1- Macalintal v Comelec

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    EN BANC

    [G.R. No. 157013. July 10, 2003.]

    ATTY. ROMULO B. MACALINTAL, petitioner, vs. COMMISSION ONELECTIONS, HON. ALBERTO ROMULO, in his officia capacit! as E"ec#tiveSecretar!, an$ HON. EMILIA T. BONCO%IN, Secretar! of the %epart&ent of B#$'et

    an$ Mana'e&ent, respon$ents.

    (ete )#irino*C#a$ra an$ Si"to S. Briiante, +r. for petitioner.

    Henr! S. Roas for Movant*Intervenor.

    SYNOPSIS

    (etitioner Roo B. Macainta, a &e&-er of the (hiippine Bar, so#'ht to $ecarecertain provisions of Rep#-ic Act No. /0 entite$, 1An Act (rovi$in' for A S!ste&

    of Overseas A-sentee 2otin' -! )#aifie$ Citi3ens of the (hiippines A-roa$,Appropriatin' 4#n$s Therefor, an$ for Other (#rposes1 as #nconstit#tiona. (etitionerconten$e$ that Section 56$7 is #nconstit#tiona -eca#se it vioates Section /, Artice 2of the /08 Constit#tion 9hich re:#ires that the voter st -e a resi$ent in the(hiippines for at east one !ear an$ in the pace 9here he proposes to vote for at eastsi" &onths i&&e$iate! prece$in' an eection. (etitioner cite$ the r#in' of the Co#rtin Caasi vs. Co#rt of Appeas to s#pport his cai&. In that case, the Co#rt he$ that a1'reen car$1 ho$er i&&i'rant to the Unite$ States is $ee&e$ to have a-an$one$ his$o&icie an$ resi$ence in the (hiippines.

    The S#pre&e Co#rt #phe$ the constit#tionait! of Section 56$7 of R.A. No. /0.Accor$in' to the Co#rt, Section ; of Artice 2 of the Constit#tion is an e"ception tothe resi$enc! re:#ire&ent fo#n$ in Section / of the sa&e Artice. Or$inari!, ana-sentee is not a resi$ent an$ vice versa< a person cannot -e at the sa&e ti&e, -oth aresi$ent an$ an a-sentee. Ho9ever, #n$er e"istin' eection a9s an$ the co#ntess

    prono#nce&ents of the Co#rt pertainin' to eections, an a-sentee re&ains attache$ tohis resi$ence in the (hiippines as resi$ence is consi$ere$ s!non!&o#s 9ith $o&icie.A9are of the $o&iciiar! e'a tie that in=s an overseas 4iipino to his resi$ence inthis co#ntr!, the fra&ers of the Constit#tion consi$ere$ the circ#&stances thati&pee$ the& to re:#ire Con'ress to esta-ish a s!ste& for overseas a-sentee votin'.

    Th#s, Section ;, Artice 2 of the Constit#tion ca&e into -ein' to re&ove an! $o#-t asto the inappica-iit! of the resi$enc! re:#ire&ent in Section /. It is precise! to avoi$an! pro-e&s that co#$ i&pe$e the i&pe&entation of its p#rs#it to enfranchise thear'est n#&-er of :#aifie$ 4iipinos 9ho are not in the (hiippines that theConstit#tiona Co&&ission e"picit! &an$ate$ Con'ress to provi$e a s!ste& foroverseas a-sentee votin'. The Co#rt, ho9ever, $ecare$ certain provisions of the a9#nconstit#tiona, na&e!, portions of Secs. /8./, / an$ ;5, as the! tra&pe$ on theconstit#tiona &an$ate of in$epen$ence of the Co&&ission on Eections. The Co#rt

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    aso #phe$ Section /0.5 of R.A. No. /0 9ith respect on! to the a#thorit! 'iven tothe COMELEC to procai& the 9innin' can$i$ates for Senators an$ part!*istrepresentatives -#t not as to the po9er to canvass the votes an$ procai& the 9innin'can$i$ates for (resi$ent an$ 2ice*(resi$ent 9hich is o$'e$ 9ith Con'ress #n$erSection >, Artice 2II of the Constit#tion. The Co#rt i=e9ise #phe$ Sec. 5 6$7 of the

    a9. It aso $ecare$ that p#rs#ant to Sec. ?@ of the a9 the rest of the provision of sai$a9 contin#es to -e in f# force an$ effect.

    SYLLABUS

    /. (OLITICAL LA< +U%ICIAL %E(ARTMENT< (OER O4 +U%ICIALRE2IE< RIHT O4 (ETITIONER TO 4ILE (RESENT (ETITION, U(HEL%. I%.< I%.< I%.< SECTION ; O4 ARTICLE 2 O4 THE CONSTITUTION IS ANECE(TION TO THE RESI%ENCY RE)UIREMENT 4OUN% IN SECTION / O4THE SAME ARTICLE. D It is cear fro& these $isc#ssions of the &e&-ers of theConstit#tiona Co&&ission that the! inten$e$ to enfranchise as ch as possi-e a

    4iipino citi3ens a-roa$ 9ho have not a-an$one$ their $o&icie of ori'in. TheCo&&ission even inten$e$ to e"ten$ to !o#n' 4iipinos 9ho reach votin' a'e a-roa$9hose parentsG $o&icie of ori'in is in the (hiippines, an$ consi$er the& :#aifie$ asvoters for the first ti&e. It is in p#rs#ance of that intention that the Co&&ission

    provi$e$ for Section ; i&&e$iate! after the resi$enc! re:#ire&ent of Section /. B!the $octrine of necessar! i&pication in stat#tor! constr#ction, 9hich &a! -e appie$in constr#in' constit#tiona provisions, the strate'ic ocation of Section ; in$icatesthat the Constit#tiona Co&&ission provi$e$ for an e"ception to the act#a resi$enc!re:#ire&ent of Section / 9ith respect to :#aifie$ 4iipinos a-roa$. The sa&eCo&&ission has in effect $ecare$ that :#aifie$ 4iipinos 9ho are not in the(hiippines &a! -e ao9e$ to vote even tho#'h the! $o not satisf! the resi$enc!re:#ire&ent in Section /, Artice 2 of the Constit#tion. That Section ; of Artice 2 ofthe Constit#tion is an e"ception to the resi$enc! re:#ire&ent fo#n$ in Section / of thesa&e Artice 9as in fact the s#-ect of $e-ate 9hen Senate Bi No. ;/@>, 9hich

    -eca&e R.A. No. /0, 9as $ei-erate$ #pon on the Senate foor.

    5. I%.< I%.< I%.< EECUTION O4 RE)UIRE% A44I%A2IT IS NOT THEENABLIN OR EN4RANCHISIN ACT< A44I%A2IT MERELY SER2ES AS ANE(LICIT E(RESSION THAT )UALI4IE% ABSENTEE HA% NOT IN 4ACTABAN%ONE% HIS OR HER %OMICILE O4 ORIIN. D Section > of R.A. No./0 provi$es for the covera'e of the a-sentee votin' process. hich $oes not re:#ire

    ph!sica resi$enc! in the (hiippines< an$ Section 5 of the assaie$ a9 9hichen#&erates those 9ho are $is:#aifie$. As fina! approve$ into a9, Section 56$7 ofR.A. No. /0 specifica! $is:#aifies an i&&i'rant or per&anent resi$ent 9ho is1reco'ni3e$ as s#ch in the host co#ntr!1 -eca#se i&&i'ration or per&anent resi$encein another co#ntr! i&pies ren#nciation of oneGs resi$ence in his co#ntr! of ori'in.Ho9ever, sa&e Section ao9s an i&&i'rant an$ per&anent resi$ent a-roa$ tore'ister as voter for as on' as heshe e"ec#tes an affi$avit to sho9 that heshe has nota-an$one$ his $o&icie in p#rs#ance of the constit#tiona intent e"presse$ in Sections

    / an$ ; of Artice 2 that 1a citi3ens of the (hiippines not other9ise $is:#aifie$ -!a91 st -e entite$ to e"ercise the ri'ht of s#ffra'e an$, that Con'ress stesta-ish a s!ste& for a-sentee votin'< for other9ise, if act#a, ph!sica resi$ence inthe (hiippines is re:#ire$, there is no sense for the fra&ers of the Constit#tion to&an$ate Con'ress to esta-ish a s!ste& for a-sentee votin'. Contrar! to the cai& of

    petitioner, the e"ec#tion of the affi$avit itsef is not the ena-in' or enfranchisin' act.The affi$avit re:#ire$ in Section 56$7 is not on! proof of the intention of thei&&i'rant or per&anent resi$ent to 'o -ac= an$ res#&e resi$enc! in the (hiippines,

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    -#t &ore si'nificant!, it serves as an e"picit e"pression that he ha$ not in facta-an$one$ his $o&icie of ori'in. Th#s, it is not correct to sa! that the e"ec#tion ofthe affi$avit #n$er Section 56$7 vioates the Constit#tion that proscri-es 1provisionare'istration or a pro&ise -! a voter to perfor& a con$ition to -e :#aifie$ to vote in a

    poitica e"ercise.1 To repeat, the affi$avit is re:#ire$ of i&&i'rants an$ per&anent

    resi$ents a-roa$ -eca#se -! their stat#s in their host co#ntries, the! are pres#&e$ tohave rein:#ishe$ their intent to ret#rn to this co#ntr!< th#s, 9itho#t the affi$avit, thepres#&ption of a-an$on&ent of (hiippine $o&icie sha re&ain.

    J. I%.< I%.< I%.< THE +URIS(RU%ENTIAL %ECLARATION IN CAASI 2S.COURT O4 A((EALS 4IN%S NO A((LICATION TO THE (RESENT CASEBECAUSE IT %I% NOT, 4OR OB2IOUS REASONS, CONSI%ER THEABSENTEE 2OTIN RIHTS O4 4ILI(INOS HO ARE IMMIRANTS AN%(ERMANENT RESI%ENTS IN THEIR HOST COUNTRIES. D The #rispr#$entia$ecaration in Caasi vs. Co#rt of Appeas that 'reen car$ ho$ers are $is:#aifie$ tor#n for an! eective office fin$s no appication to the present case -eca#se the Caasicase $i$ not, for o-vio#s reasons, consi$er the a-sentee votin' ri'hts of 4iipinos 9hoare i&&i'rants an$ per&anent resi$ents in their host co#ntries. In the a$vent of TheOverseas A-sentee 2otin' Act of ;@@? or R.A. /0, the! &a! sti -e consi$ere$ as a1:#aifie$ citi3en of the (hiippines a-roa$1 #pon f#fi&ent of the re:#ire&ents ofre'istration #n$er the ne9 a9 for the p#rpose of e"ercisin' their ri'ht of s#ffra'e. Itst -e e&phasi3e$ that Section 56$7 $oes not on! re:#ire an affi$avit or a pro&iseto 1res#&e act#a ph!sica per&anent resi$ence in the (hiippines not ater than three!ears fro& approva of hisher re'istration,1 the 4iipinos a-roa$ st aso $ecarethat the! have not appie$ for citi3enship in another co#ntr!. Th#s, the! st ret#rn to

    the (hiippines< other9ise, their fai#re to ret#rn 1sha -e ca#se for the re&ova1 oftheir na&es 1fro& the Nationa Re'istr! of A-sentee 2oters an$ hisher per&anent$is:#aification to vote in a-sentia.1

    8. I%.< I%.< I%.< ABSENTEE 2OTIN (RESU((OSES THAT THE1)UALI4IE% CITIEN O4 THE (HILI((INES ABROA%1 IS NOT (HYSICALLY(RESENT IN THE COUNTRY< RE)UIRE% A44I%A2IT I2ES THE ABSENTEEAN O((ORTUNITY TO E(RESS THAT HE HAS NOT ACTUALLYABAN%ONE% HIS %OMICILE IN THE (HILI((INES. D Contrar! to petitionerGscai& that Section 56$7 circ#&vents the Constit#tion, Con'ress enacte$ the a9

    prescri-in' a s!ste& of overseas a-sentee votin' in co&piance 9ith the constit#tiona&an$ate. S#ch &an$ate e"press! re:#ires that Con'ress provi$e a s!ste& of a-senteevotin' that necessari! pres#pposes that the 1:#aifie$ citi3en of the (hiippinesa-roa$1 is not ph!sica! present in the co#ntr!. The provisions of Sections 56$7 an$// are co&ponents of the s!ste& of overseas a-sentee votin' esta-ishe$ -! R.A. No./0. The :#aifie$ 4iipino a-roa$ 9ho e"ec#te$ the affi$avit is $ee&e$ to haveretaine$ his $o&icie in the (hiippines. He is pres#&e$ not to have ost his $o&icie

    -! his ph!sica a-sence fro& this co#ntr!. His havin' -eco&e an i&&i'rant or

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    per&anent resi$ent of his host co#ntr! $oes not necessari! i&p! an a-an$on&ent ofhis intention to ret#rn to his $o&icie of ori'in, the (hiippines. Therefore, #n$er thea9, he st -e 'iven the opport#nit! to e"press that he has not act#a! a-an$one$his $o&icie in the (hiippines -! e"ec#tin' the affi$avit re:#ire$ -! Sections 56$7an$ 06c7 of the a9.

    0. I%.< I%.< I%.< BY 2ESTIN ITSEL4 ITH THE (OERS TO A((RO2E,RE2IE, AMEN% AN% RE2ISE THE IM(LEMENTIN RULES AN%REULATIONS 4OR THE O2ERSEAS ABSENTEE 2OTIN ACT O4 ;@@?,CONRESS ENT BEYON% THE SCO(E O4 ITS CONSTITUTIONALAUTHORITY AN% TRAM(LE% U(ON THE CONSTITUTIONAL MAN%ATE O4IN%E(EN%ENCE O4 THE COMMISSION ON ELECTIONS. D The Co#rt has no'enera po9ers of s#pervision over COMELEC 9hich is an in$epen$ent -o$! 1e"ceptthose specifica! 'rante$ -! the Constit#tion,1 that is, to revie9 its $ecisions, or$ersan$ r#in's. In the sa&e vein, it is not correct to ho$ that -eca#se of its reco'ni3e$e"tensive e'isative po9er to enact eection a9s, Con'ress &a! intr#$e into thein$epen$ence of the COMELEC -! e"ercisin' s#pervisor! po9ers over its r#e*&a=in' a#thorit!. B! virt#e of Section / of R.A. No. /0, Con'ress has e&po9ere$the COMELEC to 1iss#e the necessar! r#es an$ re'#ations to effective! i&pe&entthe provisions of this Act 9ithin si"t! $a!s fro& the effectivit! of this Act.1 This

    provision of a9 foo9s the #s#a proce$#re in $raftin' r#es an$ re'#ations toi&pe&ent a a9 D the e'isat#re 'rants an a$&inistrative a'enc! the a#thorit! tocraft the r#es an$ re'#ations i&pe&entin' the a9 it has enacte$, in reco'nition ofthe a$&inistrative e"pertise of that a'enc! in its partic#ar fie$ of operation. Once aa9 is enacte$ an$ approve$, the e'isative f#nction is $ee&e$ acco&pishe$ an$

    co&pete. The e'isative f#nction &a! sprin' -ac= to Con'ress reative to the sa&ea9 on! if that -o$! $ee&s it proper to revie9, a&en$ an$ revise the a9, -#tcertain! not to approve, revie9, revise an$ a&en$ the IRR of the COMELEC. B!vestin' itsef 9ith the po9ers to approve, revie9, a&en$, an$ revise the IRR for TheOverseas A-sentee 2otin' Act of ;@@?, Con'ress 9ent -e!on$ the scope of itsconstit#tiona a#thorit!. Con'ress tra&pe$ #pon the constit#tiona &an$ate ofin$epen$ence of the COMELEC. Un$er s#ch a sit#ation, the Co#rt is eft 9ith nooption -#t to 9ith$ra9 fro& its #s#a reticence in $ecarin' a provision of a9#nconstit#tiona.

    . I%.< I%.< I%.< (RO2ISION RE)UIRIN RE2IE AN% A((RO2AL BY+OINT CONRESSIONAL O2ERSIHT COMMITTEE O4 2OTIN BY MAILIN ANY COUNTRY A4TER THE ;@@> ELECTIONS %ECLARE%UNCONSTITUTIONAL< SAI% (OER UN%ERMINES THE IN%E(EN%ENCEO4 THE COMMISSION ON ELECTIONS. D Si&iar!, the phrase, 1s#-ect to theapprova of the Con'ressiona Oversi'ht Co&&ittee1 in the first sentence of Section/8./ 9hich e&po9ers the Co&&ission to a#thori3e votin' -! &ai in not &ore thanthree co#ntries for the Ma!, ;@@> eections< an$ the phrase, 1on! #pon revie9 an$

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    approva of the +oint Con'ressiona Oversi'ht Co&&ittee1 fo#n$ in the secon$para'raph of the sa&e section are #nconstit#tiona as the! re:#ire revie9 an$approva of votin' -! &ai in an! co#ntr! after the ;@@> eections. Con'ress &a! notconfer #pon itsef the a#thorit! to approve or $isapprove the co#ntries 9herein votin'

    -! &ai sha -e ao9e$, as $eter&ine$ -! the COMELEC p#rs#ant to the con$itions

    provi$e$ for in Section /8./ of R.A. No. /0. Other9ise, Con'ress 9o#$ overstepthe -o#n$s of its constit#tiona &an$ate an$ intr#$e into the in$epen$ence of theCOMELEC.

    BELLOSILLO, +., separate conc#rrin' opinionF

    /. (OLITICAL LA< ELECTION LAS< O2ERSEAS ABSENTEE 2OTINACT O4 ;@@? 6RE(UBLIC ACT NO. /07< MERE AC)UISITION O4 ANIMMIRANT OR (ERMANENT RESI%ENT STATUS BY A 4ILI(INO CITIENIN A 4OREIN COUNTRY %OES NOT I(SO +URE RESULT IN THEAUTOMATIC SE2ERANCE O4 HIS %OMICILIARY LIN TO THE

    (HILI((INES, NOR THE AC)UISITION O4 A NE %OMICILE O4 CHOICE. DIt has -een s#''este$ -! certain :#arters that a 4iipino citi3ens 9ho are i&&i'rantsan$ per&anent resi$ents a-roa$ are consi$ere$ to have a-an$one$ their (hiippine$o&icie an$ therefore cannot vote in (hiippine eections, since the! are not 9ithinthe constit#tiona conte&pation of 1:#aifie$ 4iipinos a-roa$1 9ho are ei'i-e tovote. In this #ris$iction, it is 9e sette$ that 1$o&icie1 an$ 1resi$ence1 as #se$ ineection a9s are s!non!&o#s ter&s 9hich i&port not on! an intention to resi$e in afi"e$ pace -#t aso persona presence in that pace co#pe$ 9ith con$#ct in$icative ofthat intention. %o&icie is a :#estion of intention an$ circ#&stances. There are three6?7 r#es that st -e o-serve$ in the consi$eration of circ#&stancesF first, that a &anst have a resi$ence or $o&icie so&e9here< secon$, $o&icie is not easi! ost,once esta-ishe$ it is retaine$ #nti a ne9 one is ac:#ire$< an$ thir$, a &an can have

    -#t one resi$ence or $o&icie at a ti&e. The principa ee&ents of $o&icie, i.e.,ph!sica presence in the ocait! invove$ an$ intention to a$opt it as a $o&icie, stconc#r in or$er to esta-ish a ne9 $o&icie. No chan'e of $o&icie 9i res#t if eitherof these ee&ents is a-sent. Intention to ac:#ire a $o&icie 9itho#t act#a resi$ence inthe ocait! $oes not res#t in the ac:#isition of $o&icie, nor $oes the fact of ph!sica

    presence 9itho#t intention. The &ere ac:#isition of an i&&i'rant or per&anentresi$ent stat#s -! a 4iipino citi3en in a forei'n co#ntr! $oes not ipso #re res#t in the

    a#to&atic severance of his $o&iciiar! in= to the (hiippines, nor the ac:#isition of ane9 $o&icie of choice.

    ;. I%.< I%.< I%.< ACTUAL AN% (HYSICAL RESI%ENCE ABROA% SHOUL%NOT AUTOMATICALLY BE E)UATE% ITH ABAN%ONMENT O4(HILI((INE %OMICILE. D The $iaspora of 4iipinos in forei'n an$s starte$ in the9a=e of the -#$'eonin' econo&ic crisis in the 0@Gs an$ its res#tin' ac#te shorta'e ofe&po!&ent opport#nities. This pheno&enon has contin#e$ to the present $a! as thestea$i! risin' cost of ivin' an$ inter&ittent econo&ic crises D 9or$9i$e in their

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    effects D 9ei'he$ &ost heavi! on the or$inar! 4iipino. He $oes not have chchoiceF eave or starve. The #re of the prover-ia 'reener past#res in forei'n an$s iscertain! a potent incentive for an e"o$#s. In &ost cases, the $ecision to &i'rate is

    -orne o#t of the $ire necessities of ife rather than a conscio#s $esire to a-an$on thean$ of -irth. Most i&&i'rants an$ per&anent resi$ents re&ain -o#n$ ver! stron'!

    -! inti&ate ties of fiia, racia, c#t#ra an$ socia reationships 9ith the (hiippines.The! trave -ac= perio$ica! to -e 9ith their frien$s an$ ove$ ones< so&e even o9n,&aintain an$ &ana'e their properties here< an$, the! contin#e to sho9 =een interestin, an$ =eep the&seves a-reast 9ith, poitica an$ socia $eveop&ents in the co#ntr!thro#'h the &ass &e$ia. The! &a=e si'nificant contri-#tions to the nation, thro#'htheir re'#ar $oar re&ittances that have tre&en$o#s! shore$ #p o#r sa''in' nationaecono&!. In the face of these reaities, I a& convince$ &ore than ever that act#a an$

    ph!sica resi$ence a-roa$ sho#$ not a#to&atica! -e e:#ate$ 9ith a-an$on&ent of(hiippine $o&icie. The circ#&stances en#&erate$ in the i&&e$iate! prece$in'

    para'raph are vai$ in$icia of anis &anen$i 6intent to re&ain7 an$ anis

    reverten$i 6intent to ret#rn7, 9hich sho#$ not si&p! -e -r#she$ asi$e in $eter&inin'9hether the ri'ht to vote sho#$ -e $enie$ the i&&i'rants an$ per&anent resi$ents.In$ee$, there is no rh!&e nor reason to #n$#! &ar'inai3e this cass of 4iipinos.

    ?. I%.< I%.< I%.< THE EECUTION O4 THE RE)UIRE% A44I%A2IT IS ANA44IRMATION ON THE (ART O4 THE IMMIRANT OR (ERMANENTRESI%ENT THAT HIS STAY ABROA% SHOUL% NOT BE CONSTRUE% ASRELIN)UISHMENT O4 HIS OL% %OMICILE. D It is si'nificant to stress,ho9ever, that Sec. 5, par. 6$7, of the A-sentee 2otin' La9 in fact $is:#aifiesi&&i'rants an$ per&anent resi$ents fro& votin' as a 'enera r#e. This is precise! in

    reco'nition of the fact that their stat#s as s#ch &a! in$ee$ -e a -a$'e of their intent toa-an$on their (hiippine $o&icie an$ sette per&anent! in their host co#ntr!. B#t atthe sa&e ti&e, the e'isat#re provi$e$ for a &echanis& in the a9 for ascertainin'rea intentF an i&&i'rant or per&anent resi$ent 9ho 9ishes to e"ercise his ri'ht ofs#ffra'e is re:#ire$ as a con$ition sine :#a non to e"ec#te an affi$avit $ecarin' thathe sha res#&e act#a, ph!sica an$ per&anent resi$ence in the (hiippines not aterthan three 6?7 !ears fro& his re'istration #n$er the a9< an$ that he has not appie$ forciti3enship in another co#ntr!. The a9 in effect $ra9s a $istinction -et9een t9o 6;7casses of i&&i'rants or per&anent resi$ents D those 9ho have reno#nce$ their o$$o&icie in the (hiippines, an$ those 9ho sti consi$er the (hiippines as their$o&icie of ori'in. The e"ec#tion of the affi$avit is an affir&ation on the part of thei&&i'rant or per&anent resi$ent that his sta! a-roa$ sho#$ not -e constr#e$ as arein:#ish&ent of his o$ $o&icie.

    >. I%.< I%.< I%.< THE LA CONTAINS (RO(ER AN% A%E)UATESA4EUAR%S AAINST MISUSE OR ABUSE O4 THE (RI2ILEE of the Act ao9s a :#aifie$ 4iipinosa-roa$ to vote for (resi$ent, 2ice*(resi$ent, Senators an$ part!*ist representatives. In

    reation to this, Section /0.5 e&po9ers the Co&&ission on Eections to or$er theproca&ation of 9innin' can$i$ates. Since it is Con'ress 9hich has -een 'rante$ -!the Constit#tion the a#thorit! an$ $#t! to canvass the votes an$ procai& the 9innin'can$i$ates for presi$ent an$ vice*presi$ent, I echo the senti&ent of &! coea'#es thatthe po9er 'iven to COMELEC -! Section /0.5 of R.A. /0 sho#$ -e #n$erstoo$ to

    -e i&ite$ on! to the proca&ation of 9innin' can$i$ates for the positions of senatorsan$ part!*ist representatives. The eection ret#rns for the positions of presi$ent an$vice*presi$ent sho#$ then -e certifie$ -! the Boar$ of Canvassers to Con'ress an$not to COMELEC as provi$e$ for in Section /0.> of the Act.

    ?. I%.< I%.< I%.< THE ROLE O4 THE +OINT CONRESSIONAL O2ERSIHTCOMMITTEE MUST BE UN%ERSTOO% AS BEIN LIMITE% ONLY TO THEMONITORIN AN% E2ALUATION O4 THE IM(LEMENTATION O4 THE ACT(URSUANT TO THE (OER O4 CONRESS TO CON%UCT IN)UIRIES INAI% O4 LEISLATION. D R.A. /0 creates a +oint Con'ressiona Oversi'htCo&&ittee 6+COC7 co&pose$ of Senators an$ Me&-ers of the Ho#se ofRepresentatives, e&po9ere$ to 1revie9, revise, a&en$ an$ approve the I&pe&entin'R#es an$ Re'#ations 6IRR7 pro'ate$ -! the COMELEC,1 an$ to approve thevotin' -! &ai in not &ore than three 6?7 co#ntries for the Ma! ;@@> eections an$ inan! co#ntr! $eter&ine$ -! COMELEC. The Co#rt here fin$s #nani&it! in ho$in'

    that Con'ress, -! vestin' itsef 9ith the aforesai$ po9ers, has 'one -e!on$ the scopeof its constit#tiona a#thorit!. It is a prono#nce&ent that, in &! vie9, can har$! -es#scepti-e to chaen'e. The Constit#tion or$ains that constit#tiona co&&issionss#ch as the COMELEC sha -e in$epen$ent. The COMELEC has the constit#tionaa#thorit! to 1enforce an$ a$&inister a a9s an$ re'#ations reative to the con$#ct ofan eection1 an$ to pro'ate its r#es of proce$#re. The roe therefore of the +COCst -e #n$erstoo$ as -ein' i&ite$ on! to the &onitorin' an$ eva#ation of thei&pe&entation of the Act p#rs#ant to the po9er of Con'ress to con$#ct in:#iries inai$ of e'isation.

    (ANANIBAN, +., separate opinionF/. CONSTITUTIONAL LA< SU44RAE< REASON 4OR RESI%ENCERE)UIREMENT. D I -eieve that, tra$itiona!, the a9 re:#ires resi$ence -eca#se

    presence in a certain ocait! ena-es a person to =no9 the nee$s an$ the pro-e&s ofthat area. E:#a! i&portant, it aso &a=es one -eco&e ac:#ainte$ 9ith the can$i$ates

    D their :#aifications, s#ita-iit! for a partic#ar office an$ patfor& of 'overn&ent.Th#s, the f#n$a&enta a9 re:#ires, not #st that there -e a &ini& of one*!earresi$ence in the co#ntr!, -#t aso that si" &onths of that perio$ -e spent in the pace

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    9here the -aot is to -e cast. S#ch $etaie$ re:#ire&ent 9i hopef#! 'ive the voterss#fficient =no9e$'e a-o#t a specific to9n as to hep the& choose its oca officias9ise!, :#ite apart fro& #n$erstan$in' eno#'h of the entire co#ntr! so as to prepare tovote sa'acio#s! for nationa ea$ers. Atho#'h the fore'oin' $isc#ssions 9ere #se$ to

    #stif! the resi$ence re:#ire&ent vis*a*vis can$i$ates for eective p#-ic offices, I

    -eieve that their rationae can easi! an$ anao'ica! fit the nee$s of voters as 9e.;. I%.< I%.< ACTUAL (RESENCE IN THE (HILI((INES IS NO LONERIN%IS(ENSABLE TO MAE %ISCERNIN 4ILI(INOS NO THE(ROBLEMS O4 THEIR COUNTRY AN% TO %ECI%E HO AMON THECAN%I%ATES 4OR NATIONAL (OSITIONS %ESER2E THEIR MAN%ATE. DThe $efinin' essence of &! position is thisF in the &i$st of the no9 avaia-e e*a'eco&nications faciities, act#a presence in the (hiippines is no on'erin$ispensa-e to &a=e $iscernin' 4iipinos =no9 the pro-e&s of their co#ntr! an$ to$eci$e 9ho a&on' can$i$ates for nationa positions $eserve their &an$ate. In$ee$,the Infor&ation A'e has 'iven overseas 4iipinos convenient &eans to infor&the&seves of o#r co#ntr!Gs nee$s, as 9e as of the s#ita-iit! of can$i$ates fornationa offices. After a, &an! of the& ive a-roa$, not -eca#se the! 9ant toa-an$on their an$ of -irth, -#t -eca#se the! have -een constraine$ to $o so -!econo&ic, professiona, iveihoo$ an$ other pressin' p#rs#its. Ine#cta-!, the! re&ittheir har$*earne$ &one! to hep their reatives here an$ their co#ntr! as a 9hoe.2eri!, their eas! access to (hiippine &ass &e$ia =eep the& constant! a9are ofhappenin's in their native co#ntr!. Nationa $aiies an$ other perio$icas are so$re'#ar! in 4iipino encaves in forei'n shores. Severa oca an$ co&nit!

    p#-ications in these areas cater &ain! to 4iipino e"patriates, p#-ishin' ne9s an$

    opinions not on! a-o#t their aien nei'h-orhoo$s, -#t aso :#ite e"tensive! a-o#ttheir ho&ean$.

    ?. I%.< I%.< IT OUL% BE THOROUHLY UNREASONABLE TO E(ECT4OREIN*BASE% 4ILI(INOS TO COME BAC TO THE (HILI((INES 4ORONE YEAR E2ERY THREE YEARS AN% ABAN%ON THEIR +OBS +UST TO BEABLE TO COM(LY LITERALLY ITH THE RESI%ENTIAL RE)UIREMENTO4 SU44RAE. D The e*a'e has opene$ 9in$o9s to the (hiippines in a pervasivean$ thoro#'h &anner, s#ch that act#a presence in the co#ntr! is no on'er nee$e$ to&a=e an intei'ent assess&ent of 9ho& to vote for as o#r nationa ea$ers. I &a=e

    this e&phasis on nationa officias, -eca#se the A-sentee 2otin' La9 ao9s overseasvotin' on! for (resi$ent, 2ice (resi$ent, senators an$ part!*ist representatives. This$istinction is i&portant, -eca#se the infor&ation avaia-e thro#'h 9e-sites an$ other&o$ern &e$ia o#tets is a$$resse$ &ain! to nationa concerns. To insist that on!those 9ho can $e&onstrate act#a ph!sica resi$ence in the co#ntr! for one !ear D oron! those 9ho have co&pie$ 9ith the &ore $iffic#t*to*#n$erstan$ concept of$o&icie D 9o#$ -e entite$ to vote 9o#$ -e to cin' a$a&ant! an$ #nreasona-!to a itera interpretation of the Constit#tion 9itho#t re'ar$ for its &ore i-eratin'

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    spirit or rationae. S#ch insistence 9o#$ res#t in ren$erin' in#tie an! &eanin'f#effort to accor$ s#ffra'e to 4iipinos a-roa$. S#ch proposition 9o#$ &a=e theconstit#tiona interpretation anachrono#s in the face of the refreshin' an$ p#satin'reaities of the 9or$. In &! vie9, it 9o#$ -e thoro#'h! #nreasona-e to e"pectforei'n*-ase$ 4iipinos to co&e -ac= here for one !ear ever! three !ears an$ a-an$on

    their o-s #st to -e a-e to co&p! itera! 9ith the resi$entia re:#ire&ent ofs#ffra'e.

    CAR(IO, +., conc#rrin' opinionF

    /. CONSTITUTIONAL LA< SU44RAE< TO RE)UIRE ABSENTEE2OTERS TO COM(LY ITH THE %OUBLE RESI%ENCY RE)UIREMENT ISTO IM(OSE AN IM(RACTICAL AN% E2EN IM(OSSIBLE CON%ITION TOTHE EERCISE O4 THE CONSTITUTIONAL RIHT TO 2OTE. D To re:#irea-sentee voters to co&p! 9ith the $o#-e resi$enc! re:#ire&ent is to i&pose ani&practica an$ even an i&possi-e con$ition to the e"ercise of the constit#tiona ri'ht

    to vote. In the first pace, the secon$ resi$enc! re:#ire&ent of esta-ishin' resi$encein a ocait! in the (hiippines 9here the voters propose to vote is i&possi-e toco&p! since overseas 4iipinos 9i o-vio#s! not vote in an! ocait! in the(hiippines. I&posin' the $o#-e resi$enc! re:#ire&ent &a=es the a-sentee votin' ane&pt! ri'ht of overseas 4iipinos. Certain!, the 9ise fra&ers of the Constit#tion 9ereincapa-e of s#ch a-s#r$ sche&e.

    ;. I%.< I%.< THE CONCE(T O4 ABSENTEE 2OTIN NEATES ARESI%ENCY RE)UIREMENT IN THE COUNTRY O4 CITIENSHI( O4 THE2OTER< BY %E4INITION AN ABSENTEE 2OTER IS A NON*RESI%ENT

    2OTER. D The concept of a-sentee votin' ne'ates a resi$enc! re:#ire&ent in theco#ntr! of citi3enship of the voter. B! $efinition, an a-sentee voter is a non*resi$entvoter. O-vio#s!, the $o#-e resi$enc! re:#ire&ent in Section / of Artice 2 appieson! to resi$ent or non*a-sentee 4iipino voters. To i&pose the $o#-e resi$enc!re:#ire&ent on a-sentee 4iipino voters is an e're'io#s ano&a! for it 9i re:#irea-sentee 4iipino voters to co&p! 9ith the sa&e resi$enc! re:#ire&ent i&pose$ onresi$ent or non*a-sentee 4iipino voters. If a-sentee 4iipino voters are re:#ire$ toresi$e in the (hiippines #st i=e resi$ent or non*a-sentee 4iipino voters, 9h! createan a-sentee votin' s!ste& for overseas 4iipinos in the first paceK App!in' the$o#-e resi$enc! re:#ire&ent on a-sentee voters 9i ren$er the provision on a-sentee

    votin' in Section ; a s#rp#sa'e, a constit#tiona &an$ate $evoi$ of &eanin'. Even9itho#t the a-sentee votin' provision in Section /, Con'ress can vai$! enact a a9ao9in' resi$ent or non*a-sentee 4iipino voters D those 9ho co&p! 9ith the$o#-e resi$enc! re:#ire&ent D to vote a-roa$ in (hiippine e&-assies or cons#ates.There is no constit#tiona prohi-ition on re'istere$ 4iipino voters 9ho co&p! 9iththe $o#-e resi$enc! re:#ire&ent to cast their -aots at a (hiippine e&-ass! orcons#ate a-roa$ 9here the! happen to -e on eection $a!. If the a-sentee votin's!ste& in Section ; 9ere for the -enefit on! of resi$ent or non*a-sentee 4iipinos,

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    then there 9o#$ -e no nee$ to provi$e for it in the Constit#tion.

    ?. I%.< I%.< THE 4RAMERS O4 THE /08 CONSTITUTION INTEN%E% THEABSENTEE 2OTIN (RO2ISION AS AN ECE(TION TO THE %OUBLERESI%ENCY RE)UIREMENT. D The fra&ers of the /08 Constit#tion specifica!intro$#ce$ the a-sentee votin' provision in Section ; precise! to enfranchise

    overseas 4iipinos 9ho $o not co&p! 9ith the $o#-e resi$enc! re:#ire&ent inSection /. itho#t the a-sentee votin' provision in Section ;, Con'ress co#$ notvai$! enact a a9 enfranchisin' overseas 4iipinos 9ho $o not co&p! 9ith the$o#-e resi$enc! re:#ire&ent. As s#ccinct! e"paine$ -! Co&&issioner ChristianMonso$ $#rin' the $ei-erations in the Constit#tiona Co&&ission. The fra&ers ofthe Constit#tion inten$e$ the a-sentee votin' provision as an e"ception to the $o#-eresi$enc! re:#ire&ent.

    >. I%.< I%.< THERE IS NO CONSTITUTIONAL (RO2ISION AAINST THEENACTMENT O4 LEISLATION (RESCRIBIN THE REAC)UISITION O4

    %OMICILE OR RESI%ENCE IN THE (HILI((INES, +UST AS THERE IS NOCONSTITUTIONAL (RO2ISION AAINST THE ENACTMENT O4LEISLATION (RESCRIBIN THE REAC)UISITION O4 (HILI((INECITIENSHI(. D The :#estion of ho9 a 4iipino, 9ho has -eco&e a per&anentresi$ent or i&&i'rant in a forei'n co#ntr!, &a! reac:#ire his $o&icie or resi$ence inthe (hiippines is a &atter for or$inar! e'isation. The reac:#isition of the (hiippine$o&icie or resi$ence that a 4iipino ha$ ost is 9ithin the po9er of Con'ress toe'isate. The Constit#tion $oes not $efine 9hat $o&icie or resi$ence &eans. There isaso no constit#tiona prohi-ition a'ainst the enact&ent of e'isation prescri-in' thereac:#isition of $o&icie or resi$ence in the (hiippines, #st as there is noconstit#tiona prohi-ition a'ainst the enact&ent of e'isation prescri-in' thereac:#isition of (hiippine citi3enship. Th#s, RA No. 0/8/ ao9s a for&er nat#ra*

    -orn 4iipino 9ho -eca&e a forei'ner to reac:#ire (hiippine citi3enship -! fiin' asi&pifie$ a$&inistrative petition an$ ta=in' an oath of ae'iance to the (hiippines.Section 56$7 of RA No. /0, 9hich prescri-es the reac:#isition of resi$ence -! a4iipino thro#'h the e"ec#tion of an affi$avit statin' he is res#&in' resi$ence in the(hiippines, is si&iar! 9e 9ithin the po9er of Con'ress to enact an$ is th#sconstit#tiona. c$asia#r

    5. I%.< I%.< THE INTERNATIONAL CO2ENANT ON CI2IL AN% (OLITICAL

    RIHTS RE)UIRES THE (HILI((INES TO RES(ECT THE (EO(LEGS RIHTO4 SU44RAE 1ITHOUT UNREASONABLE RESTRICTIONS1< TO RE)UIREO2ERSEAS 4ILI(INOS TO RETURN ITHIN /; MONTHS SO THEY MAY2OTE ABROA% AS ABSENTEE 2OTERS IS (LAINLY AN UNREASONABLERESTRICTION OUTLAE% BY THE CO2ENANT. D The ri'ht of s#ffra'e is thecornerstone of a representative 'overn&ent i=e that esta-ishe$ in the /08Constit#tion. A representative 'overn&ent is e'iti&ate 9hen those represente$ eecttheir representatives in 'overn&ent. The consent of the 'overne$ is 9hat sta&ps

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    e'iti&ac! on those 9ho 'overn. This consent is e"presse$ thro#'h the ri'ht ofs#ffra'e. It is a precio#s ri'ht for 9hich &an! have fo#'ht an$ $ie$ so that others &a!free! e"ercise it. A 'overn&ent that $enies s#ch ri'ht on fi&s! or &eanin'ess'ro#n$s $oes so at its peri. The Internationa Covenant on Civi an$ (oitica Ri'hts,to 9hich the (hiippines is a si'nator!, re:#ires the (hiippines to respect the peopeGs

    ri'ht of s#ffra'e 19itho#t #nreasona-e restrictions.1 The (hiippines is $#t! -o#n$#n$er internationa a9 to co&p! in 'oo$ faith 9ith its treat! o-i'ations #n$er theCovenant. To re:#ire overseas 4iipinos to ret#rn to the (hiippines t9ice 9ithin /;&onths so the! &a! vote a-roa$ as a-sentee voters is pain! an #nreasona-erestriction o#ta9e$ -! the Covenant. hen the fra&ers of the Constit#tionintro$#ce$ a-sentee votin' in Section ; of Artice 2, the! 9ere a9are of the co#ntr!Gso-i'ations #n$er the Covenant. In their $isc#ssions on the $eath penat!, h#&anri'hts an$ the Bi of Ri'hts, the fra&ers of the Constit#tion often referre$ to theco#ntr!Gs o-i'ations #n$er the Covenant. It is inconceiva-e that the fra&ers inten$e$overseas 4iipinos to co&p! 9ith the $o#-e resi$enc! re:#ire&ent, an #nreasona-e

    restriction that 9o#$ patent! vioate Artice ;5 of the Covenant an$ practica!ne'ate the overseas 4iipinosG ri'ht of s#ffra'e.

    CAR(IO*MORALES, +., separate opinionF

    /. (OLITICAL LA< ELECTION LAS< THE O2ERSEAS ABSENTEE2OTIN ACT O4 ;@@? 6RE(UBLIC ACT NO. /07< THE RE)UIRE%A44I%A2IT EECUTE% IN ACCOR%ANCE ITH THE LA BY A 4ILI(INOIMMIRANT OR (ERMANENT RESI%ENT O4 ANOTHER COUNTRYE(RESSIN HIS INTENT TO RESUME (HYSICAL (ERMANENTRESI%ENCE IN THE (HILI((INES IS AN ELO)UENT (ROO4 O4 HISINTENTION NOT TO ABAN%ON HIS %OMICILE O4 ORIIN IN THE(HILI((INES. D It is &! vie9 that the affi$avit e"ec#te$ in accor$ance 9ith Section56$7 of R.A. /0 -! a 4iipino i&&i'rant or per&anent resi$ent of another co#ntr!e"pressin' his intent to res#&e ph!sica per&anent resi$ence in the (hiippines is aneo:#ent proof of his intention not to a-an$on his $o&icie of ori'in in the(hiippines. It is a state&ent #n$er oath of 9hat a 4iipino see=s to $o for the f#t#re ofhis &e&-ership in a poitica co&nit!. h! sho#$ this affi$avit -e $iscre$ite$ onthe &ere spec#ation that the i&&i'rant &i'ht not f#fi his #n$erta=in' to ret#rn tothe (hiippines for 'oo$K If 4iipinos 9ho are te&porari! resi$in' in forei'n

    co#ntries are accor$e$ f# faith an$ cre$it as to their $o&iciiar! ties no &atter ho9in$efinite their a-sence fro& the (hiippines, 9hat &ore in the case of 4iipinoi&&i'rants 9ho have for&a! $ecare$ their intent to sette in their ho&ean$K hiehe &a! have sta!e$ on a &ore or ess per&anent -asis in the host co#ntr! 9hichconferre$ on hi& the stat#s of an i&&i'rant an$ &a! -e ani&ate$ 9ith a the $esireto re&ain there, #nti an$ #ness a 4iipino i&&i'rant ha$ cate'orica! e"presse$ -!9or$s or -! $ee$s his intent to no on'er ret#rn to his $o&icie of ori'in, noconc#sion can -e reache$ as to a chan'e in $o&icie fro& one of ori'in to one of

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    choice, hence, the o$ $o&icie s#-sists. 4or at the core of ever! 4iipino i&&i'rantGs-ein' is the fact of his (hiippine citi3enship. He is, after a, sti a 4iipino.

    ;. I%.< I%.< I%.< UNTIL THE O((ORTUNITY TO EECUTE THE RE)UIRE%A44I%A2IT HAS BEEN TOTALLY 4OREONE BY A 4ILI(INO IMMIRANT,IN THE ABSENCE O4 ANY CONCLUSI2E E2I%ENCE O4 HIS AC)UISITION

    O4 A NE %OMICILE, THE 4ILI(INO IMMIRANTGS %OMICILE O4 ORIINIS INTACT, HIS (RESENCE ABROA% AN% HIS %ESIRE TO REMAINTHEREIN NOTITHSTAN%IN. D The ac:#isition of a ne9 $o&icie st -eco&pete! perfecte$ -! a conc#rrence of the fact#& of re&ova to a ne9 ocait!, theanis to re&ain there, an$ a-an$on&ent of an$ intent not to ret#rn to the for&er$o&icie, for if there is a p#rpose to ret#rn, 9hether secret or open, no oss or chan'eof $o&icie 9i res#t. T9o t!pes of 4iipino i&&i'rants st then -e $istin'#ishe$.The first, a 4iipino 9ho has opte$ not to e"ec#te the re:#ire$ affi$avit #n$er Section56$7 of R.A. /0, is cear! $is:#aifie$ to e"ercise s#ffra'e for he has &anifeste$the anis non reverten$i 9ith respect to his $o&icie in the (hiippines, there-!effect#atin' his ac:#isition of a ne9 $o&icie. The secon$, a 4iipino 9ho $ecares his9ish to -e re#nite$ 9ith his ho&ean$ has, 9itho#t $o#-t, sho9n that his resi$ence ofori'in re&aine$ #nchan'e$ an$ so he is entite$ to vote #n$er the Overseas A-sentee2otin' La9. Therefore, #nti that opport#nit! to e"ec#te the affi$avit has -een tota!fore'one -! a 4iipino i&&i'rant, in the a-sence of an! conc#sive evi$ence of hisac:#isition of a ne9 $o&icie, the 4iipino i&&i'rantGs $o&icie of ori'in is intact, his

    presence a-roa$ an$ his $esire to re&ain therein not9ithstan$in'.

    ACUNA, +., conc#rrin' opinionF

    /. (OLITICAL LA< ELECTION LAS< THE O2ERSEAS ABSENTEE2OTIN ACT O4 ;@@? 6RE(UBLIC ACT NO. /07< THE ABAN%ONMENT O4THE (RESENT %OMICILE O4 CHOICE, BY THE EECUTION O4 THEA44I%A2IT, O(ERATES TO RE2I2E THE %OMICILE O4 ORIIN TORE(LACE IT BECAUSE O4 THE (RINCI(LE THAT NO (ERSON CAN BEITHOUT A %OMICILE AT ANYTIME. D (etitioner conten$s that 4iipinos 9hoesta-ish per&anent resi$ence a-roa$ have there-! a-an$one$ their (hiippine$o&icie of ori'in an$ repace$ it 9ith a $o&icie of choice in a forei'n co#ntr!. This&a! in$ee$ -e tr#e, -#t 9ith the e"ec#tion of the affi$avit provi$e$ for #n$er Section5 6$7 afore&entione$, the affiant e"press! states an a-an$on&ent of sai$ $o&icie of

    choice. The e'a effect of this e"pression is to revive the $o&icie of ori'in. 4or#ni=e a $o&icie of choice, 9hich re:#ires -oth intention an$ ph!sica presence to -eesta-ishe$ or &aintaine$, the $o&icie of ori'in can -e revive$ -! an intention

    proper! e"presse$. Th#s, the a-an$on&ent of the present $o&icie of choice, -! thee"ec#tion of the affi$avit, operates to revive the $o&icie of ori'in to repace it,

    -eca#se of the principe that no person can -e 9itho#t a $o&icie at an! ti&e.

    ;. I%.< I%.< I%.< THROUH THE EECUTION O4 THE RE)UIRE%

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    A44I%A2IT, THE A44IANT %OES THE O(ERATI2E ACT THAT MAES HIMONCE MORE A (HILI((INE %OMICILIARY< THE RE)UIREMENT O4RESUMIN ACTUAL (HYSICAL (RESENCE ITHIN THREE 6?7 YEARS ISONLY TEST O4 SUCH INTENTION, BUT IS NOT NEE%E% TO E44ECTCHANE OR RE2ERSION O4 %OMICILE. D The &o&ent a forei'n $o&icie is

    a-an$one$, the native $o&icie is reac:#ire$. hen a person a-an$ons his $o&icieof choice, his $o&icie of ori'in i&&e$iate! reverts an$ re&ains #nti a ne9$o&icie of choice is esta-ishe$. On the a-an$on&ent of a $o&icie of choice, the$o&icie of ori'in i&&e$iate! reverts, 9itho#t re'ar$ to an! $efinite intent to ret#rnto s#ch ori'ina $o&icie, provi$e$ there is a $efinite intent fina! to a-an$on theac:#ire$ $o&icie of choice. Thro#'h the e"ec#tion of the affi$avit, the affiant $oesthe operative act that &a=es sai$ affiant once &ore a (hiippine $o&iciiar!. There:#ire&ent of res#&in' act#a ph!sica presence 9ithin three 6?7 !ears is on! a testof s#ch intention, -#t is not nee$e$ to effect the chan'e or reversion of $o&icie. Ifthe affiant $oes not res#&e the resi$ence ph!sica! 9ithin sai$ perio$, then the intent

    e"presse$ in the affi$avit is $efective an$ the a9 9i $ee& it inoperative, there-!ao9in' re&ova of affiantGs na&e fro& the Nationa Re'istr! of A-sentee 2oters.

    PUNO, J., cocu!!"# $% %"&&'("# o)""o*

    /. (OLITICAL LA< ELECTION LAS< THE O2ERSEAS ABSENTEE2OTIN ACT O4 ;@@? 6RE(UBLIC ACT NO. /07< THE MA+ORITY ERRE% INRULIN THAT SECTION ; O4 ARTICLE 2 O4 THE CONSTITUTION%IS(ENSE% ITH THE RESI%ENCE RE)UIREMENTGS (RO2I%E% UN%ER

    SECTION / O4 THE SAME ARTICLE. D The intent of the &e&-ers of theConstit#tiona Co&&ission to app! the resi$ence re:#ire&ents to a-sentee voters isevi$ent fro& its $ei-erations. The! precise! #se$ the phrase 1)UALI4IE%4ILI(INOS ABROA%1 to stress that the a-sentee voter st have a the:#aifications in Section /, Artice 2I of the Constit#tion. In the co#rse of the$ei-erations, 4r. Bernas perceive$ a pro-e& that &a! arise fro& the &eanin' of thesecon$ resi$ence re:#ire&ent on the pace of re'istration an$ votin'. As note$, a:#aifie$ voter nor&a! re'isters an$ votes in the pace 9here he is $o&icie$ or hasresi$e$ for si" &onths. 4r. Bernas feare$ that the secon$ resi$ence re:#ire&ent &a!

    pose a constit#tiona o-stace to a-sentee votin' 1#ness the vote of the person 9ho is

    a-sent is a vote 9hich 9i -e consi$ere$ as cast in the pace of his $o&icie.14oo9in' the o-servation of 4ather Bernas an$ to o-viate the constit#tiona pro-e&,the &e&-ers of the Constit#tiona Co&&ission then $isc#sse$ the s!ste& ofre'istration of :#aifie$ 4iipinos a-roa$ 9ho 9i -e ao9e$ to vote. It 9as a'ree$that their re'istration a-roa$ 9o#$ -e consi$ere$ as re'istration in a partic#arocait! in the (hiippines 9here he is $o&icie$, an$ the vote cast a-roa$ 9o#$ -econsi$ere$ cast in that partic#ar ocait!. It is cr!sta cear fro& the $ei-erations, thatthe &aorit! erre$ in r#in' that Section ; of Artice 2 of the Constit#tion $ispense$

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    9ith the resi$ence re:#ire&ents provi$e$ #n$er Section / of the sa&e Artice.

    ;. I%.< I%.< I%.< AN 1IMMIRANT1 OR A 1(ERMANENT RESI%ENT1 O4 A4OREIN COUNTRY IS %EEME% TO HA2E ABAN%ONE% HIS %OMICILE INTHE (HILI((INES. D In Roa$e3*Marcos v. COMELEC, 9e r#e$ that $o&icieof ori'in is not easi! ost. To s#ccessf#! effect a chan'e of $o&icie, one st

    $e&onstrate an act#a re&ova or an act#a chan'e of $o&icie< a -ona fi$e intentionof a-an$onin' the for&er pace of resi$ence an$ esta-ishin' a ne9 one< an$ acts9hich correspon$ 9ith p#rpose. This chan'e of $o&icie is effecte$ -! a 4iipino 9ho

    -eco&es an 1i&&i'rant1 or a 1per&anent resi$ent1 of a forei'n co#ntr!. Th#s, 9ehe$ in Caasi v. Co#rt of Appeas, vi3F Mi'#eGs appication for i&&i'rant stat#s an$

    per&anent resi$ence in the U.S. an$ his possession of a 'reen car$ attestin' to s#chstat#s are conc#sive proof that he is a per&anent resi$ent of the U.S. $espite hisoccasiona visits to the (hiippines. The 9aiver of s#ch i&&i'rant stat#s sho#$ -e asin$#-ita-e as his appication for it. A-sent cear evi$ence that he &a$e an irrevoca-e9aiver of that stat#s or that he s#rren$ere$ his 'reen car$ to the appropriate U.S.a#thorities -efore he ran for &a!or. . . The $octrine in Caasi is -! no &eans ne9. O#reection a9s have contin#o#s! re'ar$e$ 1i&&i'rants1 or 1per&anent resi$ents1 of aforei'n co#ntr! to have ost their $o&icies in the (hiippines an$ hence are not:#aifie$ to r#n for p#-ic office. There is no reason not to app! the Caasi r#in' in$isp#tes invovin' the :#aification of voters. In essence, -oth cases concernf#fi&ent of the resi$ence re:#ire&ents. Section 56$7 of Rep. Act No. /0 itsefreinforces the appica-iit! of the Caasi $octrine. As o-serve$ -! the &aorit!, Rep.Act No. /0 $is:#aifies an i&&i'rant or a per&anent resi$ent 9ho is reco'ni3e$ ass#ch in another co#ntr! 1-eca#se i&&i'ration or per&anent resi$ence in another

    co#ntr! i&pies ren#nciation of oneGs resi$ence in his co#ntr! of ori'in.1?. I%.< I%.< I%.< THE MA+ORITY RULIN ON THE NATURE O4 THEA44I%A2IT TO BE EECUTE% BY AN 1IMMIRANT1 OR A 1(ERMANENTRESI%ENT1 IS INCONSISTENT. D I s#-&it that the &aorit! r#in' on the nat#reof the affi$avit to -e e"ec#te$ -! an 1i&&i'rant1 or a 1per&anent resi$ent1 isinconsistent. On one han$, it theori3es that the act 1serves as an e"picit e"pressionthat he ha$ not in fact a-an$one$ his $o&icie of ori'in.1 This conce$es that 9hie an1i&&i'rant1 or a 1per&anent resi$ent1 has ac:#ire$ a ne9 $o&icie in a forei'nco#ntr! -! virt#e of his stat#s as s#ch, Rep. Act No. /0 9o#$ consi$er hi& not to

    have a-an$one$ his $o&icie in the (hiippines. On the other han$, the &aorit! asotheori3es that the affi$avit constit#tes an 1e"press 9aiver of his stat#s as an i&&i'rantor per&anent resi$ent,1 an$ #pon f#fi&ent of the re:#ire&ents of re'istration, 1he&a! sti -e consi$ere$ as a G:#aifie$ citi3en of the (hiippines a-roa$G for p#rposesof e"ercisin' his ri'ht of s#ffra'e.1 This pres#pposes that the 1i&&i'rant1 or1per&anent resi$ent1 a-an$one$ his $o&icie in the (hiippines, -#t see=s toreac:#ire this $o&icie -! the e"ec#tion of the affi$avit. The first theor! is #ntena-e.Its inevita-e res#t 9o#$ -e the esta-ish&ent of t9o $o&icies, i.e., $o&icie in the

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    (hiippines an$ $o&icie in a forei'n co#ntr! 9here he is consi$ere$ an 1i&&i'rant1or a 1per&anent resi$ent.1 This r#in' 9i contravene the principe in privateinternationa a9 that a person can -e $o&icie$ on! in one pace at a 'iven ti&e. Thesecon$ theor! is e:#a! #ntena-e. A person 9ho has a-an$one$ his $o&icie ofori'in -! esta-ishin' a $o&icie of choice cannot #st revert -ac= to his $o&icie of

    ori'in. He st satisf! the sa&e re:#isites for ac:#irin' a ne9 $o&icie, i.e., an act#are&ova or an act#a chan'e of $o&icie< a -ona fi$e intention of a-an$onin' thefor&er pace of resi$ence an$ esta-ishin' a ne9 one< an$ acts 9hich correspon$ 9iththe p#rpose. An e"istin' $o&icie cannot -e ost -! a-an$on&ent aone, even if thereis an intent to ac:#ire a ne9 one< the e"istin' $o&icie contin#es #nti a ne9 one is infact 'aine$. To a-an$on $o&icie, a person st choose a ne9 $o&icie, act#a!resi$e in the pace chosen, an$ inten$ that it -e the principa an$ per&anent resi$ence.That is, there can -e no chan'e of $o&icie 9itho#t the conc#rrence of act an$ intent.

    >. I%.< I%.< I%.< THE RE)UIRE% A44I%A2IT MERELY (RO2ES THEINTENT TO RETURN BUT NOT THE OTHER RE)UISITES 4OR RE*AC)UIRIN THE %OMICILE O4 ORIIN< HAT MAES THE INTENTE(RESSE% IN THE A44I%A2IT E44ECTI2E AN% O(ERATI2E IS THE4UL4ILLMENT O4 THE (ROMISE TO RETURN TO THE (HILI((INES AN%UNTIL THEN, THE ABSENTEE %OES NOT (OSSESS THE NECESSARYRE)UISITES AN% THERE4ORE, CANNOT BE CONSI%ERE% A )UALI4IE%2OTER. D ith $#e respect, I s#-&it that the affi$avit &ere! proves the intent toret#rn -#t not the other re:#isites for reac:#irin' the $o&icie of ori'in. Intent, 9hichis not co#pe$ 9ith act#a ph!sica transfer, is not s#fficient either to a-an$on thefor&er $o&icie or to esta-ish a ne9 $o&icie. Th#s, the vie9 that $o&icie co#$ -e

    esta-ishe$ as soon as the o$ is a-an$one$ even tho#'h the person has not !et arrive$at the ne9 $o&icie, has not -een accepte$. To stress, the -#r$en of esta-ishin' achan'e in $o&icie is #pon the part! 9ho asserts it. A personGs $ecarations as to 9hathe consi$ers his ho&e, resi$ence, or $o&icie are 'enera! a$&issi-e 1as evi$ence ofhis attit#$e of &in$.1 Ho9ever, 9hatever the conte"t, 1their acc#rac! is s#spect

    -eca#se of their sef*servin' nat#re, partic#ar! 9hen the! are &a$e to achieve so&ee'a o-ective.1 In the case at -ar, the -#r$en rests on an 1i&&i'rant1 or a1per&anent resi$ent1 to prove that he has a-an$one$ his $o&icie in the forei'nco#ntr! an$ reesta-ishe$ his $o&icie in the (hiippines. A sef*servin' affi$avit 9inot s#ffice, especia! 9hen 9hat is at sta=e is a ver! i&portant privie'e as the ri'htof s#ffra'e. I respectf#! s#-&it that 9hat &a=es the intent e"presse$ in the affi$aviteffective an$ operative is the f#fi&ent of the pro&ise to ret#rn to the (hiippines.(h!sica presence is not a &ere test of intent -#t the 1principa confir&in' evi$ence ofthe intention of the person.1 Unti s#ch pro&ise is f#fie$, he contin#es to -e a$o&iciiar! of another co#ntr!. Unti then, he $oes not possess the necessar!re:#isites an$ therefore, cannot -e consi$ere$ a :#aifie$ voter.

    5. I%.< I%.< I%.< COUNTIN THE 2OTES O4 IMMIRANTS OR

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    (ERMANENT RESI%ENTS HO 4AIL TO RETURN TO THE (HILI((INESILL %ILUTE THE 2ALI% 2OTES O4 4ULLY )UALI4IE% ELECTORS< MAYRESULT IN THE ANOMALY HERE THE HIHEST (UBLIC O44ICIALS O4THE LAN% ILL OE THEIR ELECTION TO 1IMMIRANTS1 OR1(ERMANENT RESI%ENTS1 HO 4AILE% TO 4UL4ILL THEIR (ROMISE TO

    RETURN TO THE COUNTRY OR HO RE(U%IATE% THEIR %OMICILEHERE. D The on! conse:#ence i&pose$ -! Rep. Act No. /0 to an 1i&&i'rant1 ora 1per&anent resi$ent1 9ho $oes not f#fi his pro&ise to ret#rn to the (hiippines isthe re&ova of his na&e fro& the Nationa Re'istr! of A-sentee 2oters an$ his

    per&anent $is:#aification to vote in a-sentia. B#t his vote 9o#$ -e co#nte$ an$accor$e$ the sa&e 9ei'ht as that cast -! -ona fi$e :#aifie$ 4iipino voters. Irespectf#! s#-&it that this sche&e $i&inishes the va#e of the ri'ht of s#ffra'e as it$i#tes the ri'ht of :#aifie$ voters to the proportionate va#e of their votes. The one

    person, one vote principe is sacrosanct in a rep#-ican for& of 'overn&ent. Thechaen'e$ provision 9hich ao9s the va#e of the vai$ votes of :#aifie$ voters to

    -e $i&inishe$ -! the invai$ votes of $is:#aifie$ voters vioates the soverei'nt! ofo#r peope. The vai$ation -! the &aorit! of this #nconstit#tiona provision &a!res#t in the ano&a! 9here the hi'hest p#-ic officias of o#r an$ 9i o9e theireection to 1i&&i'rants1 or 1per&anent resi$ents1 9ho faie$ to f#fi their pro&iseto ret#rn to o#r co#ntr! or 9ho rep#$iate$ their $o&icie here.

    J. I%.< I%.< I%.< SECTION /0.5 O4 RE(UBLIC ACT NO. /0 EM(OERINTHE COMMISSION ON ELECTIONS TO (ROCLAIM THE INNINCAN%I%ATES SHOUL% BE CONSTRUE% AS LIMITE% TO THE (OSITIONSO4 SENATORS AN% (ARTY LIST RE(RESENTATI2ES. D On its face, Section

    /0.5 of Rep. Act No. /0 appears to -e rep#'nant to Section >, Artice 2II of the/08 Constit#tion. It 'ives the i&pression that Con'ress a-$icate$ to COMELEC itsconstit#tiona $#t! to canvass an$ procai& the 9innin' can$i$ates for (resi$ent an$2ice*(resi$ent. I a'ree 9ith the &aorit! that the i&p#'ne$ provision sho#$ -e 'ivena reasona-e interpretation that 9o#$ save it fro& a constit#tiona infir&it!. To -es#re, Con'ress co#$ have not ao9e$ the COMELEC to e"ercise a po9ere"c#sive! -esto9e$ #pon it -! the Constit#tion. Th#s, Section /0.5 of Rep. Act No./0 e&po9erin' the COMELEC to procai& the 9innin' can$i$ates sho#$ -econstr#e$ as i&ite$ to the positions of Senators an$ part!*ist representatives.

    8. I%.< I%.< I%.< THE LEISLATI2E 2ETO (OER OR CONRESSIONALO2ERSIHT (OER O2ER THE AUTHORITY O4 THE COMMISSION ONELECTIONS TO ISSUE RULES AN% REULATIONS IN OR%ER TO EN4ORCEELECTION LAS IS UNCONSTITUTIONAL< THE (OER TO (ROMULATERULES AN% REULATIONS IN OR%ER TO A%MINISTER ELECTION LASHAS BEEN 2ESTE% ECLUSI2ELY BY THE /08 CONSTITUTION TO THECOMMISSION AN% IT CANNOT BE TRENCHE% U(ON BY CONRESS INTHE EERCISE O4 ITS O2ERSIHT (OERS. D The Constit#tion $ivi$e$ the

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    po9ers of o#r 'overn&ent into three cate'ories, e'isative, e"ec#tive, an$ #$icia.Atho#'h not 1her&etica! seae$1 fro& one another, the po9ers of the three

    -ranches are f#nctiona! i$entifia-e. In this respect, e'isative po9er is 'enera!e"ercise$ in the enact&ent of the a9< e"ec#tive po9er, in its e"ec#tion< an$ #$icia

    po9er, in its interpretation. In the a-sence of specific provision in the Constit#tion, it

    is f#n$a&enta #n$er the principe of separation of po9ers that one -ranch cannote"ercise or share the po9er of the other. In a$$ition, o#r Constit#tion create$ otheroffices asi$e fro& the e"ec#tive, the e'isative an$ the #$iciar! an$ $efine$ their

    po9ers an$ prero'atives. A&on' these -o$ies especia! create$ -! the Constit#tionitsef is the COMELEC. The COMELEC occ#pies a $istinct pace in o#r sche&e of'overn&ent. As the constit#tiona -o$! char'e$ 9ith the a$&inistration of o#reection a9s, it is en$o9e$ 9ith in$epen$ence in the e"ercise of so&e of its po9ersan$ the $ischar'e of its responsi-iities. The po9er to pro'ate r#es an$re'#ations in or$er to a$&inister o#r eection a9s -eon's to this cate'or! of po9ersas this has -een veste$ e"c#sive! -! the /08 Constit#tion to the COMELEC. It

    cannot -e trenche$ #pon -! Con'ress in the e"ercise of its oversi'ht po9ers.

    0. I%.< I%.< I%.< SECTION /8./ O4 RE(UBLIC ACT NO. /0 ISUNCONSTITUTIONAL 4OR IT ALLOS CONRESS TO NEATE THEECLUSI2E (OER O4 THE COMMISSION ON ELECTIONS TOA%MINISTER AN% EN4ORCE ELECTION LAS AN% REULATIONSRANTE% BY THE CONSTITUTION ITSEL4< SAI% (OER IS ECLUSI2EAN% IS NOT MEANT TO BE SHARE% BY ANY OTHER BRANCH OR AENCYO4 THE O2ERNMENT. D I oin the &aorit! in ho$in' that Section /8./ of Rep.Act No. /0 is #nconstit#tiona for it ao9s Con'ress to ne'ate the e"c#sive po9er

    of the COMELEC to a$&inister an$ enforce eection a9s an$ re'#ations 'rante$ -!the Constit#tion itsef. This is not to &aintain that the I&pe&entin' R#es an$Re'#ations pro'ate$ -! the COMELEC, or the s!ste& it $evise$ to i&pe&entvotin' -! &ai cannot -e chaen'e$. If the! are ie'a or constit#te 'rave a-#se of$iscretion, the co#rts can stri=e the& $o9n in an appropriate case. This po9er isveste$ to the co#rts #n$er Section /, Artice 2III of the Constit#tion $efinin' thescope of #$icia po9er, an$ &ore specifica! #n$er Section 5, Artice 2IIIe&po9erin' this Co#rt to revie9, revise, reverse, &o$if! or affir& on appea orcertiorari, 1a cases in 9hich the constit#tionait! or vai$it! of an! treat!,internationa or e"ec#tive a'ree&ent, a9, presi$entia $ecree, proca&ation, or$er,instr#ction, or$inance, or re'#ation is in :#estion.1 A'ain, this po9er is e"c#sive an$is not &eant to -e share$ -! an! other -ranch or a'enc! of the 'overn&ent.

    YNARES*SANTIAO, +., conc#rrin' an$ $issentin' opinionF

    /. (OLITICAL LA< ELECTION LAS< THE O2ERSEAS ABSENTEE2OTIN ACT O4 ;@@? 6RE(UBLIC ACT NO. /07< RANTS THE RIHT O4SU44RAE TO A CATEORY O4 2OTERS HO %O NOT (OSSESS THECONSTITUTIONAL RE)UIREMENT O4 RESI%ENCE< THE MA+ORITY

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    O(INION O2ERLOOE% THE 4ACT THAT HILE SECTION ;, ARTICLE 2 O4THE CONSTITUTION (RO2I%ES A SYSTEM 4OR ABSENTEE 2OTIN, ANYABSENTEE HO 2OTES MUST 4IRST MEET THE )UALI4ICATIONS 4OUN%IN SECTION / O4 THE SAME ARTICLE. D I a& constraine$ to $issent fro& the&aorit! opinion -eca#se R.A. /0 'rants the ri'ht of s#ffra'e to a cate'or! of voters

    9ho $o not possess the constit#tiona re:#ire&ent of resi$ence. These are &en an$9o&en 9ho are sti 4iipino citi3ens -#t 9ho have vo#ntari! an$ #na&-i'#o#s!chosen act#a, ph!sica, an$ per&anent resi$ence in a forei'n co#ntr!. In other 9or$s,the :#estione$ a9 ao9s non*resi$ents to vote. As phrase$, Section 5 6$7 of R.A./0 'rants to 4iipinos 9ho are i&&i'rants or per&anent resi$ents of anotherco#ntr!, an$ 9ho are consi$ere$ as s#ch -! their host co#ntr!, the option to e"ercisetheir ri'ht of s#ffra'e. (roponents of R.A. /0 are tr!in' to constr#e Section ; ofArtice 2 of the Constit#tion as a proviso 9hich e"pan$s an$ enar'es the scope of the

    prece$in' section. The! overoo= the fact that 9hie Section ; provi$es a s!ste& fora-sentee votin', an! a-sentee 9ho votes st first &eet the :#aifications fo#n$ in

    Section / of the sa&e artice.

    ;. I%.< I%.< I%.< SINCE THE (RO2ISION ON ABSENTEE 2OTIN INRE(UBLIC ACT NO. /0 NEITHER LIMITS NOR ENLARES A (RO2ISIONO4 HICH IT IS A (ART, THE (HRASE 1)UALI4IE% 4ILI(INOS ABROA%1CAN BE INTER(RETE% ONLY TO MEAN THAT THOSE HO ARE)UALI4IE% TO 2OTE UN%ER SECTION /, ARTICLE > O4 THECONSTITUTION MAY BECOME THE ABSENTEE 2OTERS AN% MUST,THERE4ORE, (OSSESS ON ELECTION %AY THE CONSTITUTIONALRE)UIREMENTS AS TO CITIENSHI(, AE AN% RESI%ENCE. D As state$ -!

    the petitioner, if the fra&ers of the Constit#tion inten$e$ to &a=e Section ; of Artice2 a proviso or e"ception to its first section, the! sho#$ have a$$e$ it to the atter. TheConstit#tion $oes not &a=e the a-sentee votin' provision a &ere proviso of the firstsection on resi$ence :#aifications. To'ether 9ith the s!ste& 9hich sec#res thesecrec! an$ sanctit! of the -aot, the provision on a-sentee votin' is an entire!$istinct an$ separate section 9hich ao9s on! those :#aifie$ #n$er Section / to ta=ea$vanta'e of the privie'e #n$er Section ;. The office of a proviso is to i&it theappication of a section or provision or to :#aif! or restrain its 'enerait!. Ho9ever, a

    proviso &a! aso enar'e 9hat other9ise is a phrase of i&ite$ i&port ha$ there -eenno proviso :#aif!in' it. Since the provision on a-sentee votin' in R.A. /0 neitheri&its nor enar'es a provision of 9hich it is a part, the phrase 1:#aifie$ 4iipinosa-roa$1 can -e interprete$ on! to &ean that those 9ho are :#aifie$ to vote #n$er the

    prece$in' section &a! -eco&e a-sentee voters. The! st possess on eection $a! theconstit#tiona re:#ire&ents as to citi3enship, a'e an$ resi$ence.

    ?. I%.< I%.< I%.< MA%AM +USTICE YNARES*SANTIAO %OES NOT AREEITH THE MA+ORITYGS BELIE4 THAT THE (OSITION O4 ARTICLE 2,SECTION ; O4 THE CONSTITUTION IS IN%ICATI2E O4 AN INTENT TO

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    MAE IT A((EAR TO BE AN ECE(TION TO THE RESI%ENCERE)UIREMENT (RO2I%E% IN SECTION / O4 THE SAME ARTICLE. D It iss#-&itte$ that a vai$ an$ ver! rea $istinction e"ists -et9een either of these t9o'ro#ps of 4iipinos, on the one han$, an$ those 4iipinos 9ho are per&anent resi$entsor i&&i'rants in their host co#ntries, on the other. The =e! $ifference ies in the

    chan'e of per&anent resi$ence or ac= thereof, for the fra&ers of o#r Constit#tioncear! inten$e$ that 4iipinos 9ho ha$ ta=en #p per&anent resi$ence in their hostco#ntries 9o#$ -e e"c#$e$ fro& the -enefits of a-sentee votin'. No otherinterpretation can -e s#pporte$ -! the recor$s at han$. It is cear that theConstit#tiona Co&&ission $i$ not inten$ to &a=e a-sentee voters an e"ception to the'enera r#e on resi$ence in the e"ercise of the ri'ht of s#ffra'e. e $o not a'ree 9iththe &aorit!Gs -eief that the position of Artice 2, Section ; of the Constit#tion isin$icative of an intent to &a=e it appear to -e an e"ception to the resi$encere:#ire&ent provi$e$ for in the section i&&e$iate! prece$in' it. As earier state$,Section ; is not a proviso of Section /. It is patent fro& the e"cerpts of the

    $ei-erations -! &e&-ers of the constit#tiona co&&issions that the Co&&issionerstoo= pains to ens#re that the reasonin' -ehin$ Artice 2, Section ; of the Constit#tion9o#$ not -e &is#n$erstoo$. The! never inten$e$ to accor$ a specia stat#s nor 'ivespecia consi$eration to 4iipinos 9ho have -eco&e per&anent resi$ents of their hostco#ntries. These necessari! inc#$e i&&i'rants.

    >. I%.< I%.< I%.< 1ABSENTEE1 RE4ERS TO THOSE (EO(LE HOSE INTENTTO RETURN HOME AN% 4ORSAE THE 4OREIN COUNTRY IS CLEAR< ITCANNOT RE4ER TO IMMIRANTS AN% A MERE (ROMISE TO RETURNHOME ITHIN THREE YEARS 4ROM 2OTIN IS NO (ROO4 O4 INTENT TO

    RETURN TO A (ERMANENT RESI%ENCE. D I -e' to $iffer fro& the conc#sionin the &aorit! opinion 9hich states that an a-sentee re&ains attache$ to his resi$encein the (hiippines -eca#se 1resi$ence1 is s!non!&o#s 9ith 1$o&icie.1 1A-sentee1has to -e :#aifie$. It refers on! to those peope resi$in' a-roa$ 9hose intent toret#rn ho&e an$ forsa=e the forei'n co#ntr! is cear. It cannot refer to i&&i'rants. A&ere pro&ise to ret#rn ho&e 9ithin three !ears fro& votin' is no proof of intent toret#rn to a per&anent resi$ence. The sanction for its enforce&ent is so fee-e that the

    pro&ise 9i -e an e&pt! one. As earier state$, an i&&i'rant 'ives #p &an! thin's,inc#$in' the ri'ht or opport#nit! of votin' in the (hiippines, 9hen he &oves 9ithhis fa&i! a-roa$. A sanction of f#t#re $isenfranchise&ent 9o#$ not -other hi& inthe east -it. In the &eanti&e, the i&&i'rant vote in cose! conteste$ cases &a! haveeecte$ the (resi$ent, a Senator or a Con'ress&an. Un:#aifie$ voters 9i haves9#n' the eections. In the sa&e 9a! that a co#nterfeit coin $rives a9a! or res#ts inthe hoar$in' of 'en#ine or 'oo$ coins, the votes of non*:#aifie$ persons 9i noton! 9ea=en or n#if! the va#e of the 'oo$ votes -#t &a! &a=e an eection itsefsha& an$ &eanin'ess.

    SAN%O2AL*UTIERRE, +., conc#rrin' an$ $issentin' opinionF

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    /. (OLITICAL LA< ELECTION LAS< THE O2ERSEAS ABSENTEE2OTIN ACT O4 ;@@? 6RE(UBLIC ACT NO. /07< RESI%ENCE 4OR 2OTINIS NOT HOLLY A )UESTION O4 INTENTION, BUT IS A )UESTION O44ACT AN% INTENTION. D No person has &ore than one $o&icie at a ti&e. A4iipino i&&i'rant, -! his per&anent resi$enc! in the host co#ntr!, oses the

    (hiippines as his $o&icie. He cannot reac:#ire it -! the &ere act of e"ec#tin' anaffi$avit e"pressin' his intention to ret#rn to the (hiippines at so&e f#t#re ti&e.Resi$ence for votin' is not 9ho! a :#estion of intention, -#t it is a :#estion of factan$ intention. Uness his intention is fortifie$ -! the conc#rrent act of reesta-ishin'the (hiippines as his $o&icie, he cannot -e consi$ere$ a :#aifie$ voter #n$er the(hiippine Constit#tion.

    ;. I%.< I%.< I%.< THE INTENTION O4 THE 4RAMERS TO LIMIT THE(HRASE 1)UALI4IE% 4ILI(INOS ABROA%1 TO 4ILI(INOS TEM(ORARILYRESI%IN ABROA% IS CLEAR AN% UNMISTAABLE< A LA, SUCH ASRE(UBLIC ACT NO. /0 HICH E(AN%S THE MEANIN AS TO INCLU%ETHOSE OTHERISE NOT CO2ERE% THROUH THE MERE IM(OSITION O4CERTAIN RE)UIREMENTS, 1RISS A %ECLARATION O4UNCONSTITUTIONALITY1. D There is no $isp#te that the /08 Constit#tion$enies to 4iipino i&&i'rants the ri'ht of s#ffra'e. The 4ra&ers ha$ no choice, the!ha$ to &aintain consistenc! a&on' the provisions of the Constit#tion. Section /,Artice 2 prescri-es resi$enc! in the (hiippines as one of the :#aifications for thee"ercise of the ri'ht of s#ffra'e. Initia!, this 9as perceive$ as an o-stace to theincorporation of the constit#tiona provision re:#irin' Con'ress to provi$e for as!ste& of a-sentee votin' -! 1:#aifie$ 4iipinos a-roa$.1 Ho9ever, the 4ra&ers

    resorte$ to the e'a connotation of the ter& 1resi$ence.1 The! e&phasi3e$ that1resi$ence1 is to -e #n$erstoo$ not in its co&&on acceptance as referrin' to1$9ein'1 or 1ha-itation,1 -#t rather to 1$o&icie1 or 1e'a resi$ence,1 that is, the1pace 9here a part! act#a! or constr#ctive! has his per&anent ho&e, 9here he, no&atter 9here he &a! -e fo#n$ at an! 'iven ti&e, event#a! inten$s to ret#rn an$re&ain.1 Th#s, as on' as the 4iipino a-roa$ &aintains his $o&icie in the(hiippines, he is consi$ere$ a :#aifie$ voter #n$er the Constit#tion. Si'nificant!, atthe ear! sta'e of the $ei-eration, the 4ra&ers &a$e it cear that the ter& 1:#aifie$4iipinos a-roa$1 refers on! to those 9hose presence in the forei'n co#ntr! is on!1te&porar!1 an$ 9hose $o&icie is sti the (hiippines D th#s, $efinite! e"c#$in'i&&i'rants or per&anent resi$ents of a forei'n co#ntr!. Let &e :#ote the Recor$s ofthe Constit#tiona Co&&ission. The intention of the 4ra&ers to i&it the phrase1:#aifie$ 4iipinos a-roa$1 to 4iipinos te&porari! resi$in' a-roa$ is cear an$#n&ista=a-e. Therefore, a a9, s#ch as R.A. No. /0, 9hich e"pan$s the &eanin' asto inc#$e those other9ise not covere$ 6s#ch as 4iipino i&&i'rants or per&anentresi$ents of forei'n co#ntries7, thro#'h the &ere i&position of certain re:#ire&ents,1ris=s a $ecaration of #nconstit#tionait!.1

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    ?. I%.< I%.< I%.< TO RULE THAT A SORN %ECLARATION O4 INTENTIONIS SU44ICIENT TO AC)UIRE A 2OTIN RESI%ENCE IS TO ESTABLISH ABA% (RECE%ENT CONSI%ERIN THAT THE 2OTERS CAN CHOOSE THE(LACE HERE THEY ANT TO 2OTE BY SIM(LY SEARIN THAT THEYINTEN% TO (ERMANENTLY RESI%E THEREIN. D Mere $ecaration that he

    inten$s to res#&e act#a ph!sica per&anent resi$ence in the (hiippines $oes nothave the effect of conferrin' #pon the i&&i'rant the necessar! :#aification of1resi$enc!1 here. To reiterate, resi$ence for votin' is not 9ho! a :#estion ofintention, it is a :#estion of fact an$ intention. A voterGs state&ents, $ecarations, ortesti&on! 9ith respect to his intention is not controin', -#t st -e ta=en inconnection 9ith his acts an$ con$#ct. Hence, the ri'ht to vote in a certain pace or

    precinct re:#ires the occ#rrence of t9o thin's, the act of resi$in' co#pe$ 9ith theintention to $o so. In or$er to constit#te a resi$ence for votin' p#rposes, there st -ethe intention to resi$e there for votin' p#rposes, an$ that intention st -eacco&panie$ -! acts of ivin', $9ein', o$'in', or resi$in' reasona-! s#fficient to

    esta-ish that it is the rea an$ act#a resi$ence of the voter. To r#e that a s9orn$ecaration of intention is s#fficient to ac:#ire a votin' resi$ence is to esta-ish a -a$

    prece$ent consi$erin' that voters can choose the pace 9here the! 9ant to vote si&p!-! s9earin' that the! inten$ to per&anent! resi$e therein.

    >. I%.< I%.< I%.< AN IMMIRANTGS (LAIN %ECLARATION O4 HISINTENTION CANNOT (RE2AIL O2ER THE ACTUAL 4ACTS SURROUN%INHIS RESI%ENCE. D The &aorit! r#es that the affi$avit re:#ire$ in Section 5 6$71serves as an e"picit e"pression that the i&&i'rant ha$ not in fact a-an$one$ his$o&icie of ori'in.1 A'ain, I cannot s#-scri-e to this vie9. An i&&i'rantGs pain

    $ecaration of his intention cannot prevai over the act#a facts s#rro#n$in' hisresi$enc!. Con$#ct has 'reater evi$entia va#e than a $ecaration. The fact that a

    person o-tains an i&&i'rantGs visa, an$ not a visitorGs or to#ristGs visa, pain! sho9sthat his entrance in the forei'n co#ntr! is for a per&anent p#rpose. In$ee$,$ecarations are a9a!s s#-ect to the infir&it! of an! sef*servin' $ecaration an$&a! -e contra$icte$ -! inconsistent acts. hen in confict 9ith the facts, a $ecare$intention to ac:#ire a $o&icie 6or to &aintain the $o&icie of ori'in7 has itte 9ei'ht.Besi$es, to a$&it the i&&i'rantGs representation that he has not a-an$one$ his(hiippine $o&icie $espite his i&&i'rant stat#s is to toerate 9hat 9e proscri-e$ inCaasi vs. Co#rt of Appeas, th#sF 1In other 9or$s, he 9o#$ have this Co#rt -eievethat he appie$ for i&&i'ration to the U.S. #n$er fase pretenses< that a this ti&e heon! ha$ one foot in the Unite$ States -#t =ept his other foot in the (hiippines. Evenif that 9ere tr#e, this Co#rt 9i not ao9 itsef to -e a part! to his $#picit! -!

    per&ittin' hi& to -enefit fro& it an$ 'ivin' hi& the -est of -oth 9or$s so to spea=.1Honorin' o#r co#ntr!&enGs s9orn $ecarations to res#&e per&anent resi$enc! in the(hiippines, not9ithstan$in' their i&&i'rant stat#s an$ the host co#ntr!Gs contin#o#sreco'nition of the& as s#ch, $oes not spea= 9e of 4iipino va#es. In effect, it

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    enco#ra'es $#picito#s or $eceptive con$#ct a&on' o#r co#ntr!&en. e sho#$ notao9 s#ch acts to -e $one -ehin$ the host co#ntr!Gs -ac=.

    5. I%.< I%.< I%.< ASSAILE% (RO2ISION MAY ONLY BE AN A2ENUE 4OR4RAU%. D Another 'ro#n$ 9h! I cannot oin the &aorit! is the 'reat pro-a-iit!that the assaie$ provision &a! on! -e an aven#e for eection fra#$. Reait! 9ise, o#r

    co#ntr! is !et to achieve a tr#! cean an$ honest eection. To 'rant the ri'ht ofs#ffra'e to the vast n#&-er of i&&i'rants in forei'n co#ntries 9here 9e cannotenforce o#r a9s 9ith the sa&e efficac! as 9ithin o#r territor!, is to en$an'er o#rciti3ensG constit#tiona ri'ht to an #n$efie$ s#ffra'e. (ara&o#nt in the preservation ofthe principes of $e&ocratic 'overn&ent is the o-servance of preca#tionar!re:#ire&ents $esi'ne$ to ins#re the sanctit! of the -aot. Conse:#ent!, it isi&perative that o#r eections are not tainte$ 9ith fra#$. This cannot -e achieve$#ness 9e i&pose stricter ter&s on the 'rant of the ri'ht of s#ffra'e to a-senteeciti3ens. Si'nificant!, the on! sanction i&pose$ -! Section 56$7 #pon an i&&i'rant9ho fais to perfor& his pro&ise to res#&e per&anent resi$enc! in the (hiippines9ithin the prescri-e$ perio$ is that his na&e 9i -e stric=en fro& the NationaRe'istr! of A-sentee 2oters an$ he 9i -e per&anent! $is:#aifie$ to vote ina-sentia. hat a p#nish&ent for so&eone 9ho &a$e a &oc=er! of the eection

    process This p#nitive &eas#re is virt#a! &eanin'ess. It cannot #n$o the res#t ofan eection nor can it $iscipine or $a#nt i&&i'rant voters.

    J. I%.< I%.< I%.< SECTION 5 6$7 O4 RE(UBLIC ACT NO. /0 ISUNCONSTITUTIONAL 4OR IT %IMINISHES THE 1RESI%ENCYRE)UIREMENT1 O4 THE CONSTITUTION BY INCLU%IN ITHIN THE(HRASE 1)UALI4IE% 4ILI(INOS ABROA%1 IMMIRANTS AN%(ERMANENT RESI%ENTS O4 4OREIN COUNTRIES< SAI% (RO2ISION%E4IES THE CLEAR INTENTION O4 THE CONSTITUTION TO LIMIT THEA((LICATION O4 THE ABSENTEE 2OTIN LA TO 4ILI(INOS HO ARE1TEM(ORARILY ABROA%.1 D Let it -e stresse$ that 9here the Constit#tion fi"esthe :#aifications of voters, these :#aifications cannot -e increase$, $i&inishe$ orchan'e$ -! e'isative enact&ent, #ness the po9er to $o so is e"press! 'rante$, ornecessari! i&pie$. The inc#sion of the resi$enc! re:#ire&ent in the Constit#tion isnot 9itho#t reason. It constit#tes an inva#a-e protection a'ainst fra#$ an$ f#rtheraffor$s so&e s#ret! that the eector has in fact -eco&e a &e&-er of the co&nit!

    an$ that, as s#ch, he has a co&&on interest in a &atters pertainin' to its 'overn&ent,an$ is therefore &ore i=e! to e"ercise his ri'ht intei'ent!. The specification in theConstit#tion is an i&pie$ prohi-ition a'ainst interference. It is not co&petent forCon'ress to $i&inish or ater s#ch :#aification. Section 56$7 of R.A. No. /0 is#nconstit#tiona for it $i&inishes the 1resi$enc! re:#ire&ent1 of the Constit#tion -!inc#$in' 9ithin the phrase 1:#aifie$ 4iipinos a-roa$1 i&&i'rants an$ per&anentresi$ents of forei'n co#ntries. It $efies the cear intent of the Constit#tion to i&it theappication of the a-sentee votin' a9 to 4iipinos 9ho are 1te&porari! a-roa$.1

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    Th#s, as stat#tes 9hich p#rport to &o$if! constit#tiona! fi"e$ :#aifications arevoi$, so st Section 56$7 of R.A. No. /0 s#ffer the sa&e fate.

    CALLE+O, SR., +., conc#rrin' an$ $issentin' opinionF

    /. CONSTITUTIONAL LA< SU44RAE< MR. +USTICE CALLE+O %OESNOT SUBSCRIBE TO THE 2IE THAT SECTION ; O4 ARTICLE 2 O4 THE

    CONSTITUTION AS INTEN%E% BY THE 4RAMERS TO BE AN ECE(TIONTO THE RESI%ENCE )UALI4ICATION RE)UIREMENT (RESCRIBE% IN THESECTION / O4 THE SAME ARTICLE. D Section /, Artice 2 9hich prescri-es the:#aifications of voters as to citi3enship, a'e an$ resi$ence is cear an$ #na&-i'#o#s.On the other han$, Section ; of the sa&e artice a#thori3es Con'ress to provi$e as!ste& to faciitate a-sentee votin' -! :#aifie$ 4iipinos a-roa$. I $o not s#-scri-e tothe vie9 that Section ; 9as inten$e$ -! the fra&ers to -e an e"ception to theresi$ence :#aification re:#ire&ent prescri-e$ in the section i&&e$iate! prece$in'it. Basic is the r#e in stat#tor! constr#ction that the Constit#tion sho#$ -e constr#e$

    in s#ch a &anner as to 'ive effect to each an$ ever! part of the entire instr#&ent.Co#rts sho#$ ean in favor of a constr#ction that 9i har&oni3e ever! provision ofthe Constit#tion rather than one 9hich raises confict -et9een its provisions, or ren$erin#tie an! portion thereof. Section ; can an$ st -e constr#e$ to conte&pate 9ithinits ter&s the enfranchise&ent on! of 4iipinos 9ho possess a the prere:#isite:#aifications specifie$ #n$er Section /, -#t 9ho are a-roa$ an$ cannot e"ercise theirri'ht to vote in the (hiippines on the $a! of the eection. Even fro& a c#rsor!e"a&ination of the procee$in's of the Constit#tiona Co&&ission 9hich $rafte$ the/08 Constit#tion, the fore'oin' inten$&ent is &a$e cr!sta cear.

    ;. I%.< I%.< %ISTINCTION BETEEN 1RESI%ENCE1 AN% 1%OMICILE.1 D4or &an! e'a p#rposes, there is a cear $istinction -et9een 1resi$ence1 an$1$o&icie.1 1Resi$ence1 &eans ivin' in a partic#ar ocait!, an$ si&p! re:#ires

    -o$i! presence as an inha-itant in a 'iven pace, 9hie, 1$o&icie1 &eans ivin' inthat ocait! 9ith intent to &a=e it a fi"e$ an$ per&anent ho&e. 1Resi$ence1 $enotesthat a person $9es in a 'iven pace -#t 1$o&icie1 is a personGs e'a ho&e, or a

    pace 9here the a9 pres#&es a person has the intention of per&anent! resi$in'atho#'h he &a! -e a-sent fro& it. 1%o&icie1 then is a &atter of intention 9hie1resi$ence1 is a ph!sica fact. Hence, a person &a! have t9o paces of 1resi$ence1 -#ton! one 1$o&icie.1 1Resi$ence,1 ho9ever, for the p#rpose of votin', is to -e

    #n$erstoo$ not in its co&&on acceptation as referrin' to 1$9ein'1 or 1ha-itation,1-#t rather to 1$o&icie1 or e'a resi$ence, that is, 1the pace 9here a part! act#a! orconstr#ctive! has his per&anent ho&e, 9here he, no &atter 9here he &a! -e fo#n$at an! 'iven ti&e, event#a! inten$s to ret#rn an$ re&ain 6anis &anen$i7.1 In$eter&inin' a personGs 1resi$ence1 for votin' p#rposes, the foo9in' r#es are 9e*esta-ishe$F 6a7 A person st have a resi$ence or $o&icie so&e9here< 6-7 hereonce esta-ishe$, it re&ains #nti a ne9 one is ac:#ire$< an$ 6c7 A person can have -#tone $o&icie at a ti&e.

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    ?. I%.< I%.< A 4ILI(INO 1IMMIRANT1 OR 1(ERMANENT RESI%ENT,1 ASTHE 2ERY %ESINATION O4 THE STATUS CLEARLY IM(LIES, IS A4ILI(INO HO HAS ABAN%ONE% HIS (HILI((INE RESI%ENCE OR%OMICILE, ITH THE INTENTION O4 RESI%IN (ERMANENTLY IN HISHOST COUNTRY. D Cear!, for votin' p#rposes, one cannot have a resi$ence or -e

    $o&icie$ in t9o paces at the sa&e ti&e, for the ri'ht to vote in a certain pace orprecinct re:#ires the conc#rrence of t9o thin'sF the act of resi$in' co#pe$ 9ith theintention to $o so. Accor$in'!, in or$er to 9or= a chan'e resi$ence for votin', therest -e an act#a re&ova, an act#a chan'e of $o&icie, correspon$in' 9ith a -onafi$e intention of a-an$onin' the for&er pace of resi$ence an$ esta-ishin' a ne9 one.Hence, an a-sence for &onths or even !ears, if a the 9hie the part! inten$e$ it as a&ere te&porar! arran'e&ent, to -e foo9e$ -! a res#&ption of his for&er resi$ence,9i not -e an a-an$on&ent of s#ch resi$ence or $eprive hi& of his ri'ht to votethereat, the test -ein' the presence or a-sence of the anis reverten$i. S#ch is thecase overseas 4iipino 9or=ers 9ho, on acco#nt of the nat#re or e"i'encies of their

    9or=, fai to -e ph!sica! present for so&e ti&e in the (hiippines -#t are not $ee&e$to have a-an$one$ their (hiippine $o&icie -! virt#e of their intent to res#&eresi$enc! in the (hiippines #pon the ter&ination their e&po!&ent contracts.Ho9ever, the sa&e cannot -e sai$ of 4iipinos 9ho, 9hie &aintainin' their 4iipinociti3enship, have in the &eanti&e ac:#ire$ the stat#s of i&&i'rants or per&anentresi$ents of their respective host co#ntries. An i&&i'rant, as $efine$ in a9, is a

    person 9ho re&oves into a co#ntr! for the p#rpose of per&anent resi$ence.Therefore, a 4iipino 1i&&i'rant1 or 1per&anent resi$ent,1 as the ver! $esi'nation ofhis stat#s cear! i&pies, is a 4iipino 9ho has a-an$one$ his (hiippine resi$ence or

    $o&icie, 9ith the intention of resi$in' per&anent! in his host co#ntr!.Thencefor9ar$, he ac:#ires a ne9 resi$ence in his host co#ntr! an$ is $ee&e$ to havea-an$one$ his (hiippine $o&icie. It has -een he$ that 9here a voter a-an$ons hisresi$ence in a state an$ ac:#ires one in another state, atho#'h he after9ar$ chan'eshis intention an$ ret#rns, he cannot a'ain vote in the state of his for&er resi$ence or$o&icie #nti he has re'aine$ his resi$ence -! re&ainin' in the #ris$iction for thestat#tor! perio$.

    >. I%.< I%.< HILE INTENTION IS AN IM(ORTANT 4ACTOR TO BECONSI%ERE% IN %ETERMININ HETHER OR NOT A RESI%ENCE HASBEEN AC)UIRE%, INTENTION ALONE IS INSU44ICIENT TO ESTABLISH ARESI%ENCE 4OR 2OTIN (UR(OSES. D ith $#e respect to the &aorit!, I $onot s#-scri-e to the vie9 that the e"ec#tion of the affi$avit re:#ire$ #n$er Section 56$7 is eo:#ent proof of the fact that the 4iipino i&&i'rant has not a-an$one$ his(hiippine $o&icie, as evince$ -! his intention to 'o -ac= an$ res#&e resi$enc! inthe (hiippines, 9hich th#s entites hi& to e"ercise the ri'ht of s#ffra'e p#rs#ant tothe constit#tiona intent e"presse$ in Section ;, in reation to Section /, Artice 2 ofo#r Constit#tion. The &aorit! vie9, I h#&-! s#-&it, is non*se:#it#r for it is 9e*

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    entrenche$ that 9hie intention is an i&portant factor to -e consi$ere$ in $eter&inin'9hether or not a resi$ence has -een ac:#ire$, intention aone is ins#fficient toesta-ish a resi$ence for votin' p#rposes. Hence, a &ere intention to re&ove, notcons#&&ate$, can neither forfeit the part!Gs o$ $o&icie nor ena-e hi& to ac:#ire ane9 one. An$ the fact that a person inten$s to re&ove at a f#t#re ti&e $oes not of

    itsef $efeat his resi$ence -efore the act#a! $oes re&ove.5. (OLITICAL LA< ELECTION LAS< THE O2ERSEAS ABSENTEE2OTIN ACT O4 ;@@? 6RE(UBLIC ACT NO. /07< SECTION 5 6$7 THEREO4IS 2IOLATI2E O4 THE E)UAL (ROTECTION CLAUSE O4 THECONSTITUTION. D I -eieve that the provision is vioative of the 1e:#a protection1ca#se of the Constit#tion. hie it ao9s a 4iipino per&anent! resi$in' in a forei'nco#ntr! to vote on the &ere pe$'e that he 9i a'ain per&anent! resi$e in thisco#ntr! 9ithin three !ears fro& his votin' in the eections, a 4iipino per&anent!resi$in' in the (hiippines -#t for ess than one !ear or, in the pace 9here he

    proposes to vote, for ess than si" &onths is not ao9e$ to vote. The votercassification so#'ht to -e effecte$ -! Section 56$7 $oes not rest on s#-stantia$istinctions for it #n$#! favors an$ e"ten$s the privie'e of the eective franchise to4iipino citi3ens 9ho $o not in an! 9a! co&p! 9ith the resi$enc! re:#ire&ent

    prescri-e$ -! o#r Constit#tion, 9hie 9ithho$in' the sa&e privie'e to those 9ho arean$ have -een per&anent resi$ents of the (hiippines, a-eit not in the ocait! or

    precinct 9here the! inten$ to vote.

    J. I%.< I%.< I%.< SECTION /0.5 THEREO4 %OES NOT (ASS THE TEST O4CONSTITUTIONALITY. D It is cear fro& the Artice 2II, Section >, para'raph > ofthe /08 Constit#tion that the po9er to canvass the votes of the eectorate for

    presi$ent an$ vice*presi$ent is o$'e$ 9ith Con'ress. This inc#$es, -! e"press&an$ate of the Constit#tion, the $#t! to procai& the 9innin' can$i$ates in s#cheection. As pointe$ o#t in the &aorit! opinion the phrase proca&ation of 9innin'can$i$ates #se$ in the assaie$ stat#te is a s9eepin' state&ent, 9hich th#s inc#$eseven the 9innin' can$i$ates for the presi$enc! an$ vice*presi$enc!. 4oo9in' a

    -asic principe in stat#tor! constr#ction, 'enerai $ict#& 'enaiter est interpretan$#&6a 'enera state&ent is #n$erstoo$ in a 'enera sense7, the sai$ phrase cannot -econstr#e$ other9ise. To #pho$ the assaie$ provision of Rep. Act No. /0 9o#$ ineffect -e sanctionin' the 'rant of a po9er to the COMELEC, 9hich #n$er the

    Constit#tion, is e"press! veste$ in Con'ress< it 9o#$ vai$ate a co#rse of con$#ctthat the f#n$a&enta a9 of the an$ e"press! for-i$s.

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    + E C I S I O N

    AUSTRIA*MARTINE, + pF

    Before the Co#rt is a petition for certiorari an$ prohi-ition fie$ -! Roo B.Macainta, a &e&-er of the (hiippine Bar, see=in' a $ecaration that certain

    provisions of Rep#-ic Act No. /0 6The Overseas A-sentee 2otin' Act of ;@@?7 /s#ffer fro& constit#tiona infir&it!. Cai&in' that he has act#a an$ &ateria e'ainterest in the s#-ect &atter of this case in seein' to it that p#-ic f#n$s are proper!an$ a9f#! #se$ an$ appropriate$, petitioner fie$ the instant petition as a ta"pa!eran$ as a a9!er. HaTISE

    The Co#rt #pho$s the ri'ht of petitioner to fie the present petition.

    R.A. No. /0, entite$, 1An Act (rovi$in' for A S!ste& of Overseas A-sentee 2otin'-! )#aifie$ Citi3ens of the (hiippines A-roa$, Appropriatin' 4#n$s Therefor, an$for Other (#rposes,1 appropriates f#n$s #n$er Section ; thereof 9hich provi$es thata s#ppe&enta -#$'et on the enera Appropriations Act of the !ear of its enact&entinto a9 sha provi$e for the necessar! a&o#nt to carr! o#t its provisions. Ta"pa!ers,s#ch as herein petitioner, have the ri'ht to restrain officias fro& 9astin' p#-ic f#n$sthro#'h the enforce&ent of an #nconstit#tiona stat#te. ; The Co#rt has he$ that the!

    &a! assai the vai$it! of a a9 appropriatin' p#-ic f#n$s ? -eca#se e"pen$it#re ofp#-ic f#n$s -! an officer of the State for the p#rpose of e"ec#tin' an #nconstit#tionaact constit#tes a &isappication of s#ch f#n$s. >

    The chaen'e$ provision of a9 invoves a p#-ic ri'ht that affects a 'reat n#&-er ofciti3ens. The Co#rt has a$opte$ the poic! of ta=in' #ris$iction over cases 9heneverthe petitioner has serio#s! an$ convincin'! presente$ an iss#e of transcen$entasi'nificance to the 4iipino peope. This has -een e"picit! prono#nce$ in apatirann' &'a Na'iin'=o$ sa (a&ahaaan n' (iipinas, Inc. vs. Tan, 5 9here the Co#rthe$F

    O-ections to ta"pa!ersG s#it for ac= of s#fficient personait! stan$in', or interest are,ho9ever, in the &ain proce$#ra &atters. Consi$erin' the i&portance to the p#-ic ofthe cases at -ar, an$ in =eepin' 9ith the Co#rtGs $#t!, #n$er the /08 Constit#tion, to$eter&ine 9hether or not the other -ranches of 'overn&ent have =ept the&seves9ithin the i&its of the Constit#tion an$ the a9s an$ that the! have not a-#se$ the$iscretion 'iven to the&, the Co#rt has -r#she$ asi$e technicaities of proce$#re an$has ta=en co'ni3ance of these petitions. J

    In$ee$, in this case, the Co#rt &a! set asi$e proce$#ra r#es as the constit#tiona

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    ri'ht of s#ffra'e of a consi$era-e n#&-er of 4iipinos is invove$.

    The :#estion of propriet! of the instant petition 9hich &a! appear to -e visite$ -! thevice of pre&at#rit! as there are no on'oin' procee$in's in an! tri-#na, -oar$ or

    -efore a 'overn&ent officia e"ercisin' #$icia, :#asi*#$icia or &inisteria f#nctionsas re:#ire$ -! R#e J5 of the R#es of Co#rt, $i&s in i'ht of the i&portance of the

    constit#tiona iss#es raise$ -! the petitioner. In Taa$a vs. An'ara, 8 the Co#rt he$FIn see=in' to n#if! an act of the (hiippine Senate on the 'ro#n$ that it contravenesthe Constit#tion, the petition no $o#-t raises a #sticia-e controvers!. here anaction of the e'isative -ranch is serio#s! ae'e$ to have infrin'e$ the Constit#tion,it -eco&es not on! the ri'ht -#t in fact the $#t! of the #$iciar! to sette the $isp#te.1The :#estion th#s pose$ is #$icia rather than poitica. The $#t! 6to a$#$icate7re&ains to ass#re that the s#pre&ac! of the Constit#tion is #phe$.1 Once a1controvers! as to the appication or interpretation of constit#tiona provision is raise$

    -efore this Co#rt 6as in the instant case7, it -eco&es a e'a iss#e 9hich the Co#rt is

    -o#n$ -! constit#tiona &an$ate to $eci$e.1In another case of para&o#nt i&pact to the 4iipino peope, it has -een e"presse$ thatit is io'ica to a9ait the a$verse conse:#ences of the a9 in or$er to consi$er thecontrovers! act#a an$ ripe for #$icia reso#tion. 0 In !et another case, the Co#rtsai$ thatF

    . . . $espite the inhi-itions pressin' #pon the Co#rt 9hen confronte$ 9ithconstit#tiona iss#es, it 9i not hesitate to $ecare a a9 or act invai$ 9hen it isconvince$ that this st -e $one. In arrivin' at this conc#sion, its on! criterion 9i

    -e the Constit#tion an$ o$ as its conscience 'ives it in the i'ht to pro-e its &eanin'

    an$ $iscover its p#rpose. (ersona &otives an$ poitica consi$erations areirreevancies that cannot inf#ence its $ecisions. Ban$ish&ent is as ineffect#a asinti&i$ation, for a the a9eso&e po9er of the Con'ress an$ E"ec#tive, the Co#rt 9inot hesitate 1to &a=e the ha&&er fa heavi!,1 9here the acts of these $epart&ents,or of an! officia, -etra! the peopeGs 9i as e"presse$ in the Constit#tion . . .

    The nee$ to consi$er the constit#tiona iss#es raise$ -efore the Co#rt is f#rther-#ttresse$ -! the fact that it is no9 &ore than fifteen !ears since the ratification of the/08 Constit#tion re:#irin' Con'ress to provi$e a s!ste& for a-sentee votin' -!:#aifie$ 4iipinos a-roa$. Th#s, stron' reasons of p#-ic poic! $e&an$ that the

    Co#rt resoves the instant petition /@ an$ $eter&ine 9hether Con'ress has acte$9ithin the i&its of the Constit#tion or if it ha$ 'rave! a-#se$ the $iscretionentr#ste$ to it. //

    The petitioner raises three principa :#estionsF

    A. %oes Section 56$7 of Rep. Act No. /0 ao9in' the re'istration of voters 9hoare i&&i'rants or per&anent resi$ents in other co#ntries -! their &ere act ofe"ec#tin' an affi$avit e"pressin' their intention to ret#rn to the (hiippines, vioate

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    the resi$enc! re:#ire&ent in Section / of Artice 2 of the Constit#tionK

    B. %oes Section /0.5 of the sa&e a9 e&po9erin' the COMELEC to procai& the9innin' can$i$ates for nationa offices an$ part! ist representatives inc#$in' the(resi$ent an$ the 2ice*(resi$ent vioate the constit#tiona &an$ate #n$er Section >,Artice 2II of the Constit#tion that the 9innin' can$i$ates for (resi$ent an$ the 2ice*

    (resi$ent sha -e procai&e$ as 9inners -! Con'ressKC. Ma! Con'ress, thro#'h the +oint Con'ressiona Oversi'ht Co&&ittee create$in Section ;5 of Rep. Act No. /0, e"ercise the po9er to revie9, revise, a&en$, an$approve the I&pe&entin' R#es an$ Re'#ations that the Co&&ission on Eectionssha pro'ate 9itho#t vioatin' the in$epen$ence of the COMELEC #n$er Section/, Artice I*A of the Constit#tionK

    The Co#rt 9i resove the :#estions in seriati&.

    A. %oes Section 56$7 of Rep. Act No. /0 vioate Section /, Artice 2 of the /08

    Constit#tion of the Rep#-ic of the (hiippinesKSection 56$7 provi$esF

    Sec. 5. %is:#aifications. D The foo9in' sha -e $is:#aifie$ fro& votin' #n$erthis ActF

    """ """ """

    $7 An i&&i'rant or a per&anent resi$ent 9ho is reco'ni3e$ as s#ch in the hostco#ntr!, #ness heshe e"ec#tes, #pon re'istration, an affi$avit prepare$ for the

    p#rpose -! the Co&&ission $ecarin' that heshe sha res#&e act#a ph!sica

    per&anent resi$ence in the (hiippines not ater than three 6?7 !ea