8/28/2015 G.R. No.

118702

TodayisFriday,August28,2015

RepublicofthePhilippines
SUPREMECOURT
Manila

ENBANC

G.R.No.118702March16,1995

CIRILOROYG.MONTEJO,petitioner,
vs.
COMMISSIONONELECTIONS,respondent.

SERGIOA.F.APOSTOL,intervenor.

PUNO,J.:

Morethanpoliticalfortunesareatstakeinthecaseatbench.PetitionerCiriloRoyG.Montejo,representingtheFirst
DistrictofLeyte,pleadsfortheannulmentofsection1ofResolutionNo.2736oftheCOMELEC,redistrictingcertain
municipalities in Leyte, on the ground that it violates the principle of equality of representation. To remedy the
allegedinequity,petitionerseekstotransferthemunicipalityofTolosafromhisdistricttotheSecondDistrictofthe
province. Intervenor Sergio A.F. Apostol, representing the Second District, vigorously opposed the inclusion of
Tolosainhisdistrict.Wegaveduecoursetothepetitionconsideringthat,atbottom,itinvolvesthevalidityofthe
unprecedentedexercisebytheCOMELECofthelegislativepowerofredistrictingandreapportionment.

TheprovinceofLeytewiththecitiesofTaclobanandOrmociscomposedoffive(5)legislativedistricts.1

The first district 2 covers Tacloban City and the municipalities of Alangalang, Babatngon, Palo, San Miguel, Sta. Fe,
TanauanandTolosa.

The second district3 is composed of the municipalities of Barugo, Barauen, Capoocan, Carigara, Dagami, Dulag, Jaro,
Julita,LaPat,Mayorga,MacArthur,Pastrana,Tabontabon,andTunga.

Thethirddistrict4iscomposedofthemunicipalitiesofAlmeria,Biliran,Cabucgayan,Caibiran,Calubian,Culaba,Kawayan,
Leyte,Maripipi,Naval,SanIsidro,Tabango,andVillaba.

Thefourthdistrict5iscomposedofOrmocCityandthemunicipalitiesofAlbuera,Isabel,Kananga,Matagob,Merida,and
Palompon.

The fifth district 6 is composed of the municipalities of Abuyog, Bate, Baybay, Hilongos, Hindang, Inopacan, Javier,
Mahaplag,andMatalom.

Biliran,locatedinthethirddistrictofLeyte,wasmadeitssubprovincebyvirtueofRepublicActNo.2141Section1
ofthelawspelledoutenactedonApril8,1959.7

Section1ofthelawspelledoutthemunicipalitiescomprisingthesubprovince,viz.:"Almeria,Biliran,Cabucgayan,
Caibiran,Culaba,Kawayan,MaripipiandNavalandalltheterritoriescomprisedtherein."

OnJanuary1,1992,theLocalGovernmentCodetookeffect.PursuanttoitsSection462,thesubprovinceofBiliran
becamearegularprovince.Itprovides:

Existing subprovinces are hereby converted into regular provinces upon approval by a
majorityofthevotescastinaplebiscitetobeheldinthesubprovincesandtheoriginal
provinces directly affected. The plebiscite shall be conducted by the COMELEC
simultaneously with the national elections following the effectivity of this code. The new
legislativedistrictscreatedasaresultofsuchconversionshallcontinuetoberepresented
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inCongressbythedulyelectedrepresentativesoftheoriginaldistrictsoutofwhichsaid
new provinces or districts were created until their own representatives shall have been
electedinthenextregularcongressionalelectionsandqualified.

TheconversionofBiliranintoaregularprovincewasapprovedbyamajorityofthevotescastinaplebisciteheldon
May11,1992.Asaconsequenceoftheconversion,eight(8)municipalitiesoftheThirdDistrictcomposedthenew
province of Biliran, i.e., Almeria, Biliran, Cabucgayan, Caibiran, Culaba, Kawayan, Maripipi, and Naval. A further
consequencewastoreducetheThirdDistricttofive(5)municipalitieswithatotalpopulationof145,067asperthe
1990census.

To remedy the resulting inequality in the distribution of inhabitants, voters and municipalities in the province of
Leyte, respondent COMELEC held consultation meetings with the incumbent representatives of the province and
other interested parties. On December 29, 1994, it promulgated Resolution No. 2736 where, among others, it
transferred the municipality of Capoocan of the Second District and the municipality of Palompon of the Fourth
DistricttotheThirdDistrictofLeyte.ThecompositionoftheFirstDistrictwhichincludesthemunicipalityofTolosa
andthecompositionoftheFifthDistrictwerenotdisturbed.Afterthemovementofmunicipalities,thecompositionof
thefive(5)legislativedistrictsappearedasfollows:

FirstDistrict:PopulationRegistered
Voters
(1990)(1994)

1.TaclobanCity,137,19081,679
2.Alangalang,33,37520,543
3.Babatngon,17,7959,929
4.Palo,38,10020,816
5.SanMiguel,13,4388,167
6.Sta.Fe,12,1197,497
7.Tanauanand,38,03322,357
8.Tolosa13,2997,700

TOTAL303,349178,688

SecondDistrict:PopulationRegistered
Voters
(1990)(1994)

1.Barugo,23,81713,237
2.Barauen,46,02923,307
3.Carigara38,86322,036
4.Dagami,25,60616,519
5.Dulag,33,02019,375
6.Jaro,31,72717,139
7.Julita,9,9446,196
8.LaPaz,14,3119,003
9.Mayorga,10,5305,868
10.MacArthur,13,1598,628
11.Pastrana,12,5657,348
12.Tabontabon,and7,1834,419
13.Tunga5,4133,387

TOTAL272,167156,462

ThirdDistrict:PopulationRegistered
Voters
(1990)(1994)

1.Calubian,25,96816,649
2.Leyte,32,57516,415
3.SanIsidro,24,44214,916
4.Tabango,29,74315,48
5.Villaba,32,33921,227
6.Capoocan,and23,68713,595
7.Palompon45,74527,474

TOTAL214,499125,763

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FourthDistrict:PopulationRegistered
Voters
(1990)(1994)

1.OrmocCity,129,45675,140
2.Albuera,32,39517,493
3.Isabel,33,38921,889
4.Kananga,36,28819,873
5.Matagob,15,4749,407
6.Merida,and22,34512,474

TOTAL269,347155,995

FifthDistrict:PopulationRegistered
Voters
(1990)(1994)

1.Abuyog,47,26528,682
2.Bato,28,197116,13
3.Baybay,82,28147,923
4.Hilongos,48,61726,871
5.Hindang,16,2729,659
6.Inopacan,16,89410,401
7.Javier,18,65811,713
8.Mahaplag,and22,67313,616
9.Matalom28,29116,247

TOTAL309,148181,242

PetitionerMontejofiledamotionforreconsiderationcallingtheattentionofrespondentCOMELEC,amongothers,to
theinequitabledistributionofinhabitantsandvotersbetweentheFirstandSecondDistricts.HeallegedthattheFirst
District has 178,688 registered voters while the Second District has 156,462 registered voters or a difference of
22,226 registered voters. To diminish the difference, he proposed that the municipality of Tolosa with 7,7000
registeredvotersbetransferredfromtheFirsttotheSecondDistrict.Themotionwasopposedbyintervenor,Sergio
A.F.Apostol.RespondentCommissiondeniedthemotionrulingthat:(1)itsadjustmentofmunicipalitiesinvolvedthe
leastdisruptionoftheterritorialcompositionofeachdistrictand(2)saidadjustmentcompliedwiththeconstitutional
requirement that each legislative district shall comprise, as far as practicable, contiguous, compact and adjacent
territory.

In this petition, petitioner insists that Section I of Resolution No. 2736 violates the principle of equality of
representation ordained in the Constitution. Citing Wesberry v. Sanders, 8 he argues that respondent COMELEC
violated"theconstitutionalpreceptthatasmuchaspracticableoneman'svoteinacongressionalelectionistobeworthas
much as another's." The Solicitor General, in his Comment, concurred with the views of the petitioner. The intervenor,
however,opposedthepetitionontwo(2)grounds:(1)COMELEChasnojurisdictiontopromulgateResolutionNo.2736and
(2) assuming it has jurisdiction, said Resolution is in accord with the Constitution. Respondent COMELEC filed its own
CommentallegingthatitactedwithintheparametersoftheConstitution.

Wefindsection1ofResolutionNo.2736void.

Whilethepetitionatbenchpresentsasignificantissue,ourfirstinquirywillrelatetotheconstitutionalpowerofthe
respondentCOMELEC9totransfermunicipalitiesfromonelegislativedistricttoanotherlegislativedistrictintheprovince
ofLeyte.ThebasicpowersofrespondentCOMELEC,asenforcerandadministratorofourelectionlaws,arespelledoutin
blackandwhiteinsection2(c),ArticleIXoftheConstitution.Rightly,respondentCOMELECdoesnotinvokethisprovision
butreliesontheOrdinanceappendedtothe1987Constitutionasthesourceofitspowerofredistrictingwhichistraditionally
regarded as part of the power to make laws. The Ordinance is entitled "Apportioning the Seats of the House of
Representatives of the Congress of the Philippines to the Different Legislative Districts in Provinces and Cities and the
MetropolitanManilaArea."Itssubstantivesectionsstate:

Sec.1.ForpurposesoftheelectionofMembersoftheHouseofRepresentativesoftheFirstCongress
of the Philippines under the Constitution proposed by the 1986 Constitutional Commission and
subsequentelections,anduntilotherwiseprovidedbylaw,theMembersthereofshallbeelectedfrom
legislative districts apportioned among the provinces, cities, and the Metropolitan Manila Area as
follows:

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Sec. 2. The Commission on Elections is hereby empowered to make minor adjustments of the

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reapportionmenthereinmade.

Sec. 3. Any province that may hereafter be created, or any city whose population may hereafter
increasetomorethantwohundredfiftythousandshallbeentitledintheimmediatelyfollowingelection
toatleastoneMemberorsuchnumberofMembersasitmaybeentitledtoonthebasisofthenumber
ofitsinhabitantsandaccordingtothestandardssetforthinparagraph(3),Section5ofArticleVIofthe
Constitution.ThenumberofMembersapportionedtotheprovinceoutofwhichsuchnewprovincewas
created or where the city, whose population has so increased, is geographically located shall be
correspondingly adjusted by the Commission on Elections but such adjustment shall not be made
withinonehundredandtwentydaysbeforetheelection.(Emphasissupplied)

The Ordinance was made necessary because Proclamation No. 3 10 of President Corazon C. Aquino, ordaining the
Provisional Constitution of the Republic of the Philippines, abolished the Batasang Pambansa. 11 She then exercised
legislativepowersundertheProvisionalConstitution.12

The Ordinance was the principal handiwork of then Commissioner Hilario G. Davide, Jr., 13 now a distinguished
memberofthisCourt.TherecordsrevealthattheConstitutionalCommissionhadtoresolveseveralprejudicialissuesbefore
authorizingthefirstcongressionalelectionsunderthe1987Constitution.Amongthevitalissueswere:whetherthemembers
oftheHouseofRepresentativeswouldbeelectedbydistrictorbyprovincewhoshallundertaketheapportionmentofthe
legislativedistrictsand,howtheapportionmentshouldbemade.14CommissionerDavide,Jr.offeredthree(3)optionsfor
the Commission to consider: (1) allow President Aquino to do the apportionment by law (2) empower the COMELEC to
maketheapportionmentor(3)lettheCommissionexercisethepowerbywayofanOrdinanceappendedtotheConstitution.
15ThedifferentdimensionsoftheoptionswerediscussedbyCommissionersDavide,FelicitasS.AquinoandBlasF.Ople.
Wequotethedebatesinextenso,viz.:16

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MR.PADILLA.Mr.PresidingOfficer.

THEPRESIDINGOFFICER(Mr.Jamir).CommissionerPadillaisrecognized.

MR.PADILLA.IthinkIhavefiledaverysimplemotionbywayofamendmentbysubstitutionandthis
was, I believe, a prior or a proposed amendment. Also, the chairman of the Committee on the
Legislative said that he was proposing a vote first by the Chamber on the concept of whether the
electionisbyprovinceandcitiesontheonehand,orbylegislativedistrictsontheother.SoIpropose
this simple formulation which reads: "FOR THE FIRST ELECTION UNDER THIS CONSTITUTION
THE LEGISLATIVE DISTRICTS SHALL BE APPORTIONED BY THE COMMISSION ON
ELECTIONS."Ihopethechairmanwillaccepttheproposedamendment.

SUSPENSIONOFSESSION

MR.DAVIDE.Theeffectis,moreorless,thesameinsofarastheapportionmentisconcerned,butthe
BernasSarmiento et al. proposal would also provide for a mandate for the apportionment later,
meaning after the first election, which will in effect embody what the Commission had approved,
readingasfollows:"Withinthreeyearsfollowingthereturnofeverycensus,theCongressshallmakea
reapportionmentoflegislativedistrictsbasedonthestandardsprovidedinthissection."

So,Mr.PresidingOfficer,mayIrequestforasuspensionofthesession,sothatalltheproponentscan
worktogether.

THEPRESIDINGOFFICER(Mr.Jamir).Thesessionissuspended.

Itwas3:33p.m.

RESUMPTIONOFSESSION

At3:40p.m.,thesessionwasresumed.

THEPRESIDINGOFFICER(Mr.Jamir).Thesessionisresumed.

CommissionerDavideisrecognized.

MR.DAVIDE.Mr.PresidingOfficer,asacompromise,IwonderiftheCommissionwillallowthis.We
willjustdeletetheproposedsubparagraph(4)andallthecapitalizedwordsinparagraph(5).Sothatin
paragraph(5),whatwouldbeleftwouldonlybethefollowing:"Withinthreeyearsfollowingthereturnof
every census, the Congress shall make a reapportionment of legislative districts based on the
standardsprovidedinthissection."
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ButweshallhaveanordinanceappendedtothenewConstitutionindicatingspecificallythefollowing:
"FORPURPOSESOFTHEELECTIONOFMEMBERSOFTHEHOUSEOFREPRESENTATIVESIN
THE FIRST CONGRESSIONAL ELECTION IMMEDIATELY FOLLOWING THE RATIFICATION OF
THIS CONSTITUTION PROPOSED BY THE 1986 CONSTITUTIONAL COMMISSION AND
SUBSEQUENT ELECTIONS AND UNTIL OTHERWISE PROVIDED BY LAW, THE MEMBERS OF
THE HOUSE OF REPRESENTATIVES SHALL BE ELECTED FROM LEGISLATIVE DISTRICTS
APPORTIONEDAMONGTHEPROVINCES,CITIESANDTHEMETROPOLITANMANILAAREAAS
FOLLOWS."

AndwhatwillfollowwillbetheallocationofseatstoMetropolitanManilaArea,totheprovincesandto
thecities,withoutindicatingthemunicipalitiescomprisingeachofthedistricts.Then,underSection2,
wewillmandatetheCOMELECtomaketheactualapportionmentonthebasisofthenumberofseats
providedforandallocatedtoeachprovincebyus.

MS.AQUINO.Mr.PresidingOfficer.

THEPRESIDINGOFFICER(Mr.Jamir).CommissionerAquinoisrecognized.

MS. AQUINO. I have to object to the provision which will give mandate to COMELEC to do the
redistricting. Redistricting is vitally linked to the baneful practices of cutting up areas or spheres of
influence in other words, gerrymandering. This Commission, being a nonpartisan, a nonpolitical
deliberative body, is in the best possible situation under the circumstances to undertake that
responsibility.Wearenotwantinginexpertiseandintimebecauseinthefirstplace,theCommitteeon
theLegislativehaspreparedthereportonthebasisoftherecommendationoftheCOMELEC.

MR.OPLE.Mr.PresidingOfficer.

THEPRESIDINGOFFICER(Mr.Jamir).CommissionerOpleisrecognized.

MR.OPLE.IwouldliketosupportthepositiontakenbyCommissionerAquinointhisrespect.Weknow
thatthereapportionmentofprovincesandcitiesforthepurposeofredistrictingisgenerallyinherentin
theconstituentpowerorinthelegislativepower.AndIwouldfeelveryuncertainaboutdelegatingthis
toaquasijudicialbodyevenifitisoneoftheconstitutionalofficescreatedunderthisConstitution.We
have the assurance of Commissioner Davide, as chairman of the Committee on the Legislative, that
even given the very short time remaining in the life of this Commission, there is no reason why we
cannotcompletetheworkofreapportionmentonthebasisoftheCOMELECplanwhichthecommittee
hasalreadythoroughlystudiedandwhichremainsavailabletotheConstitutionalCommission.

So,IsupportthepositiontakenbyCommissionerAquino,Mr.PresidingOfficer.Ithink,itisthesafest,
themostreasonable,andthemostworkableapproachthatisavailabletothisCommission.

THEPRESIDINGOFFICER(Mr.Jamir).WhatdoesCommissionerDavidesay:

MR.DAVIDE.Theissuenowiswhetherthisbodywillmaketheapportionmentitselforwhetherwewill
leave it to the COMELEC. So, there arises, therefore, a prejudicial question for the body to decide. I
would propose that the Commission should now decide what body should make the apportionment.
ShoulditbetheCommissionorshoulditbetheCOMELEC?AndtheCommitteeontheLegislativewill
actaccordinglyonthebasisofthedecision.

MR.BENGZON.Mr.PresidingOfficer.

THEPRESIDINGOFFICER(Mr.Jamir).CommissionerBengzonisrecognized.

MR.BENGZON.Aproposofthat, I wouldliketoinformthebodythat Ibelievethe Committee onthe

Legislativehaspreciselyworkedonthismatterandtheyarereadywithalistofapportionment.They
have,infact,apportionedthewholecountryintovariousdistrictsbasedontherecommendationofthe
COMELEC.Sotheyarereadywiththelistandifthisbodywouldwishtoapportionthewholecountry
bydistrictitself,thenIbelievewehavethetimetodoitbecausetheCommitteeontheLegislativeis
readywiththatparticularreportwhichneedonlytobeappendedtotheConstitution.Soifthisbodyis
readytoaccepttheworkoftheCommitteeontheLegislativewewouldhavenoproblem.Ijustwould
liketogivethatinformationsothatthepeopleherewouldbeguidedaccordinglywhentheyvote.

MR.RODRIGO.Mr.PresidingOfficer.

THEPRESIDINGOFFICER(Mr.Jamir)CommissionerRodrigoisrecognized.

MR.RODRIGO.IjustwouldliketoaskCommissionerDavidesomequestions.

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THEPRESIDINGOFFICER(Mr.Jamir).CommissionerDavidemayyieldifhesodesires.

MR.DAVIDE.Gladly.

MR.RODRIGO.Willthisapportionmentwhichweareconsideringapplyonlytothefirstelectionafter
theenactmentoftheConstitution?

MR.DAVIDE.OnthebasisofthePadillaproposal,itwillbeforthefirstelectiononthebasisofthe
Sarmientoproposal,itwillonlyapplytothefirstelection.

MR.RODRIGO.Andafterthat,Congresswillhavethepowertoreapportion.

MR.DAVIDE.Yes.

MR. RODRIGO. So, if we attach this to the Constitution the reapportionment based on the
COMELECstudyandbetweentheapprovaloftheConstitutionandthefirstelectiontheCOMELEC
nolongerhasthepowertochangethatevenabit.

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THEPRESIDINGOFFICER(Mr.Jamir)CommissionerRegaladoisrecognized.

MR.REGALADO.MayIaddressaclarificatoryquestiontoCommissionerDavide?

THEPRESIDINGOFFICER(Mr.Jamir).Gentlemanwillpleaseproceed.

MR. REGALADO. On the basis of the Commissioner's proposed apportionment and considering the
factthattherewillbeacorrespondingreductionto183seats,wouldtherebeinstancesrepresentation
ofundernonrepresentation?

MR.DAVIDE.Noneatall,Mr.PresidingOfficer.IcanassuretheCommissionthattherewillbenocase
ofinequitabledistribution.Itwillcomeouttobeoneforevery350to400,000inhabitants.

MR.REGALADO.Andthatwouldbewithinthestandardthatwerefer.

MR.DAVIDE.Yes,Mr.PresidingOfficer.

MR.REGALADO.Thankyou.

MR.RAMA.Mr.PresidingOfficer.

THEPRESIDINGOFFICER(Mr.Jamir).TheFloorLeaderisrecognized.

MR. RAMA. The parliamentary situation is that there was a motion by Commissioner Sarmiento to
mandate COMELEC to do the redistricting. This was also almost the same motion by Commissioner
PadillaandIthinkwehavehadsomekindofmeetingofminds.Ontheotherhand,thereseemstobea
prejudicial question, an amendment to the amendment as suggested by Commissioner Aquino, that
insteadoftheCOMELEC,itshouldbethisCommissionthatshallmaketheredistricting.SomayIask
CommissionerAquino,ifsheinsistsonthatidea,topleaseformulateitintoamotionsowecanvoteon
thatfirstasanamendmenttotheamendment.

THEPRESIDINGOFFICER(Mr.Jamir).CommissionerAquinoisrecognized.

MS . AQUINO. The motion is for this Commission to undertake the apportionment of the legislative
districtsinsteadoftheproposalthatCOMELECbegiventhemandatetoundertaketheresponsibility.

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MR. SARMIENTO. May I be clarified, Mr. Presiding Officer. Is it the motion or the proposed
amendment?

THEPRESIDINGOFFICER(Mr.Jamir).Theproposedamendment.

MR.SARMIENTO.Maywemovefortheapprovalofthisproposedamendmentwhichwesubstitutefor
paragraphs4and5.

MR.DAVIDE.MayIrequestthatitshouldbetreatedmerelyasamotiontobefollowedbyadeletionof
paragraph 4 because that should not really appear as a paragraph in Section 5 otherwise, it will
appearveryuglyintheConstitutionwherewemandateaCommissionthatwillbecomefunctusofficio
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tohavetheauthority.Asamatteroffact,wecannotexercisethatauthorityuntilaftertheratificationof
thenewConstitution.

THEPRESIDINGOFFICER(Mr.Jamir).WhatdoesCommissionerSarmientosay?

MR. SARMIENTO. It is accepted, Mr. Presiding Officer. So, may I move for the approval of this
proposedamendment.

MS.AQUINO.Mr.PresidingOfficer.

THEPRESIDINGOFFICER(Mr.Jamir).CommissionerAquinoisrecognized.

MS.AQUINO.Wouldthatrequireatwothirdsvoteorasimplepluralitytoadoptthatmotion?

THEPRESIDINGOFFICER(Mr.Jamir).Thatwillrequireatwothirdsvote.

MS.AQUINO.Thankyou.Mr.PresidingOfficer.

MR.SARMIENTO.MayIrestatethemotion,Mr.PresidingOfficer.

THEPRESIDINGOFFICER(Mr.Jamir)TheGentlemanmayproceed.

MR.SARMIENTO.MayImovethatthisCommissiondothereapportionmentlegislativedistricts.

MS.AQUINO.Mr.PresidingOfficer.

THEPRESIDINGOFFICER(Mr.Jamir).WhatisthepleasureofCommissionerAquino?

MS.AQUINO.MayIbeclarifiedagainonthemotion.IsCommissionerSarmiento,therefore,adopting
mymotion?WoulditnotberightforhimtomovethattheCOMELECbemandated?

MR. SARMIENTO. No, we accepted the amendment. It is already the Commission that will be
mandated.

MS.AQUINO.So,theGentlemenhasacceptedtheamendmenttheamendment.

Thankyou.

MR.SARMIENTO.IamvotingthatthisCommissiondothereapportionment.

VOTING

THEPRESIDINGOFFICER(Mr.Jamir).Letusproceedtovote.

Asmanyasareinfavor,pleaseraisetheirhand.(SeveralMembersraisedtheirhand.)

Asmanyasareagainst,pleaseraisetheirhand.(NoMemberraisedhishand.)

Theresultsshow30votesinfavorandnoneagainstthemotionisapproved.

Clearlythen,theConstitutionalCommissiondeniedtotheCOMELECthemajorpoweroflegislativeapportionment
as it itself exercised the power. Section 2 of the Ordinance only empowered the COMELEC "to make minor
adjustments of the reapportionment herein made." The meaning of the phrase "minor adjustments was again
clarifiedinthedebates17oftheCommission,viz.:

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MR. GUINGONA. This is just clarificatory, Mr. Presiding Officer. In Section 2, the Commission on
Electionsisempoweredtomakeminoradjustmentsontheapportionmentmadehere.

MR.DAVIDE.Yes,Mr.PresidingOfficer.

MR.GUINGONA.Wehavenotsetanytimelimitforthis.

MR. DAVIDE. We should not set a time limit unless during the period of amendments a proposal is
made. The authority conferred would be on minor corrections or amendments, meaning to say, for
instance,thatwemayhaveforgottenaninterveningmunicipalityintheenumeration,whichoughttobe
includedinonedistrict.Thatweshallconsideraminoramendment.

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MR.GUINGONA.Thankyou.

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THEPRESIDINGOFFICER(Mr.Romulo).CommissionerdeCastroisrecognized.

MR.DECASTRO.Thankyou.

I was about to ask the committee the meaning of minor adjustment. Can it be possible that one
municipalityinadistrictbetransferredtoanotherdistrictandcallitaminoradjustment?

MR. DAVIDE. That cannot be done, Mr. Presiding Officer. Minor, meaning, that there should be no
changeintheallocationsperdistrict.However,itmayhappenthatwehaveforgottenamunicipalityin
between which is still in the territory of one assigned district, or there may be an error in the correct
name of a particularmunicipality because of changes made by the interim Batasang Pambansa and
theRegularBatasangPambansa.Thereweremanybataspambansaenactedbyboththeinterimand
theRegularBatasangPambansachangingthenamesofmunicipalities.

MR. DE CASTRO. So, the minor adjustment may be made only if one of the municipalities is not
mentionedintheordinanceappendedto,anditwillbeupfortheCOMELECnowtoadjustortoput
suchmunicipalitytoacertaindistrict.

MR.DAVIDE.Yes,Mr.PresidingOfficer.Forinstance,wemaynothavethedataregardingadivision
of a municipality by the interim Batasang Pambansa or the Regular Batasang Pambansa into two
municipalities, meaning, a mother municipality and the new municipality, but still actually these are
withinthegeographicaldistrictarea.

MR.DECASTRO.SotheminoradjustmentwhichtheCOMELECcannotdoisthat,if,forexample,my
municipalityisintheFirstDistrictofLaguna,theycannotputthatinanyotherdistrict.

MR.DAVIDE.Thatisnotevenaminorcorrection.Itisasubstantiveone.

MR.DECASTRO.Thankyou.

Consistentwiththelimitsofitspowertomakeminoradjustments,Section3oftheOrdinancedidnotalsogivethe
respondent COMELEC any authority to transfer municipalities from one legislative district to another district. The
powergrantedbySection3totherespondentCOMELECistoadjustthenumberofmembers(not municipalities)
"apportionedtotheprovinceoutofwhichsuchnewprovincewascreated...."

Prescinding from these premises, we hold that respondent COMELEC committed grave abuse of discretion
amounting to lack of jurisdiction when it promulgated section 1 of its Resolution No. 2736 transferring the
municipalityofCapoocanoftheSecondDistrictandthemunicipalityofPalomponoftheFourthDistricttotheThird
DistrictofLeyte.

ItmaywellbethattheconversionofBiliranfromasubprovincetoaregularprovincebroughtaboutanimbalancein
thedistributionofvotersandinhabitantsinthefive(5)legislativedistrictsoftheprovinceofLeyte.Thisimbalance,
dependingonitsdegree,coulddevalueacitizen'svoteinviolationoftheequalprotectionclauseoftheConstitution.
Bethatasitmay,itisnotproperatthistimeforpetitionertoraisethisissueusingthecaseatbenchashislegal
vehicle. The issue involves a problem of reapportionment of legislative districts and petitioner's remedy lies with
Congress.Section5(4),ArticleVIoftheConstitutioncategoricallygivesCongressthepowertoreapportion,thus:
"Within three (3) years following the return of every census, the Congress shall make a reapportionment of
legislative districts based on the standards provided in this section." In Maciasv.COMELEC, 18 we ruled that the
validity of a legislative apportionment is a justiciable question. But while this Court can strike down an unconstitutional
reapportionment, it cannot itself make the reapportionment as petitioner would want us to do by directing respondent
COMELECtotransferthemunicipalityofTolosafromtheFirstDistricttotheSecondDistrictoftheprovinceofLeyte.

INVIEWWHEREOF,section1ofResolutionNo.2736insofarasittransferredthemunicipalityofCapoocanofthe
SecondDistrictandthemunicipalityofPalomponoftheFourthDistricttotheThirdDistrictoftheprovinceofLeyte,
isannulledandsetaside.WealsodenythePetitionprayingforthetransferofthemunicipalityofTolosafromthe
FirstDistricttotheSecondDistrictoftheprovinceofLeyte.Nocosts.

SOORDERED.

Narvasa,C.J.,Feliciano,Padilla,Bidin,Regalado,Davide,Jr.,Romero,Bellosillo,Melo,Quiason,Vitug,Kapunan,
MendozaandFrancisco,JJ.,concur.

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Footnotes

1OrdinanceAppendedtotheConstitution.

2RepresentedbyCongressmanCiriloRoyG.Montejo.

3RepresentedbyCongressmanSergioA.F.Apostol.

4RepresentedbyCongressmanAlbertoS.Veloso.

5RepresentedbyCongressmanCarmeloJ.Locsin.

6RepresentedbyCongressmanEribertoV.Loreto.

7Section9,ArticleXVIIIoftheConstitutionprovides:

"Asubprovinceshallcontinuetoexistandoperateuntilitisconvertedintoaregularprovinceoruntil
itscomponentmunicipalitiesarerevertedtothemotherprovince."

8376US1.SeealsoReynoldsv.Sims,377US533WMCA,Inc.v.Lomenzo,377US633,Maryland
CommissionForFairRepresentationv.Tawes,377US656,etc.

9ThepoweroftherespondentCOMELECtoredistrictdoesnotappeartohavebeendisputedbythe
partiesintheproceedingsbelow.

10PromulgatedMarch26,1986andotherwiseknownasFreedomConstitution.

11SeeArticleI,Section3ofProclamationNo.3.

12SeeSection1,ArticleIIofProvisionalConstitution.

13HewastheChairmanoftheCommitteeontheLegislative.TheothercosponsorsoftheOrdinance,
introducedintheCommissionasResolutionNo.551,wereCommissionersAzcuna,Sumulong,
Calderon,Alonto,Jamir,Lerum,Guingona,Abubakar,Rodrigo,Aquino,Concepcion,delosReyes,Jr.,
GarciaandTreas.

14RecordofConstitutionalCommission,October9,1986session,p.686.

15Ibid,p.687.

16Ibid,pp.692694,700.

17RecordsofConstitutionCommission,SessionofOctober13,1986,pp.950951.

18No.L18684,September14,1961,3SCRA1.

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