the State to defend the "right of children to assistance, including proper
care and nutrition, and special protection from all forms of neglect, abuse, cruelty,
exploitation, and other conditions prejudicial to their development." Certainly, these
provisions contradict an intent to discriminate against foundlings on account of their
unfortunate status.
Domestic laws on adoption also support the principle that foundlings are
Filipinos. These laws do not provide that adoption confers citizenship upon the
adoptee. Rather, the adoptee must be a Filipino in the rst place to be adopted. The
most basic of such laws is Article 15 of the Civil Code which provides that "[l]aws
relating to family rights, duties, status, conditions, legal capacity of persons are binding
on citizens of the Philippines even though living abroad." Adoption deals with status,
and a Philippine adoption court will have jurisdiction only if the adoptee is a Filipino. In
Ellis and Ellis v. Republic, 119 a child left by an unidenti ed mother was sought to be
adopted by aliens. This Court said:
In this connection, it should be noted that this is a proceedings in rem,
which no court may entertain unless it has jurisdiction, not only over the subject
matter of the case and over the parties, but also over the res, which is the
personal status of Baby Rose as well as that of petitioners herein. Our Civil Code
(Art. 15) adheres to the theory that jurisdiction over the status of a natural
person is determined by the latter's nationality. Pursuant to this theory, we have
jurisdiction over the status of Baby Rose, she being a citizen of the Philippines,
but not over the status of the petitioners, who are foreigners. 120 (Underlining
supplied)
Recent legislation is more direct. R.A. No. 8043 entitled "An Act Establishing the
Rules to Govern the Inter-Country Adoption of Filipino Children and for Other Purposes"
(otherwise known as the "Inter-Country Adoption Act of 1995"), R.A. No. 8552, entitled
"An Act Establishing the Rules and Policies on the Adoption of Filipino Children and For
Other Purposes" (otherwise known as the Domestic Adoption Act of 1998) and this
Court's A.M. No. 02-6-02-SC or the "Rule on Adoption," all expressly refer to "Filipino
children" and include foundlings as among Filipino children who may be adopted.
It has been argued that the process to determine that the child is a foundling
leading to the issuance of a foundling certi cate under these laws and the issuance of
said certi cate are acts to acquire or perfect Philippine citizenship which make the
foundling a naturalized Filipino at best. This is erroneous. Under Article IV, Section 2
"Natural-born citizens are those who are citizens of the Philippines from birth without
having to perform any act to acquire or perfect their Philippine citizenship." In the rst
place, "having to perform an act" means that the act must be personally done by the
citizen. In this instance, the determination of foundling status is done not by the child
but by the authorities. 121 Secondly, the object of the process is the determination of
the whereabouts of the parents, not the citizenship of the child. Lastly, the process is
certainly not analogous to naturalization proceedings to acquire Philippine citizenship,
or the election of such citizenship by one born of an alien father and a Filipino mother
under the 1935 Constitution, which is an act to perfect it.
In this instance, such issue is moot because there is no dispute that petitioner is
a foundling, as evidenced by a Foundling Certi cate issued in her favor. 122 The Decree
of Adoption issued on 13 May 1974, which approved petitioner's adoption by Jesusa
Sonora Poe and Ronald Allan Kelley Poe, expressly refers to Emiliano and his wife,
Rosario Militar, as her "foundling parents," hence effectively af rming petitioner's status
as a foundling. 123
Foundlings are likewise citizens under international law. Under the 1987
Constitution, an international law can become part of the sphere of domestic law either
by transformation or incorporation. The transformation method requires that an
international law be transformed into a domestic law through a constitutional
mechanism such as local legislation. 124 On the other hand, generally accepted
principles of international law, by virtue of the incorporation clause of the Constitution,
form part of the laws of the land even if they do not derive from treaty obligations.
Generally accepted principles of international law include international custom as
evidence of a general practice accepted as law, and general principles of law
recognized by civilized nations. 125 International customary rules are accepted as
binding as a result from the combination of two elements: the established, widespread,
and consistent practice on the part of States; and a psychological element known as
the opinion juris sive necessitates (opinion as to law or necessity). Implicit in the latter
element is a belief that the practice in question is rendered obligatory by the existence
of a rule of law requiring it. 126 "General principles of law recognized by civilized
nations" are principles "established by a process of reasoning" or judicial logic, based
on principles which are "basic to legal systems generally," 127 such as "general
principles of equity, i.e., the general principles of fairness and justice," and the "general
principle against discrimination" which is embodied in the "Universal Declaration of
Human Rights, the International Covenant on Economic, Social and Cultural Rights, the
International Convention on the Elimination of All Forms of Racial Discrimination, the
Convention Against Discrimination in Education, the Convention (No. 111) Concerning
Discrimination in Respect of Employment and Occupation." 128 These are the same
core principles which underlie the Philippine Constitution itself, as embodied in the due
process and equal protection clauses of the Bill of Rights. 129
Universal Declaration of Human Rights ("UDHR") has been interpreted by this
Court as part of the generally accepted principles of international law and binding on
the State. 130 Article 15 thereof states:
1. Everyone has the right to a nationality.
2. No one shall be arbitrarily deprived of his nationality nor denied the right to
change his nationality.
The Philippines has also rati ed the UN Convention on the Rights of the Child
(UNCRC). Article 7 of the UNCRC imposes the following obligations on our country:
Article 7
1. The child shall be registered immediately after birth and shall have the right
from birth to a name, the right to acquire a nationality and as far as
possible, the right to know and be cared for by his or her parents.
2. States Parties shall ensure the implementation of these rights in accordance
with their national law and their obligations under the relevant international
instruments in this eld, in particular where the child would otherwise be
stateless.
In 1986, the country also rati ed the 1966 International Covenant on Civil and
Political Rights (ICCPR). Article 24 thereof provide for the right of every child "to acquire
a nationality:"
Article 24
1. Every child shall have, without any discrimination as to race, colour, sex,
language, religion, national or social origin, property or birth, the right, to
such measures of protection as are required by his status as a minor, on
the part of his family, society and the State.
2. Every child shall be registered immediately after birth and shall have a name.
3. Every child has the right to acquire a nationality.
The common thread of the UDHR, UNCRC and ICCPR is to obligate the
Philippines to grant nationality from birth and ensure that no child is stateless. This
grant of nationality must be at the time of birth, and it cannot be accomplished by the
application of our present naturalization laws, Commonwealth Act No. 473, as
amended, and R.A. No. 9139, both of which require the applicant to be at least eighteen
(18) years old.
The principles found in two conventions, while yet unrati ed by the Philippines,
are generally accepted principles of international law. The rst is Article 14 of the 1930
Hague Convention on Certain Questions Relating to the Con ict of Nationality Laws
under which a foundling is presumed to have the "nationality of the country of birth," to
wit:
Article 14
A child whose parents are both unknown shall have the nationality of the
country of birth. If the child's parentage is established, its nationality shall be
determined by the rules applicable in cases where the parentage is known.
A foundling is, until the contrary is proved, presumed to have been born
on the territory of the State in which it was found. (Underlining supplied)
The second is the principle that a foundling is presumed born of citizens of the
country where he is found, contained in Article 2 of the 1961 United Nations Convention
on the Reduction of Statelessness:
Article 2
A foundling found in the territory of a Contracting State shall, in the
absence of proof to the contrary, be considered to have been born within the
territory of parents possessing the nationality of that State.
That the Philippines is not a party to the 1930 Hague Convention nor to the 1961
Convention on the Reduction of Statelessness does not mean that their principles are
not binding. While the Philippines is not a party to the 1930 Hague Convention, it is a
signatory to the Universal Declaration on Human Rights, Article 15 (1) of which 131
effectively af rms Article 14 of the 1930 Hague Convention. Article 2 of the 1961
"United Nations Convention on the Reduction of Statelessness" merely "gives effect" to
Article 15 (1) of the UDHR. 132 In Razon v. Tagitis, 133 this Court noted that the
Philippines had not signed or rati ed the "International Convention for the Protection of
All Persons from Enforced Disappearance." Yet, we ruled that the proscription against
enforced disappearances in the said convention was nonetheless binding as a
"generally accepted principle of international law." Razon v. Tagitis is likewise notable
for declaring the ban as a generally accepted principle of international law although the
convention had been rati ed by only sixteen states and had not even come into force
and which needed the rati cation of a minimum of twenty states. Additionally, as
petitioner points out, the Court was content with the practice of international and
regional state organs, regional state practice in Latin America, and State Practice in the
United States.
Another case where the number of ratifying countries was not determinative is
Mijares v. Raada, 134 where only four countries had "either rati ed or acceded to" 135
the 1966 "Convention on the Recognition and Enforcement of Foreign Judgments in
Civil and Commercial Matters" when the case was decided in 2005. The Court also
pointed out that that nine member countries of the European Common Market had
acceded to the Judgments Convention. The Court also cited U.S. laws and
jurisprudence on recognition of foreign judgments. In all, only the practices of fourteen
countries were considered and yet, there was pronouncement that recognition of
foreign judgments was widespread practice.
Our approach in Razon and Mijares effectively takes into account the fact that
"generally accepted principles of international law" are based not only on international
custom, but also on "general principles of law recognized by civilized nations," as the
phrase is understood in Article 38.1 paragraph (c) of the ICJ Statute. Justice, fairness,
equity and the policy against discrimination, which are fundamental principles
underlying the Bill of Rights and which are "basic to legal systems generally," 136
support the notion that the right against enforced disappearances and the recognition
of foreign judgments, were correctly considered as "generally accepted principles of
international law" under the incorporation clause.
Petitioner's evidence 137 shows that at least sixty countries in Asia, North and
South America, and Europe have passed legislation recognizing foundlings as its
citizen. Forty-two (42) of those countries follow the jus sanguinis regime. Of the sixty,
only thirty-three (33) are parties to the 1961 Convention on Statelessness; twenty-six
(26) are not signatories to the Convention. Also, the Chief Justice, at the 2 February
2016 Oral Arguments pointed out that in 166 out of 189 countries surveyed (or
87.83%), foundlings are recognized as citizens. These circumstances, including the
practice of jus sanguinis countries, show that it is a generally accepted principle of
international law to presume foundlings as having been born of nationals of the country
in which the foundling is found.
Current legislation reveals the adherence of the Philippines to this generally
accepted principle of international law. In particular, R.A. No. 8552, R.A. No. 8042 and
this Court's Rules on Adoption, expressly refer to "Filipino children." In all of them,
foundlings are among the Filipino children who could be adopted. Likewise, it has been
pointed that the DFA issues passports to foundlings. Passports are by law, issued only
to citizens. This shows that even the executive department, acting through the DFA,
considers foundlings as Philippine citizens.
Adopting these legal principles from the 1930 Hague Convention and the 1961
Convention on Statelessness is rational and reasonable and consistent with the jus
sanguinis regime in our Constitution. The presumption of natural-born citizenship of
foundlings stems from the presumption that their parents are nationals of the
Philippines. As the empirical data provided by the PSA show, that presumption is at
more than 99% and is a virtual certainty.
In sum, all of the international law conventions and instruments on the matter of
nationality of foundlings were designed to address the plight of a defenseless class
which suffers from a misfortune not of their own making. We cannot be restrictive as to
their application if we are a country which calls itself civilized and a member of the
community of nations. The Solicitor General's warning in his opening statement is
relevant:
. . . the total effect of those documents is to signify to this Honorable Court that
those treaties and conventions were drafted because the world community is
concerned that the situation of foundlings renders them legally invisible. It
would be tragically ironic if this Honorable Court ended up using the
international instruments which seek to protect and uplift foundlings a tool to
deny them political status or to accord them second-class citizenship. 138
The COMELEC also ruled 139 that petitioner's repatriation in July 2006 under the
provisions of R.A. No. 9225 did not result in the reacquisition of natural-born
citizenship. The COMELEC reasoned that since the applicant must perform an act, what
is reacquired is not "natural-born" citizenship but only plain "Philippine citizenship."
The COMELEC's rule arrogantly disregards consistent jurisprudence on the
matter of repatriation statutes in general and of R.A. No. 9225 in particular.
In the seminal case of Bengson III v. HRET, 140 repatriation was explained as
follows:
Moreover, repatriation results in the recovery of the original nationality.
This means that a naturalized Filipino who lost his citizenship will be restored to
his prior status as a naturalized Filipino citizen. On the other hand, if he was
originally a natural-born citizen before he lost his Philippine citizenship, he will
be restored to his former status as a natural-born Filipino.
R.A. No. 9225 is a repatriation statute and has been described as such in several
cases. They include Sobejana-Condon v. COMELEC 141 where we described it as an
"abbreviated repatriation process that restores one's Filipino citizenship . . . ." Also
included is Parreo v. Commission on Audit, 142 which cited Tabasa v. Court of Appeals,
143 where we said that "[t]he repatriation of the former Filipino will allow him to recover
his natural-born citizenship. Parreo v. Commission on Audit 141 is categorical that "if
petitioner reacquires his Filipino citizenship (under R.A. No. 9225), he will . . . recover his
natural-born citizenship."
The COMELEC construed the phrase "from birth" in the de nition of natural
citizens as implying "that natural-born citizenship must begin at birth and remain
uninterrupted and continuous from birth." R.A. No. 9225 was obviously passed in line
with Congress' sole prerogative to determine how citizenship may be lost or
reacquired. Congress saw it t to decree that natural-born citizenship may be
reacquired even if it had been once lost. It is not for the COMELEC to disagree with the
Congress' determination.
More importantly, COMELEC's position that natural-born status must be

continuous was already rejected in Bengson III v. HRET 145 where the phrase "from
birth" was clari ed to mean at the time of birth: "A person who at the time of his birth, is
a citizen of a particular country, is a natural-born citizen thereof." Neither is "repatriation"
an act to "acquire or perfect" one's citizenship. In Bengson III v. HRET, this Court
pointed out that there are only two types of citizens under the 1987 Constitution:
natural-born citizen and naturalized, and that there is no third category for repatriated
citizens:
It is apparent from the enumeration of who are citizens under the present
Constitution that there are only two classes of citizens: (1) those who are
natural-born and (2) those who are naturalized in accordance with law. A citizen
who is not a naturalized Filipino, i.e., did not have to undergo the process of
naturalization to obtain Philippine citizenship, necessarily is a natural-born
Filipino. Noteworthy is the absence in said enumeration of a separate category
for persons who, after losing Philippine citizenship, subsequently reacquire it.
The reason therefor is clear: as to such persons, they would either be natural-
born or naturalized depending on the reasons for the loss of their citizenship
and the mode prescribed by the applicable law for the reacquisition thereof. As
respondent Cruz was not required by law to go through naturalization
proceedings in order to reacquire his citizenship, he is perforce a natural-born
Filipino. As such, he possessed all the necessary quali cations to be elected as
member of the House of Representatives. 146
The COMELEC cannot reverse a judicial precedent. That is reserved to this Court.
And while we may always revisit a doctrine, a new rule reversing standing doctrine
cannot be retroactively applied. In Morales v. Court of Appeals and Jejomar Erwin S.
Binay, Jr., 147 where we decreed reversed the condonation doctrine, we cautioned that it
"should be prospective in application for the reason that judicial decisions applying or
interpreting the laws of the Constitution, until reversed, shall form part of the legal
system of the Philippines." This Court also said that "while the future may ultimately
uncover a doctrine's error, it should be, as a general rule, recognized as good law prior
to its abandonment. Consequently, the people's reliance thereupon should be
respected." 148
Lastly, it was repeatedly pointed out during the oral arguments that petitioner
committed a falsehood when she put in the spaces for "born to" in her application for
repatriation under R.A. No. 9225 the names of her adoptive parents, and this misled the
BI to presume that she was a natural-born Filipino. It has been contended that the data
required were the names of her biological parents which are precisely unknown.
This position disregards one important fact petitioner was legally adopted.
One of the effects of adoption is "to sever all legal ties between the biological parents
and the adoptee, except when the biological parent is the spouse of the adoptee." 149
Under R.A. No. 8552, petitioner was also entitled to an amended birth certi cate
"attesting to the fact that the adoptee is the child of the adopter(s)" and which
certi cate "shall not bear any notation that it is an amended issue." 150 That law also
requires that "[a]ll records, books, and papers relating to the adoption cases in the les
of the court, the Department [of Social Welfare and Development], or any other agency
or institution participating in the adoption proceedings shall be kept strictly
confidential." 151 The law therefore allows petitioner to state that her adoptive parents
were her birth parents as that was what would be stated in her birth certi cate anyway.
And given the policy of strict con dentiality of adoption records, petitioner was not
obligated to disclose that she was an adoptee.
Clearly, to avoid a direct ruling on the quali cations of petitioner, which it cannot
make in the same case for cancellation of COC, it resorted to opinionatedness which is,
moreover, erroneous. The whole process undertaken by COMELEC is wrapped in grave
abuse of discretion.
On Residence
The tainted process was repeated in disposing of the issue of whether or not
petitioner committed false material representation when she stated in her COC that she
has before and until 9 May 2016 been a resident of the Philippines for ten (10) years
and eleven (11) months.
Petitioner's claim that she will have been a resident for ten (10) years and eleven
(11) months on the day before the 2016 elections, is true.
The Constitution requires presidential candidates to have ten (10) years'
residence in the Philippines before the day of the elections. Since the forthcoming
elections will be held on 9 May 2016, petitioner must have been a resident of the
Philippines prior to 9 May 2016 for ten (10) years. In answer to the requested
information of "Period of Residence in the Philippines up to the day before May 09,
2016," she put in "10 years 11 months" which according to her pleadings in these cases
corresponds to a beginning date of 25 May 2005 when she returned for good from the
U.S.
When petitioner immigrated to the U.S. in 1991, she lost her original domicile,
which is the Philippines. There are three requisites to acquire a new domicile: 1.
Residence or bodily presence in a new locality; 2. an intention to remain there; and 3. an
intention to abandon the old domicile. 152 To successfully effect a change of domicile,
one must demonstrate an actual removal or an actual change of domicile; a bona de
intention of abandoning the former place of residence and establishing a new one and
de nite acts which correspond with the purpose. In other words, there must basically
be animus manendi coupled with animus non revertendi. The purpose to remain in or at
the domicile of choice must be for an inde nite period of time; the change of residence
must be voluntary; and the residence at the place chosen for the new domicile must be
actual. 153
Petitioner presented voluminous evidence showing that she and her family
abandoned their U.S. domicile and relocated to the Philippines for good. These
evidence include petitioner's former U.S. passport showing her arrival on 24 May 2005
and her return to the Philippines every time she travelled abroad; e-mail
correspondences starting in March 2005 to September 2006 with a freight company to
arrange for the shipment of their household items weighing about 28,000 pounds to
the Philippines; e-mail with the Philippine Bureau of Animal Industry inquiring how to
ship their dog to the Philippines; school records of her children showing enrollment in
Philippine schools starting June 2005 and for succeeding years; tax identi cation card
for petitioner issued on July 2005; titles for condominium and parking slot issued in
February 2006 and their corresponding tax declarations issued in April 2006; receipts
dated 23 February 2005 from the Salvation Army in the U.S. acknowledging donation of
items from petitioner's family; March 2006 e-mail to the U.S. Postal Service con rming
request for change of address; nal statement from the First American Title Insurance
Company showing sale of their U.S. home on 27 April 2006; 12 July 2011 lled-up
questionnaire submitted to the U.S. Embassy where petitioner indicated that she had
been a Philippine resident since May 2005; af davit from Jesusa Sonora Poe (attesting
to the return of petitioner on 24 May 2005 and that she and her family stayed with
af ant until the condominium was purchased); and Af davit from petitioner's husband
(con rming that the spouses jointly decided to relocate to the Philippines in 2005 and
that he stayed behind in the U.S. only to finish some work and to sell the family home).
The foregoing evidence were undisputed and the facts were even listed by the
COMELEC, particularly in its Resolution in the Tatad, Contreras and Valdez cases.
However, the COMELEC refused to consider that petitioner's domicile had been
timely changed as of 24 May 2005. At the oral arguments, COMELEC Commissioner
Arthur Lim conceded the presence of the rst two requisites, namely, physical presence
a nd animus manendi, but maintained there was no animus non-revertendi. 154 The
COMELEC disregarded the import of all the evidence presented by petitioner on the
basis of the position that the earliest date that petitioner could have started residence
in the Philippines was in July 2006 when her application under R.A. No. 9225 was
approved by the BI. In this regard, COMELEC relied on Coquilla v. COMELEC, 155 Japzon
v. COMELEC 156 and Caballero v. COMELEC . 157 During the oral arguments, the private
respondents also added Reyes v. COMELEC. 158 Respondents contend that these
cases decree that the stay of an alien former Filipino cannot be counted until he/she
obtains a permanent resident visa or reacquires Philippine citizenship, a visa-free entry
under a balikbayan stamp being insuf cient. Since petitioner was still an American
(without any resident visa) until her reacquisition of citizenship under R.A. No. 9225, her
stay from 24 May 2005 to 7 July 2006 cannot be counted.
But as the petitioner pointed out, the facts in these four cases are very different
from her situation. In Coquilla v. COMELEC, 159 the only evidence presented was a
community tax certi cate secured by the candidate and his declaration that he would
be running in the elections. Japzon v. COMELEC 160 did not involve a candidate who
wanted to count residence prior to his reacquisition of Philippine citizenship. With the
Court decreeing that residence is distinct from citizenship, the issue there was whether
the candidate's acts after reacquisition suf ced to establish residence. In Caballero v.
COMELEC, 161 the candidate admitted that his place of work was abroad and that he
only visited during his frequent vacations. In Reyes v. COMELEC, 162 the candidate was
found to be an American citizen who had not even reacquired Philippine citizenship
under R.A. No. 9225 or had renounced her U.S. citizenship. She was disquali ed on the
citizenship issue. On residence, the only proof she offered was a seven-month stint as
provincial of cer. The COMELEC, quoted with approval by this Court, said that "such
fact alone is not sufficient to prove her one-year residency."
It is obvious that because of the sparse evidence on residence in the four cases
cited by the respondents, the Court had no choice but to hold that residence could be
counted only from acquisition of a permanent resident visa or from reacquisition of
Philippine citizenship. In contrast, the evidence of petitioner is overwhelming and taken
together leads to no other conclusion that she decided to permanently abandon her
U.S. residence (selling the house, taking the children from U.S. schools, getting quotes
from the freight company, notifying the U.S. Post Of ce of the abandonment of their
address in the U.S., donating excess items to the Salvation Army, her husband resigning
from U.S. employment right after selling the U.S. house) and permanently relocate to
the Philippines and actually re-established her residence here on 24 May 2005
(securing T.I.N., enrolling her children in Philippine schools, buying property here,
constructing a residence here, returning to the Philippines after all trips abroad, her
husband getting employed here). Indeed, coupled with her eventual application to
reacquire Philippine citizenship and her family's actual continuous stay in the
Philippines over the years, it is clear that when petitioner returned on 24 May 2005 it
was for good.
In this connection, the COMELEC also took it against petitioner that she had
entered the Philippines visa-free as a balikbayan. A closer look at R.A. No. 6768 as
amended, otherwise known as the "An Act Instituting a Balikbayan Program," shows
that there is no overriding intent to treat balikbayans as temporary visitors who must
leave after one year. Included in the law is a former Filipino who has been naturalized
abroad and "comes or returns to the Philippines." 163 The law institutes a balikbayan
program "providing the opportunity to avail of the necessary training to enable the
balikbayan to become economically self-reliant members of society upon their return to
the country" 164 in line with the government's "reintegration program." 165 Obviously,
balikbayans are not ordinary transients.
Given the law's express policy to facilitate the return of a balikbayan and help him
reintegrate into society, it would be an unduly harsh conclusion to say in absolute terms
that the balikbayan must leave after one year. That visa-free period is obviously granted
him to allow him to re-establish his life and reintegrate himself into the community
before he attends to the necessary formal and legal requirements of repatriation. And
that is exactly what petitioner did she reestablished life here by enrolling her children
and buying property while awaiting the return of her husband and then applying for
repatriation shortly thereafter.
No case similar to petitioner's, where the former Filipino's evidence of change in
domicile is extensive and overwhelming, has as yet been decided by the Court.
Petitioner's evidence of residence is unprecedented. There is no judicial precedent that
comes close to the facts of residence of petitioner. There is no indication in Coquilla v.
COMELEC, 166 and the other cases cited by the respondents that the Court intended to
have its rulings there apply to a situation where the facts are different. Surely, the issue
of residence has been decided particularly on the facts-of-the case basis.
To avoid the logical conclusion pointed out by the evidence of residence of
petitioner, the COMELEC ruled that petitioner's claim of residence of ten (10) years and
eleven (11) months by 9 May 2016 in her 2015 COC was false because she put six (6)
years and six (6) months as "period of residence before May 13, 2013" in her 2012 COC
for Senator. Thus, according to the COMELEC, she started being a Philippine resident
only in November 2006. In doing so, the COMELEC automatically assumed as true the
statement in the 2012 COC and the 2015 COC as false.
As explained by petitioner in her veri ed pleadings, she misunderstood the date
required in the 2013 COC as the period of residence as of the day she submitted that
COC in 2012. She said that she reckoned residency from April-May 2006 which was the
period when the U.S. house was sold and her husband returned to the Philippines. In
that regard, she was advised by her lawyers in 2015 that residence could be counted
from 25 May 2005.
Petitioner's explanation that she misunderstood the query in 2012 (period of
residence before 13 May 2013) as inquiring about residence as of the time she
submitted the COC, is bolstered by the change which the COMELEC itself introduced in
the 2015 COC which is now "period of residence in the Philippines up to the day before
May 09, 2016." The COMELEC would not have revised the query if it did not
acknowledge that the first version was vague.
That petitioner could have reckoned residence from a date earlier than the sale of
her U.S. house and the return of her husband is plausible given the evidence that she
had returned a year before. Such evidence, to repeat, would include her passport and
the school records of her children.
It was grave abuse of discretion for the COMELEC to treat the 2012 COC as a
binding and conclusive admission against petitioner. It could be given in evidence
against her, yes, but it was by no means conclusive. There is precedent after all where a
candidate's mistake as to period of residence made in a COC was overcome by
evidence. In Romualdez-Marcos v. COMELEC, 167 the candidate mistakenly put seven
(7) months as her period of residence where the required period was a minimum of one
year. We said that "[i]t is the fact of residence, not a statement in a certi cate of
candidacy which ought to be decisive in determining whether or not an individual has
satis ed the constitution's residency quali cation requirement." The COMELEC ought
to have looked at the evidence presented and see if petitioner was telling the truth that
she was in the Philippines from 24 May 2005. Had the COMELEC done its duty, it would
have seen that the 2012 COC and the 2015 COC both correctly stated the pertinent
period of residency.
The COMELEC, by its own admission, disregarded the evidence that petitioner
actually and physically returned here on 24 May 2005 not because it was false, but only
because COMELEC took the position that domicile could be established only from
petitioner's repatriation under R.A. No. 9225 in July 2006. However, it does not take
away the fact that in reality, petitioner had returned from the U.S. and was here to stay
permanently, on 24 May 2005. When she claimed to have been a resident for ten (10)
years and eleven (11) months, she could do so in good faith.
For another, it could not be said that petitioner was attempting to hide anything.
As already stated, a petition for quo warranto had been led against her with the SET as
early as August 2015. The event from which the COMELEC pegged the commencement
of residence, petitioner's repatriation in July 2006 under R.A. No. 9225, was an
established fact to repeat, for purposes of her senatorial candidacy.
Notably, on the statement of residence of six (6) years and six (6) months in the
2012 COC, petitioner recounted that this was rst brought up in the media on 2 June
2015 by Rep. Tobias Tiangco of the United Nationalist Alliance. Petitioner appears to
have answered the issue immediately, also in the press. Respondents have not disputed
petitioner's evidence on this point. From that time therefore when Rep. Tiangco
discussed it in the media, the stated period of residence in the 2012 COC and the
circumstances that surrounded the statement were already matters of public record
and were not hidden.
Petitioner likewise proved that the 2012 COC was also brought up in the SET
petition for quo warranto. Her Veri ed Answer, which was led on 1 September 2015,
admitted that she made a mistake in the 2012 COC when she put in six (6) years and six
(6) months as she misunderstood the question and could have truthfully indicated a
longer period. Her answer in the SET case was a matter of public record. Therefore,
when petitioner accomplished her COC for President on 15 October 2015, she could
not be said to have been attempting to hide her erroneous statement in her 2012 COC
for Senator which was expressly mentioned in her Verified Answer.
The facts now, if not stretched to distortion, do not show or even hint at an
intention to hide the 2012 statement and have it covered by the 2015 representation.
Petitioner, moreover, has on her side this Court's pronouncement that:
Concededly, a candidate's disquali cation to run for public of ce does
not necessarily constitute material misrepresentation which is the sole ground
for denying due course to, and for the cancellation of, a COC. Further, as already
discussed, the candidate's misrepresentation in his COC must not only refer to a
material fact (eligibility and quali cations for elective of ce), but should evince
a deliberate intent to mislead, misinform or hide a fact which would otherwise
render a candidate ineligible. It must be made with an intention to deceive the
electorate as to one's qualifications to run for public office. 168
In sum, the COMELEC, with the same posture of infallibilism, virtually ignored a
good number of evidenced dates all of which can evince animus manendi to the
Philippines and animus non revertendi to the United States of America. The veracity of
the events of coming and staying home was as much as dismissed as inconsequential,
the focus having been xed at the petitioner's "sworn declaration in her COC for
Senator" which the COMELEC said "amounts to a declaration and therefore an
admission that her residence in the Philippines only commence sometime in November
2006"; such that "based on this declaration, [petitioner] fails to meet the residency
requirement for President." This conclusion, as already shown, ignores the standing
jurisprudence that it is the fact of residence, not the statement of the person that
determines residence for purposes of compliance with the constitutional requirement
of residency for election as President. It ignores the easily researched matter that
cases on questions of residency have been decided favorably for the candidate on the
basis of facts of residence far less in number, weight and substance than that
presented by petitioner. 169 It ignores, above all else, what we consider as a primary
reason why petitioner cannot be bound by her declaration in her COC for Senator which
declaration was not even considered by the SET as an issue against her eligibility for
Senator. When petitioner made the declaration in her COC for Senator that she has been
a resident for a period of six (6) years and six (6) months counted up to the 13 May
2013 Elections, she naturally had as reference the residency requirements for election
as Senator which was satis ed by her declared years of residence. It was uncontested
during the oral arguments before us that at the time the declaration for Senator was
made, petitioner did not have as yet any intention to vie for the Presidency in 2016 and
that the general public was never made aware by petitioner, by word or action, that she
would run for President in 2016. Presidential candidacy has a length-of-residence
different from that of a senatorial candidacy. There are facts of residence other than
that which was mentioned in the COC for Senator. Such other facts of residence have
never been proven to be false, and these, to repeat include:
[Petitioner] returned to the Philippines on 24 May 2005. [petitioner's]

husband however stayed in the USA to nish pending projects and arrange the
sale of their family home.
Meanwhile [petitioner] and her children lived with her mother in San Juan
City. [Petitioner] enrolled Brian in Beacon School in Taguig City in 2005 and
Hanna in Assumption College in Makati City in 2005. Anika was enrolled in
Learning Connection in San Juan in 2007, when she was already old enough to
go to school.
In the second half of 2005, [petitioner] and her husband acquired Unit 7F
of One Wilson Place Condominium in San Juan. [Petitioner] and her family lived
in Unit 7F until the construction of their family home in Corinthian Hills was
completed.
Sometime in the second half of 2005, [petitioner's] mother discovered
that her former lawyer who handled [petitioner's] adoption in 1974 failed to
secure from the Of ce of the Civil Registrar of Iloilo a new Certi cate of Live
Birth indicating [petitioner's] new name and stating that her parents are "Ronald
Allan K. Poe" and "Jesusa L. Sonora."
In February 2006, [petitioner] travelled brie y to the US in order to
supervise the disposal of some of the family's remaining household belongings.
[Petitioner] returned to the Philippines on 11 March 2006.
In late March 2006, [petitioner's] husband informed the United States
Postal Service of the family's abandonment of their address in the US.
The family home in the US was sole n on 27 April 2006.
In April 2006, [petitioner's] husband resigned from his work in the US. He
returned to the Philippines on 4 May 2006 and began working for a Philippine
company in July 2006.
In early 2006, [petitioner] and her husband acquired a vacant lot in
Corinthian Hills, where they eventually built their family home. 170
In light of all these, it was arbitrary for the COMELEC to satisfy its intention to let
the case fall under the exclusive ground of false representation, to consider no other
date than that mentioned by petitioner in her COC for Senator.
All put together, in the matter of the citizenship and residence of petitioner for
her candidacy as President of the Republic, the questioned Resolutions of the
COMELEC in Division and En Banc are, one and all, deadly diseased with grave abuse of
discretion from root to fruits.
WHEREFORE, the petition is GRANTED. The Resolutions, to wit:
1. dated 1 December 2015 rendered through the COMELEC Second Division, in
SPA No. 15-001 (DC), entitled Estrella C. Elamparo, petitioner, vs. Mary Grace Natividad
Sonora Poe-Llamanzares, respondent, stating that:
[T]he Certi cate of Candidacy for President of the Republic of the Philippines in
the May 9, 2016 National and Local Elections led by respondent Mary Grace
Natividad Sonora Poe-Llamanzares is hereby GRANTED.
2. dated 11 December 2015, rendered through the COMELEC First Division, in the
consolidated cases SPA No. 15-002 (DC) entitled Francisco S. Tatad, petitioner, vs.
Mary Grace Natividad Sonora Poe-Llamanzares, respondent; SPA No. 15-007 (DC)
entitled Antonio P. Contreras, petitioner, vs. Mary Grace Natividad Sonora Poe-
Llamanzares, respondent; and SPA No. 15-139 (DC) entitled Amado D. Valdez,
petitioner, v. Mary Grace Natividad Sonora Poe-Llamanzares, respondent; stating that:
hereby RESOLVES, to GRANT the petitions and cancel the Certi cate of
Candidacy of MARY GRACE NATIVIDAD SONORA POE-LLAMANZARES for the
elective position of President of the Republic of the Philippines in connection
with the 9 May 2016 Synchronized Local and National Elections.
3. dated 23 December 2015 of the COMELEC En Banc, upholding the 1
December 2015 Resolution of the Second Division stating that:
hereby RESOLVES, to DENY the Veri ed Motion for Reconsideration of
SENATOR MARY GRACE NATIVIDAD SONORA POE-LLAMANZARES. The
Resolution dated 11 December 2015 of the Commission First Division is
AFFIRMED.
4. dated 23 December 2015 of the COMELEC En Banc, upholding the 11
December 2015 Resolution of the First Division.
are hereby ANNULED and SET ASIDE . Petitioner MARY GRACE NATIVIDAD SONORA
POE-LLAMANZARES is DECLARED QUALIFIED to be a candidate for President in the
National and Local Elections of 9 May 2016.
SO ORDERED.
Bersamin and Mendoza, JJ., concur.
Sereno, C.J., Velasco, Jr., Leonen, Jardeleza and Caguioa, JJ., see Concurring
Opinion.
Carpio, Brion, Del Castillo and Perlas-Bernabe, JJ., see dissenting opinion.
Leonardo-de Castro, J., please see Separate Dissenting Opinion.
Peralta, J., I join J. Caguioa's opinion.

Reyes, J., I concur with the Dissenting Opinion of Justice Perlas-Bernabe.
Footnotes
1. Petition for Certiorari in G.R. Nos. 221698-700, pp. 15-16; COMELEC First Division
Resolution dated 11 December 2015 in SPA No. 15-002 (DC), SPA No. 15-007 (DC)
and SPA No. 15-139 (DC), p. 2.
2. Petition for Certiorari, id. at 16-17.

3. COMELEC First Division Resolution, supra note 1 at 4.
4. Petition for Certiorari, supra note 1 at 22.
5. Id. at 17; Comment (on the Petition for Certiorari in G.R. No. 221697) led by respondent
COMELEC dated 11 January 2016, p. 6.
6. Petition for Certiorari, id.; id. at 7.

7. Id. at 18.
8. Supra note 6.
9. Id.

12. Id. at 18.
13. Id.
14. COMELEC First Division Resolution, supra note 10.

15. Id.
16. Supra note 1 at 17-18.
17. COMELEC First Division Resolution, supra note 10.
18. Id.
19. Id.
21. Id.
22. Supra note 3.
23. Supra note 20.
24. Supra note 3.
25. Supra note 20.

26. Supra note 3.
27. Petition for Certiorari, supra note 4.
28. Id.
29. Id. at 23; COMELEC First Division Resolution, supra note 3.
30. Id.; id.
31. Id.; id.
32. Id.; id.
33. Id. at 23-24; COMELEC First Division Resolution, supra note 1 at 5.

34. Id. at 24; id.
35. Id.
36. Supra note 34.
37. Petition for Certiorari, supra note 1 at 25; COMELEC First Division Resolution, supra note 1
at 5.
38. Id. at 25-26; id.
39. Id. at 26; id.
40. Id.; id.

41. Id.; id.
42. Id. at 32; id. at 6.
43. Supra note 39.
44. Petition for Certiorari, supra note 1 at 26-27; COMELEC First Division Resolution, supra
note 1 at 5.
45. Section 5, R.A. No. 9225 states:
SEC. 5. Civil and Political Rights and Liabilities. Those who retain or re-acquire Philippine
citizenship under this Act shall enjoy full civil and political rights and be subject to all
attendant liabilities and responsibilities under existing laws of the Philippines and the
following conditions:
xxx xxx xxx
3. Those appointed to any public of ce shall subscribe and swear to an oath of allegiance
to the Republic of the Philippines and its duly constituted authorities prior to their
assumption of of ce: Provided, That they renounce their oath of allegiance to the
country where they took that oath;
xxx xxx xxx
47. Id. at 29.
48. Supra note 46; supra note 1 at 6.

49. Petition for Certiorari, supra note 1 at 30; id.
50. Id.
51. Supra note 48.

52. Petition for Certiorari, supra note 1 at 31; COMELEC First Division Resolution, supra note 1
at 6.
53. Comment, supra note 5 at 9.
55. Id. at 32; Comment, supra note 53 at 10.

56. Id.; COMELEC First Division Resolution, supra note 1 at 6.
57. Id.; id. at 7.
58. Id.; id.
59. Comment (on the Petition in G.R. No. 221697) led by respondent Elamparo, dated
January 6, 2016, p. 7.
60. COMELEC Second Division Resolution dated December 1, 2015 in SPA No. 15-001 (DC), p.
7.
61. Id. at 7-8.
62. Supra note 60.

63. Id.
64. Id. at 8.
65. Id.
66. Petition for Certiorari in G.R. No. 221697, p. 7.

67. Supra note 64.
68. Petition for Certiorari, supra note 65 at 8; COMELEC Second Division Resolution, supra
note 60 at 8-11.
69. COMELEC Second Division Resolution, supra note 60 at 34.

70. Comment, supra note 59 at 10.
71. Section 1 of Rule 25 of the COMELEC Rules of Procedure, as amended, states:
Rule 25 Disqualification of Candidates
Section 1. Grounds. Any candidate who, in an action or protest in which he is a party, is

declared by nal decision of a competent court, guilty of, or found by the
Commission to be suffering from any disquali cation provided by law or the
Constitution.
A Petition to Disqualify a Candidate invoking grounds for a Petition to Deny to or Cancel a

Certi cate of Candidacy or Petition to Declare a Candidate as a Nuisance Candidate,
or a combination thereof, shall be summarily dismissed.
72. Petition to Disqualify dated 19 October 2015 filed by Tatad in SPA No. 15-002 (DC), p. 9.
73. Id., at 9 and 14.
74. Id. at 10.
75. Id. at 12.

76. Id. at 11.
78. Id.
79. Petition to Disqualify, supra note 72 at 11.

80. Id. at 21.
81. Id.
82. Id.
83. Supra note 1 at 8.

84. Id.
85. Contreras' petition is a petition for cancellation of Grace Poe's COC under Section 78 of
the Omnibus Election Code which states that:
Sec. 78. Petition to deny due course to or cancel a certi cate of candidacy. A veri ed
petition seeking to deny due course or to cancel a certi cate of candidacy may be
led by the person exclusively on the ground that any material representation
contained therein as required under Section 74 hereof is false. The petition may be
led at any time not later than twenty- ve days from the time of the ling of the
certi cate of candidacy and shall be decided, after due notice and hearing, not later
than fifteen days before the election.
86. Petition for Cancellation of Grace Poe's COC dated 17 October 2015 led by Contreras in
SPA No. 15-007 (DC), pp. 2-4.
87. Id. at 3; Petition for Certiorari, supra note 1 at 13.
88. Id. at 3-4.
89. Sections 12 and 68 of the Omnibus Election Code provide:

Sec. 12. Disqualifications. Any person who has been declared by competent authority
insane or incompetent, or has been sentenced by nal judgment for subversion,
insurrection, rebellion or for any offense for which he has been sentenced to a
penalty of more than eighteen months or for a crime involving moral turpitude, shall
be disquali ed to be a candidate and to hold any of ce, unless he has been given
plenary pardon or granted amnesty.
This disquali cations to be a candidate herein provided shall be deemed removed upon the
declaration by competent authority that said insanity or incompetence had been
removed or after the expiration of a period of ve years from his service of sentence,
unless within the same period he again becomes disqualified.
Sec. 68. Disqualifications. Any candidate who, in an action or protest in which he is a party
i s declared by nal decision of a competent court guilty of, or found by the
Commission of having (a) given money or other material consideration to in uence,
induce or corrupt the voters or public of cials performing electoral functions; (b)
committed acts of terrorism to enhance his candidacy; (c) spent in his election
campaign an amount in excess of that allowed by this Code; (d) solicited, received or
made any contribution prohibited under Sections 89, 95, 96, 97 and 104; or (e)
violated any of Sections 80, 83, 85, 86 and 261, paragraphs d, e, k, v, and cc, sub-
paragraph 6, shall be disquali ed from continuing as a candidate, or if he has been
elected, from holding the of ce. Any person who is a permanent resident of or an
immigrant to a foreign country shall not be quali ed to run for any elective of ce
under this Code, unless said person has waived his status as permanent resident or
immigrant of a foreign country in accordance with the residence requirement
provided for in the election laws.
91. Id. at 10.
92. Id.
93. Id. at 9.
94. Id.
95. Id.
96. Id.
97. Id.
98. Id.
99. Id. at 9-10.
100. Id. at 10.
101. Id.
102. Id.
103. The 11 December 2015 Resolution of the COMELEC First Division was concurred in by
Commissioners Louie Tito F. Guia and Ma. Rowena Amelia V. Guanzon. Presiding
Commissioner Christian Robert S. Lim issued a Separate Dissenting Opinion.
104. 318 Phil. 329 (1995).

105. 595 Phil. 449 (2008).
106. Romualdez-Marcos v. COMELEC, supra note 104 at 396-397.
107. Id. at 397-398; Fermin v. COMELEC, supra note 105 at 471-472.

108. In A.M. No. 02-6-02-SC, Resolution Approving the Proposed Rule on Adoption (Domestic
and Inter-Country), effective 22 August 2002, "foundling" is de ned as "a deserted or
abandoned infant or child whose parents, guardian or relatives are unknown; or a
child committed to an orphanage or charitable or similar institution with unknown
facts of birth and parentage and registered in the Civil Register as a "foundling."
109. Article IV Citizenship.

Sec. 1. The following are citizens of the Philippines:
(1) Those who are citizens of the Philippine Islands at the time of the adoption of this
Constitution.
(2) Those born in the Philippine Islands of foreign parents who, before the adoption of this
Constitution, had been elected to public office in the Philippine Islands.
(3) Those whose fathers are citizens of the Philippines.
(4) Those whose mothers are citizens of the Philippines and, upon reaching the age of
majority, elect Philippine citizenship.
(5) Those who are naturalized in accordance with law.

Section 2. Philippine citizenship may be lost or reacquired in the manner provided by law.
110. Article 163 to 182, Title VI of Executive Order No. 209, otherwise known as the Family
Code of the Philippines, which took effect on 4 August 1988.
111. Statistics from the PSA or its predecessor agencies are admissible evidence. See Herrera
v. COMELEC, 376 Phil. 443 (1999) and Bagabuyo v. COMELEC, 593 Phil. 678 (2008).
In the latter case, the Court even took judicial notice of the figures.
112. Transcript of Stenographic Notes, 9 February 2016, p. 40.
113. Section 3 (y), Rule 131.
114. 236 Phil. 307 (1987).

115. Id. at 314-315.
116. English translation of the Spanish original presented in the petitioner's pleadings before
the COMELEC and this Court. The COMELEC and private respondents have not
disputed the accuracy and correctness of the translation.
117. I Jose M. Aruego, The Framing of the Philippine Constitution 209 (1949).
118. TSN, 16 February 2016, pp. 20-21.
119. 117 Phil. 976 (1963).
120. Id. at 978-979.
121. See Section 5 of the RA No. 8552: "Location of Unknown Parent(s). It shall be the duty
of the Department or the child-caring agency which has custody of the child to exert
all efforts to locate his/her unknown biological parent(s). If such efforts fail, the child
shall be registered as a foundling and subsequently be the subject of legal
proceedings where he/she shall be declared abandoned." (Underlining supplied)
122. See Exhibit "1" in SPA No. 15-001 (DC) and SPA No. 15-00 (DC).
123. See Exhibit "2" in SPA No. 15-001 (DC) and SPA No. 15-00 (DC).
124. Razon, Jr. v. Tagitis, 621 Phil. 536, 600 (2009) citing Pharmaceutical and Health Care
Assoc. of the Philippines v. Duque III, 561 Phil. 386, 398 (2007).
125. Article 38.1, paragraphs (b) and (c) of the Statute of the International Court of Justice.
126. Mijares v. Raada, 495 Phil. 372, 395 (2005).
127. Pharmaceutical and Health Care Assoc. of the Philippines v. Duque III, 561 Phil. 386, 400
(2007).
128. International School Alliance of Educators v. Quisumbing, 388 Phil. 661, 672-673 (2000).
129. CONSTITUTION, Art. III, Sec. 1.
130. Rep. of the Philippines v. Sandiganbayan, 454 Phil. 504, 545 (2003).
131. "Everyone has the right to a nationality".
132. See Introductory Note to the United Nations Convention on the Reduction of
Statelessness issued by the United Nations High Commissioner on Refugees.
133. Supra note 124.
135. Id. at 392; See footnote No. 55 of said case.
136. Pharmaceutical and Health Care Assoc. of the Philippines v. Duque III, supra note 127.
137. See Exhibits 38 and 39-series.
138. Opening Statement of the Solicitor General, p. 6.
139. First Division resolution dated 11 December 2015, upheld in toto by the COMELEC En
Banc.
140. 409 Phil. 633, 649 (2001).
141. 692 Phil. 407, 420 (2012).
142. 551 Phil. 368, 381 (2007).
143. 531 Phil. 407, 417 (2006).

145. Supra note 140 at 646.
146. Id. at 651.
147. G.R. Nos. 217126-27, 10 November 2015.

148. Id.
149. Implementing Rules and Regulations of Republic Act No. 8552, Art. VI, Sec. 33.
150. Republic Act No. 8552 (1998), Sec. 14.
151. Republic Act No. 8552 (1998), Sec. 15.

152. Fernandez v. House of Representatives Electoral Tribunal, 623 Phil. 628, 660 (2009)
citing Japzon v. COMELEC, 596 Phil. 354, 370-372 (2009) further citing Papandayan,
Jr. v. COMELEC, 430 Phil. 754, 768-770 (2002) further further citing Romualdez v.
RTC, Br. 7, Tacloban City, G.R. No. 104960, 14 September 1993, 226 SCRA 408, 415.
153. Domino v. COMELEC, 369 Phil. 798, 819 (1999).
154. TSN, 16 February 2016, p. 120.
155. 434 Phil. 861 (2002).
156. 596 Phil. 354 (2009).
157. G.R. No. 209835, 22 September 2015.

158. G.R. No. 207264, 25 June 2013, 699 SCRA 522.


163. Republic Act No. 6768 (1989), as amended, Sec. 2 (a).
164. Republic Act No. 6768 (1989), as amended, Sec. 1.
165. Republic Act No. 6768 (1989), as amended, Sec. 6.

167. Supra note 104 at 326. (Emphasis supplied)
168. Ugdoracion, Jr. v. COMELEC, 575 Phil. 253, 265-266 (2008).
169. In Mitra v. COMELEC, et al. , [636 Phil. 753 (2010)], It was ruled that the residence
requirement can be complied with through an incremental process including
acquisition of business interest in the pertinent place and lease of feedmill building
as residence.
170. COMELEC Resolution dated 11 December 2015 in SPA No. 15-002 (DC), pp. 4-5.
n Note from the Publisher: Copied verbatim from the of cial copy. The term "sole" should read
as "sold".

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EN BANC

[G.R. No. 221697. March 8, 2016.]

MARY GRACE NATIVIDAD S. POE-LLAMANZARES , petitioner, vs.

[G.R. Nos. 221698-700. March 8, 2016.]

MARY GRACE NATIVIDAD S. POE-LLAMANZARES , petitioner, vs.

In her defense, petitioner raised the following arguments:

or of the last paragraph of Article VII, Section 4 which provides that:

CD Technologies Asia, Inc. 2016 cdasiaonline.com

During the debates on this provision, Delegate Rafols presented an

More importantly, COMELEC's position that natural-born status must be

[Petitioner] returned to the Philippines on 24 May 2005. [petitioner's]

CD Technologies Asia, Inc. 2016 cdasiaonline.com

2. Petition for Certiorari, id. at 16-17.

4. Petition for Certiorari, supra note 1 at 22.

6. Petition for Certiorari, id.; id. at 7.

10. COMELEC First Division Resolution, supra note 1 at 3.

12. Id. at 18.

14. COMELEC First Division Resolution, supra note 10.

16. Supra note 1 at 17-18.

17. COMELEC First Division Resolution, supra note 10.

20. Petition for Certiorari, supra note 1 at 20.

23. Supra note 20.

24. Supra note 3.

25. Supra note 20.

27. Petition for Certiorari, supra note 4.

31. Id.; id.

32. Id.; id.

33. Id. at 23-24; COMELEC First Division Resolution, supra note 1 at 5.

36. Supra note 34.

38. Id. at 25-26; id.

39. Id. at 26; id.

40. Id.; id.

42. Id. at 32; id. at 6.

43. Supra note 39.

46. Petition for Certiorari, supra note 1 at 27.

47. Id. at 29.

48. Supra note 46; supra note 1 at 6.

51. Supra note 48.

53. Comment, supra note 5 at 9.

54. Petition for Certiorari, supra note 1 at 31.

55. Id. at 32; Comment, supra note 53 at 10.

57. Id.; id. at 7.

58. Id.; id.

61. Id. at 7-8.

62. Supra note 60.

66. Petition for Certiorari in G.R. No. 221697, p. 7.

69. COMELEC Second Division Resolution, supra note 60 at 34.

71. Section 1 of Rule 25 of the COMELEC Rules of Procedure, as amended, states:

Rule 25 Disqualification of Candidates

Section 1. Grounds. Any candidate who, in an action or protest in which he is a party, is

A Petition to Disqualify a Candidate invoking grounds for a Petition to Deny to or Cancel a

73. Id., at 9 and 14.

74. Id. at 10.

75. Id. at 12.

77. COMELEC First Division Resolution, supra note 1 at 8.

79. Petition to Disqualify, supra note 72 at 11.

83. Supra note 1 at 8.

87. Id. at 3; Petition for Certiorari, supra note 1 at 13.