5 - Francisco v. House of Reps, 460 Phil. 830 (2003)

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460 Phil. 830

INTERVENTION, VS. JOSE G. DE VENECIA, IN HIS CAPACITY AS
SPEAKER OF THE HOUSE OF REPRESENTATIVES, FRANKLIN M.
DRILON, IN HIS CAPACITY AS PRESIDENT OF THE SENATE OF THE
EN BANC REPUBLIC OF THE PHILIPPINES, GILBERT TEODORO, JR., FELIX
WILLIAM FUENTEBELLA, JULIO LEDESMA IV, HENRY LANOT, KIM
[ G.R. No. 160261, G.R. No. 160262, G.R. No. 160263, G.R. BERNARDO- LOKIN, MARCELINO LIBANAN, EMMYLOU TALIÑO-
No. 160277, G.R. No. 160292, G.R. No. 160295, G.R. No. SANTOS, DOUGLAS CAGAS, SHERWIN GATCHALIAN, LUIS
160310, G.R. No. 160318, G.R. No. 160342, G.R. No. 160343, BERSAMIN, JR., NERISSA SOON-RUIZ, ERNESTO NIEVA, EDGAR
G.R. No. 160360, Etc., November 10, 2003 ] ERICE, ISMAEL MATHAY, SAMUEL DANGWA, ALFREDO MARAÑON,
JR., CECILIA CARREON- JALOSJOS, AGAPITO AQUINO, FAUSTO
SEACHON, JR., GEORGILU YUMUL-HERMIDA, JOSE CARLOS
ERNESTO B. FRANCISCO, JR., PETITIONER, NAGMAMALASAKIT LACSON, MANUEL ORTEGA, ULIRAN JUAQUIN, SORAYA JAAFAR,
NA MGA MANANANGGOL NG MGA MANGGAGAWANG PILIPINO, WILHELMINO SY-ALVARADO, CLAUDE BAUTISTA, DEL DE
INC., ITS OFFICERS AND MEMBERS, PETITIONER-IN- GUZMAN, ZENAIDA CRUZ-DUCUT, AUGUSTO BACULIO, FAUSTINO
INTERVENTION, WORLD WAR II VETERANS LEGIONARIES OF THE DY III, AUGUSTO SYJUCO, ROZZANO RUFINO BIAZON,
PHILIPPINES, INC., PETITIONER-IN-INTERVENTION, VS. THE LEOVIGILDO BANAAG, ERIC SINGSON, JACINTO PARAS, JOSE
HOUSE OF REPRESENTATIVES, REPRESENTED BY SPEAKER JOSE SOLIS, RENATO MATUBO, HERMINO TEVES, AMADO ESPINO, JR.,
G. DE VENECIA, THE SENATE, REPRESENTED BY SENATE EMILIO MACIAS, ARTHUR PINGOY, JR., FRANCIS NEPOMUCENO,
PRESIDENT FRANKLIN M. DRILON, REPRESENTATIVE GILBERTO CONRADO ESTRELLA III, ELIAS BULUT, JR., JURDIN ROMUALDO,
C. TEODORO, JR. AND REPRESENTATIVE FELIX WILLIAM B. JUAN PABLO BONDOC, GENEROSO TULAGAN, PERPETUO
FUENTEBELLA, RESPONDENTS, JAIME N. SORIANO, RESPONDENT- YLAGAN, MICHAEL DUAVIT, JOSEPH DURANO, JESLI LAPUS,
IN-INTERVENTION, SENATOR AQUILINO Q. PIMENTEL, CARLOS COJUANGCO, GIORGIDI AGGABAO, FRANCIS
RESPONDENT-IN-INTERVENTION . ESCUDERRO, RENE VELARDE, CELSO LOBREGAT, ALIPIO
BADELLES, DIDAGEN DILANGALEN, ABRAHAM MITRA, JOSEPH
SEDFREY M. CANDELARIA, CARLOS P. MEDINA, JR. AND SANTIAGO, DARLENE ANTONIO-CUSTODIO, ALETA SUAREZ,
HENEDINA RAZON-ABAD, PETITIONERS, ATTYS. ROMULO B. RODOLF PLAZA, JV BAUTISTA, GREGORIO IPONG, GILBERT
MACALINTAL AND PETE QUIRINO QUADRA, PETITIONERS-IN- REMULLA, ROLEX SUPLICO, CELIA LAYUS, JUAN MIGUEL ZUBIRI,
INTERVENTION, WORLD WAR II VETERANS LEGIONARIES OF THE BENASING MACARAMBON, JR., JOSEFINA JOSON, MARK
PHILIPPINES, INC., PETITIONER-IN-INTERVENTION, VS. THE COJUANGCO, MAURICIO DOMOGAN, RONALDO ZAMORA,
HOUSE OF REPRESENTATIVES, THROUGH THE SPEAKER OR ANGELO MONTILLA, ROSELLER BARINAGA, JESNAR FALCON,
ACTING SPEAKER OR PRESIDING OFFICER, SPEAKER JOSE G. DE REYLINA NICOLAS, RODOLFO ALBANO, JOAQUIN CHIPECO, JR.,
VENECIA, REPRESENTATIVE GILBERTO G. TEODORO, JR., AND RUY ELIAS LOPEZ, RESPONDENTS, JAIME N. SORIANO,
REPRESENTATIVE FELIX WILLIAM B. FUENTEBELLA, THE SENATE RESPONDENT-IN-INTERVENTION, SENATOR AQUILINO Q.
OF THE PHILIPPINES, THROUGH ITS PRESIDENT, SENATE PIMENTEL, RESPONDENT-IN-INTERVENTION.
PRESIDENT FRANKLIN M. DRILON, RESPONDENTS, JAIME N.
SORIANO, RESPONDENT - IN - INTERVENTION , SENATOR HERMINIO HARRY L. ROQUE, JR., JOEL RUIZ BUTUYAN, MA.
AQUILINO Q. PIMENTEL, RESPONDENT-IN-INTERVENTION. CECILIA PAPA, NAPOLEON C. REYES, ANTONIO H. ABAD, JR.,
ALFREDO C. LIGON, JOAN P. SERRANO AND GARY S. MALLARI,
ARTURO M. DE CASTRO AND SOLEDAD M. CAGAMPANG, PETITIONERS, WORLD WAR II VETERANS LEGIONARIES OF THE
PETITIONERS, WORLD WAR II VETERANS LEGIONARIES OF THE PHILIPPINES, INC., PETITIONER-IN-INTERVENTION, VS. HON.
PHILIPPINES, INC., PETITIONERS-IN-INTERVENTION, VS.RANKLIN SPEAKER JOSE G. DE VENECIA, JR. AND ROBERTO P. NAZARENO,
M. DRILON, IN HIS CAPACITY AS SENATE PRESIDENT, AND JOSE G. IN HIS CAPACITY AS SECRETARY GENERAL OF THE HOUSE OF
DE VENECIA, JR., IN HIS CAPACITY AS SPEAKER OF THE HOUSE REPRESENTATIVES, AND THE HOUSE OF REPRESENTATIVES,
OF REPRESENTATIVES, RESPONDENTS,JAIME N. SORIANO, RESPONDENTS, JAIME N. SORIANO, RESPONDENT-IN-
RESPONDENT-IN-INTERVENTION,SENATOR AQUILINO Q. INTERVENTION, SENATOR AQUILINO Q. PIMENTEL, RESPONDENT-
PIMENTEL, RESPONDENT-IN-INTERVENTION. IN-INTERVENTION.
FRANCISCO I. CHAVEZ, PETITIONER,WORLD WAR II VETERANS SALACNIB F. BATERINA AND DEPUTY SPEAKER RAUL M.
LEGIONARIES OF THE PHILIPPINES, INC., PETITIONER-IN- GONZALES, PETITIONERS, WORLD WAR II VETERANS
elibrary.judiciary.gov.ph/dtSearch/dtisapi6.dll?cmd=getdoc&DocId=45644&Index=%2ad0e0e936b466a758b3cf27764c7bfcb1&HitCount=15&hits=4+… 1/197 elibrary.judiciary.gov.ph/dtSearch/dtisapi6.dll?cmd=getdoc&DocId=45644&Index=%2ad0e0e936b466a758b3cf27764c7bfcb1&HitCount=15&hits=4+… 2/197
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LEGIONARIES OF THE PHILIPPINES, INC., PETITIONER-IN- HOUSE OF REPRESENTATIVES, THROUGH THE SPEAKER OR
INTERVENTION, VS. THE HOUSE OF REPRESENTATIVES, ACTING SPEAKER OR PRESIDING OFFICER, SPEAKER JOSE G. DE
THROUGH THE SPEAKER OR ACTING SPEAKER OR PRESIDING VENECIA, REPRESENTATIVE GILBERTO G. TEODORO, JR.,
OFFICER, SPEAKER JOSE G. DE VENECIA, REPRESENTATIVE REPRESENTATIVE FELIX WILLIAM B. FUENTEBELLA, THE SENATE
GILBERTO G. TEODORO, JR., REPRESENTATIVE FELIX WILLIAM B. OF THE PHILIPPINES THROUGH ITS PRESIDENT, SENATE
FUENTEBELLA, THE SENATE OF THE PHILIPPINES, THROUGH ITS PRESIDENT FRANKLIN M. DRILON, RESPONDENTS.
PRESIDENT, SENATE PRESIDENT FRANKLIN M. DRILON,
RESPONDENTS, JAIME N. SORIANO, RESPONDENT-IN- CLARO B. FLORES, PETITIONER, VS. THE HOUSE OF
INTERVENTION,SENATOR AQUILINO Q. PIMENTEL, RESPONDENT- REPRESENTATIVES THROUGH THE SPEAKER, AND THE SENATE
IN-INTERVENTION. OF THE PHILIPPINES, THROUGH THE SENATE PRESIDENT,
RESPONDENTS.
LEONILO R. ALFONSO, PETER ALVAREZ, SAMUEL DOCTOR,
MELVIN MATIBAG, RAMON MIQUIBAS, RODOLFO MAGSINO, U.P. LAW ALUMNI CEBU FOUNDATION, INC., GOERING G.C.
EDUARDO MALASAGA, EDUARDO SARMIENTO, EDGARDO NAOE, PADERANGA, DANILO V. ORTIZ, GLORIA C. ESTENZO-RAMOS,
LEONARDO GARCIA, EDGARD SMITH, EMETERIO MENDIOLA, LIZA D. CORRO, LUIS V. DIORES, SR., BENJAMIN S. RALLON,
MARIO TOREJA, GUILLERMO CASTASUS, NELSON A. LOYOLA, ROLANDO P. NONATO, DANTE T. RAMOS, ELSA R. DIVINAGRACIA,
WILFREDO BELLO, JR., RONNIE TOQUILLO, KATE ANN VITAL, KAREN B. CAPARROS-ARQUILLANO, SYLVA G. AGUIRRE-
ANGELITA Q. GUZMAN, MONICO PABLES, JR., JAIME BOAQUINA, PADERANGA, FOR THEMSELVES AND IN BEHALF OF OTHER
LITA A. AQUINO, MILA P. GABITO, JANETTE ARROYO, RIZALDY CITIZENS OF THE REPUBLIC OF THE PHILIPPINES,PETITIONERS,
EMPIG, ERNA LAHUZ, HOMER CALIBAG, DR. BING ARCE, SIMEON VS. THE HOUSE OF REPRESENTATIVES, SPEAKER JOSE G. DE
ARCE, JR., EL DELLE ARCE, WILLIE RIVERO, DANTE DIAZ, VENECIA, THE SENATE OF THE PHILIPPINES, SENATE PRESIDENT
ALBERTO BUENAVISTA, FAUSTO BUENAVISTA, EMILY SENERIS, FRANKLIN DRILON, HOUSE REPRESENTATIVES FELIX
ANNA CLARISSA LOYOLA, SALVACION LOYOLA, RAINIER FUENTEBELLA AND GILBERTO TEODORO, BY THEMSELVES AND
QUIROLGICO, JOSEPH LEANDRO LOYOLA, ANTONIO LIBREA, AS REPRESENTATIVES OF THE GROUP OF MORE THAN 80 HOUSE
FILEMON SIBULO, MANUEL D. COMIA, JULITO U. SOON, VIRGILIO REPRESENTATIVES WHO SIGNED AND FILED THE IMPEACHMENT
LUSTRE, AND NOEL ISORENA, MAU RESTRIVERA, MAX COMPLAINT AGAINST SUPREME COURT CHIEF JUSTICE HILARIO
VILLAESTER, AND EDILBERTO GALLOR, PETITIONERS, WORLD G. DAVIDE, JR. RESPONDENTS.
WAR II VETERANS LEGIONARIES OF THE PHILIPPINES, INC.,
PETITIONER-IN-INTERVENTION, VS. THE HOUSE OF FR. RANHILIO CALLANGAN AQUINO, PETITIONER, VS. THE
REPRESENTATIVES, REPRESENTED BY HON. SPEAKER JOSE C. DE HONORABLE PRESIDENT OF THE SENATE, THE HONORABLE
VENECIA, JR., THE SENATE, REPRESENTED BY HON. SENATE SPEAKER OF THE HOUSE OF REPRESENTATIVES, RESPONDENTS.
PRESIDENT FRANKLIN DRILON, HON. FELIX FUENTEBELLA, ET
AL., RESPONDENTS. NILO A. MALANYAON, PETITIONER, VS. HON. FELIX WILLIAM
FUENTEBELLA AND GILBERT TEODORO, IN REPRESENTATION OF
PUBLIC INTEREST CENTER, INC., CRISPIN T. REYES, PETITIONERS, THE 86 SIGNATORIES OF THE ARTICLES OF IMPEACHMENT
VS. HON. SPEAKER JOSE G. DE VENECIA, ALL MEMBERS, HOUSE AGAINST CHIEF JUSTICE HILARIO G. DAVIDE, JR. AND THE HOUSE
OF REPRESENTATIVES, HON. SENATE PRESIDENT FRANKLIN M. OF REPRESENTATIVES, CONGRESS OF THE PHILIPPINES,
DRILON, AND ALL MEMBERS, PHILIPPINE SENATE, REPRESENTED BY ITS SPEAKER, HON. JOSE G. DE VENECIA,
RESPONDENTS. RESPONDENTS.
ATTY. FERNANDO P.R. PERITO, IN HIS CAPACITY AS A MEMBER OF VENICIO S. FLORES AND HECTOR L. HOFILEÑA, PETITIONERS, VS.
THE INTEGRATED BAR OF THE PHILIPPINES, MANILA III, AND THE HOUSE OF REPRESENTATIVES, THROUGH SPEAKER JOSE G.
ENGR. MAXIMO N. MENEZ JR., IN HIS CAPACITY AS A TAXPAYER DE VENECIA, AND THE SENATE OF THE RESPONDENTS.
AND MEMBER OF THE ENGINEERING PROFESSION, PETITIONERS,
VS. THE HOUSE OF REPRESENTATIVES REPRESENTED BY THE 83 IN THE MATTER OF THE IMPEACHMENT COMPLAINT AGAINST
HONORABLE MEMBERS OF THE HOUSE LED BY HON. CHIEF JUSTICE HILARIO G. DAVIDE, JR., ATTY. DIOSCORO U.
REPRESENTATIVE WILLIAM FUENTEBELLA, RESPONDENTS VALLEJOS, JR., PETITIONER.
INTEGRATED BAR OF THE PHILIPPINES, PETITIONERVS. THE PHILIPPINE BAR ASSOCIATION, PETITIONER, VS. THE HOUSE OF
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REPRESENTATIVES, THROUGH THE SPEAKER OR PRESIDING political crisis of conscience.

OFFICER, HON. JOSE G. DE VENECIA, REPRESENTATIVE
GILBERTO G. TEODORO, JR., REPRESENTATIVE FELIX WILLIAM B. In any event, it is with the absolute certainty that our Constitution is sufficient to address all the
FUENTEBELA, THE SENATE OF THE PHILIPPINES, THROUGH issues which this controversy spawns that this Court unequivocally pronounces, at the first
SENATE PRESIDENT, HON. FRANKLIN DRILON, RESPONDENTS. instance, that the feared resort to extra-constitutional methods of resolving it is neither
necessary nor legally permissible. Both its resolution and protection of the public interest lie in
DEMOCRITO C. BARCENAS, PRESIDENT OF IBP, CEBU CITY adherence to, not departure from, the Constitution.
CHAPTER, MANUEL M. MONZON, PRESIDING OF IBP, CEBU
PROVINCE, VICTOR A. MAAMBONG, PROVINCIAL BOARD In passing over the complex issues arising from the controversy, this Court is ever mindful of
MEMBER, ADELINO B. SITOY, DEAN OF THE COLLEG EOF LAW, the essential truth that the inviolate doctrine of separation of powers among the legislative,
UNIVERSITY OF CEBU, YOUNG LAWYERS ASSOCAITION OF CEBU, executive or judicial branches of government by no means prescribes for absolute autonomy in
INC. [YLAC], REPRSEENTED BY ATTY. MANUEL LEGASPI, the discharge by each of that part of the governmental power assigned to it by the sovereign
CONFEDERATION OF ACCREDITED MEDIATORS OF THE people.
PHILIPPINES, INC. [CAMP, INC], REPRESENTED BY RODERIC R.
POCA, MANDAUE LAWYERS ASSOCIATION, [MANLAW], At the same time, the corollary doctrine of checks and balances which has been carefully
REPRESENTED BY FELIPE VELASQUEZ, FEDERACION calibrated by the Constitution to temper the official acts of each of these three branches must be
INTERNACIONAL DE ABOGADAS [FIDA], REPRESENTED BY given effect without destroying their indispensable co-equality.
THELMA L. JORDAN, CARLOS G. CO, PRESIDENT OF CEBU
CHAMBER OF COMMERCE AND INDUSTRY AND CEBU LADY Taken together, these two fundamental doctrines of republican government, intended as they are
LAWYERS ASSOCIATION, INC. [CELLA, INC.], MARIBELLE to insure that governmental power is wielded only for the good of the people, mandate a
NAVARRO AND BERNARDITO FLORIDO, PAST PRESIDENT CEBU relationship of interdependence and coordination among these branches where the delicate
CHAMBER OF COMMERCE AND INTEGRATED BAR OF THE functions of enacting, interpreting and enforcing laws are harmonized to achieve a unity of
PHILIPPINES, CEBU CHAPTER, PETITIONERS, VS. THE HOUSE OF governance, guided only by what is in the greater interest and well-being of the people. Verily,
REPRESENTATIVES, REPRESENTED BY REP. JOSE G. DE VENECIA, salus populi est suprema lex.
AS HOUSE SPEAKER AND THE SENATE, REPRESENTED BY
SENATOR FRANKLIN DRILON, AS SENATE PRESIDENT, Article XI of our present 1987 Constitution provides:
RESPONDENTS.
ARTICLE XI
DECISION Accountability of Public Officers
SECTION 1. Public office is a public trust. Public officers and employees must at all
CARPIO MORALES, J.: times be accountable to the people, serve them with utmost responsibility, integrity,
loyalty, and efficiency, act with patriotism and justice, and lead modest lives.
There can be no constitutional crisis arising from a conflict, no matter how passionate and
seemingly irreconcilable it may appear to be, over the determination by the independent SECTION 2. The President, the Vice-President, the Members of the Supreme Court,
branches of government of the nature, scope and extent of their respective constitutional powers the Members of the Constitutional Commissions, and the Ombudsman may be
where the Constitution itself provides for the means and bases for its resolution. removed from office, on impeachment for, and conviction of, culpable violation of
the Constitution, treason, bribery, graft and corruption, other high crimes, or betrayal
Our nation's history is replete with vivid illustrations of the often frictional, at times turbulent, of public trust. All other public officers and employees may be removed from office
dynamics of the relationship among these co-equal branches. This Court is confronted with one as provided by law, but not by impeachment.
such today involving the legislature and the judiciary which has drawn legal luminaries to chart
antipodal courses and not a few of our countrymen to vent cacophonous sentiments thereon. SECTION 3. (1) The House of Representatives shall have the exclusive power to
initiate all cases of impeachment.
There may indeed be some legitimacy to the characterization that the present controversy
subject of the instant petitions - whether the filing of the second impeachment complaint against (2) A verified complaint for impeachment may be filed by any Member of the House
Chief Justice Hilario G. Davide, Jr. with the House of Representatives falls within the one year of Representatives or by any citizen upon a resolution of endorsement by any
bar provided in the Constitution, and whether the resolution thereof is a political question - has Member thereof, which shall be included in the Order of Business within ten session
resulted in a political crisis. Perhaps even more truth to the view that it was brought upon by a days, and referred to the proper Committee within three session days thereafter. The
Committee, after hearing, and by a majority vote of all its Members, shall submit its
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report to the House within sixty session days from such referral, together with the or by any citizen upon a resolution of complaint that is endorsed by a Member of the
corresponding resolution. The resolution shall be calendared for consideration by the endorsement by any Member thereof or by a House through a resolution of endorsement
House within ten session days from receipt thereof. verified complaint or resolution of against an impeachable officer, impeachment
impeachment filed by at least one-third (1/3) proceedings against such official are deemed
(3) A vote of at least one-third of all the Members of the House shall be necessary of all the Members of the House. initiated on the day the Committee on Justice
either to affirm a favorable resolution with the Articles of Impeachment of the finds that the verified complaint and/or
Committee, or override its contrary resolution. The vote of each Member shall be resolution against such official, as the case may
recorded. be, is sufficient in substance, or on the date the
House votes to overturn or affirm the finding of
(4) In case the verified complaint or resolution of impeachment is filed by at least the said Committee that the verified complaint
one-third of all the Members of the House, the same shall constitute the Articles of and/or resolution, as the case may be, is not
Impeachment, and trial by the Senate shall forthwith proceed. sufficient in substance.
(5) No impeachment proceedings shall be initiated against the same official more In cases where a verified complaint or a
than once within a period of one year. resolution of impeachment is filed or endorsed,
as the case may be, by at least one-third (1/3) of
(6) The Senate shall have the sole power to try and decide all cases of impeachment. the Members of the House, impeachment
When sitting for that purpose, the Senators shall be on oath or affirmation. When the proceedings are deemed initiated at the time
President of the Philippines is on trial, the Chief Justice of the Supreme Court shall of the filing of such verified complaint or
preside, but shall not vote. No person shall be convicted without the concurrence of resolution of impeachment with the Secretary
two-thirds of all the Members of the Senate. General.
(7) Judgment in cases of impeachment shall not extend further than removal from RULE V
office and disqualification to hold any office under the Republic of the Philippines, BAR AGAINST IMPEACHMENT
but the party convicted shall nevertheless be liable and subject to prosecution, trial,
and punishment according to law. Section 14. Scope of Bar . - No impeachment Section 17. Bar Against Initiation Of
proceedings shall be initiated against the same Impeachment Proceedings. - Within a period
(8) The Congress shall promulgate its rules on impeachment to effectively carry out official more than once within the period of of one (1) year from the date impeachment
the purpose of this section. (Emphasis and underscoring supplied) one (1) year. proceedings are deemed initiated as provided
in Section 16 hereof, no impeachment
Following the above-quoted Section 8 of Article XI of the Constitution, the 12th Congress of the proceedings, as such, can be initiated against
House of Representatives adopted and approved the Rules of Procedure in Impeachment the same official. (Italics in the original;
Proceedings (House Impeachment Rules) on November 28, 2001, superseding the previous emphasis and underscoring supplied)
[1]
House Impeachment Rules approved by the 11 th Congress. The relevant distinctions between
these two Congresses' House Impeachment Rules are shown in the following tabulation: On July 22, 2002, the House of Representatives adopted a Resolution,[2] sponsored by
Representative Felix William D. Fuentebella, which directed the Committee on Justice "to
conduct an investigation, in aid of legislation, on the manner of disbursements and expenditures
11TH CONGRESS RULES 12TH CONGRESS NEW RULES
RULE II RULE V by the Chief Justice of the Supreme Court of the Judiciary Development Fund (JDF)."[3]
INITIATING IMPEACHMENT BAR AGAINST INITIATION OF
IMPEACHMENT On June 2, 2003, former President Joseph E. Estrada filed an impeachment complaint[4] (first
PROCEEDINGS AGAINST THE impeachment complaint) against Chief Justice Hilario G. Davide Jr. and seven Associate
SAME OFFICIAL Justices[5] of this Court for "culpable violation of the Constitution, betrayal of the public trust
and other high crimes."[6] The complaint was endorsed by Representatives Rolex T. Suplico,
Section 2. Mode of Initiating Impeachment . Section 16. - Impeachment Proceedings
- Impeachment shall be initiated only by a Deemed Initiated. - In cases where a Member of Ronaldo B. Zamora and Didagen Piang Dilangalen,[7] and was referred to the House Committee
verified complaint for impeachment filed by the House files a verified complaint of on Justice on August 5, 2003[8] in accordance with Section 3(2) of Article XI of the
any Member of the House of Representatives impeachment or a citizen files a verified Constitution which reads:
Section 3(2) A verified complaint for impeachment may be filed by any Member of In G.R. No. 160262, petitioners Sedfrey M. Candelaria, et. al., as citizens and taxpayers,
the House of Representatives or by any citizen upon a resolution of endorsement by alleging that the issues of the case are of transcendental importance, pray, in their petition for
any Member thereof, which shall be included in the Order of Business within ten Certiorari/Prohibition, the issuance of a writ "perpetually" prohibiting respondent House of
session days, and referred to the proper Committee within three session days Representatives from filing any Articles of Impeachment against the Chief Justice with the
thereafter. The Committee, after hearing, and by a majority vote of all its Members, Senate; and for the issuance of a writ "perpetually" prohibiting respondents Senate and Senate
shall submit its report to the House within sixty session days from such referral, President Franklin Drilon from accepting any Articles of Impeachment against the Chief Justice
together with the corresponding resolution. The resolution shall be calendared for or, in the event that the Senate has accepted the same, from proceeding with the impeachment
consideration by the House within ten session days from receipt thereof. trial.
The House Committee on Justice ruled on October 13, 2003 that the first impeachment In G.R. No. 160263, petitioners Arturo M. de Castro and Soledad Cagampang, as citizens,
complaint was "sufficient in form,"[9] but voted to dismiss the same on October 22, 2003 for taxpayers, lawyers and members of the Integrated Bar of the Philippines, alleging that their
petition for Prohibition involves public interest as it involves the use of public funds necessary
being insufficient in substance.[10] To date, the Committee Report to this effect has not yet been
to conduct the impeachment trial on the second impeachment complaint, pray for the issuance
sent to the House in plenary in accordance with the said Section 3(2) of Article XI of the
of a writ of prohibition enjoining Congress from conducting further proceedings on said second
Constitution.
impeachment complaint.
Four months and three weeks since the filing on June 2, 2003 of the first complaint or on
In G.R. No. 160277, petitioner Francisco I. Chavez, alleging that this Court has recognized that
October 23, 2003, a day after the House Committee on Justice voted to dismiss it, the second
he has locus standi to bring petitions of this nature in the cases of Chavez v. PCGG [15] and
impeachment complaint [11] was filed with the Secretary General of the House[12] by
Representatives Gilberto C. Teodoro, Jr. (First District, Tarlac) and Felix William B. Fuentebella Chavez v. PEA-Amari Coastal Bay Development Corporation,[16] prays in his petition for
(Third District, Camarines Sur) against Chief Justice Hilario G. Davide, Jr., founded on the Injunction that the second impeachment complaint be declared unconstitutional.
alleged results of the legislative inquiry initiated by above-mentioned House Resolution. This
second impeachment complaint was accompanied by a "Resolution of In G.R. No. 160292, petitioners Atty. Harry L. Roque, et. al., as taxpayers and members of the
Endorsement/Impeachment" signed by at least one-third (1/3) of all the Members of the House legal profession, pray in their petition for Prohibition for an order prohibiting respondent House
of Representatives from drafting, adopting, approving and transmitting to the Senate the second
of Representatives.[13]
impeachment complaint, and respondents De Venecia and Nazareno from transmitting the
Articles of Impeachment to the Senate.
Thus arose the instant petitions against the House of Representatives, et. al., most of which
petitions contend that the filing of the second impeachment complaint is unconstitutional as it
In G.R. No. 160295, petitioners Representatives Salacnib F. Baterina and Deputy Speaker Raul
violates the provision of Section 5 of Article XI of the Constitution that "[n]o impeachment
M. Gonzalez, alleging that, as members of the House of Representatives, they have a legal
proceedings shall be initiated against the same official more than once within a period of one
interest in ensuring that only constitutional impeachment proceedings are initiated, pray in their
year."
petition for Certiorari/Prohibition that the second impeachment complaint and any act
proceeding therefrom be declared null and void.
In G.R. No. 160261, petitioner Atty. Ernesto B. Francisco, Jr., alleging that he has a duty as a
member of the Integrated Bar of the Philippines to use all available legal remedies to stop an
In G.R. No. 160310, petitioners Leonilo R. Alfonso et al., claiming that they have a right to be
unconstitutional impeachment, that the issues raised in his petition for Certiorari, Prohibition
protected against all forms of senseless spending of taxpayers' money and that they have an
and Mandamus are of transcendental importance, and that he "himself was a victim of the
obligation to protect the Supreme Court, the Chief Justice, and the integrity of the Judiciary,
capricious and arbitrary changes in the Rules of Procedure in Impeachment Proceedings
allege in their petition for Certiorari and Prohibition that it is instituted as "a class suit" and pray
introduced by the 12th[14] Congress," posits that his right to bring an impeachment complaint that (1) the House Resolution endorsing the second impeachment complaint as well as all
against then Ombudsman Aniano Desierto had been violated due to the capricious and arbitrary issuances emanating therefrom be declared null and void; and (2) this Court enjoin the Senate
changes in the House Impeachment Rules adopted and approved on November 28, 2001 by the and the Senate President from taking cognizance of, hearing, trying and deciding the second
House of Representatives and prays that (1) Rule V, Sections 16 and 17 and Rule III, Sections 5, impeachment complaint, and issue a writ of prohibition commanding the Senate, its prosecutors
6, 7, 8, and 9 thereof be declared unconstitutional; (2) this Court issue a writ of mandamus and agents to desist from conducting any proceedings or to act on the impeachment complaint.
directing respondents House of Representatives et. al. to comply with Article IX, Section 3 (2),
(3) and (5) of the Constitution, to return the second impeachment complaint and/or strike it off In G.R. No. 160318, petitioner Public Interest Center, Inc., whose members are citizens and
the records of the House of Representatives, and to promulgate rules which are consistent with taxpayers, and its co-petitioner Crispin T. Reyes, a citizen, taxpayer and a member of the
the Constitution; and (3) this Court permanently enjoin respondent House of Representatives Philippine Bar, both allege in their petition, which does not state what its nature is, that the
from proceeding with the second impeachment complaint. filing of the second impeachment complaint involves paramount public interest and pray that
Sections 16 and 17 of the House Impeachment Rules and the second impeachment
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complaint/Articles of Impeachment be declared null and void. but alleging that the second impeachment complaint is founded on the issue of whether or not
the Judicial Development Fund (JDF) was spent in accordance with law and that the House of
In G.R. No. 160342, petitioner Atty. Fernando P. R. Perito, as a citizen and a member of the Representatives does not have exclusive jurisdiction in the examination and audit thereof, prays
Philippine Bar Association and of the Integrated Bar of the Philippines, and petitioner Engr. in his petition "To Declare Complaint Null and Void for Lack of Cause of Action and
Maximo N. Menez, Jr., as a taxpayer, pray in their petition for the issuance of a Temporary Jurisdiction" that the second impeachment complaint be declared null and void.
Restraining Order and Permanent Injunction to enjoin the House of Representatives from
proceeding with the second impeachment complaint. In G.R. No. 160403, petitioner Philippine Bar Association, alleging that the issues raised in the
filing of the second impeachment complaint involve matters of transcendental importance, prays
In G.R. No. 160343, petitioner Integrated Bar of the Philippines, alleging that it is mandated by in its petition for Certiorari/Prohibition that (1) the second impeachment complaint and all
the Code of Professional Responsibility to uphold the Constitution, prays in its petition for proceedings arising therefrom be declared null and void; (2) respondent House of
Certiorari and Prohibition that Sections 16 and 17 of Rule V and Sections 5, 6, 7, 8, 9 of Rule Representatives be prohibited from transmitting the Articles of Impeachment to the Senate; and
III of the House Impeachment Rules be declared unconstitutional and that the House of (3) respondent Senate be prohibited from accepting the Articles of Impeachment and from
Representatives be permanently enjoined from proceeding with the second impeachment conducting any proceedings thereon.
complaint.
In G.R. No. 160405, petitioners Democrit C. Barcenas et. al. , as citizens and taxpayers, pray in
In G.R. No. 160360, petitioner-taxpayer Atty. Claro Flores prays in his petition for Certiorari their petition for Certiorari/Prohibition that (1) the second impeachment complaint as well as the
and Prohibition that the House Impeachment Rules be declared unconstitutional. resolution of endorsement and impeachment by the respondent House of Representatives be
declared null and void and (2) respondents Senate and Senate President Franklin Drilon be
In G.R. No. 160365, petitioners U.P. Law Alumni Cebu Foundation Inc., et. al., in their petition prohibited from accepting any Articles of Impeachment against the Chief Justice or, in the event
for Prohibition and Injunction which they claim is a class suit filed in behalf of all citizens, that they have accepted the same, that they be prohibited from proceeding with the
citing Oposa v. Factoran[17] which was filed in behalf of succeeding generations of Filipinos, impeachment trial.
pray for the issuance of a writ prohibiting respondents House of Representatives and the Senate
from conducting further proceedings on the second impeachment complaint and that this Court Petitions bearing docket numbers G.R. Nos. 160261, 160262 and 160263, the first three of the
declare as unconstitutional the second impeachment complaint and the acts of respondent House eighteen which were filed before this Court,[18] prayed for the issuance of a Temporary
of Representatives in interfering with the fiscal matters of the Judiciary. Restraining Order and/or preliminary injunction to prevent the House of Representatives from
transmitting the Articles of Impeachment arising from the second impeachment complaint to the
In G.R. No. 160370, petitioner-taxpayer Father Ranhilio Callangan Aquino, alleging that the Senate. Petition bearing docket number G.R. No. 160261 likewise prayed for the declaration of
issues in his petition for Prohibition are of national and transcendental significance and that as the November 28, 2001 House Impeachment Rules as null and void for being unconstitutional.
an official of the Philippine Judicial Academy, he has a direct and substantial interest in the
unhampered operation of the Supreme Court and its officials in discharging their duties in Petitions bearing docket numbers G.R. Nos. 160277, 160292 and 160295, which were filed on
accordance with the Constitution, prays for the issuance of a writ prohibiting the House of October 28, 2003, sought similar relief. In addition, petition bearing docket number G.R. No.
Representatives from transmitting the Articles of Impeachment to the Senate and the Senate 160292 alleged that House Resolution No. 260 (calling for a legislative inquiry into the
from receiving the same or giving the impeachment complaint due course. administration by the Chief Justice of the JDF) infringes on the constitutional doctrine of
separation of powers and is a direct violation of the constitutional principle of fiscal autonomy
In G.R. No. 160376, petitioner Nilo A. Malanyaon, as a taxpayer, alleges in his petition for of the judiciary.
Prohibition that respondents Fuentebella and Teodoro at the time they filed the second
impeachment complaint, were "absolutely without any legal power to do so, as they acted On October 28, 2003, during the plenary session of the House of Representatives, a motion was
without jurisdiction as far as the Articles of Impeachment assail the alleged abuse of powers of put forth that the second impeachment complaint be formally transmitted to the Senate, but it
the Chief Justice to disburse the (JDF)." was not carried because the House of Representatives adjourned for lack of quorum,[19] and as
reflected above, to date, the Articles of Impeachment have yet to be forwarded to the Senate.
In G.R. No. 160392, petitioners Attorneys Venicio S. Flores and Hector L. Hofileña, alleging
that as professors of law they have an abiding interest in the subject matter of their petition for Before acting on the petitions with prayers for temporary restraining order and/or writ of
Certiorari and Prohibition as it pertains to a constitutional issue "which they are trying to preliminary injunction which were filed on or before October 28, 2003, Justices Puno and Vitug
inculcate in the minds of their students," pray that the House of Representatives be enjoined offered to recuse themselves, but the Court rejected their offer. Justice Panganiban inhibited
from endorsing and the Senate from trying the Articles of Impeachment and that the second himself, but the Court directed him to participate.
impeachment complaint be declared null and void.
Without necessarily giving the petitions due course, this Court in its Resolution of October 28,
In G.R. No. 160397, petitioner Atty. Dioscoro Vallejos, Jr., without alleging his locus standi, 2003, resolved to (a) consolidate the petitions; (b) require respondent House of Representatives
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and the Senate, as well as the Solicitor General, to comment on the petitions not later than 4:30
p.m. of November 3, 2003; (c) set the petitions for oral arguments on November 5, 2003, at The motions for intervention were granted and both Senator Pimentel's Comment and Attorneys
10:00 a.m.; and (d) appointed distinguished legal experts as amici curiae.[20] In addition, this Macalintal and Quadra's Petition in Intervention were admitted.
Court called on petitioners and respondents to maintain the status quo , enjoining all the parties
and others acting for and in their behalf to refrain from committing acts that would render the On November 5-6, 2003, this Court heard the views of the amici curiae and the arguments of
petitions moot. petitioners, intervenors Senator Pimentel and Attorney Makalintal, and Solicitor General
Alfredo Benipayo on the principal issues outlined in an Advisory issued by this Court on
Also on October 28, 2003, when respondent House of Representatives through Speaker Jose C. November 3, 2003, to wit:
De Venecia, Jr. and/or its co-respondents, by way of special appearance, submitted a
Manifestation asserting that this Court has no jurisdiction to hear, much less prohibit or enjoin Whether the certiorari jurisdiction of the Supreme Court may be invoked; who can
the House of Representatives, which is an independent and co-equal branch of government invoke it; on what issues and at what time; and whether it should be exercised by
under the Constitution, from the performance of its constitutionally mandated duty to initiate this Court at this time.
impeachment cases. On even date, Senator Aquilino Q. Pimentel, Jr., in his own behalf, filed a
In discussing these issues, the following may be taken up:
Motion to Intervene (Ex Abudante Cautela)[21] and Comment, praying that "the consolidated
petitions be dismissed for lack of jurisdiction of the Court over the issues affecting the a) locus standi of petitioners;
impeachment proceedings and that the sole power, authority and jurisdiction of the Senate as the
impeachment court to try and decide impeachment cases, including the one where the Chief b) ripeness(prematurity; mootness);
Justice is the respondent, be recognized and upheld pursuant to the provisions of Article XI of
the Constitution."[22] c) political question/justiciability;
Acting on the other petitions which were subsequently filed, this Court resolved to (a) d) House's "exclusive" power to initiate all cases of impeachment;
consolidate them with the earlier consolidated petitions; (b) require respondents to file their
comment not later than 4:30 p.m. of November 3, 2003; and (c) include them for oral arguments e) Senate's "sole" power to try and decide all cases of impeachment;
on November 5, 2003.
f) constitutionality of the House Rules on Impeachment vis-a- vis Section 3(5)
On October 29, 2003, the Senate of the Philippines, through Senate President Franklin M. of Article XI of the Constitution; and
Drilon, filed a Manifestation stating that insofar as it is concerned, the petitions are plainly
premature and have no basis in law or in fact, adding that as of the time of the filing of the g) judicial restraint (Italics in the original)
petitions, no justiciable issue was presented before it since (1) its constitutional duty to
constitute itself as an impeachment court commences only upon its receipt of the Articles of In resolving the intricate conflux of preliminary and substantive issues arising from the instant
Impeachment, which it had not, and (2) the principal issues raised by the petitions pertain petitions as well as the myriad arguments and opinions presented for and against the grant of the
exclusively to the proceedings in the House of Representatives. reliefs prayed for, this Court has sifted and determined them to be as follows: (1) the threshold
and novel issue of whether or not the power of judicial review extends to those arising from
On October 30, 2003, Atty. Jaime Soriano filed a "Petition for Leave to Intervene" in G.R. Nos. impeachment proceedings; (2) whether or not the essential pre- requisites for the exercise of the
160261, 160262, 160263, 160277, 160292, and 160295, questioning the status quo Resolution power of judicial review have been fulfilled; and (3) the substantive issues yet remaining. These
issued by this Court on October 28, 2003 on the ground that it would unnecessarily put matters shall now be discussed in seriatim.
Congress and this Court in a "constitutional deadlock" and praying for the dismissal of all the
petitions as the matter in question is not yet ripe for judicial determination. Judicial Review
On November 3, 2003, Attorneys Romulo B. Macalintal and Pete Quirino Quadra filed in G.R. As reflected above, petitioners plead for this Court to exercise the power of judicial review to
No. 160262 a "Motion for Leave of Court to Intervene and to Admit the Herein Incorporated determine the validity of the second impeachment complaint.
Petition in Intervention."
This Court's power of judicial review is conferred on the judicial branch of the government in
On November 4, 2003, Nagmamalasakit na mga Manananggol ng mga Manggagawang Section 1, Article VIII of our present 1987 Constitution:
Pilipino, Inc. filed a Motion for Intervention in G.R. No. 160261. On November 5, 2003, World
War II Veterans Legionnaires of the Philippines, Inc. also filed a "Petition-in-Intervention with SECTION 1. The judicial power shall be vested in one Supreme Court and in such
Leave to Intervene" in G.R. Nos. 160261, 160262, 160263, 160277, 160292, 160295, and lower courts as may be established by law.
160310.
Judicial power includes the duty of the courts of justice to settle actual truth all that is involved in what is termed ";judicial supremacy" which properly is
controversies involving rights which are legally demandable and enforceable, and to the power of judicial review under the Constitution. Even then, this power of
determine whether or not there has been a grave abuse of discretion amounting judicial review is limited to actual cases and controversies to be exercised after full
to lack or excess of jurisdiction on the part of any branch or instrumentality of opportunity of argument by the parties, and limited further to the constitutional
the government. (Emphasis supplied) question raised or the very lis mota presented. Any attempt at abstraction could only
lead to dialectics and barren legal questions and to sterile conclusions unrelated to
Such power of judicial review was early on exhaustively expounded upon by Justice Jose P. actualities. Narrowed as its function is in this manner, the judiciary does not pass
Laurel in the definitive 1936 case of Angara v. Electoral Commission[23] after the effectivity of upon questions of wisdom, justice or expediency of legislation. More than that,
the 1935 Constitution whose provisions, unlike the present Constitution, did not contain the courts accord the presumption of constitutionality to legislative enactments, not only
present provision in Article VIII, Section 1, par. 2 on what judicial power includes. Thus, because the legislature is presumed to abide by the Constitution but also because the
Justice Laurel discoursed: judiciary in the determination of actual cases and controversies must reflect the
wisdom and justice of the people as expressed through their representatives in the
x x x In times of social disquietude or political excitement, the great landmarks of executive and legislative departments of the government.[24] (Italics in the original;
the Constitution are apt to be forgotten or marred, if not entirely obliterated. In cases emphasis and underscoring supplied)
of conflict, the judicial department is the only constitutional organ which can be
called upon to determine the proper allocation of powers between the several As pointed out by Justice Laurel, this "moderating power" to "determine the proper allocation of
departments and among the integral or constituent units thereof. powers" of the different branches of government and "to direct the course of government along
constitutional channels" is inherent in all courts[25] as a necessary consequence of the judicial
As any human production, our Constitution is of course lacking perfection and
power itself, which is "the power of the court to settle actual controversies involving rights
perfectibility, but as much as it was within the power of our people, acting through
their delegates to so provide, that instrument which is the expression of their which are legally demandable and enforceable." [26]
sovereignty however limited, has established a republican government intended to
operate and function as a harmonious whole, under a system of checks and balances, Thus, even in the United States where the power of judicial review is not explicitly conferred
and subject to specific limitations and restrictions provided in the said instrument. upon the courts by its Constitution, such power has "been set at rest by popular acquiescence for
The Constitution sets forth in no uncertain language the restrictions and a period of more than one and a half centuries." To be sure, it was in the 1803 leading case of
limitations upon governmental powers and agencies. If these restrictions and Marbury v. Madison [27] that the power of judicial review was first articulated by Chief Justice
limitations are transcended it would be inconceivable if the Constitution had Marshall, to wit:
not provided for a mechanism by which to direct the course of government
along constitutional channels, for then the distribution of powers would be mere It is also not entirely unworthy of observation, that in declaring what shall be the
verbiage, the bill of rights mere expressions of sentiment, and the principles of good supreme law of the land, the constitution itself is first mentioned; and not the laws of
government mere political apothegms. Certainly, the limitations and restrictions the United States generally, but those only which shall be made in pursuance of the
embodied in our Constitution are real as they should be in any living constitution. In constitution, have that rank.
the United States where no express constitutional grant is found in their constitution,
the possession of this moderating power of the courts, not to speak of its Thus, the particular phraseology of the constitution of the United States confirms
historical origin and development there, has been set at rest by popular acquiescence and strengthens the principle, supposed to be essential to all written
for a period of more than one and a half centuries. In our case, this moderating constitutions, that a law repugnant to the constitution is void; and that courts,
power is granted, if not expressly, by clear implication from section 2 of article as well as other departments, are bound by that instrument.[28] (Italics in the
VIII of our Constitution. original; emphasis supplied)
The Constitution is a definition of the powers of government. Who is to determine In our own jurisdiction, as early as 1902, decades before its express grant in the 1935
the nature, scope and extent of such powers? The Constitution itself has Constitution, the power of judicial review was exercised by our courts to invalidate
provided for the instrumentality of the judiciary as the rational way. And when constitutionally infirm acts.[29] And as pointed out by noted political law professor and former
the judiciary mediates to allocate constitutional boundaries, it does not assert
any superiority over the other departments; it does not in reality nullify or invalidate Supreme Court Justice Vicente V. Mendoza,[30] the executive and legislative branches of our
an act of the legislature, but only asserts the solemn and sacred obligation government in fact effectively acknowledged this power of judicial review in Article 7 of the
assigned to it by the Constitution to determine conflicting claims of authority Civil Code, to wit:
under the Constitution and to establish for the parties in an actual controversy
Article 7. Laws are repealed only by subsequent ones, and their violation or non-
the rights which that instrument secures and guarantees to them. This is in
observance shall not be excused by disuse, or custom or practice to the contrary.
When the courts declare a law to be inconsistent with the Constitution, the The next provision is new in our constitutional law. I will read it first and explain.
former shall be void and the latter shall govern.
Judicial power includes the duty of courts of justice to settle actual
Administrative or executive acts, orders and regulations shall be valid only controversies involving rights which are legally demandable and
when they are not contrary to the laws or the Constitution. (Emphasis supplied) enforceable and to determine whether or not there has been a grave abuse
of discretion amounting to lack or excess of jurisdiction on the part or
As indicated in Angara v. Electoral Commission, [31] judicial review is indeed an integral instrumentality of the government.
component of the delicate system of checks and balances which, together with the corollary
Fellow Members of this Commission, this is actually a product of our experience
principle of separation of powers, forms the bedrock of our republican form of government and
during martial law. As a matter of fact, it has some antecedents in the past, but the
insures that its vast powers are utilized only for the benefit of the people for which it serves.
role of the judiciary during the deposed regime was marred considerably by the
The separation of powers is a fundamental principle in our system of circumstance that in a number of cases against the government, which then had
government. It obtains not through express provision but by actual division in our no legal defense at all, the solicitor general set up the defense of political
Constitution. Each department of the government has exclusive cognizance of questions and got away with it. As a consequence, certain principles concerning
matters within its jurisdiction, and is supreme within its own sphere. But it does not particularly the writ of habeas corpus, that is, the authority of courts to order the
follow from the fact that the three powers are to be kept separate and distinct that the release of political detainees, and other matters related to the operation and effect of
Constitution intended them to be absolutely unrestrained and independent of each martial law failed because the government set up the defense of political question.
other. The Constitution has provided for an elaborate system of checks and And the Supreme Court said: "Well, since it is political, we have no authority to pass
balances to secure coordination in the workings of the various departments of upon it." The Committee on the Judiciary feels that this was not a proper
the government. x x x And the judiciary in turn, with the Supreme Court as the solution of the questions involved. It did not merely request an encroachment
final arbiter, effectively checks the other departments in the exercise of its upon the rights of the people, but it, in effect, encouraged further violations
power to determine the law, and hence to declare executive and legislative acts thereof during the martial law regime. x x x
void if violative of the Constitution.[32] (Emphasis and underscoring supplied) xxx
In the scholarly estimation of former Supreme Court Justice Florentino Feliciano, "x x x judicial
Briefly stated, courts of justice determine the limits of power of the agencies
review is essential for the maintenance and enforcement of the separation of powers and the
and offices of the government as well as those of its officers. In other words, the
balancing of powers among the three great departments of government through the definition
judiciary is the final arbiter on the question whether or not a branch of
and maintenance of the boundaries of authority and control between them."[33] To him, " government or any of its officials has acted without jurisdiction or in excess of
[j]udicial review is the chief, indeed the only, medium of participation - or instrument of jurisdiction, or so capriciously as to constitute an abuse of discretion amounting
intervention - of the judiciary in that balancing operation."[34] to excess of jurisdiction or lack of jurisdiction. This is not only a judicial power
but a duty to pass judgment on matters of this nature.
To ensure the potency of the power of judicial review to curb grave abuse of discretion by "any
branch or instrumentalities of government," the afore-quoted Section 1, Article VIII of the This is the background of paragraph 2 of Section 1, which means that the courts
Constitution engraves, for the first time into its history, into block letter law the so-called cannot hereafter evade the duty to settle matters of this nature, by claiming that
"expanded certiorari jurisdiction" of this Court, the nature of and rationale for which are such matters constitute a political question[35] (Italics in the original; emphasis
mirrored in the following excerpt from the sponsorship speech of its proponent, former Chief and underscoring supplied)
Justice Constitutional Commissioner Roberto Concepcion:
To determine the merits of the issues raised in the instant petitions, this Court must necessarily
xxx turn to the Constitution itself which employs the well-settled principles of constitutional
construction.
The first section starts with a sentence copied from former Constitutions. It says:
First, verba legis, that is, wherever possible, the words used in the Constitution must be given
The judicial power shall be vested in one Supreme Court and in such lower courts as their ordinary meaning except where technical terms are employed. Thus, in J.M. Tuason & Co.,
may be established by law.
Inc. v. Land Tenure Administration,[36] this Court, speaking through Chief Justice Enrique
Fernando, declared:
I suppose nobody can question it.

We look to the language of the document itself in our search for its meaning. We considering that it could also affect others. When they adopted subsection 2,
do not of course stop there, but that is where we begin. It is to be assumed that they permitted, if not willed, that said provision should function to the full
the words in which constitutional provisions are couched express the objective extent of its substance and its terms, not by itself alone, but in conjunction with
sought to be attained. They are to be given their ordinary meaning except all other provisions of that great document.[43] (Emphasis and underscoring
where technical terms are employed in which case the significance thus supplied)
attached to them prevails. As the Constitution is not primarily a lawyer's
document, it being essential for the rule of law to obtain that it should ever be
Likewise, still in Civil Liberties Union v. Executive Secretary,[44] this Court affirmed that:
present in the people's consciousness, its language as much as possible should be
understood in the sense they have in common use. What it says according to the It is a well-established rule in constitutional construction that no one provision
text of the provision to be construed compels acceptance and negates the power of the Constitution is to be separated from all the others, to be considered alone,
of the courts to alter it, based on the postulate that the framers and the people mean but that all the provisions bearing upon a particular subject are to be brought
what they say. Thus these are the cases where the need for construction is reduced to into view and to be so interpreted as to effectuate the great purposes of the
a minimum.[37] (Emphasis and underscoring supplied) instrument. Sections bearing on a particular subject should be considered and
interpreted together as to effectuate the whole purpose of the Constitution and
Second, where there is ambiguity, ratio legis est anima. The words of the Constitution should be one section is not to be allowed to defeat another, if by any reasonable
interpreted in accordance with the intent of its framers. And so did this Court apply this construction, the two can be made to stand together.
principle in Civil Liberties Union v. Executive Secretary[38] in this wise:
In other words, the court must harmonize them, if practicable, and must lean in favor
A foolproof yardstick in constitutional construction is the intention underlying the of a construction which will render every word operative, rather than one which may
provision under consideration. Thus, it has been held that the Court in construing a make the words idle and nugatory.[45] (Emphasis supplied)
Constitution should bear in mind the object sought to be accomplished by its
adoption, and the evils, if any, sought to be prevented or remedied. A doubtful If, however, the plain meaning of the word is not found to be clear, resort to other aids is
provision will be examined in the light of the history of the times, and the condition available. In still the same case of Civil Liberties Union v. Executive Secretary, this Court
and circumstances under which the Constitution was framed. The object is to expounded:
ascertain the reason which induced the framers of the Constitution to enact the
particular provision and the purpose sought to be accomplished thereby, in While it is permissible in this jurisdiction to consult the debates and proceedings of
order to construe the whole as to make the words consonant to that reason and the constitutional convention in order to arrive at the reason and purpose of the
calculated to effect that purpose.[39] (Emphasis and underscoring supplied resulting Constitution, resort thereto may be had only when other guides fail as
supplied) said proceedings are powerless to vary the terms of the Constitution when the
meaning is clear. Debates in the constitutional convention "are of value as showing
the views of the individual members, and as indicating the reasons for their votes,
As it did in Nitafan v. Commissioner on Internal Revenue[40] where, speaking through Madame
but they give us no light as to the views of the large majority who did not talk, much
Justice Amuerfina A. Melencio-Herrera, it declared:
less of the mass of our fellow citizens whose votes at the polls gave that instrument
x x x The ascertainment of that intent is but in keeping with the fundamental the force of fundamental law. We think it safer to construe the constitution from
principle of constitutional construction that the intent of the framers of the what appears upon its face." The proper interpretation therefore depends more
organic law and of the people adopting it should be given effect. The primary on how it was understood by the people adopting it than in the framers's
task in constitutional construction is to ascertain and thereafter assure the realization understanding thereof.[46] (Emphasis and underscoring supplied)
of the purpose of the framers and of the people in the adoption of the Constitution. It
may also be safely assumed that the people in ratifying the Constitution were It is in the context of the foregoing backdrop of constitutional refinement and jurisprudential
guided mainly by the explanation offered by the framers.[41] (Emphasis and application of the power of judicial review that respondents Speaker De Venecia, et. al. and
underscoring supplied) intervenor Senator Pimentel raise the novel argument that the Constitution has excluded
impeachment proceedings from the coverage of judicial review.
Finally, ut magis valeat quam pereat. The Constitution is to be interpreted as a whole. Thus, in
Briefly stated, it is the position of respondents Speaker De Venecia et. al. that impeachment is a
Chiongbian v. De Leon,[42] this Court, through Chief Justice Manuel Moran declared: political action which cannot assume a judicial character. Hence, any question, issue or incident
x x x [T]he members of the Constitutional Convention could not have dedicated arising at any stage of the impeachment proceeding is beyond the reach of judicial review.[47]
a provision of our Constitution merely for the benefit of one person without
For his part, intervenor Senator Pimentel contends that the Senate's " sole power to try"
impeachment cases [48]

(1) entirely excludes the application of judicial review over it; and (2) XI thereof. These limitations include the manner of filing, required vote to impeach, and the one
necessarily includes the Senate's power to determine constitutional questions relative to year bar on the impeachment of one and the same official.
impeachment proceedings.[49] Respondents are also of the view that judicial review of impeachments undermines their finality
and may also lead to conflicts between Congress and the judiciary. Thus, they call upon this
In furthering their arguments on the proposition that impeachment proceedings are outside the Court to exercise judicial statesmanship on the principle that "whenever possible, the Court
scope of judicial review, respondents Speaker De Venecia, et. al. and intervenor Senator should defer to the judgment of the people expressed legislatively, recognizing full well the
Pimentel rely heavily on American authorities, principally the majority opinion in the case of
perils of judicial willfulness and pride."[56]
Nixon v. United States.[50] Thus, they contend that the exercise of judicial review over
impeachment proceedings is inappropriate since it runs counter to the framers' decision to But did not the people also express their will when they instituted the above-mentioned
allocate to different fora the powers to try impeachments and to try crimes; it disturbs the safeguards in the Constitution? This shows that the Constitution did not intend to leave the
system of checks and balances, under which impeachment is the only legislative check on the matter of impeachment to the sole discretion of Congress. Instead, it provided for certain well-
judiciary; and it would create a lack of finality and difficulty in fashioning relief.[51] defined limits, or in the language of Baker v. Carr,[57] "judicially discoverable standards" for
Respondents likewise point to deliberations on the US Constitution to show the intent to isolate determining the validity of the exercise of such discretion, through the power of judicial review.
judicial power of review in cases of impeachment.
Respondents' and intervenors' reliance upon American jurisprudence, the American Constitution The cases of Romulo v. Yniguez[58] and Alejandrino v. Quezon,[59] cited by respondents in
and American authorities cannot be credited to support the proposition that the Senate's "sole support of the argument that the impeachment power is beyond the scope of judicial review, are
power to try and decide impeachment cases," as provided for under Art. XI, Sec. 3(6) of the not in point. These cases concern the denial of petitions for writs of mandamus to compel the
Constitution, is a textually demonstrable constitutional commitment of all issues pertaining to legislature to perform non- ministerial acts, and do not concern the exercise of the power of
impeachment to the legislature, to the total exclusion of the power of judicial review to check judicial review.
and restrain any grave abuse of the impeachment process. Nor can it reasonably support the
interpretation that it necessarily confers upon the Senate the inherently judicial power to There is indeed a plethora of cases in which this Court exercised the power of judicial review
determine constitutional questions incident to impeachment proceedings. over congressional action. Thus, in Santiago v. Guingona, Jr.,[60] this Court ruled that it is well
within the power and jurisdiction of the Court to inquire whether the Senate or its officials
Said American jurisprudence and authorities, much less the American Constitution, are of committed a violation of the Constitution or grave abuse of discretion in the exercise of their
dubious application for these are no longer controlling within our jurisdiction and have only functions and prerogatives. In Tanada v. Angara,[61] in seeking to nullify an act of the
limited persuasive merit insofar as Philippine constitutional law is concerned. As held in the Philippine Senate on the ground that it contravened the Constitution, it held that the petition
case of Garcia vs. COMELEC,[52] "[i]n resolving constitutional disputes, [this Court] should not raises a justiciable controversy and that when an action of the legislative branch is seriously
be beguiled by foreign jurisprudence some of which are hardly applicable because they have alleged to have infringed the Constitution, it becomes not only the right but in fact the duty of
been dictated by different constitutional settings and needs."[53] Indeed, although the Philippine the judiciary to settle the dispute. In Bondoc v. Pineda,[62] this Court declared null and void a
Constitution can trace its origins to that of the United States, their paths of development have resolution of the House of Representatives withdrawing the nomination, and rescinding the
long since diverged. In the colorful words of Father Bernas, "[w]e have cut the umbilical cord." election, of a congressman as a member of the House Electoral Tribunal for being violative of
Section 17, Article VI of the Constitution. In Coseteng v. Mitra,[63] it held that the resolution of
The major difference between the judicial power of the Philippine Supreme Court and that of whether the House representation in the Commission on Appointments was based on
the U.S. Supreme Court is that while the power of judicial review is only impliedly granted to proportional representation of the political parties as provided in Section 18, Article VI of the
the U.S. Supreme Court and is discretionary in nature, that granted to the Philippine Supreme
Court and lower courts, as expressly provided for in the Constitution, is not just a power but also Constitution is subject to judicial review. In Daza v. Singson,[64] it held that the act of the House
a duty, and it was given an expanded definition to include the power to correct any grave of Representatives in removing the petitioner from the Commission on Appointments is subject
abuse of discretion on the part of any government branch or instrumentality. to judicial review. In Tanada v. Cuenco,[65] it held that although under the Constitution, the
legislative power is vested exclusively in Congress, this does not detract from the power of the
There are also glaring distinctions between the U.S. Constitution and the Philippine Constitution courts to pass upon the constitutionality of acts of Congress. In Angara v. Electoral
with respect to the power of the House of Representatives over impeachment proceedings. Commission,[66] it ruled that confirmation by the National Assembly of the election of any
While the U.S. Constitution bestows sole power of impeachment to the House of member, irrespective of whether his election is contested, is not essential before such member-
Representatives without limitation,[54] our Constitution, though vesting in the House of elect may discharge the duties and enjoy the privileges of a member of the National Assembly.
Representatives the exclusive power to initiate impeachment cases,[55] provides for several
limitations to the exercise of such power as embodied in Section 3(2), (3), (4) and (5), Article Finally, there exists no constitutional basis for the contention that the exercise of judicial review
over impeachment proceedings would upset the system of checks and balances. Verily, the
Constitution is to be interpreted as a whole and "one section is not to be allowed to defeat they have not abused the discretion given to them.[72] Amicus curiae Dean Raul Pangalangan of
another."[67] Both are integral components of the calibrated system of independence and the U.P. College of Law is of the same opinion, citing transcendental importance and the well-
interdependence that insures that no branch of government act beyond the powers assigned to it entrenched rule exception that, when the real party in interest is unable to vindicate his rights by
by the Constitution. seeking the same remedies, as in the case of the Chief Justice who, for ethical reasons, cannot
himself invoke the jurisdiction of this Court, the courts will grant petitioners standing.
Essential Requisites for Judicial Review
There is, however, a difference between the rule on real-party-in-interest and the rule on
As clearly stated in Angara v. Electoral Commission, the courts' power of judicial review, like standing, for the former is a concept of civil procedure[73] while the latter has constitutional
almost all powers conferred by the Constitution, is subject to several limitations, namely: (1) an
actual case or controversy calling for the exercise of judicial power; (2) the person challenging underpinnings.[74] In view of the arguments set forth regarding standing, it behooves the Court
the act must have "standing" to challenge; he must have a personal and substantial interest in the to reiterate the ruling in Kilosbayan, Inc. v. Morato[75] to clarify what is meant by locus standi
case such that he has sustained, or will sustain, direct injury as a result of its enforcement; (3) and to distinguish it from real party-in- interest.
the question of constitutionality must be raised at the earliest possible opportunity; and (4) the
issue of constitutionality must be the very lis mota of the case. The difference between the rule on standing and real party in interest has been noted
by authorities thus: "It is important to note . . . that standing because of its
x x x Even then, this power of judicial review is limited to actual cases and constitutional and public policy underpinnings, is very different from questions
controversies to be exercised after full opportunity of argument by the parties, and relating to whether a particular plaintiff is the real party in interest or has capacity to
limited further to the constitutional question raised or the very lis mota presented. sue. Although all three requirements are directed towards ensuring that only certain
Any attempt at abstraction could only lead to dialectics and barren legal questions parties can maintain an action, standing restrictions require a partial consideration of
and to sterile conclusions unrelated to actualities. Narrowed as its function is in this the merits, as well as broader policy concerns relating to the proper role of the
manner, the judiciary does not pass upon questions of wisdom, justice or expediency judiciary in certain areas.
of legislation. More than that, courts accord the presumption of constitutionality to
legislative enactments, not only because the legislature is presumed to abide by the Standing is a special concern in constitutional law because in some cases suits are
Constitution but also because the judiciary in the determination of actual cases and brought not by parties who have been personally injured by the operation of a law or
controversies must reflect the wisdom and justice of the people as expressed through by official action taken, but by concerned citizens, taxpayers or voters who actually
their representatives in the executive and legislative departments of the government. sue in the public interest. Hence the question in standing is whether such parties
[68] (Italics in the original) have "alleged such a personal stake in the outcome of the controversy as to assure
that concrete adverseness which sharpens the presentation of issues upon which the
Standing court so largely depends for illumination of difficult constitutional questions."
Locus standi or legal standing or has been defined as a personal and substantial interest in the xxx
case such that the party has sustained or will sustain direct injury as a result of the governmental
act that is being challenged. The gist of the question of standing is whether a party alleges such On the other hand, the question as to "real party in interest" is whether he is "the
personal stake in the outcome of the controversy as to assure that concrete adverseness which party who would be benefited or injured by the judgment, or the 'party entitled to the
sharpens the presentation of issues upon which the court depends for illumination of difficult avails of the suit.'"[76] (Citations omitted)
constitutional questions.[69]
While rights personal to the Chief Justice may have been injured by the alleged unconstitutional
Intervenor Soriano, in praying for the dismissal of the petitions, contends that petitioners do not acts of the House of Representatives, none of the petitioners before us asserts a violation of the
have standing since only the Chief Justice has sustained and will sustain direct personal injury. personal rights of the Chief Justice. On the contrary, they invariably invoke the vindication of
Amicus curiae former Justice Minister and Solicitor General Estelito Mendoza similarly their own rights - as taxpayers; members of Congress; citizens, individually or in a class suit;
contends. and members of the bar and of the legal profession - which were supposedly violated by the
alleged unconstitutional acts of the House of Representatives.
Upon the other hand, the Solicitor General asserts that petitioners have standing since this Court
had, in the past, accorded standing to taxpayers, voters, concerned citizens, legislators in cases In a long line of cases, however, concerned citizens, taxpayers and legislators when specific
requirements have been met have been given standing by this Court.
involving paramount public interest[70] and transcendental importance,[71] and that procedural
matters are subordinate to the need to determine whether or not the other branches of the When suing as a citizen, the interest of the petitioner assailing the constitutionality of a statute
government have kept themselves within the limits of the Constitution and the laws and that must be direct and personal. He must be able to show, not only that the law or any government
act is invalid, but also that he sustained or is in imminent danger of sustaining some direct petition will stand.
injury as a result of its enforcement, and not merely that he suffers thereby in some indefinite
way. It must appear that the person complaining has been or is about to be denied some right or The Philippine Bar Association, in G.R. No. 160403, invokes the sole ground of transcendental
privilege to which he is lawfully entitled or that he is about to be subjected to some burdens or importance, while Atty. Dioscoro U. Vallejos, in G.R. No. 160397, is mum on his standing.
penalties by reason of the statute or act complained of.[77] In fine, when the proceeding involves
There being no doctrinal definition of transcendental importance, the following instructive
the assertion of a public right,[78] the mere fact that he is a citizen satisfies the requirement of determinants formulated by former Supreme Court Justice Florentino P. Feliciano are
personal interest. instructive: (1) the character of the funds or other assets involved in the case; (2) the presence of
a clear case of disregard of a constitutional or statutory prohibition by the public respondent
In the case of a taxpayer, he is allowed to sue where there is a claim that public funds are agency or instrumentality of the government; and (3) the lack of any other party with a more
illegally disbursed, or that public money is being deflected to any improper purpose, or that
there is a wastage of public funds through the enforcement of an invalid or unconstitutional law. direct and specific interest in raising the questions being raised.[90] Applying these
[79] Before he can invoke the power of judicial review, however, he must specifically prove that determinants, this Court is satisfied that the issues raised herein are indeed of transcendental
importance.
he has sufficient interest in preventing the illegal expenditure of money raised by taxation and
that he would sustain a direct injury as a result of the enforcement of the questioned statute or In not a few cases, this Court has in fact adopted a liberal attitude on the locus standi of a
contract. It is not sufficient that he has merely a general interest common to all members of the petitioner where the petitioner is able to craft an issue of transcendental significance to the
public.[80] people, as when the issues raised are of paramount importance to the public.[91] Such liberality
does not, however, mean that the requirement that a party should have an interest in the matter
At all events, courts are vested with discretion as to whether or not a taxpayer's suit should be is totally eliminated. A party must, at the very least, still plead the existence of such interest, it
entertained.[81] This Court opts to grant standing to most of the petitioners, given their not being one of which courts can take judicial notice. In petitioner Vallejos' case, he failed to
allegation that any impending transmittal to the Senate of the Articles of Impeachment and the allege any interest in the case. He does not thus have standing.
ensuing trial of the Chief Justice will necessarily involve the expenditure of public funds.
With respect to the motions for intervention, Rule 19, Section 2 of the Rules of Court requires
As for a legislator, he is allowed to sue to question the validity of any official action which he an intervenor to possess a legal interest in the matter in litigation, or in the success of either of
claims infringes his prerogatives as a legislator.[82] Indeed, a member of the House of the parties, or an interest against both, or is so situated as to be adversely affected by a
Representatives has standing to maintain inviolate the prerogatives, powers and privileges distribution or other disposition of property in the custody of the court or of an officer thereof.
While intervention is not a matter of right, it may be permitted by the courts when the applicant
vested by the Constitution in his office.[83]
shows facts which satisfy the requirements of the law authorizing intervention.[92]
While an association has legal personality to represent its members,[84] especially when it is
In Intervenors Attorneys Romulo Macalintal and Pete Quirino Quadra's case, they seek to join
composed of substantial taxpayers and the outcome will affect their vital interests,[85] the mere petitioners Candelaria, et. al. in G.R. No. 160262. Since, save for one additional issue, they
invocation by the Integrated Bar of the Philippines or any member of the legal profession of the raise the same issues and the same standing, and no objection on the part of petitioners
duty to preserve the rule of law and nothing more, although undoubtedly true, does not suffice Candelaria, et. al. has been interposed, this Court as earlier stated, granted the Motion for Leave
to clothe it with standing. Its interest is too general. It is shared by other groups and the whole of Court to Intervene and Petition-in-Intervention.
citizenry. However, a reading of the petitions shows that it has advanced constitutional issues
which deserve the attention of this Court in view of their seriousness, novelty and weight as Nagmamalasakit na mga Manananggol ng mga Manggagawang Pilipino, Inc., et. al. sought to
precedents.[86] It, therefore, behooves this Court to relax the rules on standing and to resolve the join petitioner Francisco in G.R. No. 160261. Invoking their right as citizens to intervene,
issues presented by it. alleging that "they will suffer if this insidious scheme of the minority members of the House of
Representatives is successful," this Court found the requisites for intervention had been
In the same vein, when dealing with class suits filed in behalf of all citizens, persons complied with.
intervening must be sufficiently numerous to fully protect the interests of all concerned[87] to
Alleging that the issues raised in the petitions in G.R. Nos. 160261, 160262, 160263, 160277,
enable the court to deal properly with all interests involved in the suit,[88] for a judgment in a 160292, 160295, and 160310 were of transcendental importance, World War II Veterans
class suit, whether favorable or unfavorable to the class, is, under the res judicata principle, Legionnaires of the Philippines, Inc. filed a "Petition-in-Intervention with Leave to Intervene"
binding on all members of the class whether or not they were before the court.[89] Where it to raise the additional issue of whether or not the second impeachment complaint against the
clearly appears that not all interests can be sufficiently represented as shown by the divergent Chief Justice is valid and based on any of the grounds prescribed by the Constitution.
issues raised in the numerous petitions before this Court, G.R. No. 160365 as a class suit ought
to fail. Since petitioners additionally allege standing as citizens and taxpayers, however, their Finding that Nagmamalasakit na mga Manananggol ng mga Manggagawang Pilipino, Inc., et al.
and World War II Veterans Legionnaires of the Philippines, Inc. possess a legal interest in the Related to the issue of ripeness is the question of whether the instant petitions are premature.
matter in litigation the respective motions to intervene were hereby granted. Amicus curiae former Senate President Jovito R. Salonga opines that there may be no urgent
need for this Court to render a decision at this time, it being the final arbiter on questions of
Senator Aquilino Pimentel, on the other hand, sought to intervene for the limited purpose of constitutionality anyway. He thus recommends that all remedies in the House and Senate should
making of record and arguing a point of view that differs with Senate President Drilon's. He first be exhausted.
alleges that submitting to this Court's jurisdiction as the Senate President does will undermine
the independence of the Senate which will sit as an impeachment court once the Articles of Taking a similar stand is Dean Raul Pangalangan of the U.P. College of Law who suggests to
Impeachment are transmitted to it from the House of Representatives. Clearly, Senator Pimentel this Court to take judicial notice of on-going attempts to encourage signatories to the second
possesses a legal interest in the matter in litigation, he being a member of Congress against impeachment complaint to withdraw their signatures and opines that the House Impeachment
which the herein petitions are directed. For this reason, and to fully ventilate all substantial Rules provide for an opportunity for members to raise constitutional questions themselves when
issues relating to the matter at hand, his Motion to Intervene was granted and he was, as earlier the Articles of Impeachment are presented on a motion to transmit to the same to the Senate.
stated, allowed to argue. The dean maintains that even assuming that the Articles are transmitted to the Senate, the Chief
Justice can raise the issue of their constitutional infirmity by way of a motion to dismiss.
Lastly, as to Jaime N. Soriano's motion to intervene, the same must be denied for, while he
asserts an interest as a taxpayer, he failed to meet the standing requirement for bringing The dean's position does not persuade. First, the withdrawal by the Representatives of their
taxpayer's suits as set forth in Dumlao v. Comelec,[93] to wit: signatures would not, by itself, cure the House Impeachment Rules of their constitutional
infirmity. Neither would such a withdrawal, by itself, obliterate the questioned second
x x x While, concededly, the elections to be held involve the expenditure of public impeachment complaint since it would only place it under the ambit of Sections 3(2) and (3) of
moneys, nowhere in their Petition do said petitioners allege that their tax money is Article XI of the Constitution[97] and, therefore, petitioners would continue to suffer their
"being extracted and spent in violation of specific constitutional protection against injuries.
abuses of legislative power," or that there is a misapplication of such funds by
respondent COMELEC, or that public money is being deflected to any improper Second and most importantly, the futility of seeking remedies from either or both Houses of
purpose. Neither do petitioners seek to restrain respondent from wasting public Congress before coming to this Court is shown by the fact that, as previously discussed, neither
funds through the enforcement of an invalid or unconstitutional law. [94] (Citations the House of Representatives nor the Senate is clothed with the power to rule with
omitted) definitiveness on the issue of constitutionality, whether concerning impeachment proceedings or
otherwise, as said power is exclusively vested in the judiciary by the earlier quoted Section I,
In praying for the dismissal of the petitions, Soriano failed even to allege that the act of Article VIII of the Constitution. Remedy cannot be sought from a body which is bereft of power
petitioners will result in illegal disbursement of public funds or in public money being deflected to grant it.
to any improper purpose. Additionally, his mere interest as a member of the Bar does not suffice
to clothe him with standing. Justiciability
Ripeness and Prematurity In the leading case of Tanada v. Cuenco,[98] Chief Justice Roberto Concepcion defined the term
"political question," viz:
In Tan v. Macapagal,[95] this Court, through Chief Justice Fernando, held that for a case to be
considered ripe for adjudication, "it is a prerequisite that something had by then been [T]he term "political question" connotes, in legal parlance, what it means in ordinary
parlance, namely, a question of policy. In other words, in the language of Corpus
accomplished or performed by either branch before a court may come into the picture."[96] Only
Juris Secundum, it refers to "those questions which, under the Constitution, are to be
then may the courts pass on the validity of what was done, if and when the latter is challenged
decided by the people in their sovereign capacity, or in regard to which full
in an appropriate legal proceeding.
discretionary authority has been delegated to the Legislature or executive branch of
the Government." It is concerned with issues dependent upon the wisdom, not
The instant petitions raise in the main the issue of the validity of the filing of the second
impeachment complaint against the Chief Justice in accordance with the House Impeachment legality, of a particular measure.[99] (Italics in the original)
Rules adopted by the 12th Congress, the constitutionality of which is questioned. The Prior to the 1973 Constitution, without consistency and seemingly without any rhyme or reason,
questioned acts having been carried out, i.e., the second impeachment complaint had been filed this Court vacillated on its stance of taking cognizance of cases which involved political
with the House of Representatives and the 2001 Rules have already been already promulgated questions. In some cases, this Court hid behind the cover of the political question doctrine and
and enforced, the prerequisite that the alleged unconstitutional act should be accomplished and
performed before suit, as Tan v. Macapagal holds, has been complied with. refused to exercise its power of judicial review.[100] In other cases, however, despite the
seeming political nature of the therein issues involved, this Court assumed jurisdiction
whenever it found constitutionally imposed limits on powers or functions conferred upon
political bodies.[101]
Even in the landmark 1988 case of Javellana v. Executive Secretary[102] encroachment upon the rights of the people, but it, in effect, encouraged further
which raised the issue of whether the 1973 Constitution was ratified, hence, in force, this Court violations thereof during the martial law regime. I am sure the members of the
shunted the political question doctrine and took cognizance thereof. Ratification by the people Bar are familiar with this situation. But for the benefit of the Members of the
of a Constitution is a political question, it being a question decided by the people in their Commission who are not lawyers, allow me to explain. I will start with a decision of
sovereign capacity. the Supreme Court in 1973 on the case of Javellana vs. the Secretary of Justice, if I
am not mistaken. Martial law was announced on September 22, although the
The frequency with which this Court invoked the political question doctrine to refuse to take proclamation was dated September 21. The obvious reason for the delay in its
jurisdiction over certain cases during the Marcos regime motivated Chief Justice Concepcion, publication was that the administration had apprehended and detained prominent
when he became a Constitutional Commissioner, to clarify this Court's power of judicial review newsmen on September 21. So that when martial law was announced on September
and its application on issues involving political questions, viz: 22, the media hardly published anything about it. In fact, the media could not publish
any story not only because our main writers were already incarcerated, but also
MR. CONCEPCION. Thank you, Mr. Presiding Officer. because those who succeeded them in their jobs were under mortal threat of being
the object of wrath of the ruling party. The 1971 Constitutional Convention had
I will speak on the judiciary. Practically, everybody has made, I suppose, the usual begun on June 1, 1971 and by September 21 or 22 had not finished the Constitution;
comment that the judiciary is the weakest among the three major branches of the it had barely agreed in the fundamentals of the Constitution. I forgot to say that upon
service. Since the legislature holds the purse and the executive the sword, the the proclamation of martial law, some delegates to that 1971 Constitutional
judiciary has nothing with which to enforce its decisions or commands except the Convention, dozens of them, were picked up. One of them was our very own
power of reason and appeal to conscience which, after all, reflects the will of God, colleague, Commissioner Calderon. So, the unfinished draft of the Constitution was
and is the most powerful of all other powers without exception. x x x And so, with taken over by representatives of Malacañang. In 17 days, they finished what the
the body's indulgence, I will proceed to read the provisions drafted by the delegates to the 1971 Constitutional Convention had been unable to accomplish for
Committee on the Judiciary. about 14 months. The draft of the 1973 Constitution was presented to the President
around December 1, 1972, whereupon the President issued a decree calling a
The first section starts with a sentence copied from former Constitutions. It says: plebiscite which suspended the operation of some provisions in the martial law
decree which prohibited discussions, much less public discussions of certain matters
The judicial power shall be vested in one Supreme Court and in such of public concern. The purpose was presumably to allow a free discussion on the
lower courts as may be established by law. draft of the Constitution on which a plebiscite was to be held sometime in January
1973. If I may use a word famous by our colleague, Commissioner Ople, during the
I suppose nobody can question it. interregnum, however, the draft of the Constitution was analyzed and criticized with
such a telling effect that Malacañang felt the danger of its approval. So, the President
The next provision is new in our constitutional law. I will read it first and explain. suspended indefinitely the holding of the plebiscite and announced that he would
consult the people in a referendum to be held from January 10 to January 15. But the
Judicial power includes the duty of courts of justice to settle actual questions to be submitted in the referendum were not announced until the eve of its
controversies involving rights which are legally demandable and scheduled beginning, under the supposed supervision not of the Commission on
enforceable and to determine whether or not there has been a grave abuse Elections, but of what was then designated as "citizens assemblies or barangays."
of discretion amounting to lack or excess of jurisdiction on the part or Thus the barangays came into existence. The questions to be propounded were
instrumentality of the government. released with proposed answers thereto, suggesting that it was unnecessary to hold a
plebiscite because the answers given in the referendum should be regarded as the
Fellow Members of this Commission, this is actually a product of our experience votes cast in the plebiscite. Thereupon, a motion was filed with the Supreme Court
during martial law. As a matter of fact, it has some antecedents in the past, but the praying that the holding of the referendum be suspended. When the motion was
role of the judiciary during the deposed regime was marred considerably by the being heard before the Supreme Court, the Minister of Justice delivered to the Court
circumstance that in a number of cases against the government, which then had a proclamation of the President declaring that the new Constitution was already in
no legal defense at all, the solicitor general set up the defense of political force because the overwhelming majority of the votes cast in the referendum favored
questions and got away with it. As a consequence, certain principles concerning the Constitution. Immediately after the departure of the Minister of Justice, I
particularly the writ of habeas corpus, that is, the authority of courts to order proceeded to the session room where the case was being heard. I then informed the
the release of political detainees, and other matters related to the operation and Court and the parties the presidential proclamation declaring that the 1973
effect of martial law failed because the government set up the defense of Constitution had been ratified by the people and is now in force.
political question. And the Supreme Court said: "Well, since it is political, we have
no authority to pass upon it." The Committee on the Judiciary feels that this was A number of other cases were filed to declare the presidential proclamation null
not a proper solution of the questions involved. It did not merely request an and void. The main defense put up by the government was that the issue was a
political question and that the court had no jurisdiction to entertain the case.
Briefly stated, courts of justice determine the limits of power of the agencies
xxx and offices of the government as well as those of its officers. In other words, the
judiciary is the final arbiter on the question whether or not a branch of
The government said that in a referendum held from January 10 to January 15, the government or any of its officials has acted without jurisdiction or in excess of
vast majority ratified the draft of the Constitution. Note that all members of the jurisdiction, or so capriciously as to constitute an abuse of discretion amounting
Supreme Court were residents of Manila, but none of them had been notified of any to excess of jurisdiction or lack of jurisdiction. This is not only a judicial power
referendum in their respective places of residence, much less did they participate in but a duty to pass judgment on matters of this nature.
the alleged referendum. None of them saw any referendum proceeding.
This is the background of paragraph 2 of Section 1, which means that the
In the Philippines, even local gossips spread like wild fire. So, a majority of the courts cannot hereafter evade the duty to settle matters of this nature, by
members of the Court felt that there had been no referendum. claiming that such matters constitute a political question.
Second, a referendum cannot substitute for a plebiscite. There is a big difference I have made these extended remarks to the end that the Commissioners may have an
between a referendum and a plebiscite. But another group of justices upheld the initial food for thought on the subject of the judiciary.[103] (Italics in the original;
defense that the issue was a political question. Whereupon, they dismissed the emphasis supplied)
case. This is not the only major case in which the plea of "political question"
was set up. There have been a number of other cases in the past. During the deliberations of the Constitutional Commission, Chief Justice
Concepcion further clarified the concept of judicial power, thus:
x x x The defense of the political question was rejected because the issue was
clearly justiciable. MR. NOLLEDO. The Gentleman used the term "judicial power" but judicial
power is not vested in the Supreme Court alone but also in other lower courts
xxx as may be created by law.
x x x When your Committee on the Judiciary began to perform its functions, it faced MR. CONCEPCION. Yes.
the following questions: What is judicial power? What is a political question?
MR. NOLLEDO. And so, is this only an example?
The Supreme Court, like all other courts, has one main function: to settle actual
controversies involving conflicts of rights which are demandable and enforceable. MR. CONCEPCION. No, I know this is not. The Gentleman seems to identify
There are rights which are guaranteed by law but cannot be enforced by a judiciary political questions with jurisdictional questions. But there is a difference.
party. In a decided case, a husband complained that his wife was unwilling to
perform her duties as a wife. The Court said: "We can tell your wife what her duties MR. NOLLEDO. Because of the expression "judicial power"?
as such are and that she is bound to comply with them, but we cannot force her
physically to discharge her main marital duty to her husband. There are some rights MR. CONCEPCION. No. Judicial power, as I said, refers to ordinary cases but
guaranteed by law, but they are so personal that to enforce them by actual where there is a question as to whether the government had authority or had
compulsion would be highly derogatory to human dignity." abused its authority to the extent of lacking jurisdiction or excess of
jurisdiction, that is not a political question. Therefore, the court has the duty to
This is why the first part of the second paragraph of Section I provides that: decide.
Judicial power includes the duty of courts to settle actual controversies xxx
involving rights which are legally demandable or enforceable . . .
FR. BERNAS. Ultimately, therefore, it will always have to be decided by the
The courts, therefore, cannot entertain, much less decide, hypothetical questions. In
Supreme Court according to the new numerical need for votes.
a presidential system of government, the Supreme Court has, also another
important function. The powers of government are generally considered
On another point, is it the intention of Section 1 to do away with the political
divided into three branches: the Legislative, the Executive and the Judiciary.
question doctrine?
Each one is supreme within its own sphere and independent of the others.
Because of that supremacy power to determine whether a given law is valid or
MR. CONCEPCION. No.
not is vested in courts of justice.
The "allocation of constitutional boundaries" is a task that this Court must perform
FR. BERNAS. It is not. under the Constitution. Moreover, as held in a recent case, "(t)he political question
doctrine neither interposes an obstacle to judicial determination of the rival
MR. CONCEPCION. No, because whenever there is an abuse of discretion, claims. The jurisdiction to delimit constitutional boundaries has been given to
amounting to a lack of jurisdiction. . . this Court. It cannot abdicate that obligation mandated by the 1987
Constitution, although said provision by no means does away with the
FR. BERNAS. So, I am satisfied with the answer that it is not intended to do applicability of the principle in appropriate cases."[108] (Emphasis and
away with the political question doctrine. underscoring supplied)
MR. CONCEPCION. No, certainly not.
And in Daza v. Singson,[109] speaking through Justice Isagani Cruz, this Court ruled:
When this provision was originally drafted, it sought to define what is judicial In the case now before us, the jurisdictional objection becomes even less tenable and
power. But the Gentleman will notice it says, "judicial power includes" and the decisive. The reason is that, even if we were to assume that the issue presented
reason being that the definition that we might make may not cover all possible before us was political in nature, we would still not be precluded from resolving it
areas. under the expanded jurisdiction conferred upon us that now covers, in proper cases,
FR. BERNAS. So, this is not an attempt to solve the problems arising from the even the political question.[110] x x x (Emphasis and underscoring supplied.)
political question doctrine.
Section 1, Article VIII, of the Court does not define what are justiciable political questions and
non-justiciable political questions, however. Identification of these two species of political
MR. CONCEPCION. It definitely does not eliminate the fact that truly political
questions may be problematic. There has been no clear standard. The American case of Baker v.
questions are beyond the pale of judicial power.[104] (Emphasis supplied)
Carr[111] attempts to provide some:
From the foregoing record of the proceedings of the 1986 Constitutional Commission, it is clear
x x x Prominent on the surface of any case held to involve a political question is
that judicial power is not only a power; it is also a duty, a duty which cannot be abdicated by
found a textually demonstrable constitutional commitment of the issue to a
the mere specter of this creature called the political question doctrine. Chief Justice Concepcion
coordinate political department; or a lack of judicially discoverable and manageable
hastened to clarify, however, that Section 1, Article VIII was not intended to do away with
standards for resolving it; or the impossibility of deciding without an initial policy
"truly political questions." From this clarification it is gathered that there are two species of
determination of a kind clearly for non-judicial discretion; or the impossibility of a
political questions: (1) "truly political questions" and (2) those which "are not truly political
court's undertaking independent resolution without expressing lack of the respect
questions."
due coordinate branches of government; or an unusual need for questioning
adherence to a political decision already made; or the potentiality of embarrassment
Truly political questions are thus beyond judicial review, the reason for respect of the doctrine
of separation of powers to be maintained. On the other hand, by virtue of Section 1, Article VIII from multifarious pronouncements by various departments on one question.[112]
of the Constitution, courts can review questions which are not truly political in nature. (Underscoring supplied)
As pointed out by amicus curiae former dean Pacifico Agabin of the UP College of Law, this Of these standards, the more reliable have been the first three: (1) a textually demonstrable
Court has in fact in a number of cases taken jurisdiction over questions which are not truly constitutional commitment of the issue to a coordinate political department; (2) the lack of
political following the effectivity of the present Constitution. judicially discoverable and manageable standards for resolving it; and (3) the impossibility of
deciding without an initial policy determination of a kind clearly for non-judicial discretion.
These standards are not separate and distinct concepts but are interrelated to each in that the
In Marcos v. Manglapus,[105] this Court, speaking through Madame Justice Irene Cortes, held: presence of one strengthens the conclusion that the others are also present.
The present Constitution limits resort to the political question doctrine and broadens
The problem in applying the foregoing standards is that the American concept of judicial review
the scope of judicial inquiry into areas which the Court, under previous
is radically different from our current concept, for Section 1, Article VIII of the Constitution
constitutions, would have normally left to the political departments to decide.[106] x provides our courts with far less discretion in determining whether they should pass upon a
xx constitutional issue.
In Bengzon v. Senate Blue Ribbon Committee,[107] through Justice Teodoro Padilla, this Court In our jurisdiction, the determination of a truly political question from a non- justiciable
declared: political question lies in the answer to the question of whether there are constitutionally
imposed limits on powers or functions conferred upon political bodies. If there are, then our
courts are duty-bound to examine whether the branch or instrumentality of the government adopted and the constitutional question will be left for consideration until a
properly acted within such limits. This Court shall thus now apply this standard to the present case arises in which a decision upon such question will be unavoidable.[116]
controversy. [Emphasis and underscoring supplied]
These petitions raise five substantial issues:

The same principle was applied in Luz Farms v. Secretary of Agrarian Reform,[117] where this
I. Whether the offenses alleged in the Second impeachment complaint constitute valid Court invalidated Sections 13 and 32 of Republic Act No. 6657 for being confiscatory and
impeachable offenses under the Constitution. violative of due process, to wit:
It has been established that this Court will assume jurisdiction over a
II. Whether the second impeachment complaint was filed in accordance with Section 3(4),
constitutional question only if it is shown that the essential requisites of a
Article XI of the Constitution.
judicial inquiry into such a question are first satisfied. Thus, there must be an
actual case or controversy involving a conflict of legal rights susceptible of judicial
III. Whether the legislative inquiry by the House Committee on Justice into the Judicial
determination, the constitutional question must have been opportunely raised by the
Development Fund is an unconstitutional infringement of the constitutionally mandated
proper party, and the resolution of the question is unavoidably necessary to the
fiscal autonomy of the judiciary.
decision of the case itself.[118] [Emphasis supplied]
IV. Whether Sections 15 and 16 of Rule V of the Rules on Impeachment adopted by the 12th Succinctly put, courts will not touch the issue of constitutionality unless it is truly unavoidable
Congress are unconstitutional for violating the provisions of Section 3, Article XI of the and is the very lis mota or crux of the controversy.
Constitution.
As noted earlier, the instant consolidated petitions, while all seeking the invalidity of the second
V. Whether the second impeachment complaint is barred under Section 3(5) of Article XI of impeachment complaint, collectively raise several constitutional issues upon which the outcome
the Constitution. of this controversy could possibly be made to rest. In determining whether one, some or all of
the remaining substantial issues should be passed upon, this Court is guided by the related
The first issue goes into the merits of the second impeachment complaint over which this Court
cannon of adjudication that "the court should not form a rule of constitutional law broader than
has no jurisdiction. More importantly, any discussion of this issue would require this Court to
make a determination of what constitutes an impeachable offense. Such a determination is a is required by the precise facts to which it is applied."[119]
purely political question which the Constitution has left to the sound discretion of the
In G.R. No. 160310, petitioners Leonilo R. Alfonso, et al. argue that, among other reasons, the
legislation. Such an intent is clear from the deliberations of the Constitutional Commission.[113]
second impeachment complaint is invalid since it directly resulted from a Resolution[120]
Although Section 2 of Article XI of the Constitution enumerates six grounds for impeachment, calling for a legislative inquiry into the JDF, which Resolution and legislative inquiry petitioners
two of these, namely, other high crimes and betrayal of public trust, elude a precise definition. claim to likewise be unconstitutional for being: (a) a violation of the rules and jurisprudence on
In fact, an examination of the records of the 1986 Constitutional Commission shows that the investigations in aid of legislation; (b) an open breach of the doctrine of separation of powers;
framers could find no better way to approximate the boundaries of betrayal of public trust and (c) a violation of the constitutionally mandated fiscal autonomy of the judiciary; and (d) an
other high crimes than by alluding to both positive and negative examples of both, without assault on the independence of the judiciary.[121]
arriving at their clear cut definition or even a standard therefor.[114] Clearly, the issue calls upon
this court to decide a non- justiciable political question which is beyond the scope of its judicial Without going into the merits of petitioners Alfonso, et. al.'s claims, it is the studied opinion of
power under Section 1, Article VIII. this Court that the issue of the constitutionality of the said Resolution and resulting legislative
inquiry is too far removed from the issue of the validity of the second impeachment complaint.
Lis Mota Moreover, the resolution of said issue would, in the Court's opinion, require it to form a rule of
constitutional law touching on the separate and distinct matter of legislative inquiries in general,
It is a well-settled maxim of adjudication that an issue assailing the constitutionality of a which would thus be broader than is required by the facts of these consolidated cases. This
governmental act should be avoided whenever possible. Thus, in the case of Sotto v. opinion is further strengthened by the fact that said petitioners have raised other grounds in
support of their petition which would not be adversely affected by the Court's ruling.
Commission on Elections,[115] this Court held:
x x x It is a well-established rule that a court should not pass upon a constitutional En passant, this Court notes that a standard for the conduct of legislative inquiries has already
question and decide a law to be unconstitutional or invalid, unless such question is been enunciated by this Court in Bengzon, Jr. v. Senate Blue Ribbon Commttee,[122] viz:
raised by the parties and that when it is raised, if the record also presents some
other ground upon which the court may rest its judgment, that course will be
The 1987 Constitution expressly recognizes the power of both houses of Congress to any Member thereof, which shall be included in the Order of Business within ten
conduct inquiries in aid of legislation. Thus, Section 21, Article VI thereof provides: session days, and referred to the proper Committee within three session days
thereafter. The Committee, after hearing, and by a majority vote of all its Members,
The Senate or the House of Representatives or any of its respective shall submit its report to the House within sixty session days from such referral,
committees may conduct inquiries in aid of legislation in accordance with together with the corresponding resolution. The resolution shall be calendared for
its duly published rules of procedure. The rights of persons appearing in consideration by the House within ten session days from receipt thereof.
or affected by such inquiries shall be respected.
Intervenors' foregoing position is echoed by Justice Maambong who opined that for Section 3
The power of both houses of Congress to conduct inquiries in aid of legislation is (4), Article XI of the Constitution to apply, there should be 76 or more representatives who
not, therefore absolute or unlimited. Its exercise is circumscribed by the afore-quoted signed and verified the second impeachment complaint as complainants, signed and verified the
provision of the Constitution. Thus, as provided therein, the investigation must be signatories to a resolution of impeachment. Justice Maambong likewise asserted that the
"in aid of legislation in accordance with its duly published rules of procedure" and Resolution of Endorsement/Impeachment signed by at least one-third of the members of the
that "the rights of persons appearing in or affected by such inquiries shall be House of Representatives as endorsers is not the resolution of impeachment contemplated by the
respected." It follows then that the right rights of persons under the Bill of Rights Constitution, such resolution of endorsement being necessary only from at least one Member
must be respected, including the right to due process and the right not be compelled whenever a citizen files a verified impeachment complaint.
to testify against one's self.[123]
While the foregoing issue, as argued by intervenors Macalintal and Quadra, does indeed limit
In G.R. No. 160262, intervenors Romulo B. Macalintal and Pete Quirino Quadra, while joining the scope of the constitutional issues to the provisions on impeachment, more compelling
the original petition of petitioners Candelaria, et. al., introduce the new argument that since the considerations militate against its adoption as the lis mota or crux of the present controversy.
second impeachment complaint was verified and filed only by Representatives Gilberto Chief among this is the fact that only Attorneys Macalintal and Quadra, intervenors in G.R. No.
Teodoro, Jr. and Felix William Fuentebella, the same does not fall under the provisions of 160262, have raised this issue as a ground for invalidating the second impeachment complaint.
Section 3 (4), Article XI of the Constitution which reads: Thus, to adopt this additional ground as the basis for deciding the instant consolidated petitions
would not only render for naught the efforts of the original petitioners in G.R. No. 160262, but
Section 3(4) In case the verified complaint or resolution of impeachment is filed by the efforts presented by the other petitioners as well.
at least one-third of all the Members of the House, the same shall constitute the
Articles of Impeachment, and trial by the Senate shall forthwith proceed. Again, the decision to discard the resolution of this issue as unnecessary for the determination
of the instant cases is made easier by the fact that said intervenors Macalintal and Quadra have
They assert that while at least 81 members of the House of Representatives signed a Resolution joined in the petition of Candelaria, et. al., adopting the latter's arguments and issues as their
of Endorsement/Impeachment, the same did not satisfy the requisites for the application of the own. Consequently, they are not unduly prejudiced by this Court's decision.
afore-mentioned section in that the "verified complaint or resolution of impeachment" was not
filed "by at least one-third of all the Members of the House." With the exception of In sum, this Court holds that the two remaining issues, inextricably linked as they are, constitute
Representatives Teodoro and Fuentebella, the signatories to said Resolution are alleged to have the very lis mota of the instant controversy: (1) whether Sections 15 and 16 of Rule V of the
verified the same merely as a "Resolution of Endorsement." Intervenors point to the
House Impeachment Rules adopted by the 12th Congress are unconstitutional for violating the
"Verification" of the Resolution of Endorsement which states that:
provisions of Section 3, Article XI of the Constitution; and (2) whether, as a result thereof, the
"We are the proponents/sponsors of the Resolution of Endorsement of the second impeachment complaint is barred under Section 3(5) of Article XI of the Constitution.
abovementioned Complaint of Representatives Gilberto Teodoro and Felix William
Judicial Restraint
B. Fuentebella x x x"[124]
Senator Pimentel urges this Court to exercise judicial restraint on the ground that the Senate,
Intervenors Macalintal and Quadra further claim that what the Constitution requires in order for
sitting as an impeachment court, has the sole power to try and decide all cases of impeachment.
said second impeachment complaint to automatically become the Articles of Impeachment and
Again, this Court reiterates that the power of judicial review includes the power of review over
for trial in the Senate to begin "forthwith," is that the verified complaint be "filed," not merely
justiciable issues in impeachment proceedings.
endorsed, by at least one-third of the Members of the House of Representatives. Not having
complied with this requirement, they concede that the second impeachment complaint should
On the other hand, respondents Speaker De Venecia et. al. argue that "[t]here is a moral
have been calendared and referred to the House Committee on Justice under Section 3(2),
compulsion for the Court to not assume jurisdiction over the impeachment because all the
Article XI of the Constitution, viz:
Members thereof are subject to impeachment."[125] But this argument is very much like saying
Section 3(2) A verified complaint for impeachment may be filed by any Member of the Legislature has a moral compulsion not to pass laws with penalty clauses because Members
the House of Representatives or by any citizen upon a resolution of endorsement by of the House of Representatives are subject to them.
unusual situations or for the substitution of Senators designated to the Tribunal

The exercise of judicial restraint over justiciable issues is not an option before this Court. whose disqualification may be sought. Litigants in such situations must simply place
Adjudication may not be declined, because this Court is not legally disqualified. Nor can their trust and hopes of vindication in the fairness and sense of justice of the
jurisdiction be renounced as there is no other tribunal to which the controversy may be Members of the Tribunal. Justices and Senators, singly and collectively.
referred."[126] Otherwise, this Court would be shirking from its duty vested under Art. VIII,
Sec. 1(2) of the Constitution. More than being clothed with authority thus, this Court is duty- Let us not be misunderstood as saying that no Senator-Member of the Senate
Electoral Tribunal may inhibit or disqualify himself from sitting in judgment on any
bound to take cognizance of the instant petitions.[127] In the august words of amicus curiae case before said Tribunal. Every Member of the Tribunal may, as his conscience
Father Bernas, "jurisdiction is not just a power; it is a solemn duty which may not be renounced. dictates, refrain from participating in the resolution of a case where he sincerely
To renounce it, even if it is vexatious, would be a dereliction of duty." feels that his personal interests or biases would stand in the way of an objective and
impartial judgment. What we are merely saying is that in the light of the
Even in cases where it is an interested party, the Court under our system of government cannot Constitution, the Senate Electoral Tribunal cannot legally function as such, absent its
inhibit itself and must rule upon the challenge because no other office has the authority to do so. entire membership of Senators and that no amendment of its Rules can confer on the
[128] On the occasion that this Court had been an interested party to the controversy before it, it
three Justices-Members alone the power of valid adjudication of a senatorial election
has acted upon the matter "not with officiousness but in the discharge of an unavoidable duty contest.
and, as always, with detachment and fairness."[129] After all, "by [his] appointment to the office,
the public has laid on [a member of the judiciary] their confidence that [he] is mentally and More recently in the case of Estrada v. Desierto,[132] it was held that:
morally fit to pass upon the merits of their varied contentions. For this reason, they expect [him]
to be fearless in [his] pursuit to render justice, to be unafraid to displease any person, interest or Moreover, to disqualify any of the members of the Court, particularly a majority of
power and to be equipped with a moral fiber strong enough to resist the temptations lurking in them, is nothing short of pro tanto depriving the Court itself of its jurisdiction as
established by the fundamental law. Disqualification of a judge is a deprivation of
[his] office."[130]
his judicial power. And if that judge is the one designated by the Constitution to
exercise the jurisdiction of his court, as is the case with the Justices of this Court, the
The duty to exercise the power of adjudication regardless of interest had already been settled in
deprivation of his or their judicial power is equivalent to the deprivation of the
the case of Abbas v. Senate Electoral Tribunal.[131] In that case, the petitioners filed with the judicial power of the court itself. It affects the very heart of judicial independence.
respondent Senate Electoral Tribunal a Motion for Disqualification or Inhibition of the The proposed mass disqualification, if sanctioned and ordered, would leave the
Senators- Members thereof from the hearing and resolution of SET Case No. 002-87 on the Court no alternative but to abandon a duty which it cannot lawfully discharge if
ground that all of them were interested parties to said case as respondents therein. This would
shorn of the participation of its entire membership of Justices.[133] (Italics in the
have reduced the Tribunal's membership to only its three Justices-Members whose
original)
disqualification was not sought, leaving them to decide the matter. This Court held:
Besides, there are specific safeguards already laid down by the Court when it exercises its
Where, as here, a situation is created which precludes the substitution of any Senator
power of judicial review.
sitting in the Tribunal by any of his other colleagues in the Senate without inviting
the same objections to the substitute's competence, the proposed mass
disqualification, if sanctioned and ordered, would leave the Tribunal no alternative In Demetria v. Alba,[134] this Court, through Justice Marcelo Fernan cited the "seven pillars" of
but to abandon a duty that no other court or body can perform, but which it cannot limitations of the power of judicial review, enunciated by US Supreme Court Justice Brandeis in
lawfully discharge if shorn of the participation of its entire membership of Senators. Ashwander v. TVA [135] as follows:
To our mind, this is the overriding consideration -- that the Tribunal be not prevented 1. The Court will not pass upon the constitutionality of legislation in a friendly, non-
from discharging a duty which it alone has the power to perform, the performance of adversary proceeding, declining because to decide such questions ìs legitimate only in the
which is in the highest public interest as evidenced by its being expressly imposed last resort, and as a necessity in the determination of real, earnest and vital controversy
by no less than the fundamental law. between individuals. It never was the thought that, by means of a friendly suit, a party
beaten in the legislature could transfer to the courts an inquiry as to the constitutionality of
It is aptly noted in the first of the questioned Resolutions that the framers of the the legislative act.'
Constitution could not have been unaware of the possibility of an election contest
that would involve all Senators--elect, six of whom would inevitably have to sit in 2. The Court will not ànticipate a question of constitutional law in advance of the necessity
judgment thereon. Indeed, such possibility might surface again in the wake of the of deciding it.' . . . Ìt is not the habit of the Court to decide questions of a constitutional
1992 elections when once more, but for the last time, all 24 seats in the Senate will nature unless absolutely necessary to a decision of the case.'
be at stake. Yet the Constitution provides no scheme or mode for settling such
3. The Court will not `formulate a rule of constitutional law broader than is required by the 1. actual case or controversy calling for the exercise of judicial power
precise facts to which it is to be applied.'
2. the person challenging the act must have "standing" to challenge; he must have a personal
4. The Court will not pass upon a constitutional question although properly presented by the and substantial interest in the case such that he has sustained, or will sustain, direct injury
record, if there is also present some other ground upon which the case may be disposed of. as a result of its enforcement
This rule has found most varied application. Thus, if a case can be decided on either of
two grounds, one involving a constitutional question, the other a question of statutory 3. the question of constitutionality must be raised at the earliest possible opportunity
construction or general law, the Court will decide only the latter. Appeals from the highest
court of a state challenging its decision of a question under the Federal Constitution are 4. the issue of constitutionality must be the very lis mota of the case.[136]
frequently dismissed because the judgment can be sustained on an independent state
ground. Respondents Speaker de Venecia, et. al. raise another argument for judicial restraint the
possibility that "judicial review of impeachments might also lead to embarrassing conflicts
5. The Court will not pass upon the validity of a statute upon complaint of one who fails to between the Congress and the [J]udiciary." They stress the need to avoid the appearance of
show that he is injured by its operation. Among the many applications of this rule, none is impropriety or conflicts of interest in judicial hearings, and the scenario that it would be
more striking than the denial of the right of challenge to one who lacks a personal or confusing and humiliating and risk serious political instability at home and abroad if the
property right. Thus, the challenge by a public official interested only in the performance
judiciary countermanded the vote of Congress to remove an impeachable official.[137]
of his official duty will not be entertained . . . In Fairchild v. Hughes, the Court affirmed
Intervenor Soriano echoes this argument by alleging that failure of this Court to enforce its
the dismissal of a suit brought by a citizen who sought to have the Nineteenth Amendment
Resolution against Congress would result in the diminution of its judicial authority and erode
declared unconstitutional. In Massachusetts v. Mellon, the challenge of the federal
public confidence and faith in the judiciary.
Maternity Act was not entertained although made by the Commonwealth on behalf of all
its citizens.
Such an argument, however, is specious, to say the least. As correctly stated by the Solicitor
General, the possibility of the occurrence of a constitutional crisis is not a reason for this Court
6. The Court will not pass upon the constitutionality of a statute at the instance of one who
to refrain from upholding the Constitution in all impeachment cases. Justices cannot abandon
has availed himself of its benefits.
their constitutional duties just because their action may start, if not precipitate, a crisis.
7. When the validity of an act of the Congress is drawn in question, and even if a serious
Justice Feliciano warned against the dangers when this Court refuses to act.
doubt of constitutionality is raised, it is a cardinal principle that this Court will first
ascertain whether a construction of the statute is fairly possible by which the question may x x x Frequently, the fight over a controversial legislative or executive act is not
be avoided (citations omitted). regarded as settled until the Supreme Court has passed upon the constitutionality of
the act involved, the judgment has not only juridical effects but also political
The foregoing "pillars" of limitation of judicial review, summarized in Ashwander v. TVA from
consequences. Those political consequences may follow even where the Court fails
different decisions of the United States Supreme Court, can be encapsulated into the following
to grant the petitioner's prayer to nullify an act for lack of the necessary number of
categories:
votes. Frequently, failure to act explicitly, one way or the other, itself constitutes a
1. that there be absolute necessity of deciding a case decision for the respondent and validation, or at least quasi-validation, follows."[138]
2. that rules of constitutional law shall be formulated only as required by the facts of the case Thus, in Javellana v. Executive Secretary[139] where this Court was split and "in the end there
were not enough votes either to grant the petitions, or to sustain respondent's claims,"[140] the
3. that judgment may not be sustained on some other ground pre-existing constitutional order was disrupted which paved the way for the establishment of the
martial law regime.
4. that there be actual injury sustained by the party by reason of the operation of the statute
Such an argument by respondents and intervenor also presumes that the coordinate branches of
5. that the parties are not in estoppel the government would behave in a lawless manner and not do their duty under the law to uphold
the Constitution and obey the laws of the land. Yet there is no reason to believe that any of the
6. that the Court upholds the presumption of constitutionality branches of government will behave in a precipitate manner and risk social upheaval, violence,
chaos and anarchy by encouraging disrespect for the fundamental law of the land.
As stated previously, parallel guidelines have been adopted by this Court in the exercise of
judicial review:

Substituting the word public officers for judges, this Court is well guided by the doctrine in Briefly then, an impeachment proceeding is not a single act. It is a comlexus of acts
People v. Veneracion, to wit:[141] consisting of a beginning, a middle and an end. The end is the transmittal of the
articles of impeachment to the Senate. The middle consists of those deliberative
Obedience to the rule of law forms the bedrock of our system of justice. If [public moments leading to the formulation of the articles of impeachment. The beginning
officers], under the guise of religious or political beliefs were allowed to roam or the initiation is the filing of the complaint and its referral to the Committee on
unrestricted beyond boundaries within which they are required by law to exercise the Justice.
duties of their office, then law becomes meaningless. A government of laws, not of
men excludes the exercise of broad discretionary powers by those acting under its Finally, it should be noted that the House Rule relied upon by Representatives
authority. Under this system, [public officers] are guided by the Rule of Law, and Cojuangco and Fuentebella says that impeachment is "deemed initiated" when the
ought "to protect and enforce it without fear or favor," resist encroachments by Justice Committee votes in favor of impeachment or when the House reverses a
governments, political parties, or even the interference of their own personal beliefs. contrary vote of the Committee. Note that the Rule does not say "impeachment
[142] proceedings" are initiated but rather are " deemed initiated." The language is
recognition that initiation happened earlier, but by legal fiction there is an attempt to
Constitutionality of the Rules of Procedure postpone it to a time after actual initiation. (Emphasis and underscoring supplied)
for Impeachment Proceedings
adopted by the 12th Congress As stated earlier, one of the means of interpreting the Constitution is looking into the intent of
the law. Fortunately, the intent of the framers of the 1987 Constitution can be pried from its
Respondent House of Representatives, through Speaker De Venecia, argues that Sections 16 and records:
17 of Rule V of the House Impeachment Rules do not violate Section 3 (5) of Article XI of our
present Constitution, contending that the term "initiate" does not mean "to file;" that Section 3 MR. MAAMBONG. With reference to Section 3, regarding the procedure and the
(1) is clear in that it is the House of Representatives, as a collective body, which has the substantive provisions on impeachment, I understand there have been many
exclusive power to initiate all cases of impeachment; that initiate could not possibly mean "to proposals and, I think, these would need some time for Committee action.
file" because filing can, as Section 3 (2), Article XI of the Constitution provides, only be
accomplished in 3 ways, to wit: (1) by a verified complaint for impeachment by any member of However, I would just like to indicate that I submitted to the Committee a resolution
the House of Representatives; or (2) by any citizen upon a resolution of endorsement by any on impeachment proceedings, copies of which have been furnished the Members of
member; or (3) by at least 1/3 of all the members of the House. Respondent House of this body. This is borne out of my experience as a member of the Committee on
Representatives concludes that the one year bar prohibiting the initiation of impeachment Justice, Human Rights and Good Government which took charge of the last
proceedings against the same officials could not have been violated as the impeachment impeachment resolution filed before the First Batasang Pambansa. For the
complaint against Chief Justice Davide and seven Associate Justices had not been initiated as information of the Committee, the resolution covers several steps in the
the House of Representatives, acting as the collective body, has yet to act on it. impeachment proceedings starting with initiation, action of the Speaker
committee action, calendaring of report, voting on the report, transmittal
The resolution of this issue thus hinges on the interpretation of the term "initiate." Resort to referral to the Senate, trial and judgment by the Senate.
statutory construction is, therefore, in order.
xxx
That the sponsor of the provision of Section 3(5) of the Constitution, Commissioner Florenz
Regalado, who eventually became an Associate Justice of this Court, agreed on the meaning of MR. MAAMBONG. Mr. Presiding Officer, I am not moving for a reconsideration of
"initiate" as "to file," as proffered and explained by Constitutional Commissioner Maambong the approval of the amendment submitted by Commissioner Regalado, but I will just
during the Constitutional Commission proceedings, which he (Commissioner Regalado) as make of record my thinking that we do not really initiate the filing of the Articles of
amicus curiae affirmed during the oral arguments on the instant petitions held on November 5, Impeachment on the floor. The procedure, as I have pointed out earlier, was that
2003 at which he added that the act of "initiating" included the act of taking initial action on the the initiation starts with the filing of the complaint. And what is actually done
complaint, dissipates any doubt that indeed the word "initiate" as it twice appears in Article XI on the floor is that the committee resolution containing the Articles of
(3) and (5) of the Constitution means to file the complaint and take initial action on it. Impeachment is the one approved by the body.
"Initiate" of course is understood by ordinary men to mean, as dictionaries do, to begin, to As the phraseology now runs, which may be corrected by the Committee on Style, it
commence, or set going. As Webster's Third New International Dictionary of the English appears that the initiation starts on the floor. If we only have time, I could cite
Language concisely puts it, it means "to perform or facilitate the first action," which jibes with examples in the case of the impeachment proceedings of President Richard Nixon
Justice Regalado's position, and that of Father Bernas, who elucidated during the oral arguments wherein the Committee on the Judiciary submitted the recommendation, the
of the instant petitions on November 5, 2003 in this wise: resolution, and the Articles of Impeachment to the body, and it was the body who
approved the resolution. It is not the body which initiates it. It only approves or
disapproves the resolution. So, on that score, probably the Committee on Style who was also a member of the 1986 Constitutional Commission, that the word "initiate" as used
could help in rearranging these words because we have to be very technical about in Article XI, Section 3(5) means to file, both adding, however, that the filing must be
this. I have been bringing with me The Rules of the House of Representatives of the accompanied by an action to set the complaint moving.
U.S. Congress. The Senate Rules are with me. The proceedings on the case of
Richard Nixon are with me. I have submitted my proposal, but the Committee has During the oral arguments before this Court, Father Bernas clarified that the word "initiate,"
already decided. Nevertheless, I just want to indicate this on record. appearing in the constitutional provision on impeachment, viz:
xxx Section 3 (1) The House of Representatives shall have the exclusive power to initiate
all cases of impeachment.
MR. MAAMBONG. I would just like to move for a reconsideration of the approval
of Section 3 (3). My reconsideration will not at all affect the substance, but it is only xxx
in keeping with the exact formulation of the Rules of the House of Representatives
of the United States regarding impeachment. (5) No impeachment proceedings shall be initiated against the same official more
than once within a period of one year, (Emphasis supplied)
I am proposing, Madam President, without doing damage to any of this provision,
that on page 2, Section 3 (3), from lines 17 to 18, we delete the words which read: refers to two objects, "impeachment case" and "impeachment proceeding."
"to initiate impeachment proceedings" and the comma (,) and insert on line 19
after the word "resolution" the phrase WITH THE ARTICLES, and then capitalize Father Bernas explains that in these two provisions, the common verb is "to initiate." The object
the letter "i" in "impeachment" and replace the word "by" with OF, so that the whole in the first sentence is "impeachment case." The object in the second sentence is "impeachment
section will now read: "A vote of at least one-third of all the Members of the House proceeding." Following the principle of reddendo singuala sinuilis, the term "cases" must be
shall be necessary either to affirm a resolution WITH THE ARTICLES of distinguished from the term "proceedings." An impeachment case is the legal controversy that
Impeachment OF the Committee or to override its contrary resolution. The vote of must be decided by the Senate. Above-quoted first provision provides that the House, by a vote
each Member shall be recorded." of one-third of all its members, can bring a case to the Senate. It is in that sense that the House
has "exclusive power" to initiate all cases of impeachment. No other body can do it. However,
I already mentioned earlier yesterday that the initiation, as far as the House of before a decision is made to initiate a case in the Senate, a "proceeding" must be followed to
Representatives of the United States is concerned, really starts from the filing of arrive at a conclusion. A proceeding must be "initiated." To initiate, which comes from the Latin
the verified complaint and every resolution to impeach always carries with it the word initium, means to begin. On the other hand, proceeding is a progressive noun. It has a
Articles of Impeachment. As a matter of fact, the words "Articles of Impeachment" beginning, a middle, and an end. It takes place not in the Senate but in the House and consists of
are mentioned on line 25 in the case of the direct filing of a verified compliant of several steps: (1) there is the filing of a verified complaint either by a Member of the House of
one-third of all the Members of the House. I will mention again, Madam President, Representatives or by a private citizen endorsed by a Member of the House of the
that my amendment will not vary the substance in any way. It is only in keeping with Representatives; (2) there is the processing of this complaint by the proper Committee which
the uniform procedure of the House of Representatives of the United States may either reject the complaint or uphold it; (3) whether the resolution of the Committee rejects
or upholds the complaint, the resolution must be forwarded to the House for further processing;
Congress. Thank you, Madam President.[143] (Italics in the original; emphasis and
and (4) there is the processing of the same complaint by the House of Representatives which
udnerscoring supplied)
either affirms a favorable resolution of the Committee or overrides a contrary resolution by a
vote of one-third of all the members. If at least one third of all the Members upholds the
This amendment proposed by Commissioner Maambong was clarified and accepted by the
complaint, Articles of Impeachment are prepared and transmitted to the Senate. It is at this point
Committee on the Accountability of Public Officers.[144] that the House "initiates an impeachment case." It is at this point that an impeachable public
official is successfully impeached. That is, he or she is successfully charged with an
It is thus clear that the framers intended "initiation" to start with the filing of the complaint. In impeachment "case" before the Senate as impeachment court.
his amicus curiae brief, Commissioner Maambong explained that "the obvious reason in
deleting the phrase "to initiate impeachment proceedings" as contained in the text of the Father Bernas further explains: The "impeachment proceeding" is not initiated when the
provision of Section 3 (3) was to settle and make it understood once and for all that the complaint is transmitted to the Senate for trial because that is the end of the House proceeding
initiation of impeachment proceedings starts with the filing of the complaint, and the vote and the beginning of another proceeding, namely the trial. Neither is the "impeachment
of one-third of the House in a resolution of impeachment does not initiate the impeachment proceeding" initiated when the House deliberates on the resolution passed on to it by the
proceedings which was already initiated by the filing of a verified complaint under Section Committee, because something prior to that has already been done. The action of the House is
3, paragraph (2), Article XI of the Constitution. "[145] already a further step in the proceeding, not its initiation or beginning. Rather, the proceeding is
initiated or begins, when a verified complaint is filed and referred to the Committee on Justice
Amicus curiae Constitutional Commissioner Regalado is of the same view as is Father Bernas, for action. This is the initiating step which triggers the series of steps that follow.
Court's our deliberations stand on a different footing from the properly recorded utterances of
The framers of the Constitution also understood initiation in its ordinary meaning. Thus when a debates and proceedings." Further citing said case, he states that this Court likened the former
proposal reached the floor proposing that "A vote of at least one-third of all the Members of the members of the Constitutional Convention to actors who are so absorbed in their emotional
House shall be necessary... to initiate impeachment proceedings," this was met by a proposal to roles that intelligent spectators may know more about the real meaning because of the latter's
delete the line on the ground that the vote of the House does not initiate impeachment balanced perspectives and disinterestedness.[148]
proceeding but rather the filing of a complaint does.[146] Thus the line was deleted and is not
found in the present Constitution. Justice Gutierrez's statements have no application in the present petitions. There are at present
only two members of this Court who participated in the 1986 Constitutional Commission -
Father Bernas concludes that when Section 3 (5) says, "No impeachment proceeding shall be Chief Justice Davide and Justice Adolf Azcuna. Chief Justice Davide has not taken part in these
initiated against the same official more than once within a period of one year," it means that no proceedings for obvious reasons. Moreover, this Court has not simply relied on the personal
second verified complaint may be accepted and referred to the Committee on Justice for action. opinions now given by members of the Constitutional Commission, but has examined the
By his explanation, this interpretation is founded on the common understanding of the meaning records of the deliberations and proceedings thereof.
of "to initiate" which means to begin. He reminds that the Constitution is ratified by the people,
both ordinary and sophisticated, as they understand it; and that ordinary people read ordinary Respondent House of Representatives counters that under Section 3 (8) of Article XI, it is clear
meaning into ordinary words and not abstruse meaning, they ratify words as they understand it and unequivocal that it and only it has the power to make and interpret its rules governing
and not as sophisticated lawyers confuse it. impeachment. Its argument is premised on the assumption that Congress has absolute power to
promulgate its rules. This assumption, however, is misplaced.
To the argument that only the House of Representatives as a body can initiate impeachment
proceedings because Section 3 (1) says "The House of Representatives shall have the exclusive Section 3 (8) of Article XI provides that "The Congress shall promulgate its rules on
power to initiate all cases of impeachment," This is a misreading of said provision and is impeachment to effectively carry out the purpose of this section." Clearly, its power to
contrary to the principle of reddendo singula singulis by equating "impeachment cases" with promulgate its rules on impeachment is limited by the phrase "to effectively carry out the
"impeachment proceeding." purpose of this section." Hence, these rules cannot contravene the very purpose of the
Constitution which said rules were intended to effectively carry out. Moreover, Section 3 of
From the records of the Constitutional Commission, to the amicus curiae briefs of two former Article XI clearly provides for other specific limitations on its power to make rules, viz:
Constitutional Commissioners, it is without a doubt that the term "to initiate" refers to the filing
of the impeachment complaint coupled with Congress' taking initial action of said complaint. Section 3. (1) x x x
Having concluded that the initiation takes place by the act of filing and referral or endorsement (2) A verified complaint for impeachment may be filed by any Member of the House
of the impeachment complaint to the House Committee on Justice or, by the filing by at least of Representatives or by any citizen upon a resolution of endorsement by any
one-third of the members of the House of Representatives with the Secretary General of the Member thereof, which shall be included in the Order of Business within ten session
House, the meaning of Section 3 (5) of Article XI becomes clear. Once an impeachment days, and referred to the proper Committee within three session days thereafter. The
complaint has been initiated, another impeachment complaint may not be filed against the same Committee, after hearing, and by a majority vote of all its Members, shall submit its
official within a one year period. report to the House within sixty session days from such referral, together with the
corresponding resolution. The resolution shall be calendared for consideration by the
Under Sections 16 and 17 of Rule V of the House Impeachment Rules, impeachment House within ten session days from receipt thereof.
proceedings are deemed initiated (1) if there is a finding by the House Committee on Justice
that the verified complaint and/or resolution is sufficient in substance, or (2) once the House (3) A vote of at least one-third of all the Members of the House shall be necessary to
itself affirms or overturns the finding of the Committee on Justice that the verified complaint either affirm a favorable resolution with the Articles of Impeachment of the
and/or resolution is not sufficient in substance or (3) by the filing or endorsement before the Committee, or override its contrary resolution. The vote of each Member shall be
Secretary-General of the House of Representatives of a verified complaint or a resolution of recorded.
impeachment by at least 1/3 of the members of the House. These rules clearly contravene
Section 3 (5) of Article XI since the rules give the term "initiate" a meaning different meaning (4) In case the verified complaint or resolution of impeachment is filed by at least
from filing and referral. one-third of all the Members of the House, the same shall constitute the Articles of
Impeachment, and trial by the Senate shall forthwith proceed.
In his amicus curiae brief, Justice Hugo Gutierrez posits that this Court could not use
contemporaneous construction as an aid in the interpretation of Sec.3 (5) of Article XI, citing (5) No impeachment proceedings shall be initiated against the same official more
Vera v. Avelino[147] wherein this Court stated that "their personal opinions (referring to Justices than once within a period of one year.
who were delegates to the Constitution Convention) on the matter at issue expressed during this
It is basic that all rules must not contravene the Constitution which is the fundamental law. If as The action taken was in direct compliance with this rule. The question, therefore, is
alleged Congress had absolute rule making power, then it would by necessary implication have as to the validity of this rule, and not what methods the Speaker may of his own
the power to alter or amend the meaning of the Constitution without need of referendum. motion resort to for determining the presence of a quorum, nor what matters the
Speaker or clerk may of their own volition place upon the journal. Neither do the
In Osmeña v. Pendatun,[149] this Court held that it is within the province of either House of advantages or disadvantages, the wisdom or folly, of such a rule present any matters
Congress to interpret its rules and that it was the best judge of what constituted "disorderly for judicial consideration. With the courts the question is only one of power. The
behavior" of its members. However, in Paceta v. Secretary of the Commission on Appointments, Constitution empowers each house to determine its rules of proceedings. It may
[150] Justice (later Chief Justice) Enrique Fernando, speaking for this Court and quoting Justice not by its rules ignore constitutional restraints or violate fundamental rights, and
there should be a reasonable relation between the mode or method of proceedings
Brandeis in United States v. Smith,[151] declared that where the construction to be given to a rule established by the rule and the result which is sought to be attained. But within
affects persons other than members of the Legislature, the question becomes judicial in nature. these limitations all matters of method are open to the determination of the House,
In Arroyo v. De Venecia, [152] quoting United States v. Ballin, Joseph & Co.,[153] Justice Vicente and it is no impeachment of the rule to say that some other way would be better,
Mendoza, speaking for this Court, held that while the Constitution empowers each house to more accurate, or even more just. It is no objection to the validity of a rule that a
determine its rules of proceedings, it may not by its rules ignore constitutional restraints or different one has been prescribed and in force for a length of time. The power to
violate fundamental rights, and further that there should be a reasonable relation between the make rules is not one which once exercised is exhausted. It is a continuous power,
mode or method of proceeding established by the rule and the result which is sought to be always subject to be exercised by the House, and within the limitations suggested,
attained. It is only within these limitations that all matters of method are open to the absolute and beyond the challenge of any other body or tribunal."
determination of the Legislature. In the same case of Arroyo v. De Venecia, Justice Reynato S.
Puno, in his Concurring and Dissenting Opinion, was even more emphatic as he stressed that in Ballin, clearly confirmed the jurisdiction of courts to pass upon the validity of
the Philippine setting there is even more reason for courts to inquire into the validity of the congressional rules, i.e, whether they are constitutional. Rule XV was examined
Rules of Congress, viz: by the Court and it was found to satisfy the test: (1) that it did not ignore any
constitutional restraint; (2) it did not violate any fundamental right; and (3) its
With due respect, I do not agree that the issues posed by the petitioner are non- method had a reasonable relationship with the result sought to be attained. By
justiciable. Nor do I agree that we will trivialize the principle of separation of examining Rule XV, the Court did not allow its jurisdiction to be defeated by
power if we assume jurisdiction over he case at bar. Even in the United States, the the mere invocation of the principle of separation of powers. [154]
principle of separation of power is no longer an impregnable impediment against the
interposition of judicial power on cases involving breach of rules of procedure by xxx
legislators.
In the Philippine setting, there is a more compelling reason for courts to
Rightly, the ponencia uses the 1891 case of US v Ballin (144 US 1) as a window to categorically reject the political question defense when its interposition will
view the issues before the Court. It is in Ballin where the US Supreme Court first cover up abuse of power. For section 1, Article VIII of our Constitution was
defined the boundaries of the power of the judiciary to review congressional rules. It intentionally cobbled to empower courts "x x x to determine whether or not
held: there has been a grave abuse of discretion amounting to lack or excess of
jurisdiction on the part of any branch or instrumentality of the government."
"x x x This power is new and was not granted to our courts in the 1935 and 1972
Constitutions. It was not also xeroxed from the US Constitution or any foreign
"The Constitution, in the same section, provides, that each house may determine the state constitution. The CONCOM granted this enormous power to our courts in
rules of its proceedings." It appears that in pursuance of this authority the House had, view of our experience under martial law where abusive exercises of state
prior to that day, passed this as one of its rules: power were shielded from judicial scrutiny by the misuse of the political
question doctrine. Led by the eminent former Chief Justice Roberto Concepcion,
Rule XV the CONCOM expanded and sharpened the checking powers of the judiciary vis-à-
vis the Executive and the Legislative departments of government.[155]
3. On the demand of any member, or at the suggestion of the Speaker, the names of
members sufficient to make a quorum in the hall of the House who do not vote shall
xxx
be noted by the clerk and recorded in the journal, and reported to the Speaker with
the names of the members voting, and be counted and announced in determining the
The Constitution cannot be any clearer. What it granted to this Court is not a mere
presence of a quorum to do business. (House Journal, 230, Feb. 14, 1890)
power which it can decline to exercise. Precisely to deter this disinclination, the
Constitution imposed it as a duty of this Court to strike down any act of a branch
or instrumentality of government or any of its officials done with grave abuse of Impeachment Rules. As already observed, the U.S. Federal Constitution simply provides that
discretion amounting to lack or excess of jurisdiction. Rightly or wrongly, the "the House of Representatives shall have the sole power of impeachment." It adds nothing
Constitution has elongated the checking powers of this Court against the other more. It gives no clue whatsoever as to how this "sole power" is to be exercised. No limitation
branches of government despite their more democratic character, the President and whatsoever is given. Thus, the US Supreme Court concluded that there was a textually
the legislators being elected by the people.[156] demonstrable constitutional commitment of a constitutional power to the House of
Representatives. This reasoning does not hold with regard to impeachment power of the
xxx Philippine House of Representatives since our Constitution, as earlier enumerated, furnishes
several provisions articulating how that "exclusive power" is to be exercised.
The provision defining judicial power as including the `duty of the courts of justice. .
. to determine whether or not there has been a grave abuse of discretion amounting The provisions of Sections 16 and 17 of Rule V of the House Impeachment Rules which state
to lack or excess of jurisdiction on the part of any branch or instrumentality of the that impeachment proceedings are deemed initiated (1) if there is a finding by the House
Government' constitutes the capstone of the efforts of the Constitutional Committee on Justice that the verified complaint and/or resolution is sufficient in substance, or
Commission to upgrade the powers of this court vis-à-vis the other branches of (2) once the House itself affirms or overturns the finding of the Committee on Justice that the
government. This provision was dictated by our experience under martial law which verified complaint and/or resolution is not sufficient in substance or (3) by the filing or
taught us that a stronger and more independent judiciary is needed to abort abuses in endorsement before the Secretary-General of the House of Representatives of a verified
government. x x x complaint or a resolution of impeachment by at least 1/3 of the members of the House thus
clearly contravene Section 3 (5) of Article XI as they give the term "initiate" a meaning
xxx different from "filing."
In sum, I submit that in imposing to this Court the duty to annul acts of government Validity of the Second Impeachment Complaint
committed with grave abuse of discretion, the new Constitution transformed this
Court from passivity to activism. This transformation, dictated by our distinct Having concluded that the initiation takes place by the act of filing of the impeachment
experience as nation, is not merely evolutionary but revolutionary. Under the 1935 complaint and referral to the House Committee on Justice, the initial action taken thereon, the
and the 1973 Constitutions, this Court approached constitutional violations by meaning of Section 3 (5) of Article XI becomes clear. Once an impeachment complaint has
initially determining what it cannot do; under the 1987 Constitution, there is a shift been initiated in the foregoing manner, another may not be filed against the same official within
in stress - this Court is mandated to approach constitutional violations not by a one year period following Article XI, Section 3(5) of the Constitution.
finding out what it should not do but what it must do. The Court must discharge
this solemn duty by not resuscitating a past that petrifies the present. In fine, considering that the first impeachment complaint, was filed by former President Estrada
against Chief Justice Hilario G. Davide, Jr., along with seven associate justices of this Court, on
I urge my brethren in the Court to give due and serious consideration to this new June 2, 2003 and referred to the House Committee on Justice on August 5, 2003, the second
constitutional provision as the case at bar once more calls us to define the parameters impeachment complaint filed by Representatives Gilberto C. Teodoro, Jr. and Felix William
of our power to review violations of the rules of the House. We will not be true to Fuentebella against the Chief Justice on October 23, 2003 violates the constitutional prohibition
our trust as the last bulwark against government abuses if we refuse to exercise against the initiation of impeachment proceedings against the same impeachable officer within a
this new power or if we wield it with timidity. To be sure, it is this exceeding one-year period.
timidity to unsheathe the judicial sword that has increasingly emboldened other
branches of government to denigrate, if not defy, orders of our courts. In Conclusion
Tolentino, I endorsed the view of former Senator Salonga that this novel provision
stretching the latitude of judicial power is distinctly Filipino and its interpretation If there is anything constant about this country, it is that there is always a phenomenon that
should not be depreciated by undue reliance on inapplicable foreign jurisprudence. takes the center stage of our individual and collective consciousness as a people with our
In resolving the case at bar, the lessons of our own history should provide us the characteristic flair for human drama, conflict or tragedy. Of course this is not to demean the
seriousness of the controversy over the Davide impeachment. For many of us, the past two
light and not the experience of foreigners.[157] (Italics in the original emphasis and weeks have proven to be an exasperating, mentally and emotionally exhausting experience.
underscoring supplied) Both sides have fought bitterly a dialectical struggle to articulate what they respectively believe
to be the correct position or view on the issues involved. Passions had ran high as
Thus, the ruling in Osmena v. Pendatun is not applicable to the instant petitions. Here, the third
demonstrators, whether for or against the impeachment of the Chief Justice, took to the streets
parties alleging the violation of private rights and the Constitution are involved.
armed with their familiar slogans and chants to air their voice on the matter. Various sectors of
society - from the business, retired military, to the academe and denominations of faith - offered
Neither may respondent House of Representatives' rely on Nixon v. US [158] as basis for arguing suggestions for a return to a state of normalcy in the official relations of the governmental
that this Court may not decide on the constitutionality of Sections 16 and 17 of the House branches affected to obviate any perceived resulting instability upon areas of national life.
member of the judiciary from taking part in a case in specified instances. But to disqualify this
Through all these and as early as the time when the Articles of Impeachment had been entire institution now from the suit at bar is to regard the Supreme Court as likely incapable of
constituted, this Court was specifically asked, told, urged and argued to take no action of any impartiality when one of its members is a party to a case, which is simply a non sequitur.
kind and form with respect to the prosecution by the House of Representatives of the
impeachment complaint against the subject respondent public official. When the present No one is above the law or the Constitution. This is a basic precept in any legal system which
petitions were knocking so to speak at the doorsteps of this Court, the same clamor for non- recognizes equality of all men before the law as essential to the law's moral authority and that of
interference was made through what are now the arguments of "lack of jurisdiction," "non- its agents to secure respect for and obedience to its commands. Perhaps, there is no other
justiciability," and "judicial self-restraint" aimed at haltin the Court from any move that may government branch or instrumentality that is most zealous in protecting that principle of legal
have a bearing on the impeachment proceedings. equality other than the Supreme Court which has discerned its real meaning and ramifications
through its application to numerous cases especially of the high-profile kind in the annals of
This Court did not heed the call to adopt a hands-off stance as far as the question of the jurisprudence. The Chief Justice is not above the law and neither is any other member of this
constitutionality of initiating the impeachment complaint against Chief Justice Davide is Court. But just because he is the Chief Justice does not imply that he gets to have less in law
concerned. To reiterate what has been already explained, the Court found the existence in full of than anybody else. The law is solicitous of every individual's rights irrespective of his station in
all the requisite conditions for its exercise of its constitutionally vested power and duty of life.
judicial review over an issue whose resolution precisely called for the construction or
interpretation of a provision of the fundamental law of the land. What lies in here is an issue of The Filipino nation and its democratic institutions have no doubt been put to test once again by
a genuine constitutional material which only this Court can properly and competently address this impeachment case against Chief Justice Hilario Davide. Accordingly, this Court has
and adjudicate in accordance with the clear-cut allocation of powers under our system of resorted to no other than the Constitution in search for a solution to what many feared would
government. Face-to-face thus with a matter or problem that squarely falls under the Court's ripen to a crisis in government. But though it is indeed immensely a blessing for this Court to
jurisdiction, no other course of action can be had but for it to pass upon that problem head on. have found answers in our bedrock of legal principles, it is equally important that it went
through this crucible of a democratic process, if only to discover that it can resolve differences
The claim, therefore, that this Court by judicially entangling itself with the process of without the use of force and aggression upon each other.
impeachment has effectively set up a regime of judicial supremacy, is patently without basis in
fact and in law. WHEREFORE, Sections 16 and 17 of Rule V of the Rules of Procedure in Impeachment
Proceedings which were approved by the House of Representatives on November 28, 2001 are
This Court in the present petitions subjected to judicial scrutiny and resolved on the merits only unconstitutional. Consequently, the second impeachment complaint against Chief Justice Hilario
the main issue of whether the impeachment proceedings initiated against the Chief Justice G. Davide, Jr. which was filed by Representatives Gilberto C. Teodoro, Jr. and Felix William B.
transgressed the constitutionally imposed one-year time bar rule. Beyond this, it did not go Fuentebella with the Office of the Secretary General of the House of Representatives on
about assuming jurisdiction where it had none, nor indiscriminately turn justiciable issues out of October 23, 2003 is barred under paragraph 5, section 3 of Article XI of the Constitution.
decidedly political questions. Because it is not at all the business of this Court to assert judicial
dominance over the other two great branches of the government. Rather, the raison d'etre of the SO ORDERED.
judiciary is to complement the discharge by the executive and legislative of their own powers to
bring about ultimately the beneficent effects of having founded and ordered our society upon the Davide, Jr., C.J., no part.
rule of law. Bellosillo, J., see separate opinion.
Puno, and Ynares-Santiago, JJ., see concurring and dissenting opinion.
It is suggested that by our taking cognizance of the issue of constitutionality of the impeachment Vitug, J., please see separate opinion (concurring).
proceedings against the Chief Justice, the members of this Court have actually closed ranks to Panganiban, and Callejo, Sr., JJ., see separate concurring opinion.
protect a brethren. That the members' interests in ruling on said issue is as much at stake as is Sandoval-Gutierrez, J., see separate and concurring opinion
that of the Chief Justice. Nothing could be farther from the truth. Quisumbing, J., concurring separate opinion received.
Carpio, J., concur.
The institution that is the Supreme Court together with all other courts has long held and been Austria-Martinez, J., concur in the majority opinion and in the separate opinion of Justice Vitug.
entrusted with the judicial power to resolve conflicting legal rights regardless of the Corona, J., will write a separate concurring opinion.
personalities involved in the suits or actions. This Court has dispensed justice over the course of Azcuna, J., concur in the separate opinion.
time, unaffected by whomsoever stood to benefit or suffer therefrom, unfraid by whatever Tinga, J., concur. Please see separate opinion.
imputations or speculations could be made to it, so long as it rendered judgment according to
the law and the facts. Why can it not now be trusted to wield judicial power in these petitions
just because it is the highest ranking magistrate who is involved when it is an incontrovertible
fact that the fundamental issue is not him but the validity of a government branch's official act
as tested by the limits set by the Constitution? Of course, there are rules on the inhibition of any
[1] Rollo, G.R. No. 160261 at 180-182; Annex "H." District, Quezon City 15. Samuel Dangwa, Reporma, Lone District of Benguet 16. Alfredo
Marañon, Jr., NPC, 2nd District, Negros Occidental 17. Cecilia Jalosjos-Carreon, Reporma, 1 st
[2]
Per Special Appearance with Manifestation of House Speaker Jose C. De Venecia, Jr. ( Rollo, District, Zamboanga del Norte 18. Agapito A. Aquino, LDP, 2 nd District, Makati City 19.
G.R. No. 160261 at 325-363) the pertinent House Resolution is HR No. 260, but no copy of the Fausto L. Seachon, Jr., NPC, 3rd District, Masbate 20. Georgilu Yumul-Hermida, Pwersa ng
same was submitted before this Court.
Masa, 4th District, Quezon 21. Jose Carlos Lacson, Lakas, 3 rd District, Negros Occidental 22.
[3]Id. at 329. Created through PD No. 1949 (July 18, 1984), the JDF was established "to help Manuel C. Ortega, NPC, 1st District, La Union 23. Uliran Joaquin, NPC, 1st District, Laguna 24.
ensure and guarantee the independence of the Judiciary as mandated by the Constitution and Soraya C. Jaafar, Lakas, Lone District of Tawi-Tawi 25. Wilhelmino Sy- Alvarado, Lakas, 1st
public policy and required by the impartial administration of justice" by creating a special fund District, Bulacan 26. Claude P. Bautista, NPC, 2nd District, Davao Del Sur 27. Del De Guzman,
to augment the allowances of the members and personnel of the Judiciary and to finance the
Lakas, Lone District of Marikina City 28. Zeneida Cruz-Ducut, NPC, 2nd District, Pampanga
acquisition, maintenance and repair of office equipment and facilities."
29. Augusto Baculio, Independent-LDP, 2nd District, Misamis Oriental 30. Faustino Dy III,
[4] Rollo, G.R. No. 160261 at 120-139; Annex "E." NPC-Lakas, 3rd District, Isabela 31. Agusto Boboy Syjuco, Lakas, 2nd District, Iloilo 32.
Rozzano Rufino B. Biazon, LDP, Lone District of Muntinlupa City 33. Leovigildo B. Banaag,
[5]The initial complaint impleaded only Justices Artemio V. Panganiban, Josue N. Bellosillo, NPC-Lakas, 1st District, Agusan del Norte 34. Eric Singson, LP, 2nd District, Ilocos Sur 35.
Reynato S. Puno, Antonio T. Carpio and Renato C. Corona, and was later amended to include Jacinto Paras, Lakas, 1st District, Negros Oriental 36. Jose Solis, Independent, 2nd District,
Justices Jose C. Vitug, and Leonardo A. Quisumbing. Sorsogon 37. Renato B. Magtubo, Party List-Partido ng Manggagawa 38. Herminio G. Teves,
Lakas, 3 rd District, Negros Oriental 39. Amado T. Espino, Jr., Lakas, 2nd District, Pangasinan
[6] Supra note 4 at 123-124. 40. Emilio Macias, NPC, 2 nd District, Negros Oriental 41. Arthur Y. Pingoy, Jr., NPC, 2nd
[7] Rollo, G.R. District, South Cotobato 42. Francis Nepomuceno, NPC, 1st District, Pampanga 43. Conrado M.
No. 160403 at 48-53; Annex "A."
Estrella III, NPC, 6th District, Pangasinan 44. Elias Bulut, Jr., NPC, Lone District of Apayao 45.
[8] http://www.congress.gov.ph/search/bills/hist_show.php?bill_no=RPT9999 Jurdin Jesus M. Romualdo, NPC, Lone District of Camiguin 46. Juan Pablo Bondoc, NPC, 4th
District, Pampanga 47. Generoso DC. Tulagan, NPC, 3rd District, Pangasinan 48. Perpetuo
[9] Rollo, G.R. No. 160262 at 8. Ylagan, Lakas, Lone District of Romblon 49. Michael Duavit, NPC, 1st District, Rizal 50.
Joseph Ace H. Durano, NPC, 5 th District, Cebu 51. Jesli Lapus, NPC, 3rd District, Tarlac 52.
[10] Rollo, G.R. No. 160295 at 11. Carlos Q. Cojuangco, NPC, 4th District, Negros Occidental 53. Georgidi B. Aggabao, NPC, 4th
[11] Rollo, District, Santiago, Isabela 54. Francis Escudero, NPC, 1st District, Sorsogon 55. Rene M.
G.R. No. 160262 at 43-84; Annex "B." Velarde, Party List-Buhay 56. Celso L. Lobregat, LDP, Lone District of Zamboanga City 57.
[12] Supra note Alipio Cirilo V. Badelles, NPC, 1st District, Lanao del Norte 58. Didagen P. Dilangalen, Pwersa
2.
ng Masa, Lone District of Maguindanao 59. Abraham B. Mitra, LDP, 2nd District, Palawan 60.
[13]A perusal of the attachments submitted by the various petitioners reveals the following Joseph Santiago, NPC, Lone District of Catanduanes 61. Darlene Antonino-Custodio, NPC, 1 st
signatories to the second impeachment complaint and the accompanying District of South Cotobato & General Santos City 62. Aleta C. Suarez, LP, 3rd District, Quezon
Resolution/Endorsement. 1. Gilbert Teodoro, Jr., NPC, Tarlac (principal complainant) 2. Felix 63. Rodolfo G. Plaza, NPC, Lone District of Agusan del Sur 64. JV Bautista, Party List-
Fuentebella, NPC, Camarines Sur (second principal complainant) 3. Julio Ledesma, IV, NPC, Sanlakas 65. Gregorio Ipong, NPC, 2nd District, North Cotabato 66. Gilbert C. Remulla, LDP,
Negros Occidental 4. Henry Lanot, NPC, Lone District of Pasig City 5. Kim Bernardo-Lokin,
2nd District, Cavite 67. Rolex T. Suplico, LDP, 5th District, Iloilo 68. Celia Layus, NPC,
Party List- CIBAC 6. Marcelino Libanan, NPC, Lone District of Eastern Samar, (Chairman,
Cagayan 69. Juan Miguel Zubiri, Lakas, 3rd District, Bukidnon 70. Benasing Macarambon Jr,.
House Committee on Justice) 7. Emmylou Talino-Santos, Independent, 1st District, North
Cotobato 8. Douglas RA. Cagas, NPC, 1st District, Davao del Sur 9. Sherwin Gatchalian, NPC, NPC, 2nd District, Lanao del Sur 71. Josefina Joson, NPC, Lone District of Nueva Ecija 72.
1st District, Valenzuela City 10. Luis Bersamin, Jr., PDSP-PPC, Lone District of Abra 11. Mark Cojuangco, NPC, 5th District, Pangasinan 73. Mauricio Domogan, Lakas, Lone District of
Baguio City 74. Ronaldo B. Zamora, Pwersa ng Masa, Lone District of San Juan 75. Angelo O.
Nerissa Soon-Ruiz Alayon, 6th District, Cebu 12. Ernesto Nieva, Lakas, 1st District, Manila 13.
Montilla, NPC, Lone District of Sultan Kudarat 76. Roseller L. Barinaga, NPC, 2 nd District,
Edgar R. Erice, Lakas, 2nd District, Kalookan City 14. Ismael Mathay III, Independent, 2 nd
Zamboanga del Norte 77. Jesnar R. Falcon, NPC, 2nd District, Surigao del Sur 78. Ruy Elias
Lopez, NPC, 3rd District, Davao City. [25]

Vide Alejandrino v. Quezon , 46 Phil 83 (1924); Tañada v. Cuenco, 103 Phil 1051 (1957);
Ynot v. Intermediate Appellate Court, 148 SCRA 659, 665 (1987).
[14]
Rollo, G.R. No. 160261 at 5. Petitioner had previously filed two separate impeachment
[26] Const., art. VIII, sec. 1.
complaints before the House of Representatives against Ombudsman Aniano Desierto.
[15] [27] 5 US 137 (1803).

299 SCRA 744 (1998). In Chavez v. PCGG, petitioner Chavez argued that as a taxpayer and
a citizen, he had the legal personality to file a petition demanding that the PCGG make public
any and all negotiations and agreements pertaining to the PCGG's task of recovering the [28] Id. at 180.
Marcoses' ill- gotten wealth. Petitioner Chavez further argued that the matter of recovering the
ill-gotten wealth of the Marcoses is an issue of transcendental importance to the public. The [29] In In re Prautch, 1 Phil 132 (1902), this Court held that a statute allowing for imprisonment
Supreme Court, citing Tañada v. Tuvera, 136 SCRA 27 (1985), Legaspi v. Civil Service
for non- payment of a debt was invalid. In Casanovas v. Hord, 8 Phil 125 (1907), this Court
Commission, 150 SCRA 530 (1987) and Albano v. Reyes, 175 SCRA 264 (1989) ruled that
invalidated a statute imposing a tax on mining claims on the ground that a government grant
petitioner had standing. The Court, however, went on to elaborate that in any event, the question
stipulating that the payment of certain taxes by the grantee would be in lieu of other taxes was a
on the standing of petitioner Chavez was rendered moot by the intervention of the Jopsons who
contractual obligation which could not be impaired by subsequent legislation. In Concepcion v.
are among the legitimate claimants to the Marcos wealth.
Paredes, 42 Phil 599 (1921), Section 148 (2) of the Administrative Code, as amended, which
provided that judges of the first instance with the same salaries would, by lot, exchange judicial
[16] 384 SCRA 152 (2002). In Chavez v. PEA-Amari Coastal Bay Development Corporation, districts every five years, was declared invalid for being a usurpation of the power of
wherein the petition sought to compel the Public Estates Authority (PEA) to disclose all facts on appointment vested in the Governor General. In McDaniel v. Apacible, 42 Phil 749 (1922), Act
its then on-going negotiations with Amari Coastal Development Corporation to reclaim portions No. 2932, in so far as it declares open to lease lands containing petroleum which have been
of Manila Bay, the Supreme Court said that petitioner Chavez had the standing to bring a validly located and held, was declared invalid for being a depravation of property without due
taxpayer's suit because the petition sought to compel PEA to comply with its constitutional process of law. In U.S. v. Ang Tang Ho, 43 Phil 1 (1922), Act No. 2868, in so far as it authorized
duties. the Governor- General to fix the price of rice by proclamation and to make the sale of rice in
violation of such a proclamation a crime, was declared an invalid delegation of legislative
[17] 224 SCRA 792 (1993). power.
[18] [30] Vicente V. Mendoza, Sharing The Passion and Action of our Time 62-53 (2003).
Subsequent petitions were filed before this Court seeking similar relief. Other than the
petitions, this Court also received Motions for Intervention from among others, Sen. Aquilino
Pimentel, Jr., and Special Appearances by House Speaker Jose C. de Venecia, Jr., and Senate [31] Supra note 23.
President Franklin Drilon.
[32] Id. at 156-157.
[19] Supra note 2 at 10.
[33]Florentino P. Feliciano, The Application of Law: Some Recurring Aspects Of The Process
[20] Justice Florenz D. Regalado, Former Constitutional Commissioners Justice Regalado E. Of Judicial Review And Decision Making, 37 AMJJUR 17, 24 (1992).
Maambong and Father Joaquin G. Bernas, SJ, Justice Hugo E. Gutierrez, Jr., Former Minister of
Justice and Solicitor General Estelito P. Mendoza, Deans Pacifico Agabin and Raul C. [34] Ibid.
Pangalangan, and Former Senate President Jovito R. Salonga,.
[35] I Record of the Constitutional Commission 434-436 (1986).
[21] Rollo, G.R. No. 160261 at 275-292.
[36] 31 SCRA 413 (1970)
[22] Id. at 292.
[37] Id. at
422-423; Vide Baranda v. Gustilo, 165 SCRA 757, 770 (1988); Luz Farms v. Secretary
[23] 63 Phil 139 (1936).
of the Department of Agrarian Reform , 192 SCRA 51 (1990); Ordillo v. Commission on
Elections, 192 SCRA 100 (1990).
[24] Id. at 157-159.

[38] 194 SCRA 317 (1991). Impeachment.
[39] Id. [55]1987 Constitution, Article XI, Section 3 (1). The House of Representatives shall have the
at 325 citing Maxwell v. Dow, 176 US 581.
exclusive power to initiate all cases of impeachment.
[40] 152 SCRA 284 (1987). [56]Supra note 2 at 355 citing Agresto, The Supreme Court and Constitutional Democracy,
1984, pp. 112-113.
[41]Id. at 291 citing Gold Creek Mining v. Rodriguez, 66 Phil 259 (1938), J.M. Tuason & Co.,
Inc v. Land Tenure Administration , supra note 36, and I Tañada and Fernando, Constitution of [57] 369 U.S. 186 (1962).
the Philippines 21 (Fourth Ed.).
[58] 141 SCRA 263 (1986).
[42] 82 Phil 771 (1949).
[59] Supra note 25.
[43] Id. at 775.
[60] 298 SCRA 756 (1998).
[44] Supra note 38.
[61] 272 SCRA 18 (1997).
[45] Id. at 330-331.
[62] 201 SCRA 792 (1991).
[46]
Id. at 337-338 citing 16 CJS 2.31; Commonwealth v. Ralph, 111 Pa. 365, 3 Atl. 220 and
Household Finance Corporation v. Shaffner , 203, SW 2d, 734, 356 Mo. 808.
[63] 187 SCRA 377 (1990).
[47] Supra note 2.
[64] 180 SCRA 496 (1989).
[48] Citing Section 3 (6), Article VIII of the Constitution provides: [65] Supra note 25.
(6) The Senate shall have the sole power to try and decide all cases of impeachment.
When sitting for that purpose, the Senators shall be on oath or affirmation. When the [66] Supra note 23.
President of the Philippines is on trial, the Chief Justice of the Supreme Court shall
preside, but shall not vote. No person shall be convicted without the concurrence of [67] Civil Liberties Union v. Executive Secretary, supra note 38 at 330-331.
two-thirds of all the Members of the Senate.
[68] Id. at 158-159.
[49] Supra note 21.
[69]IBP v. Zamora, 338 SCRA 81 (2000) citing Joya v. PCGG, 225 SCRA 568 (1993); House
[50] 506 U.S. 224 (1993).
International Building Tenants Association, Inc. v. Intermediate Appellate Court, 151 SCRA
[51]
703 (1987); Baker v. Carr, supra note 57.
Supra note 2 at 349-350 citing Gerhardt, Michael J. The Federal Impeachment Process: A
Constitutional and Historical Analysis, 1996, p. 119. [70] Citing Kilosbayan, Inc. v. Morato, 250 SCRA 130 (1995).
[52] 227 SCRA 100 (1993). [71] Citing Tatad v. Secretary of the Department of Energy, 281 SCRA 330 (1997).
[53] Id. at 112. [72]Citing Kapatiran ng mga Naglilingkod sa Pamahalaan ng Pilipinas, 163 SCRA 371, 378
[54]
(1988).
US Constititon. Section 2. x x x The House of Representatives shall have the sole Power of

[73] Rule3, Section 2. Parties in interest. -- A real party in interest is the party who stands to be [85]Philippine Constitution Association v. Gimenez, supra note 79 citing Gonzales v.
benefited or injured by the judgment in the suit, or the party entitled to the avails of the suit. Hechanova, 118 Phil. 1065 (1963); Pascual v. Secretary, supra note 79.
Unless otherwise authorized by law or these Rules, every action must be prosecuted or defended
in the name of the real party in interest. [86] Integrated Bar of the Philippines v. Zamora, 338 SCRA 81 (2000).
[74] JG Summit Holdings, Inc. v. Court of Appeals, 345 SCRA 143, 152 (2000). [87]MVRS Publications, Inc. v. Islamic Da'wah Council of the Philippines, G.R. No. 135306,
January 28, 2003, citing Industrial Generating Co. v. Jenkins 410 SW 2d 658; Los Angeles
[75] 246 SCRA 540 (1995). County Winans, 109 P 640; Weberpals v. Jenny, 133 NE 62.
[76] Id. at 562-564. [88]Mathay v. Consolidated Bank and Trust Company, 58 SCRA 559, 570-571 (1974), citing
Moore's Federal Practice 2d ed., Vol. III, pages 3423-3424; 4 Federal Rules Service, pages 454-
[77] Aganv. PIATCO, G.R. No. 155001 , May 5, 2003 citing BAYAN v. Zamora, 342 SCRA 449, 455; Johnson, et al., vs. Riverland Levee Dist., et al., 117 2d 711, 715; Borlasa v. Polistico, 47
562-563 (2000) and Baker v. Carr , supra note 57; Vide Gonzales v. Narvasa,, 337 SCRA 733 Phil. 345, 348 (1925).
(2000); TELEBAP v. COMELEC, 289 SCRA 337 (1998).
[89] MVRS Publications, Inc. v. Islamic Da'wah Council of the Philippines, supra note 87,
[78] Chavez v. PCGG, supra note 15 . dissenting opinion of Justice Carpio; Bulig-bulig Kita Kamag-Anak Assoc. v. Sulpicio Lines, 173
SCRA 514, 514-515 (1989); Re: Request of the Heirs of the Passengers of Doña Paz, 159
[79] SCRA 623, 627 (1988) citing Moore, Federal Practice, 2d ed., Vol. 3B, 23-257, 23-258; Board
Del Mar v. PAGCOR 346 SCRA 485, 501 (2000) citing Kilosbayan, Inc., et.al. v. Morato, of Optometry v. Colet, 260 SCRA 88 (1996), citing Section 12, Rule 3, Rules of Court; Mathay
supra note 70; Dumlao v. COMELEC, 95 SCRA 392 (1980); Sanidad v. Comelec, 73 SCRA 333 v. Consolidated Bank and Trust Co., supra note 88; Oposa v. Factoran, supra note 17.
(1976); Philconsa v. Mathay, 18 SCRA 300 (1966); Pascual v. Secretary of Public Works, 110
Phil 331 (1960); Vide Gonzales v. Narvasa, supra note 77; Pelaez v. Auditor General, 15 SCRA [90] Kilosbayan
569 (1965); Philconsa v. Gimenez, 15 SCRA 479 (1965); Iloilo Palay & Corn Planters v. Guingona, 232 SCRA 110 (1994).
Association v. Feliciano, 13 SCRA 377 (1965).
[91]Kilosbayan, Inc. v. Morato, supra note 70 citing Civil Liberties Union v. Executive
[80] BAYAN v. Zamora, supra note 77 citing Bugnay v. Laron, 176 SCRA 240, 251-252 (1989); Secretary, supra note 38; Philconsa v. Giménez, supra note 79; Iloilo Palay and Corn Planters
Vide Del Mar v. PAGCOR, supra note 79; Gonzales v. Narvasa, supra note 77; TELEBAP v. Association v. Feliciano, supra note 79; Araneta v. Dinglasan, 84 Phil. 368 (1949); vide Tatad v.
COMELEC, supra note 77; Kilosbayan, Inc. v. Morato, supra note 70; Joya v. PCGG , supra Secretary of the Department of Energy, 281 SCRA 330 (1997); Santiago v. COMELEC, 270
note 69; Dumlao v. COMELEC, supra note 79; Sanidad v. COMELEC, supra note 79; Philconsa SCRA 106 (1997); KMU v. Garcia, Jr., 239 SCRA 386 (1994); Joya v. PCGG, 225 SCRA 368
v. Mathay, supra note 79; P elaez v. Auditor General, supra note 79; Philconsa v. Gimenez, (1993); Carpio v. Executive Secretary, 206 SCRA 290 (1992); Osmeña v. COMELEC, 199
supra note 79; Iloilo Palay & Corn Planters Association v. Feliciano, supra note 79; Pascual v. SCRA 750 (1991); Basco v. PAGCOR, 197 SCRA 52 (1991); Guingona v. Carague, 196 SCRA
Sec. of Public Works, supra note 79. 221 (1991); Daza v. Singson, supra note 64; Dumlao v. COMELEC, supra note 79.
[81] Gonzales [92]

Firestone Ceramics, Inc. v. Court of Appeals, 313 SCRA 522, 531 (1999) citing Gibson vs.
v. Narvasa, supra note 77 citing Dumlao v. COMELEC, supra note 79; Sanidad v.
COMELEC, supra note 79; Tan v. Macapagal, 43 SCRA 677 (1972). Revilla, 92 SCRA 219; Magsaysay-Labrador v. Court of Appeals, 180 SCRA 266, 271 (1989).
[82] [93] Supra note 79.

Tatad v. Garcia, Jr., 243 SCRA 436 (1995); Kilosbayan, Inc. v. Morato, supra note 70 at
140-141 citing Philconsa v. Enriquez, 235 SCRA 506 (1994); Guingona v. PCGG, 207 SCRA
659 (1992); Gonzales v. Macaraig , 191 SCRA 452 (1990); Tolentino v. COMELEC, 41 SCRA [94] Id. at 403.
702 (1971).
[95] Supra note 81.
[83] Del Mar v. PAGCOR, supra note 79 at 502-503 citing Philconsa v. Mathay, supra note 79.
[96] Id. at 681.
[84] Chinese Flour Importers Association v. Price Stabilization Board, 89 Phil 439, 461 (1951)
citing Gallego et al. vs. Kapisanan Timbulan ng mga Manggagawa, 46 Off. Gaz, 4245. [97] SECTION 3. x x x

(2) A verified complaint for impeachment may be filed by any Member of the House of [112] Id at 217
Representatives or by any citizen upon a resolution of endorsement by any Member
thereof, which shall be included in the Order of Business within ten session days, and [113] 2
referred to the proper Committee within three session days thereafter. The Committee, Record of the Constitutional Commission at 286.
after hearing, and by a majority vote of all its Members, shall submit its report to the
[114] Id. at 278, 316, 272, 283-284, 286.
House within sixty session days from such referral, together with the corresponding
resolution. The resolution shall be calendared for consideration by the House within
ten session days from receipt thereof. [115] 76 Phil 516 (1946).
(3) A vote of at least one-third of all the Members of the House shall be necessary either [116] Id. at 522.
to affirm a favorable resolution with the Articles of Impeachment of the Committee, or
override its contrary resolution. The vote of each Member shall be recorded.
[117] Supra note 37.
[98] Supra note 25.
[118]
Id. at 58 citing Association of Small Landowners in the Philippines, Inc. v. Secretary of
[99] Id. at Agrarian Reform, 175 SCRA 343 (1989).
1067.
[119] Vide concurring
opinion of Justice Vicente Mendoza in Estrada v.Desierto, 353 SCRA 452,
[100] VideBarcelon v. Baker, 5 Phil. 87 (1905); Montenegro v. Castañeda, 91 Phil. 882 (1952);
550 (2001); Demetria v. Alba, 148 SCRA 208, 210-211 (1987) citing Ashwander v. TVA , 297
De la Llana v. COMELEC, 80 SCRA 525 (1977).
U.S. 288 (1936).
[101]Vide Avelino v. Cuenco, 83 Phil. 17 (1949); Macias v. COMELEC , 3 SCRA 1 (1961); [120]As adverted to earlier, neither a copy the Resolution nor a record of the hearings conducted
Cunanan v. Tan, Jr., 5 SCRA 1 (1962); Gonzales v. COMELEC, 21 SCRA 774 (1967); Lansang
by the House Committee on Justice pursuant to said Resolution was submitted to the Court by
v. Garcia, 42 SCRA 448 (1971); Tolentino v. COMELEC, supra note 82.
any of the parties.
[102] 50 SCRA 30 (1973). [121] Rollo, G.R. No. 160310 at 38.
[103] Record of the Constitution Commission, Vol. 1, July 10, 1986 at 434-436. [122] Supra note 107.
[104] Id. at 439-443. [123] Id. at 777 (citations omitted).
[105] 177 SCRA 668 (1989). [124] Rollo, G.R. No. 160262 at 73.
[106] Id. at 695. [125] Supra note 2 at 342.
[107] 203 SCRA 767 (1991). [126] Perfecto v. Meer, 85 Phil 552, 553 (1950).
[108] Id. at 776 citing Gonzales v. Macaraig, 191 SCRA 452, 463 (1990). [127]Estrada v. Desierto , 356 SCRA 108, 155-156 (2001); Vide Abbas v. Senate Electoral
Tribunal, 166 SCRA 651 (1988); Vargas v. Rilloraza, et al., 80 Phil. 297, 315-316 (1948);
[109] Supra note 64. Planas v. COMELEC, 49 SCRA 105 (1973), concurring opinion of J. Concepcion.
[110] Id. at 501. [128] Philippine Judges Association v. Prado, 227 SCRA 703, 705 (1993).
[111] Supra note 57. [129] Ibid.

[130] Ramirez v. Corpuz- Macandog, 144 SCRA 462, 477 (1986).

[150] 40 SCRA 58, 68 (1971).
[131] Supra note 127 .
[151] 286 U.S. 6, 33 (1932).
[132] Estrada v. Desierto , supra note 127.
[152] 277 SCRA 268, 286 (1997).
[133]Id. at 155-156 citing Abbas, et al. v. Senate Electoral Tribunal, supra note 127; Vargas v.
Rilloraza, et al., supra note 127. [153] 144 U.S. 1 (1862).
[134] Supra note 119 at 210-211. [154] Supra note 152 at 304-306.
[135] Supra note 119. [155] Id at 311.
[136]Board of Optometry v. Colet, 260 SCRA 88, 103 (1996); Joya v. PCGG, supra note 69 at [156] Id. at 313.
575; Macasiano v. National Housing Authority, 224 SCRA 236, 242 (1993); Santos III v.
Northwestern Airlines , 210 SCRA 256, 261-262 (1992), National Economic Protectionism [157] Supra note 152 at 314-315.
Association v. Ongpin, 171 SCRA 657, 665 (1989).
[158] Supra note 50.
[139] Supra note 102 . SEPARATE OPINION
[140] Supra note 33. BELLOSILLO, J.:

[141] 249 SCRA 244, 251 (1995). x x x x In times of social disquietude or political excitement, the great landmarks of
the Constitution are apt to be forgotten or marred, if not entirely obliterated.
[142] Id. at 251.
- Justice Jose P. Laurel
[143] 2 Records of the Constitutional Commission at 342-416. A pall of gloom hovers ominously in the horizon. Looming in its midst is the specter of conflict
the thunderous echoes of which we listened to intently for the past few days; two great
[144] Id. at 416. departments of government locked in a virtual impasse, sending them closer to the precipice of
constitutional confrontation. Emerging from the shadows of unrest is the national inquest on the
[145] Commissioner Maambong's Amicus Curiae Brief at 15. conduct of no less than the Chief Justice of this Court. Impeachment, described by Alexis
Tocqueville as "the most formidable weapon that has ever been placed in the grasp of the
[146] 2 majority," has taken center stage in the national consciousness in view of its far-reaching
Record of the Constitutional Commission at 375-376, 416 implications on the life of our nation. Unless the issues involved in the controversial cases are
dealt with exceptional sensitivity and sobriety, the tempest of anarchy may fulminate and tear
[147] 77 Phil. 192 (1946). apart the very foundations of our political existence. It will be an unfortunate throwback to the
dark days of savagery and brutishness where the hungry mob screaming for blood and a pound
[148] Justice Hugo Guiterrez's Amicus Curiae Brief at 7. of flesh must be fed to be pacified and satiated.
[149] 109 On 2 June 2003 former President Joseph Estrada through counsel filed a verified impeachment
Phil. 863 (1960).
complaint before the House of Representatives charging Chief Justice Hilario G. Davide, Jr. and First. The matter of impeachment is a political question that must rightfully be addressed to a
seven (7) Associate Justices of this Court with culpable violation of the Constitution, betrayal of political branch of government, which is the Congress of the Philippines. As enunciated in
public trust and other high crimes. The complaint was endorsed by Reps. Rolex T. Suplico of Integrated Bar of the Philippines v. Zamora,[3] we do not automatically assume jurisdiction
Iloilo, Ronaldo B. Zamora of San Juan and Didagen P. Dilangalen of Maguindanao and over actual constitutional cases brought before us even in instances that are ripe for resolution -
Cotabato City.
One class of cases wherein the Court hesitates to rule on are "political questions."
On 13 October 2003, the House Committee on Justice included the impeachment complaint in The reason is that political questions are concerned with issues dependent upon the
its Order of Business and ruled that the complaint was "sufficient in form." Subsequently wisdom, not the legality, of a particular act or measure being assailed. Moreover, the
however, on 22 October 2003, the House Committee on Justice recommended the dismissal of political question being the function of the separation of powers, the courts will not
the complaint for being "insufficient in substance." normally interfere with the workings of another co-equal branch unless the case
shows a clear need for the courts to step in to uphold the law and the Constitution.
On 23 October 2003, four (4) months after the filing of the first impeachment complaint, a
second verified impeachment complaint was filed by Reps. Gilberto C. Teodoro of Tarlac and Clearly, the constitutional power of impeachment rightfully belongs to Congress in a two-fold
William Felix D. Fuentebella of Camarines Sur, this time against Chief Justice Hilario G. character: (a) The power to initiate impeachment cases against impeachable officers is lodged in
Davide, Jr. alone. The complaint accused the Chief Justice mainly of misusing the Judiciary the House of Representatives; and, (b) The power to try and decide impeachment cases belongs
Development Fund (JDF). Thereafter, more than eighty (80) members of the Lower House, solely to the Senate.
constituting more than 1/3 of its total membership, signed the resolution endorsing the second
impeachment complaint. In Baker v. Carr[4] repeatedly mentioned during the oral arguments, the United States Supreme
Court held that political questions chiefly relate to separation of powers issues, the Judiciary
Several petitions for certiorari and prohibition questioning the constitutionality of the second being a co-equal branch of government together with the Legislature and the Executive branch,
impeachment complaint were filed before this Court. Oral arguments were set for hearing on 5 thus calling for judicial deference. A controversy is non-justiciable where there is a "textually
November 2003 which had to be extended to 6 November 2003 to accommodate the parties and demonstrable constitutional commitment of the issue to a coordinate political department, or a
their respective counsel. During the hearings, eight (8) amici curiae appeared to expound their
views on the contentious issues relevant to the impeachment. lack of judicially discoverable and manageable standards for resolving it."[5]
This Court must hearken to the dictates of judicial restraint and reasoned hesitance. I find no But perhaps it is Nixon v. United States[6] which provides the authority on the "political
urgency for judicial intervention at this time. I am conscious of the transcendental implications question" doctrine as applied in impeachment cases. In that case the U.S. Supreme Court
and importance of the issues that confront us, not in the instant cases alone but on future ones as applied the Baker ruling to reinforce the "political question" doctrine in impeachment cases.
well; but to me, this is not the proper hour nor the appropriate circumstance to perform our duty. Unless it can therefore be shown that the exercise of such discretion was gravely abused, the
True, this Court is vested with the power to annul the acts of the legislature when tainted with Congressional exercise of judgment must be recognized by this Court. The burden to show that
grave abuse of discretion. Even so, this power is not lightly assumed or readily exercised. The the House or the Senate gravely abused its discretion in impeaching a public officer belongs
doctrine of separation of powers imposes upon the courts proper restraint born of the nature of exclusively to the impeachable officer concerned.
their functions and of their respect for the other departments, in striking down the acts of the
legislature as unconstitutional. Verily, the policy is a harmonious blend of courtesy and caution. Second. At all times, the three (3) departments of government must accord mutual respect to
[1] each other under the principle of separation of powers. As a co-equal, coordinate and co-
extensive branch, the Judiciary must defer to the wisdom of the Congress in the exercise of the
All avenues of redress in the instant cases must perforce be conscientiously explored and latter's power under the Impeachment Clause of the Constitution as a measure of judicial comity
exhausted, not within the hallowed domain of this Court, but within the august confines of the on issues properly within the sphere of the Legislature.
Legislature, particularly the Senate. As Alexander Hamilton, delegate to the 1787 American
Constitutional Convention, once wrote: "The Senate is the most fit depositary of this important Third. It is incumbent upon the Court to exercise judicial restraint in rendering a ruling in this
particular case to preserve the principle of separation of powers and restore faith and stability in
trust."[2] We must choose not to rule upon the merits of these petitions at this time simply
because, I believe, this is the prudent course of action to take under the circumstances; and, it our system of government. Dred Scott v. Sandford[7] is a grim illustration of how catastrophic
should certainly not to be equated with a total abdication of our bounden duty to uphold the improvident judicial incursions into the legislative domain could be. It is one of the most
Constitution. denounced cases in the history of U.S. Supreme Court decision-making. Penned by Chief
Justice Taney, the U.S. Supreme Court, by a vote of 7-2, denied that a Negro was a citizen of the
For considerations of law and judicial comity, we should refrain from adjudicating the issues United States even though he happened to live in a "free" state. The U.S. High Court likewise
one way or the other, except to express our views as we see proper and appropriate. declared unconstitutional the law forbidding slavery in certain federal territories. Dred Scott
undermined the integrity of the U.S. High Court at a moment in history when it should have
been a powerful stabilizing force. More significantly, it inflamed the passions of the Northern deliberations of the Constitutional Commission, which was quoted extensively in the hearings
and Southern states over the slavery issue thus precipitating the American Civil War. This we do of 5 and 6 November 2003 -
not wish to happen in the Philippines!
THE PRESIDING OFFICER (Mr. Trenas). Commissioner Maambong is recognized.
It must be clarified, lest I be misconstrued, this is not to say that this Court is absolutely
precluded from inquiring into the constitutionality of the impeachment process. The present MR. MAAMBONG. Mr. Presiding Officer, I am not moving for a reconsideration of
Constitution, specifically under Art. VIII, Sec. 1, introduced the expanded concept of the power the approval of the amendment submitted by Commissioner Regalado, but I will just
of judicial review that now explicitly allows the determination of whether there has been a make of record my thinking that we do not really initiate the filing of the Articles of
grave abuse of discretion amounting to lack or excess of jurisdiction on the part of any branch Impeachment on the floor. The procedure, as I have pointed out earlier, was that
or instrumentality of the government. This is evidently in response to the unedifying experience the initiation starts with the filing of the complaint. And what is actually done on
of the past in frequently resorting to the "political question" doctrine that in no mean measure the floor is that the committee resolution containing the Articles of Impeachment is
has emasculated the Court's authority to strike down abuses of power by the government or any the one approved by the body.
of its instrumentalities.
As the phraseology now runs, which may be corrected by the Committee on Style, it
While the impeachment mechanism is by constitutional design a sui generis political process, it appears that the initiation starts on the floor. If we only have time, I could cite
is not impervious to judicial interference in case of arbitrary or capricious exercise of the power examples in the case of the impeachment proceedings of President Richard Nixon
to impeach by Congress. It becomes the duty of the Court to step in, not for the purpose of wherein the Committee on the Judiciary submitted the recommendation, the
questioning the wisdom or motive behind the legislative exercise of impeachment powers, but resolution and the Articles of Impeachment to the body, and it was the body that
merely to check against infringement of constitutional standards. In such circumstance, approved the resolution. It is not the body which initiates it. It only approves or
legislative actions "might be so far beyond the scope of its constitutional authority, and the disapproves the resolution. So, on that score, probably the Committee on Style could
consequent impact on the Republic so great, as to merit a judicial response despite prudential help in rearranging these words because we have to be very technical about this. I
concerns that would ordinarily counsel silence."[8] I must, of course, hasten to add by way of a have been bringing with me The Rules of the House of Representatives of the U.S.
finale the nature of the power of judicial review as elucidated in Angara v. Electoral Congress. The Senate Rules are with me. The proceedings of the case of Richard
Nixon are with me. I have submitted my proposal, but the Committee has already
Commission[9] - decided. Nevertheless, I just want to indicate this on record x x x x (underscoring
The Constitution is a definition of the powers of government. Who is to determine supplied for emphasis).[10]
the nature, scope and extent of such powers? The Constitution itself has provided for
As aptly observed by Fr. Joaquin C. Bernas, S.J., "an impeachment proceeding is not a single
the instrumentality of the judiciary as the rational way. And when the judiciary
act; it is a complexus of acts consisting of a beginning, a middle and an end. The end is the
mediates to allocate constitutional boundaries, it does not assert any superiority
transmittal of the articles of impeachment to the Senate. The middle consists of those
over the other departments; it does not in reality nullify or invalidate an act of
deliberative moments leading to the formulation of the articles of impeachment. The beginning
the legislature, but only asserts the solemn and sacred obligation assigned to it
by the Constitution to determine conflicting claims of authority under the or the initiation is the filing of the complaint and its referral to the Committee on Justice."[11]
Constitution and to establish for the parties in an actual controversy the rights
which that instrument secures and guarantees to them. This is in truth all that is To recapitulate: (a) Impeachment is a political question that is rightfully within the sphere of
involved in what is termed "judicial supremacy" which properly is the power of Congressional prerogatives; (b) As co-equal, coordinate and co-extensive branches of the
judicial review under the Constitution ( underscoring supplied). government, the Legislature and the Judiciary must respect the doctrine of separation of powers
at all times; (c) Judicial restraint must be exercised by this Court in the instant cases, as a matter
By way of obiter dictum, I find the second impeachment complaint filed against the Chief of judicial courtesy; and, (d) While impeachment is essentially a political exercise, judicial
Justice on 23 October 2003 to be constitutionally infirm. Precisely, Art. 11, Sec. 3, par. (5), of interference is allowed in case of arbitrary or capricious exercise of that power as to amount to
the 1987 Constitution explicitly ordains that "no impeachment proceedings shall be initiated grave abuse of discretion.
against the same official more than once within a period of one year." The fundamental
contention that the first impeachment complaint is not an "initiated" complaint, hence should It is lamentable indeed that the life of our nation has been marked by turbulent periods of pain,
not be counted, since the House Committee on Justice found it to be insufficient in substance, is anxieties and doubt. The instant cases come at a time when scandals of corruption, obscene
specious, to say the least. It seems plain to me that the term initiation must be understood in its profligacy and venality in public office appear to be stalking the entire system of government. It
ordinary legal acceptation, which means inception or commencement; hence, an impeachment is is a period of stress with visible signs of creeping hopelessness, and public disenchantment
initiated upon the filing of a verified complaint, similar to an ordinary action which is initiated continues to sap the vim and vitality of our institutions. The challenge at present is how to
by the filing of the complaint in the proper tribunal. This conclusion finds support in the preserve the majesty of the Constitution and protect the ideals of our republican government by
averting a complete meltdown of governmental civility and respect for the separation of powers.
It is my abiding conviction that the Senate will wield its powers in a fair and objective fashion CONCURRING AND DISSENTING OPINION
and in faithful obeisance to their sacred trust to achieve this end.
"The highest proof of virtue," intoned Lord Macaulay, "is to possess boundless power without PUNO, J.:
abusing it." And so it must be that we yield to the authority of the House of Representatives and
the Senate on the matter of the impeachment of one of our Brethren, and unless the exercise of Over a century ago, Lord Bryce described the power of impeachment as the "heaviest piece of
that authority is tainted with grave abuse of discretion amounting to lack or excess of artillery in the congressional arsenal." Alexander Hamilton warned that any impeachment
jurisdiction we should refrain from interfering with the prerogatives of Congress. That, I proceeding "will seldom fail to agitate the passions of the whole community." His word is
believe, is judicial statesmanship of the highest order which will preserve the harmony among prophetic for today we are in the edge of a crisis because of the alleged unconstitutional
the three separate but co-equal branches of government under our constitutional democracy. exercise of the power of impeachment by the House of Representatives.
IN VIEW OF THE FOREGOING, I maintain that in disposing of this case we should Before the Court are separate petitions for certiorari, prohibition and mandamus filed by
exercise judicial restraint and leave the matter to the Senate unless such exercise is fraught with different groups seeking to prevent the House of Representatives from transmitting to the Senate
grave abuse of discretion. Hence, I find no legal obstacle to dismissing the instant petitions. the Articles of Impeachment against Chief Justice Hilario G. Davide, Jr., alleging improper use
of the Judiciary Development Fund (JDF), and to enjoin the Senate from trying and deciding the
case.
[1]See Association of Small Landowners in the Phil., Inc., et al. v. Secretary of Agrarian Let us first leapfrog the facts. On October 23, 2003, Representatives Gilberto C. Teodoro, Jr.,
Reform, G.R. No. 78742, 14 July 1989, 175 SCRA 343. First District, Tarlac, and Felix William B. Fuentebella, Third District, Camarines Sur, filed with
the House of Representatives a Complaint for Impeachment against Chief Justice Hilario G.
[2] Hamilton, Davide, Jr. The complaint alleged the underpayment of the cost of living allowance of the
A., Federalist No. 65, Friday, 7 March 1788.
members and personnel of the judiciary from the JDF, and unlawful disbursement of said fund
for various infrastructure projects and acquisition of service vehicles and other equipment. The
[3] G.R. No. 141284, 15 August 2000, 338 SCRA 81. complaint was endorsed by one-third (1/3) of all the members of the House of Representatives.
It is set to be transmitted to the Senate for appropriate action.
[4] 369 U.S. 186 (1962).
In the succeeding days, several petitions were filed with this Court by members of the bar,
[5]Ibid. members of the House of Representatives, as well as private individuals, all asserting their
rights, among others, as taxpayers to stop the illegal spending of public funds for the
impeachment proceedings against the Chief Justice. The petitioners contend that the filing of the
[6] 122 L. Ed. 2d 1, 506 U.S. 224 (1993). present impeachment complaint against the Chief Justice is barred under Article XI, Section 3
(5) of the 1987 Constitution which states that "(n)o impeachment proceedings shall be initiated
[7] 60 U.S., 393 (1857). against the same official more than once within a period of one year." They cite the prior
Impeachment Complaint filed by Former President Joseph Ejercito Estrada against the Chief
[8] Justice and seven associate justices of this Court on June 2, 2003 for allegedly conspiring to
See Concurring Opinion of J. Souter in Nixon v. United States, 122 L. Ed. 2d 1, 506 U.S.224
deprive him of his mandate as President, swearing in then Vice President Gloria Macapagal-
(1993).
Arroyo to the Presidency, and declaring him permanently disabled to hold office. Said
[9]
complaint was dismissed by the Committee on Justice of the House of Representatives on
63 Phil. 139, 158 (1936). October 23, 2003 for being insufficient in substance. The recommendation has still to be
approved or disapproved by the House of Representatives in plenary session.
[10] Records of the Constitutional Commission, 28 July 1986, pp. 374-376.
On October 28, 2003, this Court issued a resolution requiring the respondents and the Solicitor
[11] Fr. Joaquin C. Bernas, S.J., "Position Paper on the Impeachment of Chief Justice Davide, General to comment on the petitions and setting the cases for oral argument on November 5,
2003. The Court also appointed the following as amici curiae: Former Senate President Jovito
Jr.," 5 November 2003. R. Salonga, former Constitutional Commissioner Joaquin G. Bernas, retired Justice Hugo E.
Gutierrez, Jr. of the Supreme Court , retired Justice Florenz D. Regalado of the Supreme Court,
former Minister of Justice and Solicitor General Estelito P. Mendoza, former Constitutional
Commissioner and now Associate Justice of the Court of Appeals, Regalado E. Maambong,
Dean Raul C. Pangalangan and former Dean Pacifico A. Agabin of the UP College of Law. The
Court further called on the petitioners and the respondents to maintain the status quo and
enjoined them to refrain from committing acts that would render the petitions moot. Impeachment in England skyrocketed during periods of institutional strifes and was most
intense prior to the Protestant Revolution. Its use declined when political reforms were
Both the Senate and the House of Representatives took the position that this Court lacks instituted.[10] Legal scholars are united in the view that English impeachment partakes of a
jurisdiction to entertain the petitions at bar. The Senate, thru its President, the Honorable
Franklin Drilon further manifested that the petitions are premature for the Articles of political proceeding and impeachable offenses are political crimes.[11]
Impeachment have not been transmitted to them. In its Special Appearance, the House alleged
that the petitions pose political questions which are non-justiciable. B. Impeachment in the United States:
Its political character
We then look at the profiles of the problems. On November 5 and 6, 2003, the Court heard the
petitions on oral argument. It received arguments on the following issues: The history of impeachment in colonial America is scant and hardly instructive. In the royal
colonies, governors were appointed by the Crown while in the proprietary colonies, they were
Whether the certiorari jurisdiction of the Supreme Court may be invoked; who can invoke it; on named by the proprietor.[12] Their tenure was uncertain. They were dismissed for disobedience
what issues and at what time; and whether it should be exercised by this Court at this time. or inefficiency or political patronage.[13] Judges were either commissioned in England or in
some instances appointed by the governor. They enjoyed no security of office.[14]
a) locus standi of petitioners;
b) ripeness (prematurity; mootness);
The first state constitutions relied heavily on common law traditions and the experience of
c) political question/justiciability;
d) House's "exclusive" power to initiate all cases of impeachment; colonial government.[15] In each state, the Constitution provided for a Chief Executive, a
e) Senate's "sole" power to try and decide all cases of impeachment; legislature and a judiciary.[16] Almost all of the Constitutions provided for impeachment.[17]
f) constitutionality of the House Rules on Impeachment vis a vis Section 3 (5) of Article There were differences in the impeachment process in the various states.[18] Even the grounds
XI of the Constitution; and for impeachment and their penalties were dissimilar. In most states, the lower house of the
g) judicial restraint.
legislature was empowered to initiate the impeachment proceedings.[19] In some states, the trial
Due to the constraints of time, I shall limit my Opinion to the hot-button issues of justiciability, of impeachment cases was given to the upper house of the legislature; in others, it was entrusted
jurisdiction and judicial restraint. For a start, let u look to the history of thought on to a combination of these fora. [20] At the national level, the 1781 Articles of Confederation did
impeachment for its comprehensive understanding. not contain any provision on impeachment.[21]
A. The Origin and Nature of Impeachment: Then came the Philadelphia Constitutional Convention of 1787. In crafting the provisions on
The British Legacy impeachment, the delegates were again guided by their colonial heritage, the early state
The historical roots of impeachment appear to have been lost in the mist of time. Some trace constitutions, and common law traditions, especially the British legacy.[22]
them to the Athenian Constitution.[1] It is written that Athenian public officials were hailed to The records show that Edmund Randolph of the State of Virginia presented to the Convention
law courts known as "heliaea" upon leaving office. The citizens were then given the right to what came to be known as the Virginia Plan of structure of government. It was largely the
charge the said officials before they were allowed to bow out of office.[2] handiwork of James Madison, Father of the American Constitution. It called for a strong
national government composed of an executive, a bicameral legislature and a judiciary.[23] The
Undoubtedly, however, the modern concept of impeachment is part of the British legal legacy to
Virginia Plan vested jurisdiction in the judiciary over impeachment of national officers.[24]
the world, especially to the United States.[3] It was originally conceived as a checking Charles Pinkney of South Carolina offered a different plan. He lodged the power of
mechanism on executive excuses.[4] It was then the only way to hold royal officials impeachment in the lower house of the legislature but the right to try was given to the federal
accountable.[5] The records reveal that the first English impeachments took place in the reign of judiciary.[25] Much of the impeachment debates, however, centered on the accountability of the
Edward III (1327-1377).[6] It was during his kingship that the two houses of Lords and President and how he should be impeached. A Committee called Committee on Detail[26]
Commons acquired some legislative powers.[7] But it was during the reign of Henry IV (1399- recommended that the House of Representatives be given the sole power of impeachment. It
1413) that the procedure was firmly established whereby the House of Commons initiated also suggested that the Supreme Court should be granted original jurisdiction to try cases of
impeachment. The matter was further referred to a Committee of Eleven chaired by David
impeachment proceedings while the House of Lords tried the impeachment cases.[8]
Impeachment in England covered not only public officials but private individuals as well. There Brearley of New Hampshire.[27] It suggested that the Senate should have the power to try all
impeachments, with a 2/3 vote to convict. The Vice President was to be ex-officio President of
was hardly any limitation in the imposable punishment.[9]
the Senate, except when the President was tried, in which event the Chief Justice was to preside. Justice James Wilson characterized impeachments as proceedings of a political nature "confined
[28] Gouverneur Morris explained that "a conclusive reason for making the Senate instead of the to political characters, to political crimes and misdemeanors, and to political punishments."[34]
Supreme Court the Judge of impeachments, was that the latter was to try the President after the Another constitutionalist, McDowell emphasized: "To underscore the inherently political
trial of the impeachment."[29] James Madison insisted on the Supreme Court and not the nature of impeachment, the Founders went further and provided that the right to a jury trial was
Senate as the impeachment court for it would make the President "improperly to be secured for àll crimes except in cases of impeachment.' When it came to the President,
unlike his powers to interfere with ordinary crimes, the Founders sought to limit his power to
dependent."[30] Madison's stand was decisively rejected.[31] The draft on the impeachment interfere with impeachments. His power to grant reprieves and pardons for offenses against the
provisions was submitted to a Committee on Style which finalized them without effecting
United States was granted broadly èxcept in cases of impeachment.'" [35]
substantive changes.[32]
A painstaking study of state court decisions in the United States will reveal that almost
Prof. Gerhardt points out that there are eight differences between the impeachment power invariably state courts have declined to review decisions of the legislature involving
provided in the US Constitution and the British practice: [33] impeachment cases consistent with their character as political.[36] In the federal level, no less
than the US Supreme Court, thru Chief Justice Rehnquist, held in the 1993 case of Nixon v.
First, the Founders limited impeachment only to "[t]he President, Vice President and
all civil Officers of the United States." Whereas at the time of the founding of the United States[37] that the claim that the US Senate rule which allows a mere committee of
Republic, anyone (except for a member of the royal family) could be impeached in senators to hear evidence of the impeached person violates the Constitution is non- justiciable.
England. Second, the delegates to the Constitutional Convention narrowed the range I quote the ruling in extenso:
of impeachable offenses for public officeholders to "Treason, Bribery, or other high
Crimes and Misdemeanors," although the English Parliament always had refused to xxx
constrain its jurisdiction over impeachments by restrictively defining impeachable
offenses. Third, whereas the English House of Lords could convict upon a bare The history and contemporary understanding of the impeachment provisions support
majority, the delegates to the Constitutional Convention agreed that in an our reading of the constitutional language. The parties do not offer evidence of a
impeachment trial held in the Senate, "no Person shall be convicted [and removed single word in the history of the Constitutional Convention or in contemporary
from office] without the concurrence of two thirds of the Members present." Fourth, commentary that even alludes to the possibility of judicial review in the context of
the House of Lords could order any punishment upon conviction, but the delegates the impeachment powers. See 290 US App DC, at 424, 938 F2d, at 243; R. Berger,
limited the punishments in the federal impeachment process "to removal from Impeachment: The Constitutional Problems 116 (1973). This silence is quite
Office, and disqualification to hold and enjoy any Office of Honor, Trust, or Profit meaningful in light of the several explicit references to the availability of judicial
under the United States." Fifth, the King could pardon any person after an review as a check on the Legislature's power with respect to bills of attainder, ex
impeachment conviction, but the delegates expressly prohibited the President from post facto laws, and statutes. See the Federalist No. 78 p 524 (J. Cooke ed 1961)
exercising such power in the Constitution. Sixth, the Founders provided that the ("Limitations ... can be preserved in practice no other way than through the medium
President could be impeached, whereas the King of England could not be of the courts of justice").
impeached. Seventh, impeachment proceedings in England were considered to be
criminal, but the Constitution separates criminal and impeachment proceedings. The Framers labored over the question of where the impeachment power should lie.
Lastly, the British provided for the removal of their judges by several means, Significantly, in at least two considered scenarios the power was placed with the
whereas the Constitution provides impeachment as the sole political means of Federal Judiciary. See 1 Farrand 21-22 (Virginia Plan) ; id., at 244 (New Jersey
judicial removal. Plan). Indeed, Madison and the Committee of Detail proposed that the Supreme
Court should have the power to determine impeachments. See 2 id., at 551
It is beyond doubt that the metamorphosis which the British concept of impeachment (Madison); id., at 178-179, 186 (Committee of Detail). Despite these proposals, the
underwent in the Philadelphia Constitutional Convention of 1789 did not change its Convention ultimately decided that the Senate would have "the sole Power to Try all
political nature. In the Federalist No. 65, Alexander Hamilton observed: Impeachments." Art I, § 3, cl 6. According to Alexander Hamilton, the Senate was
the "most fit depositary of this important trust" because its members are
The subject of the Senate jurisdiction [in an impeachment trial] are those offenses representatives of the people. See The Federalist No. 65, p 440 (J. Cooke ed 1961).
which proceed from the misconduct of public man or in other words, form the abuse The Supreme Court was not the proper body because the Framers "doubted whether
or violation of some public trust. They are of a political nature which may with the members of that tribunal would, at all times, be endowed with so eminent a
peculiar propriety be denominated political, as they relate chiefly to injuries portion of fortitude as would be called for in the execution of so difficult a task" or
done immediately to the society itself. whether the Court "would possess the degree of credit and authority" to carry out its
judgment if it conflicted with the accusation brought by the Legislature - the people's
representative. See id., at 441. In addition, the Framers believed the Court was too

small in number: "The lawful discretion, which a court of impeachments must

necessarily have, to doom to honor or to infamy the most confidential and the most Given its history, let us now consider the nature of impeachment in the Philippine setting, i.e.,
distinguished characters of the community, forbids the commitment of the trust to a whether it is likewise political in nature. A revisit of the political question doctrine will not
small number of persons." Id., at 441-442. shock us with the unfamiliar. In Tañada v. Cuenco, [38] we held that the term political question
connotes what it means in ordinary parlance, namely, a question of policy. It refers to "those
There are two additional reasons why the Judiciary, and the Supreme Court in questions which under the Constitution, are to be decided by the people in their sovereign
particular, were not chosen to have any role in impeachments. First, the Framers capacity; or in regard to which full discretionary authority has been delegated to the legislative
recognized that most likely there would be two sets of proceedings for individuals or executive branch of government. It is concerned with issues dependent upon the wisdom, not
who commit impeachable offenses - the impeachment trial and a separate criminal
trial. In fact, the Constitution explicitly provides for two separate proceedings. See legality of a particular measure." In Sanidad v. COMELEC,[39] we further held that "political
Art I, § 3, cl 7. The Framers deliberately separated the two forums to avoid raising questions are not the legality of a particular act. Where the vortex of the controversy refers to
the specter of bias and to ensure independent judgments: the legality or validity of the contested act, the matter is definitely justiciable or non-political."
Would it be proper that the persons, who had disposed of his fame and Over the years, the core concept of political question and its contours underwent further
his most valuable rights as a citizen in one trial, should in another trial, refinement both here and abroad. In the 1962 landmark case of Baker v. Carr,[40] Mr. Justice
for the same offence, be also the disposers of his life and his fortune? Brennan, a leading light in the Warren Court known for its judicial activism, [41] delineated the
Would there not be the greatest reason to apprehend, that error in the first shadowy umbras and penumbras of a political question. He held:
sentence would be the parent of error in the second sentence? That the
strong bias of one decision would be apt to overrule the influence of any x x x Prominent on the surface of any case held to involve a political question is
new lights, which might be brought to vary the complexion of another found a textually demonstrable constitutional commitment of the issue to a
decision? The Federalist No. 65, p 442 (J. Cooke ed 1961) coordinate political department; or a lack of judicially discoverable and manageable
standards for resolving it; or the impossibility of deciding without an initial policy
Certainly judicial review of the Senate's "trial" would introduce the same risk of bias determination of a kind clearly for non-judicial discretion; or the impossibility of a
as would participation in the trial itself. court's undertaking independent resolution without expressing lack of the respect
due coordinate branches of government; or an unusual need for unquestioning
Second, judicial review would be inconsistent with the Framers' insistence that our adherence to a political decision already made; or the potentiality of embarrassment
system be one of checks and balances. In our constitutional system, impeachment from multifarious pronouncements by various departments on one question.
was designed to be the only check on the Judicial Branch by the Legislature. On the
topic of judicial accountability, Hamilton wrote: The political question problem raises the issue of justiciability of the petitions at bar.
Parenthetically, the issue of justiciability is different from the issue of jurisdiction. Justiciability
The precautions for their responsibility are comprised in the article
respecting impeachments. They are liable to be impeached for mal- refers to the suitability of a dispute for judicial resolution.[42] Mr. Justice Frankfurter considers
conduct by the house of representatives, and tried by the senate, and if political question unfit for adjudication for it compels courts to intrude into the "political
convicted, may be dismissed from office and disqualified for holding any thicket." In contrast, jurisdiction refers to the power of a court to entertain, try and decide a
other. This is the only provision on the point, which is consistent with the case.
necessary independence of the judicial character, and is the only one
which we find in our own constitution in respect to our own judges. Id., C.1. The issues at bar are justiciable
No. 79, pp 532-533 (emphasis added)
Prescinding from these premises, I shall now grapple with the threshold issue of whether the
Judicial involvement in impeachment proceedings, even if only for purposes of petitions at bar pose political questions which are non-justiciable or whether they present legal
judicial review, is counterintuitive because it would eviscerate the "important and constitutional issues over which this Court has jurisdiction. The resolution of the issue
constitutional check" placed on the Judiciary by the Framers. See id., No. 81, p 545. demands a study that goes beyond the depth of the epidermis. We give the impeachment
provisions of our Constitution a historical, textual, legal and philosophical lookover.
In fine, impeachment is dominantly political in character both in England and in the
United States. The historiography of our impeachment provisions will show that they were liberally lifted from
the US Constitution. Following an originalist interpretation, there is much to commend to the
C. The Nature of Impeachment in the thought that they are political in nature and character. The political character of impeachment
Philippine Setting hardly changed in our 1935, 1973 and 1987 Constitutions. Thus, among the grounds of
impeachment are "other high crimes or betrayal of public trust."[43] They hardly have any
judicially ascertainable content. The power of impeachment is textually committed to Congress, political and non- political aspects. I respectfully submit that the petitions at bar concern its non-
a political branch of government. The right to accuse is exclusively given to the House of political aspect, the issue of whether the impeachment complaint against Chief Justice Davide
Representatives.[44] The right to try and decide is given solely to the Senate[45] and not to the involving the JDF is already barred by the 1-year rule under Article XI, Section 3(5) of the
Supreme Court. The Chief Justice has a limited part in the process - - -to preside but without the Constitution. By any standard, this is a justiciable issue. As held in Casibang v. Aquino,[57] a
right to vote when the President is under impeachment.[46] Likewise, the President cannot justiciable question implies a given right, legally demandable, and enforceable, an act or
omission violative of such right, and a remedy granted and sanctioned by law, for said breach of
exercise his pardoning power in cases of impeachment.[47] All these provisions confirm the right." The petitions at bar involve the right of the Chief Justice against the initiation of a second
inherent nature of impeachment as political. impeachment within one year after a first impeachment complaint. The right is guaranteed by no
less than the Constitution. It is demandable. It is a right that can be vindicated in our courts.
Be that at it may, the purity of the political nature of impeachment has been lost. Some
legal scholars characterize impeachment proceedings as akin to criminal proceedings. Thus, The contention that Congress, acting in its constitutional capacity as an impeachment body, has
they point to some of the grounds of impeachment like treason, bribery, graft and corruption as jurisdiction over the issues posed by the petitions at bar has no merit in light of our long
well defined criminal offenses.[48] They stress that the impeached official undergoes trial in standing jurisprudence. The petitions at bar call on the Court to define the powers that divide the
the Senate sitting as an impeachment court.[49] If found guilty, the impeached official suffers a jurisdiction of this Court as the highest court of the land and Congress as an impeachment court.
penalty "which shall not be further than removal from office and disqualification to hold any In the seminal case of Angara v. Electoral Commission, [58] we held that "x x x the only
office under the Republic of the Philippines."[50] constitutional organ which can be called upon to determine the proper allocation of powers
between the several departments and among the integral or constituents thereof is the judicial
I therefore respectfully submit that there is now a commixture of political and judicial department." So ruled Mr. Justice Laurel as ponente:
components in our reengineered concept of impeachment. It is for this reason and more that
impeachment proceedings are classified as sui generis. To be sure, our impeachment xxx
proceedings are indigenous, a kind of its own. They have been shaped by our distinct political
experience especially in the last fifty years. EDSA People Power I resulted in the radical But in the main, the Constitution has blocked out with deft strokes and in bold lines,
rearrangement of the powers of government in the 1987 Constitution. Among others, the allotment of power to the executive, the legislative and the judicial departments of
powers of the President were diminished. Substantive and procedural restrictions were placed the government. The overlapping and interlacing of functions and duties between the
in the President's most potent power - - - his power as Commander-in-Chief. Thus, he can several departments, however, sometimes makes it hard to say just where the one
suspend the privilege of the writ of habeas corpus or place the Philippines or any part thereof leaves off and the other begins. In times of social disquietude or political excitement,
the great landmarks of the Constitution are apt to be forgotten or marred, if not
under martial law but only for a period not exceeding sixty days.[51] Within forty-eight hours entirely obliterated. In cases of conflict, the judicial department is the only
from such suspension or proclamation, he is required to submit a report to Congress.[52] The constitutional organ which can be called upon to determine the proper allocation of
sufficiency of the factual basis of the suspension of habeas corpus or the proclamation of powers between the several departments and among the integral or constituent units
martial law may be reviewed by the Supreme Court.[53] Similarly, the powers of the thereof.
legislature were pruned down. [54] Its power of impeachment was reconfigured to prevent
xxx
abuses in its exercise. Even while Article XI of the Constitution lodged the exercise of the
power of impeachment solely with Congress, nonetheless it defined how the procedure shall be
The Constitution is a definition of the powers of government. Who is to determine
conducted from the first to the last step. Among the new features of the proceedings is Section 3
the nature, scope and extent of such powers? The Constitution itself has provided for
(5) which explicitly provides that "no impeachment proceedings shall be initiated against the
the instrumentality of the judiciary as the rational way. And when the judiciary
same official more than once within a period of one year." In contrast, the 1987 Constitution
mediates to allocate constitutional boundaries, it does not assert any superiority over
gave the Judiciary more powers. Among others, it expanded the reach and range of judicial
the other departments; it does not in reality nullify or invalidate an act of the
power by defining it as including "x x x the duty of the courts of justice to settle actual
legislature, but only asserts the solemn and sacred obligation assigned to it by the
controversies involving rights which are legally demandable and enforceable, and to determine
Constitution to determine conflicting claims of authority under the Constitution and
whether or not there has been a grave abuse of discretion amounting to lack or excess of
to establish for the parties in an actual controversy the rights which that instrument
jurisdiction on the part of any branch or instrumentality of the government."[55] Likewise, secures and guarantees to them. This is in truth all that is involved in what is termed
it expanded the rule making power of the Court. It was given the power to promulgate rules "judiciary supremacy" which properly is the power of judicial review under the
concerning the protection and enforcement of constitutional rights.[56] Constitution.
In light of our 1987 constitutional canvass, the question is whether this Court can assume To be sure, the force to impugn the jurisdiction of this Court becomes more feeble in light of the
jurisdiction over the petitions at bar. As aforediscussed, the power of impeachment has both new Constitution which expanded the definition of judicial power as including "the duty of the
courts of justice to settle actual controversies involving rights which are legally demandable and
enforceable, and to determine whether or not there has been a grave abuse of discretion Similarly, in Arroyo v. House of Representatives Electoral Tribunal (HRET) and Augusto
amounting to lack or excess of jurisdiction on the part of any branch or instrumentality of the Syjuco,[64] we nullified the HRET's decision declaring private respondent Syjuco as the duly
Government." As well observed by retired Justice Isagani Cruz, this expanded definition of elected Congressman of Makati for having been rendered in persistent and deliberate violation
judicial power considerably constricted the scope of political question.[59] He opined that the of the Tribunal's own governing rules and the rules of evidence.
language luminously suggests that this duty (and power) is available even against the executive
and legislative departments including the President and the Congress, in the exercise of their To be sure, this Court has reviewed not just acts of the HRET but also of the House of
discretionary powers.[60] Representatives itself. We passed upon the issue of whether the procedure for passing a law
provided by the Constitution was followed by the House of Representatives and the Senate in
We shall not be breaking grounds in striking down an act of a co-equal branch of government or Tolentino v. Secretary of Finance, et al.[65] involving R.A. No. 7716 or the VAT law. We ruled
an act of an independent agency of government done in grave abuse of discretion. Article VI, that the VAT law satisfied the constitutional provision requiring that all appropriation, revenue
Section 17 of the 1987 Constitution provides, inter alia, that the House of Representatives and tariff bills originate from the House of Representatives under Article VI, Section 24 of the
Electoral Tribunal (HRET) shall be the "sole judge" of all contests relating to the election, 1987 Constitution. We also interpreted the constitutional provision requiring the reading of a bill
returns, and qualifications of the members of the House. In Bondoc v. Pineda, et al.[61] this on three separate days "except when the President certifies to the necessity of its immediate
Court declared null and void the Resolution of the House of Representatives withdrawing the enactment, etc." and held that this requirement was satisfied when the bill which became R.A.
nomination, and rescinding the election of Congressman Camasura as a member of the HRET. No. 7716 underwent three readings on the same day as the President certified the bill as urgent.
His expulsion from the HRET by the House of Representatives was held not to be for a lawful Finally, we interpreted the Rules of the Senate and the House of Representatives and held that
and valid cause, but to unjustly interfere with the tribunal's disposition of the Bondoc case and there was nothing irregular about the conference committee including in its report an entirely
deprive Bondoc of the fruits of the HRET's decision in his favor. This Court found that the new provision not found either in the House bill or in the Senate bill as this was in accordance
House of Representatives acted with grave abuse of discretion in removing Congressman with the said Rules.
Camasura. Its action was adjudged to be violative of the constitutional mandate which
created the HRET to be the "sole judge" of the election contest between Bondoc and The recent case of Macalintal v. COMELEC[66] on absentee voting affirmed the jurisdiction
Pineda. We held that a showing that plenary power is granted either department of of this Court to review the acts of the legislature. In said case, the Court settled the question of
government is not an obstacle to judicial inquiry, for the improvident exercise or the abuse propriety of the petition which appeared to be visited by the vice of prematurity as there were no
thereof may give rise to a justiciable controversy. Since "a constitutional grant of authority is ongoing proceedings in any tribunal, board or before a government official exercising judicial,
not unusually unrestricted, limitations being provided for as to what may be done and how it is quasi- judicial or ministerial functions as required by Rule 65 of the Rules of Court. The Court
to be accomplished, necessarily then, it becomes the responsibility of the courts to ascertain considered the importance of the constitutional issues raised by the petitioner, and quoted
whether the two coordinate branches have adhered to the mandate of the fundamental Tañada v. Angara[67] stating that "where an action of the legislative branch is seriously alleged
law. The question thus posed is judicial rather than political." to have infringed the Constitution, it becomes not only the right but in fact the duty of the
judiciary to settle the dispute."
We further explained that the power and duty of courts to nullify, in appropriate cases, the
actions of the executive and legislative branches does not mean that the courts are superior to I therefore concur with the majority that the issues posed by the petitions at bar are justiciable
the President and the Legislature. It does mean though that the judiciary may not shirk "the and this Court has jurisdiction over them.
irksome task" of inquiring into the constitutionality and legality of legislative or executive
action when a justiciable controversy is brought before the courts by someone who has been D. The Exercise of Jurisdiction: Theory and Limits of
aggrieved or prejudiced by such action. It is "a plain exercise of judicial power, the power Judicial Restraint, Judicial Activism and the
vested in courts to enable them to administer justice according to law. x x x It is simply a Coordinacy Theory of Constitutional Interpretation
necessary concomitant of the power to hear and dispose of a case or controversy properly before
the court, to the determination of which must be brought the test and measure of the law."[62] The next crucial question is whether the Court should now exercise its jurisdiction. Former
Senate President Salonga says not yet and counsels restraint. So do Deans Agabin and
In Angara v. Electoral Commission,[63] we also ruled that the Electoral Commission, a Pangalangan of the UP College of Law. To be sure, there is much to commend in judicial
constitutional organ created for the specific purpose of determining contests relating to election restraint. Judicial restraint in constitutional litigation is not merely a practical approach to
returns and qualifications of members of the National Assembly may not be interfered with by decision-making. With humility, I wish to discuss its philosophical underpinnings. As a judicial
the judiciary when and while acting within the limits of authority, but this Court has stance, it is anchored on a heightened regard for democracy. It accords intrinsic value to
jurisdiction over the Electoral Commission for the purpose of determining the character, democracy based on the belief that democracy is an extension of liberty into the realm of social
scope and extent of the constitutional grant to the commission as sole judge of all contests decision- making.[68] Deference to the majority rule constitutes the flagship argument of
relating to the election and qualifications of the members of the National Assembly. judicial restraint[69] which emphasizes that in democratic governance, majority rule is a
necessary principle.[70] judicial review has a detrimental effect on the capacity of the democratic system to
function effectively. Restraintists hold that large-scale reliance upon the courts for resolution of
Judicial restraint assumes a setting of a government that is democratic and republican in public problems could lead in the long run to atrophy of popular government and collapse of the
character. Within this democratic and republican framework, both the apostles of judicial "broad-based political coalitions and popular accountability that are the lifeblood of the
restraint and the disciples of judicial activism agree that government cannot act beyond the democratic system."[79] They allege that aggressive judicial review saps the vitality from
outer limits demarcated by constitutional boundaries without becoming subject to judicial constitutional debate in the legislature.[80] It leads to democratic debilitation where the
intervention. The issue that splits them is the location of those limits. They are divided in legislature and the people lose the ability to engage in informed discourse about constitutional
delineating the territory within which government can function free of judicial intervention.
Cases raising the question of whether an act by Congress falls within the permissible parameters norms.[81]
of its discretion provide the litmus test on the correctness of judicial restraint as a school of
thought. The democratic value assists the judicial restraintist in arriving at an answer. It nudges Judicial restraint, however, is not without criticisms. Its unbelievers insist that the concept of
the judge who considers democracy as an intrinsic and fundamental value to grant that the democracy must include recognition of those rights that make it possible for minorities to
discretion of the legislature is large and that he cannot correct any act or enactment that comes become majorities. They charge that restraintists forget that minority rights are just as important
before the court solely because it is believed to be unwise. The judge will give to the legislature a component of the democratic equation as majority rule is. They submit that if the Court uses
the leeway to develop social policy and apart from what the Constitution proscribes, concede its power of judicial review to guarantee rights fundamental to the democratic process -
that the legislature has a "right to be wrong" and will be answerable alone to the people for the freedoms of speech, press, assembly, association and the right to suffrage - so that citizens can
exercise of that unique privilege. It is better for the majority to make a mistaken policy decision, form political coalitions and influence the making of public policy, then the Court would be just
as "democratic" as Congress.
within broad limits, than for a judge to make a correct one.[71] As an unelected official, bereft of
a constituency and without any political accountability, the judge considers that respect for Critics of judicial restraint further stress that under this theory, the minority has little influence,
majoritarian government compels him to be circumspect in invalidating, on constitutional if at all it can participate, in the political process. Laws will reflect the beliefs and preferences of
grounds, the considered judgments of legislative or executive officials, whose decisions are
the majority, i.e., the mainstream or median groups.[82] The restraintist's position that
more likely to reflect popular sentiments.[72] abridgments of free speech, press, and association and other basic constitutional rights should be
given the same deference as is accorded legislation affecting property rights, will perpetuate
Judicial restraint thus gives due deference to the judiciary's co-equal political branches of suppression of political grievances. Judicial restraint fails to recognize that in the very act of
government comprised of democratically elected officials and lawmakers, and encourages adopting and accepting a constitution and the limits it specifies, the majority imposes upon itself
separation of powers.[73] It is consistent and congruent with the concept of balance of power a self-denying ordinance. It promises not to do what it otherwise could do: to ride roughshod
among the three independent branches of government. It does not only recognize the equality of over the dissenting minorities.[83] Thus, judicial activists hold that the Court's indispensable role
the other two branches with the judiciary, but fosters that equality by minimizing inter- branch in a system of government founded on doctrines of separation of powers and checks and
interference by the judiciary. It may also be called judicial respect, that is, respect by the balances is a legitimator of political claims and a catalyst for the aggrieved to coalesce and
judiciary for other co-equal branches. In one of the earliest scholarly treatments of judicial
review, "The Origin and Scope of the American Doctrine of Constitutional Law", published in assert themselves in the democratic process.[84]
1893, Prof. James Bradley Thayer of Harvard established strong support for the rule that courts
should invalidate legislative acts only when their unconstitutionality is established with great I most respectfully submit, however, that the 1987 Constitution adopted neither judicial
restraint nor judicial activism as a political philosophy to the exclusion of each other. The
certainty.[74] Many commentators agree that early notions of judicial review adhered to a expanded definition of judicial power gives the Court enough elbow room to be more activist in
"clear-error" rule that courts should not strike down legislation if its constitutionality were dealing with political questions but did not necessarily junk restraint in resolving them. Political
merely subject to doubt.[75] For Thayer, full and free play must be allowed to "that wide margin questions are not undifferentiated questions. They are of different variety.
of considerations which address themselves only to the practical judgment of a legislative
body." Thayer's thesis of judicial deference had a significant influence on Justices Holmes, The antagonism between judicial restraint and judicial activism is avoided by the coordinacy
Brandeis, and Frankfurter.[76] Justice Frankfurter is the philosopher of the school of thought theory of constitutional interpretation. This coordinacy theory gives room for judicial restraint
trumpeting judicial restraint. As he observed "if judges want to be preachers, they should without allowing the judiciary to abdicate its constitutionally mandated duty to interpret the
dedicate themselves to the pulpit; if judges want to be primary shapers of policy the legislature constitution. Coordinacy theory rests on the premise that within the constitutional system, each
branch of government has an independent obligation to interpret the Constitution. This
is their place.[77] He opined that there is more need for justices of the Supreme Court to learn
the virtue of restraint for the cases they consider "leave more scope for insight, imagination and obligation is rooted on the system of separation of powers.[85] The oath to "support this
Constitution," - which the constitution mandates judges, legislators and executives to take -
prophetic responsibility."[78] proves this independent obligation. Thus, the coordinacy theory accommodates judicial restraint
because it recognizes that the President and Congress also have an obligation to interpret the
Adherents of judicial restraint warn that under certain circumstances, the active use of
constitution. In fine, the Court, under the coordinacy theory, considers the preceding each branch of government cannot dominate each other, an equilibrium where each branch in
constitutional judgments made by other branches of government. By no means however, does it the exercise of its distinct power should be left alone yet bereft of a license to abuse. It is our
signify complete judicial deference. Coordinacy means courts listen to the voice of the President hands that will cobble the components of this delicate constitutional equilibrium. In the
and Congress but their voice does not silence the judiciary. The doctrine in Marbury v. discharge of this duty, Justice Frankfurter requires judges to exhibit that "rare disinterestedness
Madison[86] that courts are not bound by the constitutional interpretation of other branches of of mind and purpose, a freedom from intellectual and social parochialism." The call for that
government still rings true. As well stated, "the coordinacy thesis is quite compatible with a quality of "rare disinterestedness" should counsel us to resist the temptation of unduly inflating
judicial deference that accommodates the views of other branches, while not amounting to an judicial power and deflating the executive and legislative powers. The 1987 Constitution
expanded the parameters of judicial power, but that by no means is a justification for the
abdication of judicial review."[87] errant thought that the Constitution created an imperial judiciary. An imperial judiciary
composed of the unelected, whose sole constituency is the blindfolded lady without the right to
With due respect, I cannot take the extreme position of judicial restraint that always vote, is counter-majoritarian, hence, inherently inimical to the central ideal of democracy. We
defers on the one hand, or judicial activism that never defers on the other. I prefer to take cannot pretend to be an imperial judiciary for in a government whose cornerstone rests on the
the contextual approach of the coordinacy theory which considers the constitution's doctrine of separation of powers, we cannot be the repository of all remedies. It is true that this
allocation of decision-making authority, the constitution's judgments as to the relative risks of Court has been called the conscience of the Constitution and the last bulwark of constitutional
action and inaction by each branch of government, and the fears and aspirations embodied in the
different provisions of the constitution. The contextual approach better attends to the specific government.[90] But that does not diminish the role of the legislature as co-guardian of the
character of particular constitutional provisions and calibrates deference or restraint accordingly Constitution. In the words of Justice Cardozo, the "legislatures are ultimate guardians of the
on a case to case basis. In doing so, it allows the legislature adequate leeway to carry out their liberties and welfare of the people in quite as great a degree as courts."[91] Indeed, judges take
constitutional duties while at the same time ensuring that any abuse does not undermine an oath to preserve and protect the Constitution but so do our legislators. Fourth, we have the
important constitutional principles.[88] jurisdiction to strike down impermissible violations of constitutional standards and procedure in
the exercise of the power of impeachment by Congress but the timing when the Court must
I shall now proceed to balance these constitutional values. Their correct calibration will wield its corrective certiorari power rests on prudential considerations. I agree that judicial
compel the conclusion that this Court should defer the exercise of its ultimate jurisdiction review is no longer a matter of power for if it were power alone we can refuse to exercise it and
over the petitions at bar out of prudence and respect to the initial exercise by the yet be right. As well put by Justice Brandeis, "the most important thing we decide is what not to
legislature of its jurisdiction over impeachment proceedings. First, judicial deferment of decide." Indeed, judicial review is now a matter of duty, and it is now wrong to abdicate its
judgment gives due recognition to the unalterable fact that the Constitution expressly grants to exercise. Be that as it may, the timing of its exercise depends on the sense of the situation
the House of Representatives the "exclusive" power to initiate impeachment proceedings and by the Court and its sense depends on the exigencies created by the motion and movement
gives to the Senate the "sole" power to try and decide said cases. The grant of this power - the of the impeachment proceedings and its impact on the interest of our people . We are right
right to accuse on the part of the House and the right to try on the part of the Senate - to in ruling we have jurisdiction but the wrong timing of the exercise of our jurisdiction can negate
Congress is not a happenstance. At its core, impeachment is political in nature and hence its the existence of our very jurisdiction and with catastrophic consequence. The words of former
initiation and decision are best left, at least initially, to Congress, a political organ of Senate President Jovito Salonga, an amicus curiae, ought to bridle our rush to judgment - - - this
government. The political components of impeachment are dominant and their appreciation are Court will eventually have jurisdiction but not yet. I quote his disquisition, viz:
not fit for judicial resolution. Indeed, they are beyond the loop of judicial review. Second,
judicial deferment will, at the very least, stop our descent to a constitutional crisis. Only those Assuming the question of propriety can be surmounted, should the Supreme Court
with the armor of invincible ignorance will cling to the fantasy that a stand-off between this render a decision at this time?
Court and Congress at this time will not tear asunder our tenuous unity. There can be no debate
on the proposition that impeachment is designed to protect the principles of separation of This brings us back to the realities of the 2nd Impeachment Complaint and the
powers and checks and balances, the glue that holds together our government. If we weaken the question of propriety posed earlier.
glue, we shall be flirting with the flame of disaster. An approach that will bring this Court to an
irreversible collision with Congress, a collision where there will be no victors but victims alone, 1. There are moves going on to get enough members of Congress to withdraw
their signatures down to 75 or less, even before the resumption of the sessions
is indefensible. The 1924 case of Alejandrino v. Quezon[89] teaches us that the system of
on November 10, 2003, so as to render this whole controversy moot and
checks and balances should not disturb or harm the harmony in government. This theme
academic. Malacañang is also pushing for a Covenant which may or may not
resonates in the 1936 case of Angara v. Electoral Commission, where Justice Laurel
succeed in ending the controversy.
brightlined the desideratum that the principle of checks and balances is meant "to secure
coordination in the workings of the various departments of the government." Our government
2. Assuming the desired number of withdrawals is not achieved and the Covenant
has three branches but it has but one purpose - - - to preserve our democratic republican
does not gain enough support among the NPC congressmen, there are still a
form of government - - - and I refuse to adopt an approach that refuses to reconcile the powers
number of steps to be taken in the House in connection with the First
of government. Third, the Court should strive to work out a constitutional equilibrium where
Impeachment Complaint - before the Second Impeachment Complaint can be
transmitted to the Senate. Moreover, if it is true that the House Committee on

Justice has not yet finished its inquiry into the administration of the Judicial In summary, I vote as follows:
Development Fund, the Committee may be persuaded to call the officials of
the Commission on Audit to explain the COA Special Audit Report of 1. grant the locus standi of the petitioners considering the transcendental constitutional issues
September 5, 2003 and help the Committee Chair and members to carry out presented;
and complete their work, so the Committee can submit its Report to the entire
House for its information and approval. 2. hold that it is within the power of this Court to define the division of powers of the
branches of government;
I understand a number of congressmen may also raise the question of
compliance with the due process clause in handling the Impeachment 3. hold that the alleged violation of Article XI, Section 3 (5) of the Constitution which
Complaint against Chief Justice Davide, particularly the twin requirements of provides that "no impeachment proceedings shall be initiated against the same official
notice and hearing. It may be too early to predict whether the House session on more than once within a period of one year" is a justiciable issue and hence within the
November 10, 2003 (and perhaps in the succeeding days), will be smooth and competence of this Court to decide; and
easy or rough and protracted. Much will depend on developments after this
hearing in this Court (on November 5). In politics, it has been said, one day - 4. hold that the coordinacy theory of constitutional interpretation and prudential
especially in Congress - can be a long, long time. considerations demand that this Court defer the exercise of its certiorari jurisdiction on the
issue of alleged violation of Article XI, Section 3 (5) of the Constitution until after the
3. Whatever happens in the House, a lot of things can happen outside - in the remedies against impeachment still available in both the House of Representatives and the
streets, in the stock market, in media, in Government and in public assemblies Senate shall have been exhausted.
throughout the country. All these will have a great bearing on what happens in
the House and in the Senate. In light of the above, I vote to dismiss the petitions at bar.
4. If the 2nd Impeachment Complaint finally reaches the Senate, a number of

things can be done before the Senate is convened as an Impeachment Court. [1]
For example, the Senate, which has the primary jurisdiction over the case, can Ferrick, Impeaching Federal Judges: A Study of the Constitutional Provisions, 39 Fordham L
decide the question of whether the one-year ban has been violated or not. Rev. p. 5 (1970).
Likewise, the Senate can decide whether the Complaint, on its face, has any
legal basis. Considering, among other things, that only two congressmen filed [2] Ibid.
the 2nd Impeachment Complaint - the other congressmen were mere endorsers
- the Complaint cannot qualify for Senate Impeachment trial as pointed out by [3] Schlesinger, Reflections on Impeachment, 67 Geo Wash L Rev. No. 3 (March 1999), p. 693.
Attys. Macalintal and Quadra. Dismissal of the 2nd Impeachment Complaint
can be done by the Senate motu proprio or through a Motion to Quash filed on [4]Turley, Congress as Grand Jury: The Role of the House of Representatives in the
behalf of Chief Justice Davide. If the Senate decides that the one-year ban has Impeachment of an American President, 67 Geo Wash L. Rev. No. 3 (March 1999) p. 763.
been violated or that the Complaint on its face has no leg to stand on, this
could be the end of the whole controversy. [5] Ibid.
My point is that there may be no urgent need for this august tribunal to render a [6]
decision at this point. The Supreme Court, which has final jurisdiction on questions Perrick, op cit ., p. 5.
of constitutionality, should be the final arbiter; it should be the authoritative court of
last resort in our system of democratic governance. In my view, all the remedies in [7] Ibid.
the House and in the Senate should be exhausted first. Only when this case is ripe for
judicial determination can the Supreme Court speak with great moral authority and [8] Ibid.
command the respect and loyalty of our people.
[9] Ibid.
Few will dispute that former Senate President Salonga has the power of a piercing insight.
CONCLUSION [10] Turley, op cit ., pp. 763-764.

[11]Gerhardt, The Lessons of Impeachment History, 67 Geo Wash L Rev. 67, No. 3 (March
1999), p. 11. Mc Dowell, "High Crimes and Misdemeanors." Recovering the Intentions of the [31] Ibid.
Founders, 67 Geo Wash L. Rev. 67, No. 3 (March 1999), p. 636-638; Bergeir, Impeachment,
The Constitutional Problems, 61 (1973). [32] Ibid.
[12] Feerick, op cit ., pp. 12-14. [33] Gerhardt, op cit., pp. 605-606.
[13] Ibid. [34] Gerhardt, op cit., p. 609.
[14] Ibid. [35] McDowell, op. cit. p. 635.
[15] Ibid. [36] Seee.g., People ex. Rel. Robin v. Hayes, 82 Misc. 165, 143 N.Y.S. 325 (Sup. Ct. 1913) aff'd
163 App. Div. 725, 149 N.Y.S. 250, appeal dismissed 212 N.Y.S. 603, 106 N.E. 1041 (1914);
[16] Ibid. State ex rel Trapp v. Chambers, 96 Okla. 78, 220 P. 8310 (1923); Ritter v. US, 84 Ct. Cl. 293
(1936, cert. denied 300 US 668 (1937).
[17] Ibid.
[37] 38 506 US 224 (1993), 122 L ed. 1, 113 S Ct. 732.
[18] Ibid.
[38] 100 Phil. 1101.
[19] Ibid.
[39] 73 SCRA 333.
[20] Feerick, op cit., pp. 14-15.
[40] 369 US 186 (1962).
[21] Ibid.
[41] "`Judicial activism' is a political, sociological, or pejorative term, not a constitutional one.
[22] Ibid. An activist court answers questions its critics believe it need never have considered; it imposes
its policy views not merely on the parties before it but it usurps the legislature's functions.
[23] Ibid at Throughout the 1960s, the Warren Court was brandied as the epitome of activism because of its
pp. 15-16. long line of procedural due process cases, extending the Bill of Rights to the States and its equal
protection anti-segregation cases, beginning with Brown v. Board of Education. Such decisions
[24] Ibid.
have been cited as the hallmark of liberal judicial `result oriented' activism." Lieberman, The
Evolving Constitution, pp., 277-278 (1982 ed).
[25] Ibid.
[42] Ibid.,
p. 290; See also Position Paper of Amicus Curiae Pacifico Agabin, former Dean of the
[26] Ibid, p. 20. UP College of Law, p. 1.
[27] Ibid, [43] Art. XI, sec. 3 of the 1987 Constitution.

p. 21.
[28] Ibid, [44] Ibid, Art. XI, sec. 3(1).

p. 22.
[29] Ibid., [45] Ibid, Art. XI, sec. 3(6).

p. 22.
[30] Ibid. [46] Ibid.

pp. 22-23, Delegates Pinkney and Williamson were against the Senate while Delegates
Sherman and Morris objected to the Supreme Court.
[47] Art. VIII, sec. 19 of the 1987 Constitution. Committee, 203 SCRA 767 (1991); Guingona v. Carague, 196 SCRA 221 (1991); Gonzales v.
Macaraig, Jr., 191 SCRAA 452 (1990) and Coseteng v. Mitra, Jr., 187 SCRA 377 (1990).
[48] Art. XI, sec. 2 of the 1987 Constitution. [68]
Wallace, C., "The Jurisprudence of Judicial Restraint: A Return to the Moorings", George
[49] Ibid., Washington Law Review, vol. 50, no. 1 (Nov. 1981), pp. 1, 5.
sec. 3(6).
[69] Ducat, C. Constitutional Interpretation: Rights of the Individual, vol. II (1999), E9.
[50] Ibid.
[70]Neuhaus, R., "A New Order of Religious Freedom," The George Washington Law Review
[51] Article VII, sec. 18 of the 1987 Constitution. (1992), vol. 60 (2), pp. 620, 621, 624-625.
[52] Ibid.
[71]
Wallace, C., "The Jurisprudence of Judicial Restraint: A Return to the Moorings", George
Washington Law Review, vol. 50, no. 1 (Nov. 1981), pp. 1, 5.
[53] Ibid.
[72]Conkle, D., "A `Conservative' Judge and the First Amendment: Judicial Restraint and
[54] E.g., the Commission on Appointment ceased to have any power to confirm appointments Freedom of Expression", The Georgetown Law Journal, vol. 74, no. 6 (Aug. 1986), pp. 1585,
to the Judiciary. 1586.
[55] Art. VIII, sec. 1 of the 1987 Constitution. [73]Wallace, C., "The Jurisprudence of Judicial Restraint: A Return to the Moorings", The
George Washington Law Review, vol. 50, no. 1 (Nov. 1981), pp. 1, 16.
[56] Ibid., Art. VIII, sec. 5 (5).
[74]Schapiro, R., "Judicial Deference and Interpretive Coordinacy in State and Federal
[57] 92 SCRA 642. Constitutional Law", Cornell Law Review, vol. 85, no. 3 (March 2000), pp. 656, 668, citing
James B. Thayer, The Origin and Scope of the American Doctrine of Constitutional Law, 7
[58] Harvard Law Review, 129, 140-144 (1893).
63 Phil. 139 (1936).
[75] Schapiro, R., "Judicial Deference and Interpretive Coordinacy in State and Federal
[59] Cruz, Philippine Political Law, p. 88 (1998 ed.).
Constitutional Law", Cornell Law Review, vol. 85, no. 3 (March 2000), p. 656, 668, citing
William R. Castro, The Supreme Court in the Early Republic: The Chief Justiceships of John
[60] Ibid., p. 89. Jay and Oliver Ellsworth 222-27 (1995). Other citations omitted.
[61] 201 SCRA 792 (1991). [76]Bickel, A., The Least Dangerous Branch: The Supreme Court at the Bar of Politics (1962),
p. 35.
[62] Vera v. Avelino, 77 Phil. 192, 203.
[77] Neely, Mr. Justice Frankfurter's Iconography of Judging, 82 KY LJ 535 (1994).
[63] 63 Phil. 139 ( 1936).
[78] Ibid.
[64] 246 SCRA 384 (1995).
[65] 235 SCRA 630 (1994).
[80]Schapiro, R., "Judicial Deference and Interpretive Coordinacy in State and Federal
[66] G.R. No. 157013, July 10, 2003. Constitutional Law", Cornell Law Review, vol. 85, no. 3 (March 2000), pp. 656, 702, citing
James B. Thayer, The Origin and Scope of the American Doctrine of Constitutional Law, 7
[67] See also Marcos v. Manglapus, 177 SCRA 668 (1989); Bengzon, Jr. v . Senate Blue Ribbon Harvard Law Review, 129, 155-156 (1893).

[81]Schapiro, R., "Judicial Deference and Interpretive Coordinacy in State and Federal "THE PHILIPPINES IS A DEMOCRATIC AND REPUBLICAN STATE.
Constitutional Law", Cornell Law Review, vol. 85, no. 3 (March 2000), pp. 656, 702, citing SOVEREIGNTY RESIDES IN THE PEOPLE AND ALL GOVERNMENT
James B. Thayer, The Origin and Scope of the American Doctrine of Constitutional Law, 7 AUTHORITY EMANATES FROM THEM."[1]
Harvard Law Review, 129, 155-156 (1893); see also Mark Tushnet, Policy Distribution and
Democratic Debilitation: Comparative Illumination of the Countermajoritarian Difficulty, 94 A Republican form of government rests on the conviction that sovereignty should reside in
Michigan Law Review, pp. 245, 299-300 (1995). the people and that all government authority must emanate from them. It abhors the
concentration of power on one or a few, cognizant that power, when absolute, can lead to abuse,
[82] but it also shuns a direct and unbridled rule by the people, a veritable kindling to the passionate
McConnell, M., "Religious Freedom at a Crossroads", The University of Chicago Law fires of anarchy. Our people have accepted this notion and decided to delegate the basic state
Review (1992), vol. 59(1), pp. 115, 139. authority to principally three branches of government --- the Executive, the Legislative, and the
Judiciary - each branch being supreme in its own sphere but with constitutional limits and a firm
[83]Neuhaus, R., "A New Order of Religious Freedom," The George Washington Law Review tripod of checks and balances. The Constitution is the written manifestation of the sovereign
(1992), vol. 60 (2), p. 620, 624-625. will of the people. It is the yardstick upon which every act of governance is tested and
measured.
Today, regrettably, a looming threat of an overreaching arm of a "co-equal" branch of
[85] government would appear to be perceived by many. On 02 June 2003, a complaint for
Schapiro, R., "Judicial Deference and Interpretive Coordinacy in State and Federal impeachment was filed before the House of Representatives against the Chief Justice of the
Constitutional Law", Cornell Law Review, vol. 85, no. 3 (March 2000), p. 656, 702, citing Philippines and seven associate justices of the Supreme Court. On 23 October 2003, a second
Michael Stokes Paulsen, "The Most Dangerous Branch: Executive Power to Say What Law is", complaint for impeachment was filed by two members of the House, endorsed by at least one-
83 Geo. L.J. 217 (1994). third of its membership, but this time, only against the Chief Justice.
[86] 5 U.S. 137 (1803). People took to the streets; media reported what it termed to be an inevitable constitutional
crisis; the business sector became restive; and various other sectors expressed alarm. The
[87]Schapiro, R., "Judicial Deference and Interpretive Coordinacy in State and Federal Court itself was swarmed with petitions asking the declaration by it of the total nullity of the
Constitutional Law", Cornell Law Review, vol. 85, no. 3 (March 2000), p. 656, 667, citing second impeachment complaint against the Chief Justice for being violative of the constitutional
Michael Stokes Paulsen, "The Most Dangerous Branch: Executive Power to Say What Law is", proscription against the filing of more than one impeachment complaint against the same
83 Geo. L.J. 217, 332 (1994). impeachable officer within a single year.
[88] Thus, once again, yet perhaps one of the toughest test in its more than one hundred years
Schapiro, R., "Judicial Deference and Interpretive Coordinacy in State and Federal
of existence, the Court, has been called upon to act. Involved are no longer just hypothetical
Constitutional Law", Cornell Law Review, vol. 85, no. 3 (March 2000), p. 656, 715-716.
principles best left as fodder for academic debate; this time, the core values of separation of
powers among the co-equal branches of the government, the principle of checks and balances,
[89] Alejandrino v. Quezon, 46 Phil. 83 (1924). and explicit constitutional mandates and concepts come into sharp focus and serious scrutiny.
[90] Zandueta v. de la Cuesta, 66 Phil. 615 (1938). Must the Supreme Court come into grips and face the matter squarely? Or must it tarry from its
duty to act swiftly and decisively under the umbrella of judicial restraint?
[91]
Missouri, K. & T. Co. v. May, 194 US 267, 270; People v. Crane, 214 N.Y. 154, 174 cited in
Cardozo, The Nature of the Judicial Process. The circumstances might demand that the Court must act dispassionately and seasonably.
Nothing in our history suggests that impeachment was existent in the Philippines prior to the
1935 Constitution. Section 21 of the Jones Law only mentions of an executive officer whose
official title shall be "the Governor General of the Philippine Islands" and provides that he holds
SEPARATE OPINION office at the pleasure of the President and until his successor is chosen and qualified.[2] The
impeachment provision, which appeared for the first time in the 1935 Constitution was
VITUG, J.: obviously a transplant, among many, of an American precept into the Philippine landscape.
The earliest system of impeachment existed in ancient Greece, in a process called eisangelia.[3]
In its modern form, the proceeding first made its appearance in 14th century England in an
attempt by the fledgling parliament to gain authority over the advisers, ministers and judges of Section 3. (1) The House of Representatives shall have the exclusive power to
the monarch who was then considered incapable of any wrongdoing.[4] The first recorded case initiate all cases of impeachment.
was in 1376, when Lords Latimer and Neville, together with four commoners, were charged
with crimes, i.e., for removing the staple from Calais, for lending the King's money at usurious (2) A verified complaint for impeachment may be filed by any Member of the House
interest, and for buying Crown debts for small sums and paying themselves in full out of the of Representatives or by any citizen upon a resolution of endorsement by any
Member thereof, which shall be included in the Order of Business within ten session
Treasury.[5] Since the accession of James I in 1603, the process was heavily utilized,[6] its days, and referred to the proper Committee within three session days thereafter. The
application only declining and eventually becoming lost to obsolescence during the 19th century Committee, after hearing, and by a majority vote of all its members, shall submit its
when, with the rise of the doctrine of ministerial responsibility, the parliament, by mere vote of report to the House within sixty session days from such referral, together with the
censure or "no confidence", could expeditiously remove an erring official.[7] It was last used in corresponding resolution. The resolution shall be calendared for consideration by the
House within ten session days from receipt thereof.
England in 1806, in an unsuccessful attempt to remove Lord Melville.[8]
(3) A vote of at least one-third of all the Members of the House shall be necessary
While the procedure was dying out in England, the framers of the United States Constitution
either to affirm a favorable resolution with the Articles of Impeachment of the
embraced it as a "method of national inquest into the conduct of public men."[9] The Committee or override its contrary resolution. The vote of each Member shall be
provision in the American Federal Constitution on impeachment simply read - recorded.
"The President, Vice-President, and all civil Officers of the United States, shall be (4) In case the verified complaint or resolution of impeachment is filed by at least
removed from Office on Impeachment for, and Conviction of, treason, Bribery, or one-third of all the Members of the House, the same shall constitute the Articles of
other High Crimes and Misdemeanors."[10] Impeachment, and trial by the Senate shall forthwith proceed.
While the American impeachment procedure was shaped in no small part by the English (5) No impeachment proceedings shall be initiated against the same official more
experience,[11] records of the US Constitutional Convention would reveal that the Framers took than once within a period of one year.
pains to distinguish American impeachment from British practice.[12] Some notable differences
(6) The Senate shall have the sole power to try and decide all cases of impeachment.
included the fact that in the United States, the proceedings might be directed against civil
When sitting for that purpose, the Senators shall be on oath or affirmation. When the
officials such as the chief of state, members of the cabinet and those in the judiciary. In England,
it could be applied against private citizens, or commoners, for treason and other high crimes and
preside, but shall not vote. No person shall be convicted without the concurrence of
misdemeanors; and to peers, for any crime.[13] While the British parliament had always refused two-thirds of all the Members of the Senate.
to contain its jurisdiction by restrictively defining impeachable offenses, the US Constitution
narrowed impeachable offenses to treason, bribery, or other high crimes and misdemeanors. (7) Judgment in cases of impeachment shall not extend further than removal from
English impeachments partook the nature of a criminal proceeding; while the US Constitution office and disqualification to hold any office under the Republic of the Philippines,
treated impeachment rather differently.[14] Variations of the process could be found in other but the party convicted shall nevertheless be liable and subject to prosecution, trial
jurisdictions. In Belgium, France, India, Italy, and in some states in the United States, it had and punishment according to law.
been the courts, which conducted trial.[15] In Republic of China (Taiwan) and Cuba, it would be
an executive body which could initiate impeachment proceedings against erring civil officials. (8) The Congress shall promulgate its rules on impeachment to effectively carry out
[16] the purpose of this section.
As a proceeding, impeachment might be so described thusly - First, it is legal and political in

The 1987 Constitution provides, under its Sections 2 and 3, Article XI, the skeletal
nature and, second, it is sui generis neither a criminal or administrative proceeding, but
constitutional framework of the impeachment process in the Philippines -
partaking a hybrid characteristic of both and retaining the requirement of due process basic
Section 2. The President, the Vice-President, the Members of the Supreme Court, the to all proceedings.[17] Its political nature is apparent from its function as being a constitutional
Members of the Constitutional Commissions, and the Ombudsman may be removed measure designed to protect the State from official delinquencies and malfeasance, the
from office, on impeachment for, and conviction of, culpable violation of the punishment of the offender being merely incidental.[18] Although impeachment is intended to
Constitution, treason, bribery, graft and corruption, other high crimes, or betrayal of be non-partisan, the power to impeach is nevertheless lodged in the House of Representatives,
public trust. All other public officers and employees may be removed from office as whose members are highly responsive to political and partisan influences. The trial by the
provided by law, but not by impeachment. Senate is thought to reduce the likelihood of an impeachment case being decided solely along
political lines. With its character of being part criminal and part administrative, carrying the under the Constitution, are to be decided by the people in their sovereign capacity in regard to
punitive sanction not only of removal and disqualification from office but likewise the which full discretionary authority has been delegated to either the Legislature or Executive
stigmatization of the offender,[19] an impeachment proceeding does not exactly do away with branch of the government. It is concerned with the wisdom, not with the legality, of a
basic evidentiary rules and rudimentary due process requirements of notice and hearing. particular act or measure.[29]
The House of Representatives is the repository of the power to indict; it has the "exclusive The Court should not consider the issue of "political question" as foreclosing judicial
review on an assailed act of a branch of government in instances where discretion has not,
power to initiate all cases of impeachment ." But, unlike the American rule[20] from which in fact, been vested, yet assumed and exercised. Where, upon the other hand, such
ours has been patterned, this power is subject to explicit Constitutional guidelines and discretion is given, the "political question doctrine" may be ignored only if the Court sees
proscriptions. Its political discretion extends, albeit within constitutional parameters, to the such review as necessary to void an action committed with grave abuse of discretion
formulation of its rules of impeachment and the determination of what could constitute amounting to lack or excess of jurisdiction. In the latter case, the constitutional grant of the
impeachable offenses. The impeachable offenses of "bribery," "graft and corruption" and power of judicial review vested by the Philippine Constitution on the Supreme Court is rather
"treason" are clearly defined in criminal statute books. The terms "high crimes," "betrayal of clear and positive, certainly and textually broader and more potent than where it has been
public trust", and "culpable violation of the Constitution," however, elude exact definition, and borrowed. The Philippine Constitution states[30]---
by their nature, cannot be decided simply by reliance on parsing criminal law books[21] but,
although nebulous, all three obviously pertain to 'fitness for public office,' the determination of "Judicial power shall be vested in one Supreme Court and in such lower courts as may be
which allows the exercise of discretion. Excluding any definite checklist of impeachable established by law.
offenses in the Constitution is a wise measure meant to ensure that the House is not unduly
impeded by unwise restrictive measures, which may be rendered obsolete with a changed "Judicial power includes the duty of the courts of justice to settle actual controversies involving
milieu;[22] otherwise, it would have made more sense to give the power to the judiciary, which is rights which are legally demandable and enforceable, and to determine whether or not there
the designated arbiter of cases under traditionally determinate or readily determinable rules.[23] has been a grave abuse of discretion amounting to lack or excess of jurisdiction on the part of
A broad grant of powers, nonetheless, can lead to apprehensions that Congress may extend any branch or instrumentality of the Government." [31]
impeachment to any kind of misuse of office that it may find intolerable. [24] At one point,
Gerald Ford has commented that "an impeachable offense is whatever the House of Even before it emerged in the 1987 Constitution, early jurisprudence, more than once, supported
Representatives considers it to be at a given moment." [25] the principle. In Avelino vs. Cuenco, [32] the Court passed upon the internal rules of the Senate to
determine whether the election of Senator Cuenco to the Senate Presidency was attended by a
The discretion, broad enough to be sure, should still be held bound by the dictates of the quorum. In Macias vs. COMELEC,[33] the Court rejected American precedents and held the
Constitution that bestowed it. Thus, not all offenses, statutory or perceived, are impeachable apportionment of representative districts as not being a political question. In Tanada vs.
offenses. While some particular misconduct might reveal a shortcoming in the integrity of the Macapagal, [34] the Supreme Court took cognizance of the dispute involving the formation of
official, the same may not necessarily interfere with the performance of his official duties or
constitute an unacceptable risk to the public so as to constitute an impeachable offense. Other the Senate Electoral Tribunal. In Cunanan vs. Tan,[35] the Court pronounced judgment on
experts suggest the rule of ejusdem generis, i.e. that "other high crimes," "culpable violation of whether the Court had formed the Commission on Appointments in accordance with the
the constitution" and "betrayal of public trust" should be construed to be on the same level and directive of the Constitution. In Lansing vs. Garcia [36], the Court held that the suspension of the
of the same quality as treason or bribery. George Mason has dubbed them to be "great crimes," privilege of the writ of habeas corpus was not a political question because the Constitution
"great and dangerous offenses," and "great attempts to subvert the Constitution,"[26] which must, had set limits to executive discretion.
according to Alexander Hamilton, be also offenses that proceed from abuse or violation of some
public trust, and must "relate chiefly to injuries done immediately to society itself."[27] These To be sure, the 1987 Constitution has, in good measure, "narrowed the reach of the
political offenses should be of a nature, which, with peculiar propriety, would cause harm to the `political question doctrine' by expanding the power of judicial review of the Supreme
social structure.[28] Otherwise, opines James Madison, any unbridled power to define may make Court not only to settle actual controversies involving rights which are legally demandable
impeachment too easy and would effectively make an official's term subject to the pleasure of and enforceable but also to determine whether or not grave abuse of discretion has
Congress, thereby greatly undermining the separation of powers. Thus, where the House of attended an act of any branch or instrumentality of government.[37]
Representatives, through its conduct or through the rules it promulgates, transgresses, in
any way, the detailed procedure prescribed in the Constitution, the issue is far removed When constitutional limits or proscriptions are expressed, discretion is effectively withheld.
from the sphere of a "political question," which arises with the exercise of a conferred Thus, issues pertaining to who are impeachable officers, the number of votes necessary to
discretion, and transformed into a constitutional issue falling squarely within the impeach and the prohibition against initiation of impeachment proceeding twice against the
jurisdictional ambit of the Supreme Court as being the interpreter of the fundamental law. same official in a single year, provided for in Sections 2, 3, 4, and 5 of Article XI of the
Constitution, verily are subject to judicial inquiry, and any violation or disregard of these
The issue of "political question" is traditionally seen as an effective bar against the exercise of explicit Constitutional mandates can be struck down by the Court in the exercise of judicial
judicial review. The term connotes what it means, a question of policy, i.e., those issues which, power. In so doing, the Court does not thereby arrogate unto itself, let alone assume
superiority over, nor undue interference into the domain of, a co-equal branch of review of static constitutional provisions on impeachment while leaving actual decisions of
government, but merely fulfills its constitutional duty to uphold the supremacy of the either house unreviewable,[44] and any departure from the constitutionally mandated
Constitution .[38] The Judiciary may be the weakest among the three branches of government process would be subject to corrective ruling by the courts.[45]
but it concededly and rightly occupies the post of being the ultimate arbiter on, and the adjudged
sentinel of, the Constitution. Petitioners contend that respondents committed grave abuse of discretion when they considered
the second complaint for impeachment in defiance of the constitutional prohibition against
Recent developments in American jurisprudence, steeped only in cautious traditions, would initiating more than one complaint for impeachment against the same official within a single
allow recourse to the judiciary in areas primarily seen as being left to the domain of the year. Indeed, Article XI, Section 3 (5) of the 1987 Constitution is explicit. "No impeachment
discretionary powers of the other two branches of government. In Nixon vs. United States[39], proceedings shall be initiated against the same official more than once within a period of
Walter L. Nixon, Jr., an impeached federal court judge, assailed the impeachment procedure of one year." But respondents, citing House Rules of Procedure in Impeachment Proceedings,
the Senate before the Supreme Court. Speaking for the Court, Chief Justice Rehnquist argue that a complaint is deemed initiated only in three instances: 1) when there is a finding by
acknowledged that courts defer to the Senate as to the conduct of trial but he, nevertheless, held the Committee on Justice that the verified complaint or resolution is sufficient in substance, 2)
--- when the House votes to overturn or affirm the finding of the said Committee, and 3), upon
filing of the verified complaint or resolution of impeachment with the Secretary general after a
"In the case before us, there is no separate provision of the Constitution which could verified complaint or resolution of impeachment is filed or endorsed by at least 1/3 of the
be defeated by allowing the Senate final authority to determine the meaning of the members of the House.[46] Thus, respondents assert that the first complaint against the Chief
word "try" in the Impeachment Trial Clause. We agree with Nixon that courts Justice could not qualify as an "initiated complaint" as to effectively bar the second complaint.
possess power to review either legislative or executive action that transgresses Petitioners, however, insist that "initiation," as so used in the Constitution, should be understood
identifiable textual limits. As we have made clear, "whether the action (of either in its simple sense, that is, when the complaint for impeachment is filed before the House and
Legislative or Executive Branch) exceeds whatever authority has been committed, is the latter starts to act thereon.
itself a delicate exercise in constitutional interpretation, and is the responsibility of
this Court as the ultimate interpreter of the Constitution." I would second the view [47] that the term "initiate" should be construed as the physical act
of filing the complaint, coupled with an action by the House taking cognizance of it, i.e.
In his separate opinion, Justice Souter also considered the legal possibility of judicial referring the complaint to the proper Committee. Evidently, the House of Representatives
interference if the Senate trial were to ignore fundamental principles of fairness so as to put to had taken cognizance of the first complaint and acted on it ----1) The complaint was filed on 02
grave doubt the integrity of the trial itself [40]----- June 2003 by former President Joseph Estrada along with the resolutions of endorsement signed
by three members of the House of Representatives; 2) on 01 August 2003, the Speaker of the
"If the Senate were to act in a manner seriously threatening the integrity of its House directed the chairman of the House Committee on Rules, to include in the Order of
results, convicting, say, upon a coin toss or upon a summary determination that an Business the complaint; 3) on 13 October 2003, the House Committee on Justice included the
officer of the United States was simply "a bad guy" judicial interference might well complaint in its Order of Business and ruled that the complaint was sufficient in form; and 4) on
be appropriate. In such circumstances, the Senate's action might be so far beyond the 22 October 2003, the House Committee on Justice dismissed the complaint for impeachment
scope of its constitutional authority and the consequent impact on the Republic so against the eight justices, including Chief Justice Hilario Davide, Jr., of the Supreme Court, for
great, as to merit a judicial response despite the prudential concerns that would being insufficient in substance. The following day, on 23 October 2003, the second
ordinarily counsel silence." impeachment complaint was filed by two members of the House of Representatives,
accompanied by an endorsement signed by at least one-third of its membership, against the
In the earlier case of Powell vs. McCormick,[41] the US Supreme Court has ruled that while Chief Justice.
Congress possesses the power to exclude and expel its members, judicial review would be
proper to determine whether Congress has followed the proper procedure for making the Some final thoughts. The provisions expressed in the Constitution are mandatory. The
political decision committed to it by the Constitution. Powell has clarified that while the Court highly political nature of the power to impeach can make the proceeding easily fraught
cannot interfere with the decision of the House to exclude its members, it nonetheless is within with grave danger. Hamilton uncannily foresaw in the impeachment process a potential
its powers to ensure that Congress follows the constitutional standards for expulsion.[42] Powell cause of great divide ---- "In many cases, it will connect itself with the pre-existing
demonstrates, first, that whether a matter is a political question depends on the fit between the factions, and will enlist all their animosities, partialities, influence, and interest on one side
actual legal procedure chosen by Congress and the circumstances to which Congress attempts to or on the other; and in such cases, there will be the greatest danger that the decision will
apply the procedure and, second, that the choice and application of a procedure by Congress are be regulated more by the comparative strength of the parties than by the real
reviewable by the federal courts to ensure that Congress has done no more than the Constitution demonstrations of innocence or guilt."[48] This forewarning should emphasize that
allows.[43] impeachment is a remedy and a tool for justice and public good and never intended to be
used for personal or party gain.
Summing up, a Constitutional expert, Jonathan Turley observes that there may be judicial
Despite having conceded the locus standi of petitioners and the jurisdiction of the Court,
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some would call for judicial restraint. I entertain no doubt that the advice is well-meant [10] See Article II, Section 4, US Constitution.
and understandable. But the social unrest and division that the controversy has generated
and the possibility of a worsening political and constitutional crisis, when there should be Michael J. Gerhardt, "The Constitutional Limits to Impeachment and its Alternatives," Texas
[11]
none, do not appear to sustain that idea; indeed, the circumstances could well be Law Review, Vol. 68 (1989).
compelling reasons for the Court to put a lid on an impending simmering foment before it
erupts. In my view, the Court must do its task now if it is to maintain its credibility, its Michael J. Gerhardt, "The Lessons of Impeachment History," The George Washington Law
[12]
dependability, and its independence. It may be weak, but it need not be a weakling. The Review, Vol. 67 (1999)
keeper of the fundamental law cannot afford to be a bystander, passively watching from
the sidelines, lest events overtake it, make it impotent, and seriously endanger the [13] Nelson, supra.
Constitution and what it stands for. In the words of US Chief Justice Marshall -
[14]Other differences include ---- The English House of Lords can convict by mere majority, but
"It is most true that this Court will not take jurisdiction if it should not; but it is the US House of Representatives need to have a concurrence of two-thirds of its members to
equally true, that it must take jurisdiction if it should. The judiciary cannot, as render a guilty verdict. The House of Lords can order any punishment upon conviction; the US
the legislature may, avoid a measure because it approaches the confines of the Senate can only order the removal from Office, and the disqualification to hold and enjoy any
constitution. We cannot pass it by because it is doubtful. With whatever doubts, office of honor, trust and profit. The English monarch can exercise pardon on any convicted
with whatever difficulties, a case may be attended, we must decide it, if it be official; such power was expressly withheld from the US President. The English monarch can
brought before us. We have no more right to decline the exercise of a never be impeached, while the American president is not immune from the impeachment
jurisdiction which is given, than to usurp that which is not given. The one or the process. (Gerhardt, "The Lessons of Impeachment History," supra.)
other would be treason to the Constitution."[49]
[15] Nelson, supra.
The issues have polarized the nation, the Court's action will be viewed with criticism, whichever
way it goes, but to remain stoic in the face of extant necessity is a greater risk. The Supreme [16] Ibid.
Court is the chosen guardian of the Constitution. Circumspection and good judgment dictate
that the holder of the lamp must quickly protect it from the gusts of wind so that the flame can Article III, Bill of Rights. Section 1. No person shall be deprived of life, liberty, or property
[17]
continue to burn. without due process of law, nor shall any person be denied the equal protection of the laws.
I vote to grant the petitions on the foregoing basic issue hereinbefore expressed. [18] UP Law Center, supra.
Akhil Reed Amar, "On Impeaching Presidents," Hofstra Law Review, Winter 1999, Vol. 28,
[19]
[1] Section 1, Article II, 1987 Constitution. No. 2.
[2] UP Law Center Constitutional Revision Project, Manila, 1970. [20]For example, the constitutional provision reads, "The president, vice- president... may be
removed from office, on impeachment for..." The clause not only provides the authority for
[3]Michael Nelson, ed., "The Presidency A to Z," Washington D.C. Congressional Quarterly Congress to impeach and convict on proof of such conduct, it also undercuts the notion that
(1998) Congress is obliged to impeach for any particular offense. It goes without saying that if its
purpose is to remove seriously unfit public officials to avoid injury to the Republic,
[4] Ibid. impeachment may not be resorted to if injury is not likely to flow from the assailed conduct. As
American history would attest, falsehoods, proven to have been committed by public officials in
Numeriano F. Rodriguez, Jr., "Structural Analysis of the 1973 Constitution," Philippine Law
[5]
both their private and public capacities, are not always deemed by the US Senate as sufficient to
Journal, 57:104, March 1982, 1st Quarter. warrant removal from office. Overwhelming consensus further show that impeachment is not
required for all impeachable acts or that failure to bring impeachment erring conduct of some
[6] Nelson, supra. erring officials in the past mean that those were not impeachable offenses (Thus, it is argued that
the failure to impeach Nixon on the basis of his tax returns should not be taken to mean that
[7] Ibid. merely `private conduct' is not impeachable. In so deciding not to indict Nixon, other factors
were apparently considered by the US House of Representatives, including the sufficiency of
[8] Ibid. the evidence and the need to streamline the already complicated case against Nixon [McGinnis]
infra.).
[9] Ibid.
[21] Amar, supra.
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John O. McGinnis, "Impeachment: The Structural Understanding," The George Washington

[22] [38] Angara vs. Electoral Commission, 63 Phil 139.
Law Review, Winter 1999, Vol. 28, No. 2.
[39] Nixon vs. United States, 506 U.S. 224 (1993)
[23] Ibid.
Asa Hutchinson, "Did the Senate Trial Satisfy the Constitution and the Demands of Justice?"
[40]
Stephen B. Presser, "Would George Washington Have Wanted Bill Clinton Impeached?",
[24] Hofstra Law Review, Vol. 28 (1999)
The George Washington Law Review, Vol. 76, 1999.
[41] 395 US 486 (1969).
[25] Ibid.
[42] Gerhardt, Impeachment and its Alternatives, supra.
Arthur M. Schlesinger, Jr., "Reflections on Impeachment," The George Washington Law
[26]
Review, Vol. 67 (1999). [43] Ibid.
[27] Presser, supra. Jonathan Turley, "Congress As Grand Jury: The Role Of The House Of Representatives In
[44]
The Impeachment Of An American President," The George Washington Law Review, Vol. 67
[28] Schlesinger, supra. (1999).
[29] Tañada vs. Cuenco, 103 Phil 1051. [45] Ibid.
[30]In contrast, Section 2, Article III of the US Federal Constitution granted only limited power [46] Full text of the House Rules states:
to the US Supreme Court---
Rule V, Bar Against Initiation Of Impeachment Proceedings Against the same official.
"The judicial power shall extend to all Cases, in Law and Equity, arising under this Constitution,
the Laws of the United States, and Treaties made, or which shall be made, under their Section 16. Impeachment Proceedings Deemed Initiated - In cases where a Member of the
Authority; --- to all Cases affecting ambassadors, other public ministers and consuls;--- to all House files a verified complaint of impeachment or a citizen filed a verified complaint that is
cases of admiralty and maritime jurisdiction; --- to controversies to which the United States endorsed by a Member of the House through a resolution of endorsement against an
shall be a Party; --- to controversies between two or more states; --- between a state and citizens impeachable officer, impeachment proceedings against such official are deemed initiated on the
of another state;--- between citizens of the same state claiming lands under grants of different day the Committee of Justice finds that the verified complaint and/or resolution against such
states; and between a state, or the citizens thereof, and foreign states, citizens or subjects. official, as the case may be, is sufficient in substance or on the date the House votes to overturn
or affirm the findings of the said Committee that the verified complaint and/or resolution, as the
In all cases affecting ambassadors, other public ministers and consuls, and those in which a case may be, is not sufficient in substance.
State shall be Party, the supreme Court shall have original jurisdiction. In all the other Cases
before mentioned, the Supreme Court shall have appellate jurisdiction, both as to law and fact In cases where a verified complaint or a resolution of Impeachment is filed or endorsed, as the
with such exceptions, and under such regulations as the Congress shall make. case may be, by at least one-third (1/3) of the Members of the House, Impeachment proceedings
are deemed initiated at the time of the filing of such verified complaint or resolution of
[31] Section 1, Article 8, 1987 Constitution. impeachment with the Secretary General.
[32] 83 Phil 17. Succinctly explained by Fr. Joaquin Bernas, S.J., himself a member of the Constitutional
[47]
Commission and an amicus curiae invited by this Court.
[33] 3 SCRA 1. (1961).
[48] Presser, supra.
[34] L-10520, February 28, 1965.
[49] Cohens v. Virginia 19 US (6 Wheat) 265, 404, (1821).
[35] 5 SCRA 1 (1962).
[36] 42 SCRA 448.
[37] Estrada vs. Desierto, 353 SCRA 452. SEPARATE CONCURRING OPINION
which lasted from morning to evening on November 5 and 6, 2003 -- and in the deliberations
PANGANIBAN, J.: with my colleagues every day since then, including November 8 (Saturday) and November 9
(Sunday), 2003. Of course, I also meticulously pored over the written submissions of the parties
I agree with the incisive ponencia of Mme. Justice Conchita Carpio Morales that the Court has and carefully referred to relevant laws and jurisprudence.
jurisdiction over the Petitions, and that the second Impeachment Complaint is unconstitutional.
However, I write to explain a few matters, some of which are uniquely relevant to my I will no longer argue for or against the thought-provoking historical, philosophical,
participation and vote in these consolidated cases. jurisprudential and prudential reasonings excellently put forward in the ponencia of Justice
Conchita Carpio Morales and in the various Separate Opinions of my colleagues. I will just
Reasons for My point out a few items that I believe are markedly relevant to my situation.
Initial Inhibition
Consolations vis-à-vis
It will be recalled that when these consolidated Petitions were first taken up by this Court on My Desired Inhibition
October 28, 2003, I immediately inhibited myself, because one of herein petitioners,[1] Dean
Antonio H. Abad Jr., was one of my partners when I was still practicing law. In all past First, although I have been given no choice by the Court except to participate, I still constantly
litigations before the Court in which he was a party or a counsel, I had always inhibited myself. kept in mind the grounds I had initially raised in regard to my recusation. Now, I take the
consolation that although Dean Abad is a petitioner here, he however does not have a personal
Furthermore, one of our eight invited amici curiae was former Senate President Jovito R. or direct interest in the controversy. Hence, any ruling I make or any vote I cast will not
Salonga. I had always recused myself from all the cases before the Court in which he was adversely affect him or redound to his direct or pecuniary benefit. On the other hand, Senator
Salonga participated in this case neither as a party nor as a counsel, but as an amicus curiae.
involved. For instance, I did not take part in Bayan v. Zamora[2] because of my "close personal Thus, he is someone who was invited by the Court to present views to enlighten it in resolving
and former professional relations with a petitioner, Sen. J.R. Salonga." In Love God Serve Man, the difficult issues in these cases, and not necessarily to advocate the cause of either petitioners
-- a book I wrote in 1994, prior to my appointment to the Supreme Court -- I explained my or respondents. In fact, as will be shown later, I am taking a position not identical to his.
deeply rooted personal and professional relationship with Senator Salonga, which for brevity I
will just quote in a footnote below.[3] During the Oral Argument on November 5, 2003, Amicus Joaquin G. Bernas shed some light on
my question regarding the conflict of interest problem I have herein referred to earlier. He
There is also the lingering thought that the judgment I may make in these consolidated cases explained that in Perfecto v. Meer,[5] the Court had issued a judgment that, like in the present
may present a conflict of interest because of the following considerations:
case, benefited its members because, inter alia, "jurisdiction may not be declined"; and the issue
1. It may personally benefit me, considering that I am one of the eight justices who were "involved the right of other constitutional officers x x x equally protected by the Constitution."
charged by former President Joseph Ejercito Estrada in the first Impeachment Complaint;
thus, a ruling barring the initiation of the second Impeachment Complaint within one year In addition, Atty. Jose Bernas, counsel for Petitioners Baterina et al.,[6] also cited Nitafan v.
from that of the first would also proscribe any future indictment against me within the
Commissioner of Internal Revenue,[7] in which the Court -- in upholding the intent behind
same period.
Article VIII, Section 10 of the Constitution -- had in fact ruled in a manner adverse to the
interest of its members. This fact shows that in taking action over matters affecting them,
2. As a member of the Court, I used some facilities purchased or constructed with the
justices are capable of ruling against their own interest when impelled by law and jurisprudence.
Judiciary Development Fund (JDF).
3. I voted in favor of several unanimous en banc Resolutions of the Court affirming JDF Furthermore, in Abbas v. Senate Electoral Tribunal[8] (SET), the petitioners therein had sought
to disqualify the senators who were members thereof from an election contest before the SET,
expenditures recommended by some of its committees.[4]
on the ground that they were interested parties. The Court held that "the proposed mass
Despite my desired inhibition, however, the Court, in its Resolution dated October 28, 2003, disqualification, if sanctioned and ordered, would leave the Tribunal no alternative but to
"directed [me] to participate" in these cases. My colleagues believed that these Petitions abandon a duty that no other court or body can perform, but which it cannot lawfully discharge
presented novel and transcendental constitutional questions that necessitated the participation of if shorn of the participation of its entire membership of Senators." The Court further explained:
[9]
all justices. Indeed, if the divergent views of several amici curiae, including retired SC
members, had been sought, why not relax the stringent requirements of recusation and require
the participation of all incumbent associate justices? "To our mind, this is the overriding consideration -- that the Tribunal be not
prevented from discharging a duty which it alone has the power to perform, the
And so, by reason of that Resolution, I had joined my colleagues in interacting with the "friends performance of which is in the highest public interest as evidenced by its being
of the Court," the parties and their counsel in the lengthy but enlightening Oral Argument -- expressly imposed by no less than the fundamental law."
Moreover, the Court had the occasion to hold recently in Estrada v. Desierto that "to [10] within its own sphere and independent of the others. Because of that supremacy[,
disqualify any of the members of the Court, particularly a majority of them, is nothing short of the] power to determine whether a given law is valid or not is vested in courts of
pro tanto depriving the Court itself of its jurisdiction as established by the fundamental law. x x justice.
x It affects the very heart of judicial independence."
"Briefly stated, courts of justice determine the limits of power of the agencies and
Indeed, in the instant cases, the judgment will affect not just Supreme Court justices but also offices of the government as well as those of its officers. In other words, the
other high officials like the President, the Vice President and the members of the various judiciary is the final arbiter on the question whether or not a branch of government
constitutional commissions. Besides, the Petitions are asking for the resolution of transcendental or any of its officials has acted without jurisdiction or in excess of jurisdiction, or so
capriciously as to constitute an abuse of discretion amounting to excess of
questions, a duty which the Constitution mandates the Court to do. And if the six[11] other jurisdiction or lack of jurisdiction. This is not only a judicial power but a duty to
justices -- who, like me, were named respondents in the first Impeachment Complaint -- were pass judgment on matters of this nature.
also to inhibit themselves due to possible conflict of interest, the Court would be left without a
majority (only seven would remain), and thus deprived of its jurisdiction. In a similar vein, the "This is the background of paragraph 2 of Section 1 [of Article VIII of the 1987
Court had opined in Perfecto that "judges would indeed be hapless guardians of the Constitution Constitution], which means that the courts cannot hereafter evade the duty to
if they did not perceive and block encroachments upon their prerogatives in whatever form."[12] settle matters of this nature, by claiming that such matters constitute a political
question."(Emphasis supplied.)
The Court's Assumption
of Jurisdiction Mandated In effect, even if the question posed before the Court appears to be political in nature --
by the 1987 Constitution meaning, one that involves a subject over which the Constitution grants exclusive and/or sole
authority either to the executive or to the legislative branch of the government -- the Court may
Second, in regard to the merits of the Petitions, unlike the 1973 and the 1935 Constitutions, the still resolve the question if it entails a determination of grave abuse of discretion or
1987 Constitution[13] -- in Article VIII, Section 1 thereof -- imposes upon the Supreme Court the unconstitutionality. The question becomes justiciable when the Constitution provides conditions,
duty to strike down the acts of "any branch or instrumentality of the government" whenever limitations or restrictions in the exercise of a power vested upon a specific branch or
these are performed "with grave abuse of discretion amounting to lack or excess of jurisdiction." instrumentality. When the Court resolves the question, it is not judging the wisdom of an act of
a coequal department, but is merely ensuring that the Constitution is upheld.
During the Oral Argument on November 5, 2003 when the Court interacted with Justice Florenz
D. Regalado, an amicus curiae, I pointed out that this unique provision of our 1987 The US Constitution does not impose upon its judiciary a similar duty to strike down grave
Constitution differentiated the Philippine concept of judicial review from that held in the United abuse of discretion on the part of any government agency. It thus gives its magistrates the luxury
States (US). Unlike the US Constitution, Article VIII, Section 1 of our present Constitution, is of choosing between being passivists or activists when confronted with "political questions." As
very specific as to what our courts must do: not only to settle actual controversies involving I explained during my discourse with Amicus Pacifico Agabin during the Oral Argument on
legally demandable and enforceable rights, but also to determine whether there has been grave November 6, 2003, many legal scholars characterize the US Supreme Court under Chief Justice
abuse of discretion amounting to lack or excess of jurisdiction on the part of any branch or Earl Warren as activist, and its present Court under Chief Justice William Rehnquist as
instrumentality of the government." generally conservative or passivist.
Article VIII, Section 1, was crafted, precisely to remedy the judicial cop- outs that characterized Further explaining, I said that the Warren Court is widely known for having actively intervened
the Martial Law era, during which the Court had invariably found its hands tied (or had in political, social and economic matters. It issued decisions favoring the poor and the
conveniently avoided involvement) when faced with questions that were allegedly political in underprivileged; and overhauled jurisprudence on the Bill of Rights to protect ethnic minorities,
eliminate racial segregations, and uphold the civil liberties of the people. In contrast, the
nature.[14] As a result, the Court at the time was unable to check all the constitutional excesses Rehnquist Court has taken mostly a hands-off stance on these issues and largely deferred to the
of the executive and the legislative branches of government.
discretion of the political branches of government in most political issues brought before it.[16]
Thus, during the crafting of the 1987 Constitution, one of the eminent members of the
Constitutional Commission, former Chief Justice Roberto Concepcion, actively sought to On the other hand, our Constitution has not given the same luxury of choice to jurists as that
expand the scope of judicial review in definitive terms. The former Chief Justice, who authored given in the US. By imposing upon our judges a duty to intervene and to settle issues of grave
Article VIII, Section 1, explained that the Supreme Court may not under any circumstance abuse of discretion, our Constitution has thereby mandated them to be activists. A duty cannot
be evaded. The Supreme Court must uphold the Constitution at all times. Otherwise, it will be
evade its duty to settle disputes involving grave abuse of discretion:[15] guilty of dereliction, of abandonment, of its solemn duty. Otherwise, it will repeat the judicial
cop-outs that our 1987 Constitution abhors.
"x x x [T]he powers of government are generally considered divided into three
branches: the Legislative, the Executive and the Judiciary. Each one is supreme
Thus, in Tañada v. Angara,[17]

the Court clearly and unequivocally ruled that "[w]here an action qualifications of their respective members. Still, the Supreme Court reviews the decisions
of the legislative branch is seriously alleged to have infringed the Constitution, it becomes not of these tribunals on certiorari.[19] Its certiorari power, so exercised, has never been
only the right but in fact the duty of the judiciary to settle the dispute. The question thus posed seriously questioned.
is judicial rather than political. The duty (to adjudicate) remains, to assure that the supremacy of
the Constitution is upheld. Once a controversy as to the application or the interpretation of a 3. The Constitution has granted many powers and prerogatives exclusively to Congress.
constitutional provision is raised before the Court, it becomes a legal issue which the Court is However, when these are exercised in violation of the Constitution or with grave abuse of
bound by constitutional mandate to decide." discretion, the jurisdiction of the Court has been invoked; and its decisions thereon,
The Court's Duty to Intervene respected by the legislative branch. Thus, in Avelino v. Cuenco,[20] the Court ruled on the
in Impeachment Cases That issue of who was the duly elected President of the Senate, a question normally left to the
Infringe the Constitution sole discretion of that chamber; in Santiago v. Guingona, [21] on who was the minority
floor leader of the Senate; in Daza v. Singson[22] and Coseteng v. Mitra Jr.,[23] on who
Third, Sen. Aquilino Pimentel Jr., an intervenor, argues that Article XI of the Constitution grants were the duly designated members of the Commission on Appointments representing the
the House of Representatives the "exclusive" power to initiate all cases of impeachment; and the House of Representatives. It was held in the latter two cases that the Court could intervene
Senate, the "sole" prerogative to try and decide them. He thus concludes that the Supreme Court because the question involved was "the legality, not the wisdom, of the manner of filling
has no jurisdiction whatsoever to intervene in such proceedings. With due respect, I disagree for the Commission on Appointment as prescribed by the Constitution."
the following reasons:
In the present cases, the main issue is whether, in initiating the second Impeachment Complaint,
1. The Constitution imposes on the Supreme Court the duty to rule on unconstitutional acts the House of Representatives violated Article XI, Section 3(5), which provides that "[n]o
of "any" branch or instrumentality of government. Such duty is plenary, extensive and impeachment proceedings shall be initiated against the same official more than once within a
admits of no exceptions. While the Court is not authorized to pass upon the wisdom of an period of one year." The interpretation of this constitutional prohibition or condition as it applies
impeachment, it is nonetheless obligated to determine whether any incident of the to the second Impeachment Complaint clearly involves the "legality, not the wisdom" of the acts
impeachment proceedings violates any constitutional prohibition, condition or limitation of the House of Representatives. Thus, the Court must "settle it."
imposed on its exercise. Thus, normally, the Court may not inquire into how and why the
House initiates an impeachment complaint. But if in initiating one, it violates a Observance of Due Process
constitutional prohibition, condition or limitation on the exercise thereof, then the Court as During the Initiation
the protector and interpreter of the Constitution is duty-bound to intervene and "to settle" of Impeachment
the issue. This point was clearly explained by Chief Justice Concepcion in Javellana v.
Executive Secretary[18] as follows: Fourth, during the Oral Argument, Senator Salonga and Petitioner Francisco Chavez denounced
the second Impeachment Complaint as violative of due process. They argued that by virtue
"Accordingly, when the grant of power is qualified, conditional or subject merely of the endorsement of more than one third of the members of the House of
to limitations, the issue on whether or not the prescribed qualifications or Representatives, the Chief Justice was immediately impeached without being afforded the twin
conditions have been met, or the limitations respected, it justiciable or non- requirements of notice and hearing. The proceedings were therefore null and void ab initio. I
political, the crux of the problem being one of legality or validity of the must agree.
contested act, not its wisdom. Otherwise, said qualifications, conditions or
limitations -- particularly those prescribed or imposed by the Constitution -- The due process clause,[24] enshrined in our fundamental law, is a conditio sine qua non that
would be set at naught. What is more, the judicial inquiry into such issue and
the settlement thereof are the main functions of courts of justice under the cannot be ignored in any proceeding -- administrative, judicial or otherwise.[25] It is deemed
Presidential form of government adopted in our 1935 Constitution, and the written into every law, rule or contract, even though not expressly stated therein. Hence, the
system of checks and balances, one of its basic predicates. As a consequence, House rules on impeachment, insofar as they do not provide the charged official with (1) notice
We have neither the authority nor the discretion to decline passing upon said and (2) opportunity to be heard prior to being impeached, are also unconstitutional.
issue, but are under the ineluctable obligation -- made particularly more
exacting and peremptory by our oath, as members of the highest Court of the Constitutional Supremacy --
land, to support and defend the Constitution -- to settle it." (Emphasis the Bedrock of the Rule of Law
supplied.)
Fifth, I shall no longer belabor the other legal arguments (especially the meaning of the word
2. The Constitution likewise grants the electoral tribunals of both Houses of Congress the "initiate") on why the second Impeachment Complaint is null and void for being violative of the
authority to be the "sole" judges of all contests relating to the election, the returns and the one-year bar. Suffice it to say that I concur with Justice Morales. Let me just stress that in taking
jurisdiction over this case and in exercising its power of judicial review, the Court is not
pretending to be superior to Congress or to the President. It is merely upholding the supremacy of our country. Our national leaders -- from the President, the Senate President and the Speaker
of the Constitution and the rule of law.[26] of the House -- down to the last judicial employee have been preoccupied with this problem.
There have been reported rumblings of military destabilization and civil unrest, capped by an
To stress this important point, I now quote from Justice Jose P. Laurel in the landmark case aborted siege of the control tower of the Ninoy Aquino International Airport on November 8,
2003.
Angara v. Electoral Commission, [27] which was decided in 1936:
Furthermore, any delay in the resolution of the dispute would adversely affect the economy as
"The Constitution is a definition of the powers of government. Who is to determine well as the socio-political life of the nation. A transmittal of the second Impeachment Complaint
the nature, scope and extent of such powers? The Constitution itself has provided for to the Senate would disrupt that chamber's normal legislative work. The focus would shift to an
the instrumentality of the judiciary as the rational way. And when the judiciary unsettling impeachment trial that may precipitously divide the nation, as happened during the
mediates to allocate constitutional boundaries, it does not assert any superiority impeachment of former President Joseph Ejercito Estrada.
over the other departments; it does not in reality nullify or invalidate an act of the
legislature, but only asserts the solemn and sacred obligation assigned to it by the A needless trial in the Senate would not only dislocate that chamber's legislative calendar and
Constitution to determine conflicting claims of authority under the Constitution and divide the nation's focus; but also unnecessarily bring anxiety, loss of time and irreparable injury
to establish for the parties in an actual controversy the rights which that instrument on the part of the Chief Justice, who would not be able to attend to his normal judicial duties.
secures and guarantees to them. This is in truth all that is involved in what is termed The transmittal of the second Impeachment Complaint to the Senate would unfairly brand him
`judicial supremacy' which properly is the power of judicial review under the as the first Supreme Court justice to be impeached!
Constitution." (Italics supplied.)
Moreover, President Gloria Macapagal Arroyo and Senate President Franklin M. Drilon have
Epilogue
issued public statements[28] that they will abide by the decision of the Court as the ultimate
arbiter and interpreter of the Constitution. Now, therefore, is the ripe time for the Court to
Having firmed up the foregoing position, I must admit that I was initially tempted to adopt the
decide, and to decide forthrightly and firmly. Merely deferring its decision to a later time is not
view of Amici Jovito R. Salonga and Raul C. Pangalangan. They maintain that although the
an assurance of better times for our country and people.
Court had jurisdiction over the subject matter and although the second Impeachment Complaint
was unconstitutional, the Court should nonetheless "use its power with care and only as a last
To be sure, the matters raised in the second Impeachment Complaint can be expeditiously taken
resort" and allow the House to correct its constitutional errors; or, failing in that, give the Senate
up by the House of Representatives through an investigation in aid of legislation. The House
the opportunity to invalidate the second Complaint.
can then dispassionately look into alleged irregular expenditures of JDF funds, without the
rigors, difficulties, tensions and disruptive consequences of an impeachment trial in the Senate.
This Salonga-Pangalangan thesis, which is being espoused by some of my colleagues in their
The ultimate aim of discovering how the JDF was used and of crafting legislation to allocate
Separate Opinions, has some advantages. While it preserves the availability of judicial review as
more benefits to judicial employees may be achieved in a more judicious, peaceful and cordial
a "last resort" to prevent or cure constitutional abuse, it observes, at the same time,
manner.
interdepartmental courtesy by allowing the seamless exercise of the congressional power of
impeachment. In this sense, it also enriches the doctrine of primary jurisdiction by enabling
I close this Opinion with the truism that the judiciary is the "weakest" branch of government.
Congress to exercise fully its "exclusive" authority to initiate, try and decide impeachment
Nonetheless, when ranged against the more powerful branches, it should never cower in silence.
cases. In short, it gives Congress the primary jurisdiction; and the Court, "appellate" certiorari
Indeed, if the Supreme Court cannot take courage and wade into "grave abuse" disputes
power, over the case.
involving the purse- disbursing legislative department, how much more deferential will it be
when faced with constitutional abuses perpetrated by the even more powerful, sword-wielding
Furthermore, the proponents of this deferential position add that the Senate may eventually rule
executive department?
that the second Impeachment Complaint is unconstitutional, and that the matter may thus be
settled definitively. Indeed, the parties may be satisfied with the judgment of the Senate and,
I respectfully submit that the very same weakness of the Court becomes its strength when it
thus, obviate the need for this Court to rule on the matter. In this way, the latter would not need
dares speak through decisions that rightfully uphold the supremacy of the Constitution and the
to grapple with the conflict of interest problem I have referred to earlier.
rule of law. The strength of the judiciary lies not in its lack of brute power, but in its moral
courage to perform its constitutional duty at all times against all odds. Its might is in its being
With due respect, I believe that this stance of "passing the buck" -- even if made under the guise
right.
of deference to a coequal department -- is not consistent with the activist duty imposed by the
Constitution upon this Court.
WHEREFORE, I vote to declare the second Impeachment Complaint to be unconstitutional
and time-barred by Article XI, Section 3, paragraph 5 of the Constitution.
In normal times, the Salonga-Pangalangan formula would, perhaps, be ideal. However, the
present situation is not ideal. Far from it. The past several weeks have seen the deep polarization
Voting (PPCRV) later that year. Both of these positions required my strict neutrality
in partisan political activities. And since I assumed these posts, I have refrained from
accepting and representing politically focused retainers except that of PPCRV, which
[1] In GR No. 160292. anyway is non- partisan, as already mentioned.
[2] "Typical of his intellectual balance and prudence, Senator Salonga did not resent my
342 SCRA 449, October 10, 2000.
leaving his political community at this most crucial stage in his public career - just a
year before he sought the presidency of the Republic in May 1992. If at all, I feel he
[3] Thus, on pages 23 to 24 of this book, I wrote: respected and fully understood my decision not to work for any particular candidate
or political party but to help only in assuring the peaceful and orderly transfer of
"I can write `thank you' a thousand and one times but I can never adequately power in our then still fragile democracy through the holding of free, honest and
acknowledge the pervading influence of former Senate President Jovito R. Salonga credible elections at a critical moment in our country's history."
in my life. His very endearing Preface is just one more recent undeserved favor I
have received from this great man. To be sure, there are many countless others he [4] To my recollection, the Court's action has been sought only in certain items chargeable to the
has kindly given me in the course of the last 35 years since he was a struggling
20% portion of the JDF relating to facilities and equipment; furthermore, to my recollection
associate in his prestigious law firm, Salonga Ordoñez and Associates (which he
also, no approval has been sought or given with regard to the 80% portion reserved for the cost
dissolved upon his election to the Senate presidency in 1987, pursuant to his strict
of living allowances (COLA) of judicial employees.
self-imposed ethical standards). He taught me not only the rudiments of the
philosophy and practice of the noble profession of law but also the more life-moving
[5] 85 Phil. 553, February 27, 1950, per Bengzon , J.
virtues of integrity, prudence, fairness and temperance. That is why the perceptive
reader will probably find some of his words and ideas echoed in this collection.
From him I learned that law is not a mere abstract syllogism that is separate from the [6] In GR No. 160295.
social milieu. Indeed, èxperience, not logic, has been the life of the law.' It should
be used as a brick in building the social structure and as a means of fulfilling the [7] 152 SCRA 284, July 23, 1987, per Melencio-Herrera, J.
deepest aspirations of the people.
[8] 166 SCRA 651, Oct 27, 1988, per Gancayco, J.
"That we are of different religious faiths -- he being a devout Protestant, a respected
leader of the Cosmopolitan Church and I, a fledgling Catholic -- has not adversely
affected at all our three and a half decades of enriching friendship and my own [9] Ibid, p. 655.
regard and esteem for him. This is probably because we never discussed what
separates us but only what truly binds us. [10] 356 SCRA 108, April 3, 2001, per Puno, J.
"In my professional life as a lawyer, I have been given by him -- unconsciously, I am [11] Excluding
sure -- the greatest honor I have received so far, not by awarding me a plaque of gold the Chief Justice who took no part in the instant case.
or conferring on me an honorary degree but by asking me to take over, upon the
[12] Supra.
appointment to the Supreme Court of his then lawyer, Justice Abraham Sarmiento,
as his personal legal counsel (starting with Kalaw vs. Salonga, et al. which we won
in both the Commission on Elections and the Supreme Court) and as chief legal [13] Art. VIII, Section 1 of the 1987 Constitution, states:
counsel of the Liberal Party from 1987 to 1991, during which I had the privilege of
lawyering for Rep. Raul Daza (now Speaker Pro-Tempore), Rep. Lorna Verano-Yap, "SECTION 1. The judicial power shall be vested in one Supreme Court and in such
Rep. Alberto Lopez, Gov. Aguedo Agbayani, Gov. Nesthur Gumana, Vice Gov. lower courts as may be established by law.
Ramon Duremdes, to mention but some LP stalwarts at the time. (May I hasten to
add, lest my other friends in the House think I neglected them, that I had the honor "Judicial power includes the duty of the courts of justice to settle actual
of serving also as counsel of some non-LP leaders like Rep. Tessie Aquino-Oreta, controversies involving rights which are legally demandable and enforceable, and to
Rep. Baby Puyat-Reyes and Rep. Michael Mastura.) Few, indeed, are favored with determine whether or not there has been a grave abuse of discretion amounting to
the exuberant feeling of being counsel of one's most esteemed mentor. However, I lack or excess of jurisdiction on the part of any branch or instrumentality of the
had to resign from this Liberal Party post upon my assumption as part-time transition government."
president of the Philippine Daily Inquirer in March 1991 and as national vice
chairman and chief legal counsel of the Parish Pastoral Council for Responsible
[14]Aquino Jr. v. Enrile, 59 SCRA 183, September 17, 1974; Dela Llana v. Comelec, 80 SCRA
525, December 9, 1977.
CONCURRING AND DISSENTING OPINION
[15] I Record of the Constitutional Commission 436. YNARES-SANTIAGO, J.:
[16]In a stunning surprise to its critics, the Rehnquist Court uncharacteristically became activist The power of impeachment is essentially lodged by the Constitution in Congress. It is the
in Bush v. Gore (No. 00-949, December 12, 2000) by intervening in the 2000 US presidential process by which officials of the Government, not removable by other means, may be made to
election. answer for certain offenses. These offenses are specifically enumerated as: culpable violation of
the Constitution, treason, bribery, graft and corruption, other high crimes, and betrayal of public
[17]
338 Phil. 546, May 2, 1997, per Panganiban, J. See also Tatad v. Secretary of Energy, 281 trust. In the exercise of this power, Congress must observe the minimum requirements set by the
SCRA 338, November 5, 1997; Guingona v. Gonzales, 219 SCRA 326, March 1, 1993. Constitution. However, in the event that Congress oversteps these limitations, who can review
its acts? Can the Supreme Court, under its power of judicial review enshrined in the
[18] Constitution, review the acts of a co-equal body? These are the novel issues raised in these
151-A Phil. 35, 134, March 31, 1973.
petitions.
[19]
Lazatin v. House Electoral Tribunal, 168 SCRA 391, December 8, 1988; Robles v. HRET, The petitions before this Court assail the constitutionality of the impeachment complaint against
181 SCRA 780, February 5, 1990; Co v. Electoral Tribunal, 199 SCRA 692, July 30, 1991; Chief Justice Hilario G. Davide, Jr., contending that, being a second complaint, the same is
Bondoc v. Pineda, 201 SCRA 792, September 26, 1991. expressly prohibited under Article XI, Section 3 (5) of the 1987 Constitution, which provides:
[20] 83 Phil. 17, March 4, 1949. No impeachment proceedings shall be initiated against the same official more than once within
a period of one year.
[21] 359 Phil. 276, November 18, 1998, per Panganiban, J.
Respondents House of Representative and the Senate filed separate Manifestations both stating
[22] that they are not submitting to the jurisdiction of the Court. The House of Representatives
180 SCRA 496, December 21, 1989, per Cruz, J. invoked its territorial integrity which this Court, as a co-equal body, cannot encroach upon. For
its part, the Senate pointed out that the petition as against it was premature inasmuch as it has
[23] 187 SCRA 377, July 12, 1990, per Griño-Aquino, J. not received any articles of impeachment.
[24] §1, Article III of the Constitution, reads: The Court set the petitions for oral arguments and invited the following as amici curiae:
"Section 1. No person shall be deprived of life, liberty, or property without due process of law, 1. Florenz D. Regalado, retired Justice of this Court;
nor shall any person be denied the equal protection of the laws." 2. Regalado E. Maambong, Justice of the Court of Appeals,
3. Fr. Joaquin C. Bernas, Dean of the Ateneo School of Law;
[25] 4. Hugo E. Gutierrez, Jr., retired Justice of this Court;
Bernas, The Constitution of the Republic of the Philippines: A Commentary, Vol. I, 1987 5. Estelito P. Mendoza, former Minister of Justice and Solicitor General;
ed., p. 47. See also Banco Español v. Palanca, 37 Phil. 921, March 26, 1918; Ang Tibay v. Court 6. Pacifico A. Agabin, former Dean of the University of the Philippines College of Law;
of Industrial Relations, 69 Phil. 635, February 27, 1940; Tañada v. Tuvera, 230 Phil. 528, 7. Raul C. Pangalangan, Dean of the University of the Philippines College of Law; and
December 29, 1986. 8. Jovito R. Salonga, former Senate President.
[26] Santiago v. Guingona, supra. During the oral arguments, the principal issue and sub-issues involved in the several petitions
were defined by the Court as follows:
[27] 63 Phil. 139, 158, July 15, 1936, per Laurel, J.
Whether the certiorari jurisdiction of the Supreme Court may be invoked; who can invoke it; on
[28]
what issues and at what time; and whether it should be exercised by this Court at this time.
"Palace to obey SC ruling on impeachment issue," The Sunday Times, November 9, 2003;
"Barbers: Majority in House favors Gloria's covenant," Malaya, November 9, 2003, p. 3; "Moral a) Locus standi of petitioners;
suasion for anti-Davide solons," Manila Standard, November 9, 2003. b) Ripeness (prematurity; mootness)
c) Political question/justiciability;
d) House's exclusive power to initiate all cases of impeachment; The meaning of the word "initiate" in relation to impeachment is at the center of much debate.
e) Senate's sole power to try and decide all cases of impeachment; The confusion as to the meaning of this term was aggravated by the amendment of the House of
f) Constitutionality of the House Rules of Impeachment vis-à-vis Section 3 (5) of Article Representatives' Rules of Procedure in Impeachment Proceedings. The first set of Rules adopted
XI of the Constitution; and on May 31, 1988, specifically Rule V, Section 14 and Rule II, Section 2 thereof, provides that
g) Judicial restraint. impeachment shall be initiated when a verified complaint for impeachment is filed by any
Member of the House of Representatives or by any citizen upon a resolution of endorsement by
In the appreciation of legal standing,[1] a developing trend appears to be towards a narrow and any Member thereof, or when a verified complaint or resolution of impeachment is filed by at
exacting approach, requiring that a logical nexus be shown between the status asserted and the least one-third (1/3) of all the Members of the House. This provision was later amended on
claim sought to be adjudicated in order to ensure that one is the proper and appropriate party to November 28, 2001. Rule V, Section 16 of the amendatory Rules states that impeachment
proceedings under any of the three methods above-stated are deemed initiated on the day that
invoke judicial power.[2] Nevertheless, it is still within the wide discretion of the Court to waive the Committee on Justice finds that the verified complaint and/or resolution against such official
the requirement and remove the impediment to its addressing and resolving serious is sufficient in substance or on the date the House votes to overturn or affirm the finding of the
constitutional questions raised.[3] said Committee that the verified complaint and/or resolution is not sufficient in substance.
In the case at bar, petitioners allege that they dutifully pay their taxes for the support of the The adoption of the 2001 Rules, at least insofar as initiation of impeachment proceedings is
government and to finance its operations, including the payment of salaries and other concerned, unduly expanded the power of the House by restricting the constitutional time-bar
emoluments of the respondents. They assert their right to be protected against all forms of only to complaints that have been "approved" by the House Committee on Justice. As stated
needless spending of taxpayers' money including the commission of an unconstitutional act, i.e., above, the one- year bar is a limitation set by the Constitution which Congress cannot overstep.
the filing of two impeachment cases within a period of one year against the Chief Justice of this Indeed, the Records of the Constitutional Commission clearly show that, as defined in Article
Court, one of the three independent branches of the government. Considering these serious legal XI, Section 3 (5), impeachment proceedings begin not on the floor of the House but with the
questions which affect public interest, I concur with the ponente that the petitioners, except filing of the complaint by any member of the House of any citizen upon a resolution of
Atty. Dioscoro U. Vallejos, Jr. in G.R. No. 160397, have satisfactorily established locus standi endorsement by any Member thereof. This is the plain sense in which the word "initiate" must
to file the instant petitions. be understood, i.e., to begin or commence the action.
I also concur with the ponente that the Court has the power of judicial review. This power of the Moreover, the second impeachment complaint was filed by only two complainants, namely
Court has been expanded by the Constitution not only to settle actual controversies involving Representatives Gilberto G. Teodoro, Jr. and Felix William B. Fuentebella. The rest of the
rights which are legally demandable and enforceable but also to determine whether or not there members of the House whose names appear on the attachments thereto merely signed
has been a grave abuse of discretion amounting to lack or excess of jurisdiction on the part of endorsements to the Complaint.
any branch or instrumentality of government.[4] The Court is under mandate to assume
jurisdiction over, and to undertake judicial inquiry into, what may even be deemed to be Article XI, Section 3 (3) of the Constitution is explicit:
political questions provided, however, that grave abuse of discretion - the sole test of
In case the verified complaint or resolution of impeachment is filed by at least one-third of all
justiciability on purely political issues - is shown to have attended the contested act.[5]
the Members of the House, the same shall constitute the Articles of Impeachment, and trial by
the Senate shall forthwith proceed. (Emphasis provided.)
The Court checks the exercise of power of the other branches of government through judicial
review. It is the final arbiter of the disputes involving the proper allocation and exercise of the
The mere endorsement of the members of the House, albeit embodied in a verified resolution,
different powers under the Constitution. When the Supreme Court reviews the constitutionality
did not suffice for it did not constitute filing of the impeachment complaint, as this term is
of the acts of Congress, it does not thereby assert its superiority over a co-equal branch of
plainly understood. In order that the verified complaint may be said to have been filed by at
government. It merely asserts its solemn and sacred obligation under the Constitution and
least 1/3 of the Members, all of them must be named as complainants therein. All of them must
affirms constitutional supremacy.[6] sign the main complaint. This was not done in the case of the assailed second impeachment
complaint against the Chief Justice. The complaint was not filed by at least one-third of the
Indeed, in the resolution of the principal issue in these petitions, a distinction has to be drawn Members of the House, and therefore did not constitute the Article of Impeachment.
between the power of the members of the House of Representatives to initiate impeachment
proceedings, on the one hand, and the manner in which they have exercised that power. While it I am constrained to disagree with the majority decision to discard the above issue for being
is clear that the House has the exclusive power to initiate impeachment cases, and the Senate unnecessary for the determination of the instant cases. On the contrary, the foregoing defect in
has the sole power to try and decide these cases, the Court, upon a proper finding that either the complaint is a vital issue in the determination of whether or not the House should transmit
chamber committed grave abuse of discretion or violated any constitutional provision, may the complaint to the Senate, and if it does, whether the Senate should entertain it. The
invoke its corrective power of judicial review. Constitution is clear that the complaint for impeachment shall constitute the Articles of
Impeachment, without need of referral to the Committee on Justice, when the complaint is filed
by at least one-third of all the Members of the House. Being the exception to the general decision of this Court at the present time. Senate President Salonga said it best when he
procedure outlined in the Constitution, its formal requisites must be strictly construed. commented that the Supreme Court, which has final jurisdiction on questions of
constitutionality, should be the final arbiter; it should be the authoritative court of last resort in
Furthermore, the mere fact that this issue was raised by intervenors Romulo Macalintal and Pete our system of democratic governance; but all remedies in the House of Representatives and in
Quirino-Quadra, and not by the petitioners in G.R. No. 160262, is of no moment. The Court is the Senate should be exhausted first. He goes on to say that only when this case is ripe for
empowered to decide issues even though they are not raised in the pleadings.[7] In the case at judicial determination can this Court speak with great moral authority and command the respect
bar, the question is already before this Court and may therefore be resolved. and loyalty of our people.[12]
The impeachment complaint suffers from yet another serious flaw. As one of the amici curiae, With these considerations in mind, the Court should recognize the extent and practical
former Senate President Jovito Salonga, pointed out, the signing of the impeachment complaint limitations of its judicial prerogatives, and identify those areas where it should carefully tread
by the purported 1/3 of the Congressmen was done without due process. The Chief Justice, instead of rush in and act accordingly. Considering that power of impeachment was intended to
against whom the complaint was brought, was not served notice of the proceedings against him. be the legislature's lone check on the judiciary, exercising our power of judicial review over
impeachment would place the final reviewing authority with respect to impeachments in the
No rule is better established, under the due process clause of the constitution, than that which hands of the same body that the impeachment process is meant to regulate.[13] In fact, judicial
requires notice and opportunity to be heard before any person can be lawfully deprived of his involvement in impeachment proceedings, even if only for purposes of judicial review is
rights.[8] Indeed, when the Constitution says that no person shall be deprived of life, liberty, or counter-intuitive because it eviscerates the important constitutional check on the judiciary.[14]
property without due process of law,[9] it means that every person shall be afforded the essential
element of notice in any proceeding. Any act committed in violation of due process may be A becoming sense of propriety and justice dictates that judicial self-restraint should be
declared null and void.[10] exercised; that the impeachment power should remain at all times and under all circumstances
with the legislature, where the Constitution has placed it. The common-law principle of judicial
However, notwithstanding the constitutional and procedural defects in the impeachment restraint serves the public interest by allowing the political processes to operate without undue
complaint, I dissent from the majority when it decided to resolve the issues at this premature interference.[15]
stage. I submit that the process of impeachment should first be allowed to run its course. The
power of this Court as the final arbiter of all justiciable questions should come into play only The doctrine of separation of powers calls for each branch of government to be left alone to
when the procedure as outlined in the Constitution has been exhausted. The complaint should be discharge its duties as it sees fit. Being one such branch, the judiciary will neither direct nor
referred back to the House Committee on Justice, where its constitutionality may be threshed restrain executive or legislative action. [16] The legislative and the executive branches are not
out. Thereafter, if the Committee so decides, the complaint will have to be deliberated by the allowed to seek its advice on what to do or not to do; thus, judicial inquiry has to be postponed
House on plenary session, preparatory to its possible transmittal to the Senate. The questions on in the meantime. Before a court may enter the picture, a prerequisite is that something has been
the sufficiency of the complaint in form may again be brought to the Senate by way of proper accomplished or performed by either branch. Then it may pass on the validity of what has been
motion, and the Senate may deny the motion or dismiss the complaint depending on the merits
of the grounds raised. After the Senate shall have acted in due course, its disposition of the case done but, then again, only when properly challenged in an appropriate legal proceeding.[17]
may be elevated to this Court pursuant to its judicial power of review. Hence, any resolution that this Court might make in this case may amount to nothing more than
an attempt at abstraction that can only lead to barren legal dialectics and sterile conclusions,
In addition, there are several other remedies that may be availed of or events that may occur that depending on what transpires next at the House of Representatives and the Senate.[18]
may render the present petitions moot and, in the process, effectively avert this controversy.
Dean Raul Pangalangan of the University of the Philippines College of Law, one of the amici IN VIEW WHEREOF, I CONCUR with the majority decision insofar as it held that -
curiae, stressed that among the internal measures that the members of Congress could make to
address the situation are: (1) attempts to encourage the signatories of the impeachment (a) Petitioners in all the above-captioned cases, except Atty. Dioscoro U. Vallejos, Jr. in G.R.
complaint to withdraw their signatures; (2) the raising by the members of Congress themselves No. 160397, have legal standing to institute these petitions; and
of the Constitutional questions when the Articles of Impeachment are presented in plenary
session on a motion to transmit them to the Senate, as required by Section 15, paragraph 2 of the (b) The constitutionality of the second impeachment complaint filed by Representatives
House Rules; and (3) assuming the Articles of Impeachment are transmitted to the Senate, Chief Gilberto C. Teodoro, Jr. and Felix William B. Fuentebella against Chief Justice Hilario G.
Justice Davide could conceivably raise the same Constitutional issues by way of a motion to Davide, Jr. is a justiciable issue which this Court may take cognizance of.
dismiss or motion to quash.[11]
However, I vote that this Court must observe judicial self-restraint at this time and DISMISS the
Clearly, the unfinished business and loose ends at the House of Representatives and in the instant petitions.
Senate, as well as the simmering forces outside of the halls of government could all preempt any
[16]Planas v. Gil, 67 Phil. 62, 73 (1939), cited in Guingona v. Court of Appeals, G.R. 125532,
10 July 1998, 292 SCRA 402.
[1] Avelino v. Cuenco, 83 Phil 17 (1949); Araneta v. Dinglasan, 84 Phil. 368 (1949);.Basco v.
PAGCOR, 197 SCRA 52, May 14, 1991; Kapatiran ng Mga Naglilingkod sa Pamahalaan ng [17] Id.
Pilipinas, Inc. v. Tan, 163 SCRA 371, June 30, 1988; Tatad v. Secretary of the Department of
Energy, 281 SCRA 330, 349 (1997) citing Garcia v. Executive Secretary, 211 SCRA 219 (1992); [18]
Osmeña v. COMELEC, 199 SCRA 750 (1991); Chavez v. Presidential Commission on Good Angara v. Electoral Commission, supra, cited in Guingona v. Court of Appeals, supra.
Government, 299 SCRA 744 (1998); Chavez v. PEA-Amari Coastal Bay Development
Corporation, G.R. No. 133250, 9 July 2002.
[2]Chavez v. Presidential Commission on Good Government, G.R. No. 130716, December 9, SEPARATE AND CONCURRING OPINION
1998.
SANDOVAL-GUTIERREZ, J.:
[3] Lopez, et al. v. Philippine International Air Terminals, Co., Inc., et al., G.R. No. 155661,
May 5, 2003 citing Association of Small Landowners in the Philippines, Inc. vs. Secretary of Never before in the 102-year existence of the Supreme Court has there been an issue as
Agrarian Reform, G. R. No. 78742, July 14, 1989; 175 SCRA 343, 364-365 [1989], see also transcendental as the one before us. For the first time, a Chief Justice is subjected to an
Integrated Bar of the Philippines v. Zamora, et al., G.R. No. 141284, August 15, 2000. impeachment proceeding. The controversy caused people, for and against him, to organize and
join rallies and demonstrations in various parts of the country. Indeed, the nation is divided
[4] Estrada v. Arroyo, G.R. No. 146738, 2 March 2001. which led Justice Jose C. Vitug to declare during the oral arguments in these cases, "God save
our country!"
[5]Concurring opinion of Justice Vitug in the case of Arroyo v. De Venecia, G.R. No. 127255, The common thread that draws together the several petitions before this Court is the issue of
14 August 1997 whether the second impeachment complaint against Chief Justice Hilario G. Davide, Jr.
contravenes Section 3 (5), Article XI of the 1987 Constitution, providing that "no
[6] Angara v. Electoral Commission, 63 Phil 139, 158 (1936). impeachment proceedings shall be initiated against the same official more than once
within a period of one year."
[7] Filoteo, Jr. v. Sandiganbayan, G.R. No. 79543, 16 October 1996, 263 SCRA 222, 268.
The antecedents are simple. On June 2, 2003, deposed President Joseph E. Estrada filed with the
[8] House of Representatives an impeachment complaint against Chief Justice Davide and seven (7)
Cebu Stevedoring Co., Inc. v. Regional Director / Minster of Labor, G.R. No. L-54285, 8
other Justices of this Court, alleging inter alia that they conspired to deprive him of his mandate
December 1988, 168 SCRA 315, at 321.
as President. On October 22, 2003, the House Committee on Justice dismissed the complaint for
insufficiency of substance. Pursuant to the Constitution, the House of Representatives in plenary
[9] Constitution, Art. III, Sec. 1. session has still to approve or disapprove the Committee's action.
[10] People v. Verra, G.R. No. 134732, 29 May 2002. The next day, on October 23, 2003, Congressmen Gilberto C. Teodoro, Jr. and Felix William B.
Fuentebella filed another impeachment complaint, this time against Chief Justice Davide alone,
[11] Memorandum as Amicus Curiae of Dean Raul C. Pangalangan, p. 19. charging him with violations of the Anti-Graft and Corrupt Practices Act and betrayal of public
trust with regard to the disposition of the Judicial Development Fund (JDF). At least one- third
[12] (1/3) of all the members of the House signed a Resolution endorsing this second impeachment
Position Paper as Amicus Curiae of Former Senate President Jovito R. Salonga, p. 13. complaint.
[13] Nixon v. U.S., 506 U.S. 224 [1993], 122 l. Ed. 2d 1 (1993). Subsequently, the instant petitions were filed with this Court alleging that the filing of the
second impeachment complaint against Chief Justice Davide violates Section 3(5), Article XI of
[14] Id. the Constitution which provides:
[15] "No impeachment proceedings shall be initiated against the same official more than once within
Sinaca v. Mula, G.R. No. 135691, 27 September 1999, 315 SCRA 266, 280. a period of one year."
broadening of judicial power to enable the courts to review what was before a forbidden
Both the Senate and the House of Representatives claimed that this Court lacks jurisdiction over territory - the discretion of the political departments of the government.[2] It speaks of judicial
the petitions. Senate President Franklin Drilon manifested that the petitions are premature since
the Articles of Impeachment have not been transmitted to the Senate. Moreover, the petitions prerogative not only in terms of power but also of duty.[3]
pose political questions which are non-justiciable.
The petitions at bar present a conflict between Sections 16 and 17 of the Rules of Procedure in
On November 5 and 6, 2003, this Court heard the petitions on oral argument: Present were the Impeachment Proceedings, promulgated by the present Congress of the Philippines, and Section
amici curiae appointed by this Court earlier, namely: Former Senate President Jovito R. 3(5), Article XI of the Constitution. Is this conflict a justiciable issue?
Salonga, former Constitutional Commissioner Joaquin G. Bernas, Justice Hugo E. Gutierrez, Jr.,
former member of this Court, former Minister of Justice and Solicitor General Estelito P. Justiciability, is different from jurisdiction. Justiciability refers to the suitability of a dispute for
Mendoza, Court of Appeals Justice Regalado E. Maambong, former Constitutional a judicial resolution, while jurisdiction refers to the power of a court to try and decide a case. As
Commissioner, Dean Raul C. Pangalangan, and former Dean Pacifico A. Agabin of the UP earlier mentioned, the basic issue posed by the instant petitions is whether the second
College of Law. impeachment complaint against Chief Justice Hilario G. Davide violates the Constitutional
provision that "no impeachment proceedings shall be initiated against the same official more
Crucial to the determination of the constitutionality of the second impeachment complaint than once within the period of one year." Obviously, this is a justiciable issue. Chief Justice
against Chief Justice Davide are three (3) fundamental issues indicated and discussed below: Davide, under the Constitution, should not be subjected to a second impeachment proceedings.
Thus, on the face of the petitions, he has a right to be protected by the courts.
I - Whether this Court has
jurisdiction over the petitions. May this Court assume jurisdiction over this justiciable issue? Justice Isagani A. Cruz aptly
wrote that "A judgment of the Congress in an impeachment proceeding is normally not subject
to judicial review because of the vesture in the Senate of the "sole power to try and decide all
One cornerstone of judicial supremacy is the two-century old case of Marbury vs. Madison. [1] cases of impeachment." x x x But the courts may annul the proceedings if there is a showing
There, Chief Justice John Marshall effectively carried the task of justifying the judiciary's power of a grave abuse of discretion committed by the Congress or of non-compliance with the
of judicial review. Cast in eloquent language, he stressed that it is "the province and duty of the procedural requirements of the Constitution, as where the charges are instituted without a
judicial department to say what the law is." In applying the rule to particular cases, the verified complaint, or by less than one-third of all the members of the House of
judiciary "must of necessity expound and interpret that rule ." If two laws conflict with each Representatives, or where the judgment of conviction is supported by less than a two-
other, "the courts must decide on the operation of each." It further stressed that "if a law be in
opposition to the Constitution, if both the law and the Constitution apply to a particular case, the thirds vote in the Senate."[4] He further wrote that the power to impeach is essentially a non-
court must decide the case conformably to the Constitution disregarding the law. This is of legislative prerogative and can be exercised by the Congress only within the limits of the
the very essence of judicial duty." authority conferred upon it by the Constitution.[5]
In our shore, the 1987 Constitution is explicit in defining the scope of judicial power. Section 1, The case of Romulo vs. Yñiguez,[6] supports such a view. In this case, this Court initially took
Article VIII provides: cognizance of the petition filed by Alberto G. Romulo, et al., in view of the latter's claim that
the Rules of Procedure in Impeachment Proceedings are unconstitutional, implying that the
"Section 1. The judicial power shall be vested in one Supreme Court and in such Batasan, in the exercise of its powers, transgressed the Constitution. This, according to the
lower courts as may be established by law. Court is "certainly a justiciable question."
"Judicial power includes the duty of the courts of justice to settle actual
controversies involving rights which are legally demandable and enforceable, and to Corollarily, in Santiago vs. Guingona, Jr.,[7] this Court assumed jurisdiction over a petition
determine whether or not there has been a grave abuse of discretion amounting to alleging that the Constitution has not been observed in the selection of the Senate Minority
lack or excess of jurisdiction on the part of any branch or instrumentality of Leader. This Court held that "jurisdiction over the subject matter of a case is determined by the
Government." allegations of the complaint or petition, regardless of whether the plaintiff or petitioner is
entitled to the relief asserted. In light of the allegation of petitioners, it is clear that this Court
The above provision fortifies the authority of the courts to determine in an appropriate action has jurisdiction over the petition. It is well within the power and jurisdiction of the Court to
the validity of the acts of the political departments. Under the new definition of judicial power, inquire whether indeed the Senate or its officials committed a violation of the Constitution
the courts are authorized not only "to settle actual controversies involving rights which are or gravely abused their discretion in the exercise of their functions and prerogatives." In
legally demandable and enforceable," but also "to determine whether or not there has been a Montesclaros vs. Commission on Elections,[8] this Court ruled that "absent a clear violation of
grave abuse of discretion amounting to lack or excess of jurisdiction on the part of any specific constitutional limitations or of constitutional rights of private parties, the Court cannot
branch or instrumentality of the government." The latter part of the authority represents a exercise its power of judicial review over the internal processes or procedures of Congress."

Stated in converso, the Court can exercise its power of judicial review over the internal under the unusual circumstances associated with the issues raised, this Court should not shirk
processes or procedures of Congress when there exists a clear violation of the Constitution. from its duty.
Also, in Arroyo vs. De Venecia,[9] this Court, through Justice Vicente V. Mendoza (now
retired), declared that we have no more power to look into the internal proceedings of a House One final note on jurisdiction and self-restraint.
than Members of that House have to look over our shoulders, as long as no violation of
constitutional provisions is shown. There being a clear constitutional infringement, today is an appropriate occasion for judicial
activism. To allow this transcendental issue to pass into legal limbo would be a clear case of
In fine, while our assumption of jurisdiction over the present petitions may, at first view, be misguided judicial self-restraint. This Court has assiduously taken every opportunity to maintain
considered by some as an attempt to intrude into the legislature and to intermeddle with its the constitutional order, the distribution of public power, and the limitations of that power.
prerogatives, however, the correct view is that when this Court mediates to allocate Certainly, this is no time for a display of judicial weakness.
constitutional boundaries or invalidates the acts of a coordinate body, what it is upholding
While the power to initiate all cases of impeachment is regarded as a matter of "exclusive"
is not its own supremacy but the supremacy of the Constitution.[10] If the branches are concern only of the House of Representatives, over which the other departments may not
interdependent, each must have a place where there is finality, an end to discussion, a exercise jurisdiction by virtue of the separation of powers established by the fundamental law, it
conclusion. If all three branches are faced with the same question, and if they differ, all three does not follow that the House of Representatives may not overstep its own powers defined
cannot prevail - one must be given way to. Otherwise there will be unresolved conflict and and limited by the Constitution. Indeed, it cannot, under the guise of implementing its Rules,
confusion. This may be intolerable in situations where there has to be action. Owing to the transgress the Constitution, for when it does, its act immediately ceases to be a mere internal
nature of the conflict, the duty necessarily redounds to the judiciary. concern.
II - Should this Court exercise Surely, by imposing limitations on specific powers of the House of Representatives, a fortiori,
self-restraint? the Constitution has prescribed a diminution of its "exclusive power." I am sure that the
honorable Members of the House who took part in the promulgation and adoption of its internal
Confronted with an issue involving constitutional infringement, should this Court shackle its rules on impeachment did not intend to disregard or disobey the clear mandate of the
hands under the principle of judicial self-restraint? The polarized opinions of the amici curiae Constitution - the law of the people. And I confidently believe that they recognize, as fully as
is that by asserting its power of judicial review, this Court can maintain the supremacy of the this Court does, that the Constitution is the supreme law of the land, equally binding upon every
Constitution but at the same time invites a disastrous confrontation with the House of branch or department of the government and upon every citizen, high or low.
Representatives. A question repeated almost to satiety is - what if the House holds its ground
and refuses to respect the Decision of this Court? It is argued that there will be a Constitutional It need not be stressed that under our present form of government, the executive, legislative and
crisis. Nonetheless, despite such impending scenario, I believe this Court should do its duty judicial departments are coequal and co-important. But it does not follow that this Court, whose
mandated by the Constitution, seeing to it that it acts within the bounds of its authority. Constitutional primary duty is to interpret the supreme law of the land, has not the power to
declare the House Rules unconstitutional.
The 1987 Constitution speaks of judicial prerogative not only in terms of power but also of
duty. [11] As the last guardian of the Constitution, the Court's duty is to uphold and defend it at Of course, this Court will not attempt to require the House of Representatives to adopt a
all times and for all persons. It is a duty this Court cannot abdicate. It is a mandatory and particular action, but it is authorized and empowered to pronounce an action null and void if
inescapable obligation - made particularly more exacting and peremptory by the oath of each found to be contrary to the provisions of the Constitution.
member of this Court.[12] Judicial reluctance on the face of a clear constitutional transgression
may bring about the death of the rule of law in this country. This Court will not even measure its opinion with the opinion of the House, as expressed in its
internal rules. But the question of the wisdom, justice and advisability of its particular act must
Yes, there is indeed a danger of exposing the Court's inability in giving efficacy to its judgment. be tested by the provisions of the Constitution. And if its act is then held illegal by this Court,
But is it not the way in our present system of government? The Legislature enacts the law, the it is not because it has any control over Congress, particularly the House of
Judiciary interprets it and the Executive implements it. It is not for the Court to withhold its Representatives, but because the act is forbidden by the fundamental law of the land and
judgment just because it would be a futile exercise of authority. It should do its duty to the will of the people, declared in such fundamental law, which is paramount and must be
interpret the law. Alexander Hamilton, in impressing on the perceived weakness of the obeyed by every citizen, even by Congress.
judiciary, observed in Federalist No. 78 that "the judiciary [unlike the executive and the
legislature] has no influence over either the sword or the purse, no direction either of the At this point, I must emphasize that the jurisdiction of this Court is over the alleged
strength or of the wealth of society, and can take no active resolution whatever. It may truly be unconstitutional Rules of the House, not over the impeachment proceedings.
said to have neither Force nor Will, but merely judgment; and must ultimately depend
upon the aid of the executive arm even for the efficacy of its judgments." Nonetheless, III - Whether the filing of the
second impeachment is
unconstitutional. one-third (1/3) of all the Members of the House, impeachment proceedings are deemed
initiated at the time of the filing of the verified complaint or resolution with the Secretary
Section 3 (5), Article XI of the 1987 Constitution provides: General.
"No impeachment proceeding shall be initiated against the same official more than The House Rules deviate from the clear language of the Constitution and the intent of its
once within a period of one year." Framers. The Rules infuse upon the term "initiate" a meaning more than what it actually
connotes.
Petitioners contend that the filing of the second impeachment complaint against Chief Justice
Davide contravenes the above provision because it was initiated within one (1) year from the The ascertainment of the meaning of the provision of the Constitution begins with the
filing of the first impeachment complaint against him and seven (7) Associate Justices. Several
language of the document itself.[14] The words of the Constitution should as much as possible
of the amici curiae support petitioners' contention. However, the others argue otherwise, saying
that the first impeachment complaint cannot be considered as having been "initiated" because it be understood in the sense they have in common use and given their ordinary meaning. [15] In
failed to obtain the endorsement of at least one-third (1/3) of all the Members of the House. This other words, the plain, clear and unambiguous language of the Constitution should be
brings us to the vital question, when are impeachment proceedings considered initiated? understood in the sense it has in common use.[16] The reason for this is because the
Constitution is not primarily a lawyer's document but essentially that of the people, in
The House Rules of Procedure in Impeachment Proceedings provide the instances when whose consciousness it should ever be present as an important condition for the rule of law
impeachment proceedings are deemed initiated, thus:
to prevail. [17] Black's Law Dictionary defines "initiate" as "commence," "start," "originate" or
"BAR AGAINST INITIATION OF IMPEACHMENT PROCEEDINGS "introduce,"[18] while Webster's Dictionary[19] defines it as "to do the first act;" "to perform the
AGAINST THE SAME OFFICIAL first rite;" "beginning;" or "commence." It came from the Latin word "initium," meaning "a
beginning." Using these definitions, I am convinced that the filing of the verified complaint and
"SEC. 16. Impeachment Proceedings Deemed Initiated. In cases where a Member of its referral to the Committee on Justice constitute the initial step. It is the first act that starts
the House files a verified complaint of impeachment or a citizen files a verified the impeachment proceeding. Fr. Joaquin G. Bernas, S.J., an amicus curiae, explains
complaint that is endorsed by a Member of the House through a resolution of convincingly that the term "proceeding," which is the object of the term "initiated" in Section 3
endorsement against an impeachable officer, impeachment proceedings against (5), Article XI, is a progressive noun that has a beginning, a middle, and an end, thus:
such official are deemed initiated on the day the Committee on Justice finds
that the verified complaint and/or resolution against such official, as the case "It [proceeding] consists of several steps.
may be, is sufficient in substance or on the date the House votes to overturn or
affirm the finding of the said Committee that the verified complaint and/or "First, there is the filing of a verified complaint either by a Member of the House or
resolution, as the case may be, is not sufficient in substance. by a private citizen endorsed by a Member of the House.
"In cases where a verified complaint or a resolution of impeachment is filed or "Second, there is the processing of this complaint by the proper Committee. In this
endorsed, as the case may be, by at least one-third (1/3) of the Member of the step, the Committee either rejects the complaint or upholds it.
House, impeachment proceedings are deemed initiated at the time of the filing
of such verified complaint or resolution of impeachment with the Secretary "Third, whether the resolution of the Committee rejects or upholds the complaint, the
General. resolution must be forwarded to the House for further processing.
"SEC. 17. Bar against Initiation of Impeachment Proceedings. - Within a period of "Fourth, there is the processing of the same complaint by the House of
one (1) year from the date impeachment proceedings are deemed initiated as Representatives. The House either affirms a favorable resolution of the Committee
provided in Section 16 hereof, no impeachment proceedings, as such, can be or overrides a contrary resolution by a vote of one third of all the members.
initiated against the same official."
"Now we ask, at what stage is the ìmpeachment proceeding' initiated?
Under the above Rules, when the verified impeachment complaint is filed by a Member of the
House or by a citizen (through a resolution of endorsement by a Member of the House), "Not when the complaint is transmitted to the Senate for trial, because that is the end
impeachment proceedings are deemed initiated either (a) on the day the Committee on Justice of the House proceeding and the beginning of another proceeding, namely the trial.
finds that the verified complaint and/or resolution is sufficient in substance; or (b) on the date
the House, through a vote of one-third (1/3),[13] overturns or affirms the finding of the "Not when the House deliberates on the resolution passed on to it by the Committee,
Committee on Justice that the verified complaint and/or resolution is not sufficient in substance. because something prior to that has already been done. The action of the House is
However, when the verified impeachment complaint or resolution is filed or endorsed by at least already a further step in the proceeding, not the initiation or beginning.
MR. NATIVIDAD. To initiate is different from to impeach; to impeach is different

"Rather, the proceeding is initiated or begins, when a verified complaint is filed from to convict. To impeach means to file the case before the Senate.
and referred to the Committee on Justice for action. This is the initiating step
which triggers the series of steps that follow." MR. REGALADO. When we speak of ìnitiative,' we refer here to the Articles of
Impeachment.
The Records of the 1986 Constitutional Commission support the foregoing theory. The term
"initiate" pertains to the initial act of filing the verified complaint and not to the finding of the MR. NATIVIDAD. So, that is the impeachment itself, because when we impeach,
Committee on Justice that the complaint and/or resolution is sufficient in substance or to the we are charging him with the Articles of Impeachment. That is my understanding.
obtention of the one-third (1/3) vote of all the Members of the House as provided by the House
Rules. Justice Maambong, then a member of the 1986 Constitutional Commission, explained xxxxxx
that "initiation starts with the filing of the complaint." As early as the deliberation stage in
the Constitutional Commission, the meaning of the term "initiate" was discussed. Then MR. BENGZON. Mr. Presiding Officer, may we request that Commissioner
Commissioner Maambong sought the deletion of the phrase "to initiate impeachment Maambong be recognized.
proceedings" in Section 3 (3) of Article XI[20] to avoid any misconception that the obtention of
one-third (1/3) of all the Members of the House is necessary to "initiate" impeachment THE PRESIDING OFFICER (Mr. Treñas). Commissioner Maambong is
proceedings. recognized.
Apparently, Commissioner Maambong was very careful not to give the impression that MR. MAAMBONG. Mr. Presiding Officer, I am not moving for a reconsideration of
"initiation" is equivalent to "impeachment" proper. He stressed that it was the latter which the approval of the amendment submitted by Commissioner Regalado, but I will just
requires the approval of one-third (1/3) of all the Members of the House. According to him, as make of record my thinking that we do not really initiate the filing of the Articles of
the phraseology of Section 3 (3) runs, it seems that the initiation starts only on the floor. This Impeachment on the floor. The procedure, as I have pointed out earlier, was that
prompted him to utter: "x x x I will just make of record my thinking that we do not really the initiation starts with the filing of the complaint. And what is actually done on
initiate the filing of the Articles of Impeachment on the floor. The procedure, as I have the floor is that the committee resolution containing the Articles of Impeachment is
pointed out earlier, was that the initiation starts with the filing of the complaint. And what the one approved by the body.
is actually done on the floor is that the committee resolution containing the Articles of
Impeachment is the one approved by the body." That Commissioner Maambong gained the As the phraseology now runs, which may be corrected by the Committee on Style, it
concurrence of the Framers of the 1987 Constitution with regard to the rationale of his proposed appears that the initiation starts on the floor. If we only have time, I could cite
amendment is shown by the fact that nobody objected to his proposal and it is his amended examples in the case of the impeachment proceedings of president Richard Nixon
version which now forms part of the Constitution. We quote the pertinent portions of the wherein the Committee on the Judiciary submitted the recommendation, the
deliberation, thus: resolution, and the Articles of Impeachment to the body, and it was the body who
approved the resolution. It is not the body which initiates it. It only approves or
"MR. NATIVIDAD. May we have the amendment stated again, so we can disapproves the resolution. So, on that score, probably the Committee on Style
understand it. Will the proponent please state the amendment before we vote? could help rearranging these words because we have to be very technical about this.
I have been bringing with me the Rules of the House of Representatives of the U.S.
MR. REGALADO. The amendment is on Section 3 (3) which shall read as Congress. The Senate Rules are with me. The proceedings on the case of Richard
follows: Nixon are with me. I have submitted my proposal, but the Committee has already
decided. Nevertheless, I just want to indicate this on record.
À VOTE OF AT LEAST ONE-THIRD OF ALL THE MEMBERS OF
THE HOUSE SHALL BE NECESSARY TO INITIATE Thank you, Mr. Presiding Officer.
IMPEACHMENT PROCEEDINGS, EITHER TO AFFIRM A
RESOLUTION OF IMPEACHMENT BY THE COMMITTEE OR TO xxxxxx
OVERRIDE ITS CONTRARY RESOLUTION. THE VOTES OF EACH
MEMBER SHALL BE RECORDED.' MR. MAAMBONG. I would just like to move for a reconsideration of the approval
of Section 3 (3). My reconsideration will not at all affect the substance, but it is only
MR. NATIVIDAD. How many votes are needed to initiate? in keeping with the exact formulation of the Rules of the House of Representatives
of the United States regarding impeachment.
MR. BENGZON. One-third.
I am proposing, Madam President, without doing damage to any of this provision,
that on page 2, Section 3 (3), from lines 17 to 18, we delete the words which read:
`to initiate impeachment proceedings' and the comma (,) and insert on line 19 after the people, in ratifying the Constitution, were guided mainly by the explanation offered by the
the word `resolution' the phrase WITH THE ARTICLES, and then capitalize the Framers.[22] In Gold Creek Mining Corp. vs. Rodriguez,[23] the Court, speaking through Mr.
letter ì' in ìmpeachment' and replace the word `by' with OF, so that the whole Justice (later, Chief Justice) Jose Abad Santos ruled:
section will now read: À vote of at least one-third of all the Members of the House
shall be necessary either to affirm a resolution WITH THE ARTICLES of "The fundamental principle of constitutional construction is to give effect to the
Impeachment OF the Committee or to override its contrary resolution. The vote of intent of the framers of the organic law and of the people adopting it. The intention
each member shall be recorded.' to which force is to be given is that which is embodied and expressed in the
constitutional provisions themselves."
I already mentioned earlier yesterday that the initiation, as far as the House of
Representatives of the United States is concerned, really starts from the filing of The Court thus construes the applicable constitutional provisions, not in accordance with
the verified complaint and every resolution to impeach always carries with it the how the executive or the legislative department may want them construed, but in
Articles of Impeachment. As a matter of fact, the words, Àrticles of Impeachment' accordance with what they say and provide.
are mentioned on line 25 in the case of the direct filing of a verified complaint of
one-third of all the members of the House. I will mention again, Madame President, It has also been said that a provision of the Constitution should be construed in light of the
that my amendment will not vary the substance in any way. It is only in keeping with objectives it sought to achieve. Section 3 (5), Article XI, also referred as the "anti-harassment
the uniform procedure of the House of Representatives of the United States clause," was enshrined in the Constitution for the dual objectives of allowing the legislative
Congress. body to concentrate on its function which is lawmaking and protecting public officials from
harassment, thus:
Thank you, Madam President.
"MR. VILLACORTA. Madam President, I would just like to ask the Committee
xxxxxx three questions.
THE PRESIDENT. Let us first submit to the body the motion of Commissioner "On Section 3, page 2, lines 12 to 14, the last paragraph reads as follows: ` No
Maambong to reconsider the approval of Section 3 (3). impeachment proceedings shall be initiated against the same official more than
once within a period of one year.' Does this mean that even if an evidence is
Is there any objection? (silence) The chair hears none; the motion is approved. discovered to support another charge or ground for impeachment, a second or
subsequent proceeding cannot be initiated against the same official within a period
The proposed amendment which has been submitted by Commissioner Maambong of one year? In other words, one year has to elapse before a second or subsequent
was clarified and has been accepted by the Committee on Accountability of Public charge or proceeding can be initiated. The intention may be to protect the public
Officers. official from undue harassment. On the other hand, is this not undue limitation on
the accountability of public officers? Anyway, when a person accepts a public trust,
MR. MAAMBONG. Madam President, May I read again the whole section? does he not consider taking the risk of accounting for his acts or misfeasance in
office?
THE PRESIDENT. Please proceed.
"MR. ROMULO. Yes, the intention here really is to limit. This is not only to
MR. MAAMBONG. As amended, the whole Section 3 (3) will read: À vote of protect public officials who, in this case, are of the highest category from
at least one-third of all the Members of the House shall be necessary either to harassment but also to allow the legislative body to do its work which is
affirm a resolution WITH THE ARTICLES OF Impeachment OF the lawmaking. Impeachment proceedings take a lot of time. And if we allow
Committee or to override its contrary resolution. The vote of each member multiple impeachment charges on the same individual to take place, the
shall be recorded.' legislature will do nothing else but that."
THE PRESIDENT. Is there any objection to this proposed amendment? ( For one, if we construe the term "initiate" as referring to the obtention of one-third (1/3) votes
of all the Members of the House or to the date when the Committee on Justice rules that the
Silence) The Chair hear none, the amendment is approved." [21] (Underscoring
complaint is sufficient in substance, are we not losing sight of the fact that much time has
supplied)
already been wasted by the House? The getting hold of the one-third (1/3) vote is almost the
The clear intent of the Framers of our Constitution should be given weight. The primary task in last step necessary for the accused officer to be considered successfully impeached. The
constitutional construction is to ascertain and thereafter assure the realization of the purpose of process is almost complete insofar as the House is concerned. The same is true with respect
the Framers and of the people in the adoption of the Constitution. It may be safely assumed that to the proceedings in the Committee on Justice. The hearing, voting and reporting of its
resolution to the House definitely take away much of the Members' precious time. Now, if
impeachment complaints are only deemed "initiated" during those phases, then the object of Congressmen, only two, Teodoro and Fuentebella, actually signed and verified it. What the rest
allowing the legislature to concentrate on its functions cannot really be achieved. Obviously, verified is the Resolution of Endorsement. The verification signed by the majority of the
impeachment is a long process. To be sure, instead of acting as a legislative body, the House Congressmen states: "We are the proponents/sponsors of the Resolution of Endorsement of the
will be spending more time as a prosecutorial body. abovementioned Complaint of Representatives Gilberto C. Teodoro, Jr. and Felix William B.
Fuentebella x x x."[24] However, this defect is not for this Court to correct considering that it is
For another, to let the accused official go through the above phases is to subject him to an incident of the impeachment process solely cognizable by the legislature.
additional harassment. As the process progresses, the greater is the harassment caused to the
official. One glaring illustration is the present case. It may be recalled that the first impeachment IV - Whether petitioners have
complaint against Chief Justice Davide was referred to the Committee on Justice. On October locus standi to bring the
22, 2003, the Committee dismissed the complaint for being insufficient in form and substance. present suits.
The very next day and while the Committee was yet to make a report to the House,
Congressmen Teodoro and Fuentebella immediately filed the second impeachment complaint It is contended that petitioners have no legal standing to institute the instant petitions because
against the Chief Justice. In short, while the first impeachment complaint was not yet fully they do not have personal and substantial interest in these cases. In fact, they have not sustained
disposed of, the Chief Justice was being charged again in another complaint. This is the or will suffer direct injury as a result of the act of the House of Representatives being
very situation proscribed by the Constitution. Verily, it inflicts undue strain and harassment challenged. It is further argued that only Chief Justice Davide has such interest in these cases.
upon officials who are saddled with other pressing responsibilities. But he has not challenged the second impeachment complaint against him.
Another constitutional objection to the second impeachment complaint raised by petitioners is It would be an unseemly act for the Chief Justice to file a petition with this Court where he is
the fact that only Congressmen Teodoro and Fuentebella signed it. According to them, this primus inter pares. "Delicadeza" and the Rules require him not only to inhibit himself from
violates Section 3 (4), Article XI of the Constitution which provides: participating in the deliberations but also from filing his own petition. Fortunately, there are
persons equally interested in the cause for which he is fighting. I believe that the locus standi
"(4) In case the verified complaint or resolution of impeachment is filed by at doctrine is not impaired in these petitions.
least one-third (1/3) of all the Members of the House, the same shall constitute
the Articles of Impeachment, and trial by the Senate shall forthwith proceed." The petitioners have the legal standing to file the present petitions.
Following the above provision, what should have been filed by at least one- third (1/3) of all the
No less than two members of the House of Representatives, namely, Deputy Speaker Raul M.
Members of the House is a verified complaint or resolution of impeachment. Even Section
Gonzales and Congressman Salacnib F. Baterina are among the petitioners in these cases. They
15 of the House Rules reechoes the above Constitutional mandate, thus:
alleged in their petition that the Constitution reserves to their Chamber, whether acting as a
"SEC. 15. Endorsement of the Complaint/Resolution to the Senate. - A verified whole or through its members or Committees, the authority to initiate impeachment
complaint or a resolution of impeachment signed by at least one-third (1/3) of all the proceedings. As members of the House, "they have the legal interest in ensuring that only
Members of the House shall constitute the Articles of Impeachment and shall be impeachment proceedings that are in accord with the Constitution are initiated. Any illegal act
filed with the Secretary General. The complaint/resolution must, at the time of of the House or its members or Committees pertaining to an impeachment will reflect adversely
filing, be verified and sworn to before the Secretary General by each of the on them because such act will be deemed an act of the House. Thus they have the right to
Members who constitute at least one-third (1/3) of all the Members of the question the constitutionality of the second impeachment complaint against the Chief Justice, an
House. The contents of the verification shall be as follows: event of transcendental national concern."[25] They further alleged that it would be futile for
them to seek relief in their Chamber prior to the filing of their petition because the Articles of
"We, after being sworn in accordance with law, depose and state: That we are the Impeachment, based on the constitutionally infirm second impeachment complaint, will be
complainants/signatories in the above-entitled complaint/resolution of impeachment; transmitted to the Senate at their next session. Necessarily, the House will disburse public
that we have caused the said complaint/resolution to be prepared and have read the funds amounting to millions of pesos for the prosecution, as in the case of the impeachment
contents thereof; and that the allegations therein are true of our own knowledge and of former President Joseph Ejercito Estrada. Consequently, they stressed they have the standing
belief on the basis of our reading and appreciation of documents and other records to file a petition "to stop the illegal disbursement of public funds for an illegal act."[26]
pertinent thereto."
The rest of the petitioners, most of whom are members of the Integrated Bar of the Philippines,
Clearly, the requirement is that the complaint or resolution must at the time of filing be similarly contend that as citizens and taxpayers they have the legal standing to bring these suits.
verified and sworn to before the Secretary General of the House by each of the members They assert that it is their right and duty to see to it that the acts of their public officials should
who constitute at least one-third (1/3) of all the Members of the House. be in accordance with what the Constitution says and that public funds are not spent for an
unconstitutional act.
A reading of the second impeachment complaint shows that of the eighty-one (81)
Indeed, the present suits involve matters of first impression and of immense importance to the Further, in Albano vs. Reyes,[31] we said that while expenditure of public funds may
public considering that, as previously stated, this is the first time a Chief Justice of the Supreme not have been involved under the questioned contract for the development,
Court is being subjected to an impeachment proceeding which, according to petitioners, is management and operation of the Manila International Container Terminal, `public
prohibited by the Constitution. Obviously, if such proceeding is not prevented and nullified, interest [was] definitely involved considering the important role [of the subject
public funds amounting to millions of pesos will be disbursed for an illegal act. Undoubtedly, contract]... in the economic development of the country and the magnitude of the
this is a grave national concern involving paramount public interest. The petitions are properly financial consideration involved.' We concluded that, as a consequence, the
instituted to avert such a situation. disclosure provision in the Constitution would constitute sufficient authority for
upholding the petitioner's standing."
In Chavez vs. Public Estates Authority,[27] citing Chavez vs. PCGG,[28] we upheld the right of a
citizen to bring a taxpayer's suit where, as here, the issues raised are of transcendental This Court has adopted a liberal stance on the locus standi of a petitioner where he is able to
importance to the public, thus: craft an issue of transcendental significance to the people. In Tatad vs. Secretary of the
Department of Energy, [32] Justice Reynato S. Puno aptly emphasized:
"Besides, petitioner emphasizes, the matter or recovering the ill-gotten wealth of the
Marcoses is an issue of `transcendental importance to the public.' He asserts that "x x x Respondents further aver that petitioners have no locus standi as they did not
ordinary taxpayers have a right to initiate and prosecute actions questioning the sustain nor will they sustain direct injury as a result of the implementation of R.A.
validity of acts or orders of government agencies or instrumentalities, if the issues No. 8180.
raised are of `paramount public interest,' and if they ìmmediately affect the social,
economic and moral well being of the people. xxxxxx
Moreover, the mere fact that he is a citizen satisfies the requirement of personal The effort of respondents to question the locus standi of petitioners must also fall on
interest, when the proceeding involves the assertion of a public right, such as in this barren ground. In language too lucid to be misunderstood, this Court has brightlined
case. He invokes several decisions of this Court which have set aside the procedural its liberal stance on a petitioner's locus standi where the petitioner is able to craft an
matter of locus standi, when the subject of the case involved public interest. issue of transcendental significance to the people. In Kapatiran ng mga Naglilingkod
sa Pamahalaan ng Pilipinas, Inc. vs. Tan (163 SCRA 371 [1988]), we stressed:
xxxxxx
`x x x
Indeed, the arguments cited by petitioners constitute the controlling decisional rule
as regards his legal standing to institute the instant petition. x x x Objections to taxpayers' suit for lack of sufficient personality, standing or interest
are, however, in the main procedural matters. Considering the importance to the
In Tañada vs. Tuvera, [29] the Court asserted that when the issue concerns a public public of the cases at bar, and in keeping with the Court's duty, under the 1987
right and the object of mandamus is to obtain the enforcement of a public duty, the Constitution, to determine whether or not the other branches of government have
people are regarded as the real parties in interest; and because it is sufficient that kept themselves within the limits of the Constitution and the laws and that they have
petitioner is a citizen and as such is interested in the execution of the laws, he need not abused the discretion given to them, the Court has brushed aside technicalities of
not show that he has any legal or special interest in the result of the action. In the procedure and has taken cognizance of these petitions.'"
aforesaid case, the petitioners sought to enforce their right to be informed on matters
of public concern, a right then recognized in Section 6, Article IV of the 1973
Constitution, in connection with the rule that laws in order to be valid and WHEREFORE, I vote to GRANT the petitions and to declare Sections 16 and 17 of the House
enforceable must be published in the Official Gazette or otherwise effectively Rules of Procedure in Impeachment Proceedings. UNCONSTITUTIONAL.
promulgated. In ruling for the petitioners' legal standing, the Court declared that the
right they sought to be enforced ìs a public right recognized by no less than the
fundamental law of the land.'
[1] 1 Cranch 137 [1803].
Legaspi vs. Civil Service Commission,[30] while reiterating Tañada, further declared
[2] Cruz, Philippine Political Law, 1989 Ed. at 217.
that `when a mandamus proceeding involves the assertion of a public right, the
requirement of personal interest is satisfied by the mere fact that petitioner is a
citizen and, therefore, part of the general `public' which possesses the right. [3] Santiago vs. Guingona, Jr., G.R. No. 134577, November 18, 1998, 298 SCRA 756.

[4] Cruz, Philippine Political Law, 1989 Ed. at 320. 1970, 31 SCRA 413.
[5] [15] Ordillo vs. Commission on Elections, G.R. No. 93054, December 4, 1990, 192 SCRA 100.
Cruz, Philippine Political Law, 1989 Ed. at 314-315.
[6] [16] Occeña vs. Commission on Elections, G.R. No. L-52265, January 28, 1980, 95 SCRA 755.
G.R. No. L-71908, February 4,1986, 141 SCRA 263.
"The rules of public deliberative bodies, whether codified in the form of a 'manual' [17] Agpalo, Statutory Construction, 1995 Ed. at 344.
end formally adopted by the body, or whether consisting of a body of unwritten
customs or usages, preserved in memory and by tradition, are matters of which the [18] At 784.
judicial courts, as a general rule, take no cognizance. It is a principle of the common
law of England that the judicial courts have no conusance of what is termed the lex [19]
et consuetude parliamenti . . . And, although this doctrine is not acceded to, in this At 943.
country, to the extent to which it has gone in England, where the judicial courts have
held that they possess no jurisdiction to judge of the powers of the House of [20] Section 3(3), Article XI now reads:
Parliament, yet no authority is cited to us, and we do not believe that respectable
judicial authority exists, for the proposition that the judicial courts have power to "SEC. 3. (1) The House of Representatives shall have the exclusive power to initiate
compel legislative, or quasi-legislative bodies to proceed in the conduct of their all cases of impeachment.
deliberations, or in the exercise of their powers, in accordance with their own rules.
If the Congress of the United States disregards the constitution of the United xxx
States, or, if the legislature of one of the states disregards the constitution of the
state, or of the United States, the power resides in the judicial courts to declare (3) A vote of at least one-third of all the Members of the House shall be necessary
its enactments void. If an inferior quasi legislative body, such as the council of a either to affirm a favorable resolution with the Articles of Impeachment of the
municipal corporation, disregards its own organic law, that is, the charter of the Committee, or override its contrary resolution. The vote of each Members shall be
corporations, the judicial courts, for equal, if not for stronger reasons, possess the recorded."
same power of annulling its ordinances. But we are not aware of any judicial
authority, or of any legal principle, which will authorize the judicial courts to annul [21] Records of the Constitutional Commission, July 28, 1986 and July 29, 1986.
an act of the legislature, or an ordinance of a municipal council, merely because the
one or the other was enacted in disregard of the rules which the legislature, or the [22]
Nitafan vs. Commissioner of Internal Revenue, G.R. No. L-78780, July 23, 1987, 152
municipal council, or either house thereof, had prescribed for its own government." SCRA 284.
[7] Supra.
[23] 66 Phil. 259 (1938).
[8] G.R. No. 152295, July 9, 2002, 384 SCRA 269. [24] G.R. No. 160262, Annex "B".
[9] G.R. No. 127255, August 14, 1997, 277 SCRA 268. [25] Petition in G.R. No. 160295 at 6-7.
[10] Angara vs. Electoral Commission, 63 Phil. 139 (1936). [26]Id., citing Bugnay Construction vs. Honorable Crispin C. Laron, G.R. No. 79983, August
10, 1989, 176 SCRA 240; Kilosbayan, Inc. vs. Morato, G.R. No. 118910, November 16, 1995,
[11] Santiago vs. Guingona, Jr., supra. 250 SCRA 130; Joya vs. PCGG, G.R. No. 96541, August 24, 1993, 225 SCRA 568.
[12] Javellana vs. The Executive Secretary, G.R. No. L-36142, March 31, 1973, 50 SCRA 30. [27] G.R. No. 133250, July 9, 2002, 384 SCRA 152.
[13] Section 7 of the House Rules of Procedure in Impeachment Proceedings. [28] G.R. No. 130716, December 9, 1998, 299 SCRA 744.
[14] J.M. Tuazon & Co., Inc. vs. Land Tenure Administration, G.R. No. L-21064, February 18, [29] G.R. No. L-63915, April 24, 1985, 136 SCRA 27.
James Wilson described impeachment as "confined to political characters, to

[30] G.R. No. L-72119, May 29, 1987, 150 SCRA 530. political crimes and misdemeanors, and to political punishment." According to
Justice Joseph Story, in his Commentaries on the Constitution, in 1833,
[31] impeachment applied to offenses of a political character:
G.R. No. 83551, July 11, 1989, 175 SCRA 264.
Not but (sic) that crimes of a strictly legal character fall within the scope of the
[32] G.R. Nos. 124360 & 127867, November 5, 1997, 281 SCRA 330. power; but that it has a more enlarged operation, and reaches what are aptly termed
political offenses, growing out of personal misconduct or gross neglect, or
usurpation, or habitual disregard of the public interests, various in their character,
and so indefinable in their actual involutions, that it is almost impossible to provide
systematically for them by positive law. They must be examined upon very broad
SEPARATE OPINION and comprehensive principles of public policy and duty. They must be judged by the
habits and rules and principles of diplomacy, or departmental operations and
CORONA, J.: arrangements, of parliamentary practice, of executive customs and negotiations, of
foreign as well as domestic political movements; and in short, by a great variety of
On July 4, 1946, the flag of the United States fluttered for the last time in our skies. That day circumstances, as well as those which aggravate as those which extenuate or justify
ushered in a new period for the Philippine judiciary because, for the first time since 1521, the offensive acts which do not properly belong to the judicial character in the
judicial decisions in our country became entirely our own, free finally of the heavy influence of ordinary administration of justice, and are far removed from the reach of municipal
a colonial master and relieved of the "preferable" use of precedents set by US courts. jurisprudence.
Nevertheless, the vestiges of 50 years of American rule were not about to disappear so soon, nor
so easily. The 1935 Constitution then in force carried many provisions lifted from the US The design of impeachment is to remove the impeachable officer from office, not to
Constitution. Today we face the prospects of a constitutional crisis at whose vortex lies the punish him. An impeachable act need not be criminal. That explains why the
interpretation of certain provisions of that American-influenced Constitution. Constitution states that the officer removed shall nevertheless be subject to
prosecution in an ordinary criminal case.[4]
A defining moment in history is upon us. The Court has to speak in response to that moment
and in defense of the Constitution. Impeachment has been described as sui generis and an "exceptional method of removing
exceptional public officials (that must be) exercised by the Congress with exceptional caution."
I humbly contribute this separate opinion as a chronicle of my thoughts during our deliberations [5] Thus, it is directed only at an exclusive list of officials, providing for complex procedures,
on the petitions before us. Let it be a living testament, in the immortal words of the great Jesuit
historian Horacio de la Costa, that in this particular quest for truth and justice, we in this Court exclusive grounds and very stringent limitations. The implied constitutional caveat on
"not only played in tune but managed here and there a brief but brilliant phrase." impeachment is that Congress should use that awesome power only for protecting the welfare of
the state and the people, and not merely the personal interests of a few.
THE EXTRAORDINARY REMEDY OF IMPEACHMENT
IS INTENDED TO BE ONLY A FINAL OPTION There exists no doubt in my mind that the framers of the Constitution intended impeachment to
be an instrument of last resort, a draconian measure to be exercised only when there are no other
Incorporated in the 1987 Constitution are devices meant to prevent abuse by the three branches alternatives available. It was never meant to be a bargaining chip, much less a weapon for
of government. One is the House of Representatives' exclusive power of impeachment for the political leverage. Unsubstantiated allegations, mere suspicions of wrongdoing and other less
than serious grounds, needless to state, preclude its invocation or exercise. According to
removal of impeachable officers[1] from their positions for violating the mandate that public constitutionalist Joaquin Bernas, S.J.:
office is a public trust.
for `graft and corruption' and `betrayal of public trust' to be grounds for
Impeachment under the Philippine Constitution, as a remedy for serious political offenses impeachment, their concrete manner of commission must be of the same severity as
against the people, runs parallel to that of the U.S. Constitution whose framers regarded it as a `treason' and `bribery,' offenses that strike at the very heart of the life of the nation.
political weapon against executive tyranny. It was meant "to fend against the incapacity, [6]
negligence or perfidy of the Chief Magistrate."[2] Even if an impeachable official enjoys
immunity, he can still be removed in extreme cases to protect the public.[3] Because of its A great deal of prudence should therefore be exercised not only to initiate but also to proceed
peculiar structure and purpose, impeachment proceedings are neither civil nor criminal: with impeachment. Otherwise, the time intended for legislative work (the reason why the
Senators and the Congressmen have been elected to the legislature in the first place) is shifted to
the impeachment effort. Furthermore, since the impeachable officer accused is among the
highest officials of the land, it is not only his reputation which is at stake but also the efficient the letter. Congress, whether the enactment of statutes or its internal rules of procedure, is not
performance of his governmental functions. There is no denying that the economy suffered a exempt from the restrictions on its authority. And the Court should be ready - not to overpower
serious blow during the impeachment trial of former Joseph Estrada in 2001. Impeachment must or subdue - but simply to remind the legislative or even the executive branch about what it can
therefore be gravely reflected upon on account of its potentially destructive impact and or cannot do under the Constitution. The power of judicial review is a logical corollary of the
repercussions on the life of the nation. supremacy of the Constitution. It overrides any government measure that fails to live up to its
mandate. Thereby there is a recognition of its being the supreme law. [9]
JURISDICTION AND JUSTICIABILITY VS.
THE POLITICAL QUESTION DOCTRINE Article VIII, Section 1 of the Constitution provides:
The Court is vested power by the Constitution to rule on the constitutionality or legality of an The judicial power shall be vested in one Supreme Court and in such lower courts as
act, even of a co-equal branch. may be established by law.
Article VIII, Section 4(2) of the Constitution states: Judicial power includes the duty of the courts of justice to settle actual controversies
involving rights which are legally demandable and enforceable, and to determine
(2) All cases involving the constitutionality of a treaty, international or executive agreement, or whether or not there has been a grave abuse of discretion amounting to lack or
law, which shall be heard by the Supreme Court en banc, and all other cases which under the excess of jurisdiction on the part of any branch or instrumentality of the government.
Rules of Court are required to be heard en banc, including those involving the constitutionality,
application, or operation of presidential decrees, proclamations, orders, instructions, ordinances, Both the 1935 and the 1973 Constitutions did not have a similar provision with this unique
and other regulations, shall be decided with the concurrence of a majority of the Members who character and magnitude of application. This expanded provision was introduced by Chief
actually took part in the deliberations on the issues in the case and voted thereon. Justice Roberto C. Concepcion in the 1986 Constitutional Commission to preclude the Court
from using the political question doctrine as a means to avoid having to make decisions simply
(2) All cases involving the constitutionality of a treaty, international or executive because they may be too controversial, displeasing to the President or Congress, or inordinately
agreement, or law, which shall be heard by the Supreme Court en banc, and all other unpopular. The framers of the 1987 Constitution believed that the unrestricted use of the
cases which under the Rules of Court are required to be heard en banc, including those political question doctrine allowed the Court during the Marcos years to conveniently steer clear
involving the constitutionality, application, or operation of presidential decrees, of issues involving conflicts of governmental power or even cases where it could have been
proclamations, orders, instructions, ordinances, and other regulations, shall be decided forced to examine and strike down the exercise of authoritarian control.
with the concurrence of a majority of the Members who actually took part in the
deliberations on the issues in the case and voted thereon. Accordingly, with the needed amendment, the Court is now enjoined by its mandate from
refusing to invalidate an unauthorized assumption of power by invoking the political question
The Constitution is the basic and paramount law to which all laws, rules and regulations must doctrine. Judicial inquiry today covers matters which the Court, under previous Constitutions,
conform and to which all persons, including the highest officials of the land, must defer. Any act would have normally left to the political departments to decide. In the case of Bondoc vs.
conflicting with the Constitution must be stricken down as all must bow to the mandate of this Pineda,[10] the Court stressed:
law. Expediency is not allowed to sap its strength nor greed for power permitted to debase its
rectitude. Right or wrong, the Constitution must be upheld as long as it has not been changed by But where the political departments exceed the parameters of their authority, then the
the sovereign people lest its disregard result in the usurpation of the majesty of law by the Judiciary cannot simply bury its head ostrich- like in the sands of political question
pretenders to illegitimate power. [7] doctrine.
While it is the judiciary which sees to it that the constitutional distribution of powers among the In fact, even political questions do not prohibit the exercise of the power of judicial review for
three departments of the government is respected and observed, by no means does this mean we have already ruled that our responsibility to interpret the Constitution takes primacy over the
that it is superior to the other departments. The correct view is that, when the Court mediates to political question doctrine. In this connection, we held in Coseteng vs. Mitra[11] that:
allocate constitutional boundaries or invalidates the acts of a coordinate body, what it is
upholding is not its own supremacy but the supremacy of the Constitution. [8] Even if the question were political in nature, it would still come within our powers
of review under the expanded jurisdiction conferred upon us by Article VIII, Section
The concept of the Constitution as the fundamental law, setting forth the criterion for the 1, of the Constitution, which includes the authority to determine whether grave
validity of any public act, whether of the highest official or the lowest functionary, is a abuse of discretion amounting to excess or lack of jurisdiction has been committed
cornerstone of our democratic system. This is the rule of law. The three departments of by any branch or instrumentality of the government.
government, each discharging the specific functions with which it has been entrusted, have no
choice but to comply completely with it. Whatever limitations are imposed must be observed to
The Court is never concerned with policy matters which, without doubt, are within the exclusive which are legally demandable and enforceable" and "to determine whether or not there has been
province of the political arms of government. The Court settles no policy issues and declares a grave abuse of discretion amounting to lack or excess of jurisdiction on the part of any branch
only what the law is and not what the law ought to be. Under our system of government, policy or instrumentality of the government."
belongs to the domain of the political branches of government and of the people themselves as
the repository of all state power.[12] The Court can therefore, in certain situations provided in the Constitution itself, inquire into the
acts of Congress and the President, though with great hesitation and prudence owing to mutual
respect and comity. Among these situations, in so far as the pending petitions are concerned, are
In the landmark case of Marbury vs. Madison,[13] penned by Chief Justice John Marshall, the (1) issues involving constitutionality and (2) grave abuse of discretion amounting to lack of or
U.S. Supreme Court explained the concept of judicial power and justiciable issues: excess of jurisdiction on the part of any branch of the government. These are the strongest
reasons for the Court to exercise its jurisdiction over the pending cases before us.
So if a law be in opposition to the Constitution; if both the law and the Constitution
apply to a particular case, so that the Court must either decide the case conformably
JUDICIAL RESTRAINT OR
to the law, disregarding the Constitution; or conformably to the Constitution,
DERELICTION OF DUTY?
disregarding the law; the court must determine which of these conflicting rules
governs the case. This is of the very essence of judicial duty.
A side issue that has arisen with respect to this duty to resolve constitutional issues is the
And on the importance of our duty to interpret the Constitution, Marbury was emphatic: propriety of assuming jurisdiction because "one of our own is involved." Some quarters have
opined that this Court ought to exercise judicial restraint for a host of reasons, delicadeza
Those, then, who controvert the principle that the constitution is to be considered, in included. According to them, since the Court's own Chief Justice is involved, the Associate
court, as a paramount law, are reduced to the necessity of maintaining that the court Justices should inhibit themselves to avoid any questions regarding their impartiality and
must close their eyes on the constitution, and see only the law. neutrality.
This doctrine would subvert the very foundation of all written constitutions. It would I disagree. The Court should not evade its duty to decide the pending petitions because of its
declare that an act which, according to the principles and theory of our government, sworn responsibility as the guardian of the Constitution. To refuse cognizance of the present
is entirely void, is yet, in practice, completely obligatory. It would declare that if the petitions merely because they indirectly concern the Chief Justice of this Court is to skirt the
legislature shall do what is expressly forbidden, such act, notwithstanding the duty of dispensing fair and impartial justice. Furthermore, refusing to assume jurisdiction under
express prohibition, is in reality effectual. It would be giving to the legislature a these circumstances will run afoul of the great traditions of our democratic way of life and the
practical and real omnipotence, with the same breath which professes to restrict their very reason why this Court exists in the first place.
powers within narrow limits. It is prescribing limits and declaring that those limits
This is actually not the first time the Court will decide an issue involving itself. In the 1993 case
may be passed at pleasure. [14]
of Philippine Judges Association vs. Prado, [16] we decided the constitutionality of Section 35
The Court has the obligation to decide on the issues before us to preserve the hierarchy of laws of RA 7354 which withdrew the franking privilege of the Supreme Court, the Court of Appeals,
and to maintain the supremacy of the rule of the Constitution over the rule of men. the Regional Trial Courts, the Metropolitan Trial Courts, the Municipal Trial Courts and the
Land Registration Commission and its Registers of Deeds, along with certain other government
In Calderon vs. Carale,[15] we held: offices. The Court ruled on the issue and found that the withdrawal was unconstitutional
because it violated the equal protection clause. The Court said:
If the Legislature may declare what a law means, or what a specific portion of the
Constitution means, especially after the courts have in actual case ascertained its The Supreme Court is itself affected by these measures and is thus an interested
meaning by interpretation and applied it in a decision, this would surely cause party that should ordinarily not also be a judge at the same time. Under our system
confusion and instability in judicial processes and court decisions. Under such a of government, however, it cannot inhibit itself and must rule upon the
system, a final court determination of a case based on a judicial interpretation of the challenge, because no other office has the authority to do so. We shall therefore
law or of the Constitution may be undermined or even annulled by a subsequent and act upon this matter not with officiousness but in the discharge of an unavoidable
different interpretation of the law or of the Constitution by the Legislative duty and, as always, with detachment and fairness.
department. That would be neither wise nor desirable, besides being clearly violative
of the fundamental principles of our constitutional system of government, xxx xxx xxx
particularly those governing the separation of powers.
We arrive at these conclusions with a full awareness of the criticism it is certain to
Under the new definition of judicial power embodied in Article VIII, Section 1, courts of justice provoke. While ruling against the discrimination in this case, we may ourselves be
have not only the authority but also the duty to "settle actual controversies involving rights accused of similar discrimination through the exercise of our ultimate power in our
own favor. This is inevitable. Criticism of judicial conduct, however undeserved, is a be initiated against the same official.
fact of life in the political system that we are prepared to accept. As judges, we
cannot even debate with our detractors. We can only decide the cases before us as On the other hand, Article XI, Section 3(5) of the Constitution states:
the law imposes on us the duty to be fair and our own conscience gives us the
light to be right (emphasis ours). No impeachment proceedings should be initiated against the same official more than
once within a period of one year.
This Court has also ruled on the constitutionality of taxing the income of the Supreme Court
Simply stated, according to the rules of the House of Representatives, impeachment proceedings
Justices.[17] The Court recognized that it was faced by a "vexing challenge" since the issue
are deemed initiated if there is a finding by the House Committee on Justice that the verified
affected all the members of the Court, including those who were sitting there at that time. Yet it
complaint is sufficient in substance; or once the House itself affirms or overturns the finding of
still decided the issue, reasoning that "adjudication may not be declined because (a) [we] are not
the Committee on Justice; or by the filing or endorsement before the Secretary General of the
legally disqualified; (b) jurisdiction may not be renounced." Also, this Court had the occasion to
House of Representatives of a verified complaint or a resolution of impeachment by at least
rule on the constitutionality of the presidential veto involving certain provisions of the General
one-third of the Members of the House.
Appropriations Act of 1992 on the payment of adjusted pension of retired Supreme Court
justices.[18] The aforesaid rules of impeachment of the House of Representatives proceed from its rule-
making power on impeachment granted by the Constitution:
Thus, vexing or not, as long as the issues involved are constitutional, the Court must resolve
them for it to remain faithful to its role as the staunch champion and vanguard of the The Congress shall promulgate its rules on impeachment to effectively carry out the
Constitution. At the center stage in the present petitions is the constitutionality of Rule V, purpose of this section.[19]
Sections 16 and 17 of the Rules on Impeachment Proceedings of the House of Representatives
and, by implication, the second impeachment complaint against Chief Justice Hilario G. Davide The foregoing provision was provided for in the Constitution in the light of the exclusive power
Jr. We have the legal and moral obligation to resolve these constitutional issues, regardless of of the House of Representatives to initiate all cases of impeachment pursuant to Article XI,
who is involved. As pointed out by the eminent constitutionalist, Joaquin Bernas, S.J., Section 3(1) of the said Constitution. But this exclusive power pertaining to the House of
jurisdiction is not mere power; it is a duty which, though vexatious, may not be renounced. Representatives is subject to the limitations that no impeachment proceedings shall be initiated
against the same official more than once within a period of one year under Section 3(5) of the
CONSTITUTIONALITY OF RULE V SECTIONS 16 same Article XI.
and 17, AND THE SECOND IMPEACHMENT
COMPLAINT/THE TIME-BAR ISSUE
In the light of these provisions, were there two impeachment complaints[20] lodged against the
Chief Justice within a period of one year? Considering the House of Representatives' own
Rule V, Section 16 of the Rules on Impeachment Proceedings of the House of Representatives
interpretation of Article XI, Section 3(5) of the Constitution and the diametrically opposite
reads:
stand of petitioners thereon, it becomes imperative for us to interpret these constitutional
In cases where a Member of the House files a verified complaint of impeachment or provisions, even to the extent of declaring the legislative act as invalid if it contravenes the
a citizen files a verified complaint that is endorsed against an impeachable officer, fundamental law.
impeachment proceedings against such official are deemed initiated on the day the
Committee on Justice finds that the verified complaint and/or resolution against such Article XI, Section 3(5) is explicit that no impeachment proceedings shall be initiated against
official, as the case may be, is sufficient in substance or on the date the House votes the same official more than once within a period of one year. The question is: when are
to overturn or affirm the finding of the said Committee that the verified complaint impeachment proceedings deemed initiated?
and/or resolution, as the case may be, is not sufficient in substance.
In Gold Greek Mining Corporation vs. Rodriguez[21], the Court ruled that the intent of the
In cases where a verified complaint or a resolution of impeachment is filed or framers of the organic law and the people adopting it is a basic premise. Intent is the vital part,
endorsed, as the case may be, by at least one-third (1/3) of the Members of the the heart, the soul and essence of the law and the guiding star in the interpretation thereof.[22]
House, impeachment proceedings are deemed initiated at the time of the filing of What it says, according to the text of the provision to be construed, compels acceptance and
such verified complaint or resolution of impeachment with the Secretary General. negates the power of the Court to alter it, based on the postulate that the framers and the people
Section 17 of the same impeachment rules provides: mean what they say. [23]
Within a period of one (1) year from the date impeachment proceedings are deemed The initial proposal in the 1986 Constitutional Commission read:
initiated as provided in Section 16 hereof, no impeachment proceedings, as such, can

A vote of at least one-third of all the Members of the House shall be necessary either to prevent or suppress lawless violence, invasion or rebellion. In case of invasion or
to initiate impeachment proceedings, or to affirm a resolution of impeachment rebellion, when the public safety requires it, he may, for a period not exceeding sixty
proceedings, or to affirm a resolution of impeachment by the committee or override days, suspend the privilege of the writ of habeas corpus or place the Philippines or
its contrary resolution. The vote of each Member shall be recorded. any part thereof under martial law. Within forty-eight hours from the proclamation of
martial law or the suspension of the privilege of the writ of habeas corpus, the
However, Commissioner Regalado Maambong[24] proposed the amendment which is now the President shall submit a report in person or in writing to the Congress. The
existing provision: Congress, voting jointly, by a vote of at least a majority of all its Members in regular
or special session, may revoke such proclamation or suspension, which revocation
A vote of at least one-third of all the Members of the House shall be necessary either shall not be set aside by the President. Upon the initiative of the President, the
to affirm a resolution of the articles of impeachment of the committee or to override Congress may, in the same manner, extend such proclamation or suspension for a
its contrary resolution. The vote of each member shall be recorded. period to be determined by the Congress, if the invasion or rebellion shall persist and
public safety requires it.
Notably, Commissioner Maambong's proposal eliminated the clause "[a vote of at least one-
third of all the Members of the House shall be necessary either] to initiate impeachment The Supreme Court may review, in an appropriate proceeding filed by any
proceedings." His point was that, pursuant to the rules and practice of the House of citizen, the sufficiency of the factual bases of the proclamation of martial law or
Representatives of the United States, impeachment is not "initiated" by the vote of the House the suspension of the privilege of the writ or the extension thereof, and must
but by the filing of the complaint. Commissioner Maambong's amendment and explanation promulgate its decision hereon within thirty days from its filing.
were approved by the Constitutional Commission without objection. No clearer authority exists
on the meaning and intention of the framers of the Constitution. Furthermore, in Bondoc vs. Pineda, we assumed jurisdiction despite the fact that the electoral
tribunal concerned was the "sole" judge of contests relating to elections, returns and
The issuance of an interpretative rule, embodied in Rule V, Section 16 of the Rules on qualifications of its members:
Impeachment Proceedings of the House of Representatives, vis-à-vis a self-executing provision
of the Constitution, has therefore no basis, at least with respect to the term "initiate." A careful Since "a constitutional grant of authority is not usually unrestricted, limitations being
reading of Article XI, Section 3(5) of the Constitution shows absolutely no necessity for an provided for as to what may be done and how it is to be accomplished, necessarily
interpretative rule. The wording of the constitutional provision is so unequivocal and crystal- then, it becomes the responsibility of the courts to ascertain whether the two
clear that it only calls for application and not interpretation. coordinate branches have adhered to the mandate of the fundamental law. The
question thus posed is judicial rather than political. The duty remains to assure that
I acknowledge that Article XI, Section 3(8) of the Constitution provides that the Congress shall the supremacy of the Constitution is upheld." That duty is a part of the judicial
promulgate its rules on impeachment. This is correct -- provided such rules do not violate the power vested in the courts by an express grant under Section 1, Article VIII of the
Constitution. 1987 Constitution of the Philippines which defines judicial power as both authority
and duty of the courts "to settle actual controversies involving rights which are
JUDICIAL REVIEW OF CONGRESS' legally demandable and enforceable, and to determine whether or not there has been
POWER TO MAKE ITS RULES a grave abuse of discretion amounting to lack or excess of jurisdiction on the part of
any branch or instrumentalities of the Government.
Article XI, Section 3(1) of the Constitution provides:
The power and duty of the courts to nullify, in appropriate cases, the actions of the
The House of Representatives shall have the exclusive power to initiate all cases of executive and legislative branches of the Government does not mean that the courts
impeachment. are superior to the President and the Legislature. It does mean though that the
judiciary may not shirk "the irksome task" of inquiring into the constitutionality and
It is argued that because the Constitution uses the word "exclusive," such power of Congress is legality of legislative or executive action when a justiciable controversy is brought
beyond the scope of judicial inquiry. Impeachment proceedings are supposedly matters before the courts by someone who has been aggrieved or prejudiced by such person,
particularly and undividedly assigned to a co-equal and coordinate branch of government. as in this case. It is - "a plain exercise of the judicial power, that power vested in
courts to enable them to administer justice according to the law x x x It is simply a
It must be recalled, however, that the President of the Republic of the Philippines under Article necessary concomitant of the power to hear and dispose of a case or controversy
VII, Section 18 of the Constitution has the sole and exclusive power to declare martial law. Yet properly before the court, to the determination of which must be brought the test and
such power is still subject to judicial review: measure of the law. [25]
The President shall be the Commander-in-Chief of all armed forces of the Thus, in the words of author Bernas, the words "exclusive" or "sole" in the Constitution should
Philippines and whenever it becomes necessary, he may call out such armed forces not be interpreted as "driving away the Supreme Court," that is, prohibiting it from exercising
its power of judicial review when necessary. "That at least eighty percent (80%) of the Fund shall be used for cost of living
allowances, and not more than twenty percent (20%) of the said Fund shall be used
The House of Representatives may thus have the "exclusive" power to initiate impeachment for office equipment and facilities of the Courts located where the legal fees are
cases but it has no exclusive power to expand the scope and meaning of the law in contravention collected; Provided, further, That said allowances of the members and personnel of
of the Constitution. the Judiciary shall be distributed in proportion of their basic salaries; and, Provided,
finally, That bigger allowances may be granted to those receiving a basic salary of
While this Court cannot substitute its judgment for that of the House of Representatives, it may less than P1,000.00 a month.
look into the question of whether such exercise has been made with grave abuse of discretion. A
showing that plenary power is granted either department of government may not be an obstacle Section 2 thereof grants to the Chief Justice the sole and exclusive power to authorize
to judicial inquiry for the improvident exercise or abuse thereof may give rise to a justiciable disbursements and expenditures of the JDF:
controversy.[26]
SECTION 2. The Chief Justice of the Supreme Court shall administer and allocate
the Fund and shall have the sole exclusive power and duty to approve and authorize
The judiciary is deemed by most legal scholars as the weakest of the three departments of
disbursements and expenditures of the Fund in accordance with the guidelines set in
government. It is its power of judicial review that restores the equilibrium. In other words, while
this Decree and its implementing rules and regulations. (Underscoring supplied).
the executive and the legislative departments may have been wittingly or unwittingly made
more powerful than the judiciary, the latter has, however, been given the power to check or rein Section 3 of the same law empowers the Commission on Audit (COA) to make a quarterly audit
in the unauthorized exercise of power by the other two. of the JDF:
CONGRESS' IMPEACHMENT POWER AND SECTION 3. The amounts accruing to the Fund shall be deposited by the Chief
POWER OF THE PURSE VIS-À-VIS THE Justice or his duly authorized representative in an authorized government depository
POWERS OF THE COMMISSION ON AUDIT (COA) bank or private bank owned or controlled by the Government, and the income or
AND THE JUDICIARY'S FISCAL AUTONOMY interest earned shall likewise form part of the Fund. The Commission on Audit
through the Auditor of the Supreme Court or his duly authorized
One of the issues against the Chief Justice in the second impeachment complaint is the wisdom representative shall quarterly audit the receipts, revenues, uses, disbursements
and legality of the allocation and utilization of the Judiciary Development Fund (JDF). We take and expenditures of the Fund, and shall submit the appropriate report in writing to
judicial notice of the deluge of public discussions on this matter. the Chairman of the Commission on Audit and to the Chief Justice of the Supreme
Court, copy furnished the Presiding Appellate Justice of the Intermediate Appellate
The second impeachment complaint charges the Chief Justice with alleged unlawful Court and all Executive Judges. (Underscoring supplied).
underpayment of the cost of living allowances of members and personnel of the judiciary and
the unlawful disbursement of the JDF for certain infrastructure projects and acquisition of motor It is clear from PD 1949 that it is the COA, not Congress, that has the power to audit the
vehicles. disbursements of the JDF and determine if the same comply with the 80-20 ratio set by the law.
The JDF was established by PD 1949 in 1984. As stated in its preliminary clause, it was enacted In the course of the House Committee on Justice's investigation on the first impeachment
to maintain the independence of the judiciary, review and upgrade the economic conditions of complaint, the COA submitted to the said body a copy of its audit report, together with pertinent
the members and personnel thereof, preserve and enhance its independence at all times and supporting documents, that the JDF was used and allocated strictly in accordance with PD 1949.
safeguard the integrity of its members, and authorize it, in the discharge of its functions and
duties, to generate its own funds and resources to help augment its budgetary requirements and Because some congressmen disagreed with the COA report clearing the Chief Justice of any
ensure the uplift of its members and personnel. illegality or irregularity in the use and disbursement of the JDF, a second impeachment
complaint was filed charging him with alleged "misuse of the JDF." At this point, the question
It is of public record that, while the judiciary is one of the three co-equal branches of foremost in my mind is: what would be the basis of such charges if the COA itself already
government, it has consistently received less than 1% of the total annual appropriation of the cleared the Chief Justice?
entire bureaucracy.
Aside from its statutory power under PD 1949 to audit the JDF, the COA alone has the
As authorized by PD 1949, the judiciary augments its budgetary requirements through the JDF, constitutional power to audit and investigate all financial accounts of the government, including
which is in turn derived from, among others, the marginal increases in legal fees since 1984. the JDF.
Section 1 of PD 1949 imposes the following percentage limits on the use of the JDF: Article IX (D), Section 2 (1) and (2) of the Constitution empowers and obligates the COA as
follows:
Sec. 2. (1) The Commission on Audit shall have the power, authority, and duty Sec. 20. The records and books of accounts of the Congress shall be preserved
to examine, audit, and settle all accounts pertaining to the revenue and receipts and be open to the public in accordance with law, and such books shall be audited by
of, and expenditures or uses of funds and property, owned or held in trust by, or the Commission on Audit which shall publish annually an itemized list of amounts
pertaining to, the Government , or any of its subdivisions, agencies, or paid to and expense incurred for each member. (Underscoring supplied).
instrumentalities, including government-owned and controlled corporations with
original charters, and on a post-audit basis: (a) constitutional bodies, commissions The COA's exclusive and comprehensive audit power cannot be impaired even by legislation
and offices that have been granted fiscal autonomy under this Constitution; (b) because of the constitutional provision that no law shall be passed exempting any entity of the
autonomous state colleges and universities; (c) other government-owned or government or its subsidiary or any investment of public funds from COA jurisdiction.[29]
controlled corporations and their subsidiaries; and (d) such non-governmental
entities receiving subsidy or equity, directly or indirectly, from or through the Neither can Congress dictate on the audit procedures to be followed by the COA under Article
Government, which are required by law or the granting institution to submit such IX (D), Section 2 (2).
audit as a condition of subsidy or equity. However, where the internal control system
of the audited agencies is inadequate, the Commission may adopt such measures, In sum, after Congress exercises its power to raise revenues and appropriate funds, the power to
including temporary or special pre-audit, as are necessary and appropriate to correct determine whether the money has been spent for the purpose for which it is allocated now
the deficiencies. Preserve the vouchers and other supporting papers pertaining belongs to the COA. Stated otherwise, it is only through the COA that the people can verify
thereto.
whether their money has been properly spent or not. [30]
(2) The Commission shall have exclusive authority, subject to the limitations in this
As it is a basic postulate that no one is above the law, Congress, despite its tremendous power of
Article to define the scope of its audit examination, establish the techniques and
the purse, should respect and uphold the judiciary's fiscal autonomy and the COA's exclusive
methods required therefore, and promulgate accounting and auditing rules and
power to audit it under the Constitution.
regulations, including those for the prevention and disallowance of irregular,
unnessary, excessive, extravagant, or unconscionable expenditures, or uses of
Not only is Congress precluded from usurping the COA's power to audit the JDF, Congress is
government funds and properties.
also bound to respect the wisdom of the judiciary in disbursing it. It is for this precise reason
Under the foregoing provisions, the COA alone has broad powers to examine and audit all that, to strengthen the doctrine of separation of powers and judicial independence, Article VIII,
forms of government revenues, examine and audit all forms of government expenditures, settle Section 3 of the Constitution accords fiscal autonomy to the judiciary:
government accounts, define the scope and techniques for its own auditing procedures,
Sec. 3. The Judiciary shall enjoy fiscal autonomy. Appropriations for the Judiciary
promulgate accounting and auditing rules "including those for the prevention and disallowance
may not be reduced by the legislature below the amount appropriated for the
of irregular, unnecessary, excessive, extravagant, or unconscionable expenditures," decide
previous year and, after approval, shall be automatically and regularly released.
administrative cases involving expenditure of public funds, and to conduct post-audit authority
over "constitutional bodies, commissions and offices that have been granted fiscal autonomy
under this Constitution." The provision on post-audit recognizes that there are certain In Bengzon vs. Drilon, [31] we explained the constitutional concept of fiscal autonomy:
government institutions whose operations might be hampered by pre-audit requirements.
As envisioned in the Constitution, the fiscal autonomy enjoyed by the Judiciary,. . .
contemplates a guarantee of full flexibility to allocate and utilize [its] resources with
Admittedly, Congress is vested with the tremendous power of the purse, traditionally recognized
the wisdom and dispatch that [its] needs require. It recognizes the power and
in the constitutional provision that "no money shall be paid out of the Treasury except in
authority to levy, assess and collect fees, fix rates of compensation not exceeding the
pursuance of an appropriation made by law."[27] It comprehends both the power to generate highest rates authorized by law for compensation and pay plans of the government
money by taxation (the power to tax) and the power to spend it (the power to appropriate). The and allocate and disburse such sums as may be provided by law or prescribed by
power to appropriate carries with it the power to specify the amount that may be spent and the them in the course of the discharge of their function.
purpose for which it may be spent.[28]
Fiscal autonomy means freedom from outside control. If the Supreme Court says it
Congress' power of the purse, however, can neither traverse on nor diminish the constitutional needs 100 typewriters but DBM rules we need only 10 typewriters and sends its
power of the COA to audit government revenues and expenditures. recommendation to Congress without even informing us, the autonomy given by the
Constitution becomes an empty and illusory platitude.
Notably, even the expenditures of Congress itself are subject to review by the COA under
Article VI, Section 20 of the Constitution The Judiciary. . . must have the independence and flexibility needed in the discharge
of [its] constitutional duties. The imposition of restrictions and constraints on the
manner the independent constitutional offices allocate and utilize the funds
appropriated for their operations is anathema to fiscal autonomy and violative not [8] Angara vs. Electoral Commission, 63 Phil. 139 [1936].
only of the express mandate of the Constitution but especially as regards the
Supreme Court, of the independence and separation of powers upon which the entire [9] Evardone
fabric of our constitutional system is based. In the interest of comity and vs. Comelec, 204 SCRA, 464 [1991].
cooperation, the Supreme Court, Constitutional Commissions and the Ombudsman
[10] 201 SCRA 792 [1991].
have so far limited their objections to constant reminders. We now agree with the
petitioners that this grant of autonomy should cease to be a meaningless provision.
[11] Coseteng vs. Mitra, 187 SCRA 377, 378 [1990].
In the case at bar, the veto of these specific provisions in the General Appropriations
Act is tantamount to dictating to the Judiciary how its funds should be utilized, [12] Valmonte vs. Belmonte, Jr., 170 SCRA 256 [1989].
which is clearly repugnant to fiscal autonomy. The freedom of the Chief Justice to
make adjustments in the utilization of the funds appropriated for the expenditures of
[13] 1 Cranch 137 [1803].
the judiciary, including the use of any savings from any particular item to cover
deficits or shortages in other items of the judiciary is withheld. Pursuant to the
Constitutional mandate, the judiciary must enjoy freedom in the disposition of the [14]
WILLIAM H. REHNQUIST, The Supreme Court, New York, p. 34 [2001], quoting
funds allocated to it in the appropriation law. Marbury vs. Madison.
In essence, fiscal autonomy entails freedom from outside control and limitations, other than [15] 208 SCRA 254 [1992], citing Endencia and Jugo vs. David, 93 Phil. 699.
those provided by law. It is the freedom to allocate and utilize funds granted by law, in
accordance with law and pursuant to the wisdom and dispatch its needs may require from time
[16] 227 SCRA 703 [1993].
to time.
Wherefore, I vote to grant the petitions (1) for this Court to exercise its jurisdiction and power [17] Perfecto vs. Meer, 85 Phil. 552 {1950].
of judicial review immediately; (2) to declare Rule V, Sections 16 and 17 of the Rules on
Impeachment Proceedings of the House of Representatives unconstitutional and (3) to declare [18] Bengzon vs. Drilon, 208 SCRA 133 [1992].
the second impeachment complaint filed pursuant to such rules to be likewise unconstitutional.
[19] Article XI, Section 3, 1987 Philippine Constitution.
[1] [20] Dated June 2, 2003 and October 23, 2003.

According to Section 2, Article XI of the 1987 Constitution, the impeachable officers are the
President, the Vice-President, the Members of the Supreme Court, the Members of the
Constitutional Commissions and the Ombudsman. [21] 66 Phil. 259 [11938].
[2]Antonio Tupas and Edcel Tupas, fUNDAMENTALS on Impeachment, 2001 ed., Quezon [22] 50 Am Jur. 200.
City, p. 6 [2001].
[23] Luz vs. Secretary of the Department of Agrarian Reform, 192 SCRA 51 [1990].
[3]Joaquin Bernas, Commentaries on the 1987 Constitution of the Philippines, Quezon City, p.
pp. 1109-1110 [2003]. [24] now Justice of the Court of Appeals.
[4] Supra, Note 2, p. 7. [25] Bondoc vs. Pineda, 201 SCRA 792 [1991].
[5] Ibid., p. 12. [26] supra.
[6] Supra, Note 3, p. 1113. [27] Article VI, Section 29 (1), 1987 Constitution.
[7] Cruz, PHILIPPINE POLITICAL LAW, 1996 ed., p. 12. [28] Bernas, THE 1987 CONSTITUTION OF THE REPUBLIC FO THE PHILIPPINES: A
COMMENTARY, 722 [1996]. Impeachment Proceedings. The Impeachment Complaint and Resolution of Endorsement were
included in the business of the House of Representatives at 2:00 p.m. of October 28, 2003.
[29] Article IX, Section 3, 1987 Constitution. However, the matter of the transmittal of the Complaint of Impeachment was not resolved
because the session was adjourned, to resume at 4:00 p.m. on November 10, 2003.
[30] Bernas, THE 1987 PHILIPPINE CONSTITUTION A REVIEWER-PRIMER [2003], 455. On October 27, 2003, Ernesto B. Francisco, Jr. filed his petition for certiorari and prohibition
for the nullification of the October 23, 2003 Impeachment Complaint with a plea for injunctive
[31] 208 SCRA 133 [1992]. relief. The Integrated Bar of the Philippines filed a similar petition for the nullification of
Sections 16 and 17 of Rule V of the 2001 House Rules of Procedure in Impeachment
Proceedings. The petitioners Congressmen in G.R. No. 160295 also manifested to the Court and
prayed during the hearing on November 6, 2003 that Rule V of the 2001 Rules of Procedure on
Impeachment Proceedings be declared unconstitutional. Similar petitions were also filed with
SEPARATE OPINION the Court by other parties against the same Respondents with the Court.
CALLEJO, SR., J.: In their Manifestation, Respondents Speaker of the House, et al., urged the Court to dismiss the
petitions on the ground that the Court has no jurisdiction over the subject matter of the petition
I concur with modifications with the encompassing ponencia of Justice Conchita Carpio- and the issues raised therein. They assert that the Court cannot prohibit or enjoin the House of
Morales. However, I find it imperative to submit this separate opinion to set forth some Representatives, an independent and co-equal branch of the government, from performing its
postulates on some of the cogent issues. constitutionally mandated duty to initiate impeachment cases. They submit that the
impeachment proceedings in the House is "nonjusticiable," falling within the category of
Briefly, the factual antecedents are as follows: "political questions," and, therefore, beyond the reach of this Court to rule upon. They counter
that the October 23, 2003 Complaint was the first complaint for Impeachment filed against
On June 2, 2003, a verified impeachment complaint was filed with the Office of the Secretary Chief Justice Hilario G. Davide, Jr., the complaint for Impeachment filed by former President
General of the House of Representatives by former President Joseph E. Estrada against Chief Joseph Ejercito Estrada having been deemed uninitiated. In its Manifestation to the Court, the
Justice Hilario G. Davide, Jr. and seven (7) other associate justices of the Court for violation of respondent Senate of the Philippines asserts that: (a) the petitions are premature because the
the Constitution, betrayal of public trust and committing high crimes. The complaint was Articles of Impeachment have yet to be transmitted to the Senate by the House of
referred to the Speaker of the House, who had the same included in the Order of Business. Representatives; and (b) the issues raised in the petition pertain exclusively to the proceedings
Thereafter, the complaint was referred to the Committee on Justice and Human Rights. in the House of Representatives.
On October 13, 2003, the House Committee on Justice included the first impeachment In his Comment on the petitions, Respondent-Intervenor Senator Aquilino Q. Pimentel, Jr.
complaint in its order of business. The Committee voted that the complaint was sufficient in contends that the Court has no jurisdiction to resolve the legality of the October 23, 2003
form. However, on October 22, 2003, the said House Committee dismissed the first Complaint/Articles of Impeachment, as the said issue involves a political question, the
impeachment complaint for insufficiency of substance. The same Committee has not yet resolution of which is beyond the jurisdiction of the Court. It is the Senate, sitting as an
transmitted its report to the plenary. Impeachment Court, that is competent to resolve the issue of whether the Complaint of
Impeachment filed on October 23, 2003 was filed within the one year time- bar. The Senate,
The following day, or on October 23, 2003, a verified impeachment complaint was filed with sitting as an impeachment tribunal as sole power to try and decide an impeachment case, is
the Office of the Secretary General of the House by the complainants, Representatives Gilberto according to the Senator, beyond the reach of the Court to decide.
C. Teodoro, First District, Tarlac, and Felix William D. Fuentebella, Third District, Camarines
Sur, against Chief Justice Hilario G. Davide, Jr., for graft and corruption, betrayal of public The threshold issues raised by the parties may be synthesized, thus: (a) whether the Petitioners
trust, culpable violation of the Constitution and failure to maintain good behavior while in have locus standi; (b) whether the Court has jurisdiction over the subject matter of the petitions
office. Attached to the second impeachment complaint was a Resolution of and of the issues; (c) if in the affirmative, whether the petitions are premature; (d) whether
Endorsement/Impeachment signed by at least one-third (1/3) of all the members of the House of judicial restraint should be exercised by the Court; (e) whether Sections 16 and 17 of Rule V of
Representatives. the House Rules of Procedure in Impeachment Cases are unconstitutional; and (f) whether the
October 23, 2003 Complaint of Impeachment against the Chief Justice is time-barred.
On October 24, 2003, the Majority and Minority Leaders of the House of Representatives
transmitted to the Executive Director, Plenary Affairs Division of the House of Representatives, On the Issue of Locus Standi
the aforesaid Verified Impeachment Complaint and Resolution of Endorsement for its inclusion of the Petitioners
in the Order of Business, and for the endorsement of the House to the Senate within three days
from its inclusion pursuant to Section 15, Rule IV of the 2001 Rules of Procedure on I am in full accord with the ratiocinations of the ponente.
its discretion amounting to lack or excess of jurisdiction in giving due course to the October 23,
The Court Has Jurisdiction over 2003 Complaint of Impeachment and in insisting on transmitting the same to the Respondent
The Respondents and the Subject Senate.
Matter of the Petitions
Under Section 1, Article VIII of the Constitution, "judicial power is vested in the Supreme
In their Special Appearance and/or Manifestation, Respondents Speaker Jose de Venecia, et al. Court and in such lower courts as may be established by law. The judicial power of the Court
assert that the Court has no jurisdiction over the subject matter of the petitions and that it has no includes the power to settle controversies involving rights which are legally demandable and
jurisdiction to bar, enjoin and prohibit the Respondent House of Representatives at any time enforceable, and to determine whether or not there has been a grave abuse of discretion
from performing its constitutional mandate to initiate impeachment cases and to enjoin the amounting to lack or excess of jurisdiction on the part of any branch or instrumentality of the
Senate from trying the same. The Respondents contend that under Section 3(1), Article VI of Government." In Estrada v. Desierto,[5] this Court held that with the new provision in the
the Constitution, the House of Representatives shall have the exclusive power to initiate all Constitution, courts are given a greater prerogative to determine what it can do to prevent grave
cases of impeachment. For his part, the Respondent Intervenor Senator Aquilino Q. Pimentel, Jr. abuse of discretion amounting to lack or excess of jurisdiction on the part of any branch or
avers that under Section 6, Article XI of the Constitution, the Senate shall have the sole power instrumentality of government. The Constitution is the supreme law on all governmental
to try and decide all cases of impeachment and the Court is bereft of jurisdiction to interfere in agencies, including the House of Representatives and the Senate.
the trial and decision of the complaint against the Chief Justice. The Respondents cite the ruling
of the United States Supreme Court in Walter Nixon v. United States. [2] The Respondent Under Section 4(2), Article VIII of the Constitution, the Supreme Court is vested with
Speaker Jose de Venecia, et al., also cited the Commentary of Michael Gerhart on the said jurisdiction over cases involving the constitutionality, application and operation of government
ruling of the United States Supreme Court that even in a case involving a violation of explicit rules and regulations, including the constitutionality, application and operation of rules of the
constitutional restraint, judicia intervention would undermine impeachment effectiveness as a House of Representatives, as well as the Senate.[6] It is competent and proper for the Court to
check on the executive, and would constitute judicial abuse of power; and that the judicial consider whether the proceedings in Congress are in conformity with the Constitution and the
involvement in impeachment proceedings even if only for purposes of judicial review is law because living under the Constitution, no branch or department of the government is
counterintuitive because it would eviscerate the important constitutional check placed on the supreme; and it is the duty of the judiciary to determine cases regularly brought before them,
judiciary by the Framers. It is also contended that opening the door of judicial review to the whether the powers of any branch of the government and even those of the legislative enactment
procedures used by the Senate in trying impeachments would expose the political life of the of laws and rules have been exercised in conformity with the Constitution; and if they have not,
country to months, or perhaps years of chaos. Furthermore, it is averred that judicial review of
the Senate's trial would introduce the same risks of bias as would participation in the trial itself. to treat their acts as null and void.[7] Under Section 5, Article VIII of the Constitution, the Court
has exclusive jurisdiction over petitions for certiorari and prohibition. The House of
I find the contentions of the Respondents to be without merit. Representatives may have the sole power to initiate impeachment cases, and the Senate the sole
power to try and decide the said cases, but the exercise of such powers must be in conformity
By the jurisdiction of the Court over the subject matter is meant the nature of the cause of action with and not in derogation of the Constitution.
and of the relief sought. This is conferred by the sovereign authority which organizes the court,
The Respondents cannot find refuge in the ruling of the United States Supreme Court in Walter
and is to be sought for in the general nature of its powers, or in authority specially conferred.[3]
It is axiomatic that jurisdiction is conferred by the Constitution and by the laws in force at the Nixon v. United States[8] because the United States Constitution does not contain any provision
akin to that in Paragraph 1, Article VIII of the Constitution. The Nixon case involved the issue
time of the commencement of the action.[4] of whether Senate Rule XI violated Impeachment Trial Clause Articles 1, 3, cl. 6, which
provides that the Senate shall have the power to try all impeachment cases. The subject matter
In the petitions at bar, as can be gleaned from the averments therein, the petitioners sought the in the instant petitions involve the constitutionality of Sections 16 and 17, Rule V of the 2001
issuance of the writs of certiorari, prohibition and injunction against the Respondents, on their House Rules of Procedures in Impeachment Proceedings and the issue of whether the October
claim that the Respondent House of Representatives violated Section 3(5), Article XI of the 23, 2003 Complaint of Impeachment is time-barred under Section 3(5), Article XI of the
Constitution when it approved and promulgated on November 28, 2001 Sections 16 and 17, Constitution. Besides, unlike in the instant petitions, the U.S. Supreme Court ruled in Nixon that
Rule V of the 2001 House Rules of Procedure in Impeachment Proceedings. "there is no separate provision of the Constitution that could be defeated by allowing the Senate
final authority to determine the meaning of the word `try' in the Impeachment Trial Clause."
The Petitioners also averred in their petitions that the initiation by the Respondents The Court went on to emphasize that:
Congressmen Gilbert C. Teodoro and Felix William D. Fuentebella of the impeachment case
against Chief Justice Hilario G. Davide, Jr. on October 23, 2003 via a complaint for We agree with Nixon that [506 U.S. 224, 238] courts possess power to review either
impeachment filed is barred by the one-year time line under Section 3(5), Article XI of the legislative or executive action that transgresses identifiable textual limits. As we
Constitution. have made clear, "whether the action of [either the Legislative or Executive Branch]
exceeds whatever authority has been committed is itself a delicate exercise in
They further assert that the Respondent House of Representatives committed a grave abuse of
constitutional interpretation, and is a responsibility of this Court as ultimate constitutional precept or provision that can unbolt the steel door for judicial intervention. In
interpreter of the Constitution. Integrated Bar of the Philippines v. Zamora,[11] this Court held that when the grant of power is
qualified, conditional or are subject to limitations, the issue of whether the proscribed
The Court has jurisdiction limitations have been met or the limitations respected, is justiciable - the problem being one of
over the issues legality or validity, not its wisdom. Moreover, the jurisdiction to determine constitutional
The issue of whether or not this Court has jurisdiction over the issues has reference to the boundaries has been given to this Court. Even in Nixon v. Unites States,[12] the Supreme Court
question of whether the issues are justiciable, more specifically whether the issues involve of the Unites States held that whether the action of the Legislative exceeds whatever authority
political questions. The resolution of the issues involves the construction of the word "initiate." has been committed is itself a delicate exercise in constitutional interpretation, and is the
This, in turn, involves an interpretation of Section 3(5), Article XI of the Constitution, in responsibility of the Supreme Court as the ultimate interpreter of the Constitution.
relation to Sections 3(1) and 3(2) thereof, which read:
On the prematurity of the petition and
Sec. 3. (1) The House of Representatives shall have the exclusive power to initiate the need for Judicial Restraint.
all cases of impeachment.
There is no doubt that the petitions at bar were seasonably filed against the respondents Speaker
(2) A verified complaint for impeachment may be filed by any Member of the House Jose de Venecia and his co-respondents. In Aquilino Pimentel Jr. v. Aguirre, [13] this Court ruled
of Representatives or by any citizen upon a resolution of endorsement by any that upon the mere enactment of the questioned law or the approval of the challenged action, the
Member thereof, which shall be included in the Order of Business within ten session dispute is said to have ripened into a judicial controversy even without any other overt act.
days, and referred to the proper Committee within three session days thereafter. The Indeed, even a singular violation of the Constitution and/or the law is enough to awaken judicial
Committee, after hearing and by a majority vote of all its Members, shall submit its duty. In this case, the respondents had approved and implemented Sections 16 and 17, Rule V of
report to the House within sixty session days from such referral, together with the the 2001 of the Rules of Procedure, etc. and had taken cognizance of and acted on the October
corresponding resolution. The resolution shall be calendared for consideration by the 23, 2003 complaint of impeachment; the respondents are bent on transmitting the same to the
House within ten session days from receipt thereof. respondent Senate. Inscrutably, therefore, the petitions at bar were seasonably filed against said
respondents. However, I agree with the respondent Senate that the petitions were premature, the
(3) A vote of at least one-third of all the Members of the House shall be necessary issues before the Court being those that relate solely to the proceedings in the House of
either to affirm a favorable resolution with the Articles of Impeachment of the Representatives before the complaint of impeachment is transmitted by the House of
Committee, or override its contrary resolution. The vote of each Member shall be Representatives to the Senate.
recorded.
On the issue of judicial self-restraint, Amici Curiae Dean Raul Pangalangan and Dean Pacifico
(4) In case the verified complaint or resolution of impeachment is filed by at least Agabin presented two variant aspects: Dean Raul Pangalangan suggests that the Court orders a
one-third of all Members of the House, the same shall constitute the Articles of suspension of the proceedings in this Court and allow the complainants to withdraw their
Impeachment, and trial by the Senate shall forthwith proceed. complaints and the House of Representatives to rectify Rule V of the 2001 House Rules of
Procedure. Dean Pacifico Agabin suggests that the Court deny due course and dismiss the
(5) No impeachment proceedings shall be initiated against the same official more petitions to enable the Senate to resolve the issues in the instant cases. Their proposals prescind
than once within a period of one year. from the duty of the Court under Section 1, Article VIII of the Constitution to resolve the issues
in these cases. The suggestions of the amici curiae relate to the principles of exhaustion of
The construction of the word "initiate" is determinative of the resolution of the issues of administrative remedies and the doctrine of primary jurisdiction.
whether Sections 16 and 17, Rule V of the 2001 House Rules of Procedure in Impeachment
Proceedings violated Section 3(5), Article XI of the Constitution or not; and whether the I find the suggestions of the amici curiae unacceptable.
October 23, 2003 Complaint of Impeachment is a violation of the proscription in Section 3(5),
Article XI of the Constitution against impeachment proceedings being initiated against the same First. The complainants and the endorsers of their complaint and even the House of
Respondent more than once within a period of one year. The issue as to the construction of Rule Representatives through the Respondent Speaker Jose de Venecia are bent on transmitting the
V of the 2001 House Rules of Procedure affects a person other than the Members of the House impeachment complaint to the Senate without delay.
of Representatives, namely, Chief Justice Hilario G. Davide, Jr. These questions are of necessity
within the jurisdiction of the Court to resolve. As Justice Brandeis said in United States v. Second. The courts should take cognizance of and resolve an action involving issues within the
George Otis Smith,[9] as to the construction to be given to the rules affecting persons other than competence of a tribunal of special competence without the need of the latter having to resolve
members of the Senate, the question presented is of necessity a judicial one. In Santiago v. such issue where, as in this case, Respondent Speaker Jose de Venecia and his co-respondents
Sandiganbayan,[10] this Court held that it is an impairment or a clear disregard of a specific acted with grave abuse of discretion, arbitrariness and capriciousness is manifest.[14]
respondents finally contend that their interpretation of Rule V of the 2001 Rules of Procedure in
Third. The issue of whether or not the October 23, 2003 complaint of impeachment is time- relation to Sections 3(4) and 3(5), Article XI of the Constitution is the only rational and
barred is not the only issue raised in the petitions at bar. As important, if not more important reasonable interpretation that can be given, otherwise, the extraordinary remedy of
than the said issue, is the constitutionality of Sections 16 and 17, Rule V of the 2001 House impeachment will never be effectively carried out because impeachable officials can
Rules of Procedure. In fact, the resolution of the question of whether or not the October 23, conveniently allow or manipulate the filing of bogus complaints against them every year to
2003 complaint for impeachment is time-barred is anchored on and is inextricably interrelated foreclose this remedy. The respondents cite the commentary of Fr. Joaquin Bernas, one of the
to the resolution of this issue. Furthermore, the construction by the Court of the word "initiate" amici curiae of the Court in his book, "The 1987 Constitution of the Republic of the
in Sections 3(1) and (5) in relation to Section 3(3), Article XI of the Constitution is decisive of Philippines, A Commentary, 1996 ed., p. 1989."
both issues.
The submissions of the respondents do not hold water.
Fourth. The Senate has no jurisdiction to resolve the issue of the constitutionality of Sections 16
and 17, Rule V of the 2001 House Rules of Procedure, in the same manner that the House of Section 3, Article XI of the Constitution reads:
Representatives has no jurisdiction to rule on the constitutionality of the Impeachment Rules of
the Senate. The Senate and the House of Representatives are co-equal. I share the view of SECTION 3. (1) The House of Representatives shall have the exclusive power to
Justice Isagani Cruz in his concurring opinion in Fernandez v. Torres[15] that an unconstitutional initiate all cases of impeachment.
measure should be slain on sight. An illegal act should not be reprieved by procedural
impediments to delay its inevitable annulment. If the Court resolves the constitutionality of Rule (2) A verified complaint for impeachment may be filed by any Member of the House
V of the 2001 Rules of Procedure, and leaves the issue of whether the October 23, 2003 of Representatives or by any citizen upon a resolution of endorsement by any
Complaint of Impeachment to be resolved by the Senate, this will promote multiplicity of suits Member thereof, which shall be included in the Order of Business within ten session
and may give rise to the possibility that the Court and the Senate would reach conflicting days, and referred to the proper Committee within three session days thereafter. The
Committee, after hearing, and by a majority vote of all its Members, shall submit its
decisions. Besides, in Daza v. Singson[16] this Court held that the transcendental importance to report to the House within sixty session days from such referral, together with the
the public, strong reasons of public policy, as well as the character of the situation that confronts corresponding resolution. The resolution shall be calendared for consideration by the
the nation and polarizes the people are exceptional circumstances demanding the prompt and House within ten session days from receipt thereof.
definite resolution of the issues raised before the Court.
(3) A vote of at least one-third of all the Members of the House shall be necessary
Fifth. The doctrine of primary jurisdiction comes into play in the Senate only upon the either to affirm a favorable resolution with the Articles of Impeachment of the
transmittal of the impeachment complaint to it. Committee, or override its contrary resolution. The vote of each Member shall be
recorded.
Sixth. The resolution of whether the October 23, 2003 Complaint of Impeachment is time-
barred does not require the application of a special skill or technical expertise on the part of the (4) In case the verified complaint or resolution of impeachment is filed by at least
Senate. one-third of all the Members of the House, the same shall constitute the Articles of
Impeachment, and trial by the Senate shall forthwith proceed.
Sections 16 and 17, Rule V of the
2001 Rules of Procedure, etc. (5) No impeachment proceedings shall be initiated against the same official more
is unconstitutional than once within a period of one year.
The October 23, 2003 Complaint (6) The Senate shall have the sole power to try and decide all cases of impeachment.
of impeachment is time-barred When sitting for that purpose, the Senators shall be on oath or affirmation. When the
The petitioners contend that Sections 16 and 17, Rule V of the 2001 House Rules of Procedure preside, but shall not vote. No person shall be convicted without the concurrence of
construing Section 3(5), Article XI is unconstitutional. Respondent Speaker Jose G. de Venecia two-thirds of all the Members of the Senate.
and his co-respondents contend that the June 2, 2003 Complaint for Impeachment filed by
former President Joseph E. Estrada against Chief Justice Hilario Davide, Jr., and seven other (7) Judgment in cases of impeachment shall not extend further than removal from
Justices of the Supreme Court "did not reach first base and was never initiated by the House of office and disqualification to hold any office under the Republic of the Philippines,
Representatives, and, in fact, the committee report has yet to be filed and acted upon by the but the party convicted shall nevertheless be liable and subject to prosecution, trial,
House of Representatives." The respondents further assert that the only complaint for and punishment according to law.
impeachment officially initiated by the House of Representatives is the October 23, 2003
Complaint filed by Congressmen Gilberto Teodoro and Felix William Fuentebella. The
(8) The Congress shall promulgate its rules on impeachment to effectively carry out complaint in civil procedure or criminal complaint or information in criminal procedure.
the purpose of this section.
According to amicus curiae Fr. Joaquin Bernas, the referral by the House of Representatives is
There are two separate and distinct proceedings undertaken in impeachment cases. The first is the initiating step which triggers the series of steps that follow in the House of Representatives.
that undertaken in the House of Representatives, which by express provision of the Constitution, The submission of Fr. Joaquin Bernas is shared by amicus curiae Justice Florenz D. Regalado,
is given the authority to determine the sufficiency in form and substance of the complaint for who, aside from being an eminent authority on Remedial Law, was also a member of the
impeachment, the existence of probable cause, and to initiate the articles of impeachment in the Constitutional Commission. During the hearing of this petition on November 5, 2003, he stated:
Senate. The second is the trial undertaken in the Senate. The authority to initiate an
impeachment case is lodged solely in the House of Representatives, while the authority to try RET. JUSTICE REGALADO:
and decide an impeachment case is lodged solely in the Senate. The two proceedings are
independent of and separate from the other. This split authority avoids the inconvenience of The point of filing does not mean that physical act of filing. If the
making the same persons both accusers and judges; and guards against the danger of petition/complaint is filed and no further action was taken on it then it
dies a natural death. When we say initiation of impeachment proceedings
persecution from the prevelancy of a factious spirit in either of those branches.[17]
where in the Court or the House of Representatives has taken judicial
cognizance by the referral to the corresponding committees should be
It must be noted that the word "initiate" is twice used in Section 3; first in paragraph 1, and
understood as part of the filing and that is why it was then. The problem
again in paragraph 5. The verb "initiate" in paragraph 1 is followed by the phrase "all cases of
here arose in that based on the wordings of Article 11, this House of
impeachment," while the word "initiated" in paragraph 5 of the Section is preceded by the
Representatives is, promulgated pursuant to the power granted to them,
words "no impeachment proceedings shall be." On the other hand, the word "file" or "filed" is
the rules, Rule 2, Sections 2 and 3, on December 15, 1998 following the
used in paragraphs 2 and 4 of Section 3.
wording of the Constitution. But then, on November 28, 2001 they
promulgated Rule 5, Section 16 and 17, this time requiring the vote of
There is a clear distinction between the words "file" and the word "initiate." Under the Rules of
1/3 for the purpose of initiating the proceeding obliviously possibly of
Civil Procedure, complaints are filed when the same are delivered into the custody of the clerk
the fact that the Constitution as worded and amended by the Maambong
of court or the judge either by personal delivery or registered mail and the payment of the
suggestion or advice was that it was it is initiated from the moment of
docket and other fees therefor. In criminal cases, the information or criminal complaint is
filing. The reason given and the justification given for that change was
considered filed when it is delivered with the court whether for purposes of preliminary
that it would enable the, somebody in collusion with the one who is
investigation or for trial as the case may be.
going to be impeached to file what they call, what one petitioner calls
here a "bogus" complaint for impeachment and thereby give the party
Distinction must be made between the phrase "the case" in Section 3(1) from the word
there in effect immunity for one year from the filing of an impeachment
"proceedings" in Section 3(5). "The case" refers to an action commenced or initiated in the
case, which is meritorious. Now, number 1, I do not agree with that
Senate by the transmittal of the articles of impeachment or the complaint of impeachment by the
explanation because that is against the Constitution. Strictly against the
House of Representatives for trial. The word "proceeding" means "the regular and orderly
Constitution, that was a grave abuse of discretion to change it. And
progression of a lawsuit including all acts and events between the time of commencement and
further more, Second, that so- called problem about somebody coming in
the entry of judgment; an act or step that is part of a larger action; an act done by the authority
to file a "bogus" impeachment complaint just to save the respondent for
or direction of the court, express or implied; it is more comprehensive than the word "action"
one year from another complaint is not beyond solution. The mere fact
but it may include in its general sense all the steps taken or measures adopted in the prosecution
that a "bogus" or insufficient or meritorious complaint was deliberately
or defense of an action including the pleadings and judgment. [18] The word "initiate" means "to resorted to in order to illegally avail of the one year period is the filing of
begin with or get going; make a beginning; perform or facilitate the first action."[19] a sham pleading which has not produce any effect even in the Rules of
Court we have proceedings, we have provisions about sham pleadings,
Based on the foregoing definitions, the phrase "initiate all cases of impeachment" in Section and for that matter the Court can even motu proprio dismiss that
3(1) refers to the commencement of impeachment cases by the House of Representatives initiatory pleading and here the House of Representatives I am sure could
through the transmittal of the complaint for impeachment or articles of impeachment to the also dismiss a sham bogus or sham complaint for impeachment. Now, on
Senate for trial and decision. The word "initiated" in Section 3(5), on the other hand, refers to the matter of a problem therein because the rules must always comply
the filing of the complaint for impeachment with the office of the Secretary General of the with the Constitution and it must be subject to Constitutional sufficiency.
House of Representatives, either by a verified complaint by any member of the House of The political, the question of the sole power of the Senate to try and
Representatives or by any citizen upon a resolution of endorsement by any member thereof, and decide, will lie as obvious the matter of prematurity. Well, as I said this is
referred to the committee of justice and human rights for action, or by the filing of a verified not premature, although I understand that Senate President Drilon
complaint or resolution of impeachment by at least one-third of all members of the House, pointed out that it was premature to sent him a copy or resolution inviting
which complaint shall constitute the Article of Impeachment. This is the equivalent of a them to observe to avoid any act which would render academic wherein
in the first place we are only on the first stage here. This Court has not than one-third of the members of the House of Representatives on October 23, 2003 well within
yet acquired jurisdiction to try the case on the merits, precisely the Court one year from the initiation of the June 2, 2003 of former President Joseph E. Estrada.
stated that the petition are not yet being given due course, so they might, Irrefragably then, the October 23, 2003 complaint for impeachment filed by Congessmen
but at any rate, it is not premature. ... the inevitable result is not if the Gilberto C. Teodoro, Jr. and Felix William D. Fuentebella is a second complaint for
complaint with the votes are submitted to the Senate, the Senate has no impeachment, which, under Section 3(5), Article XI of the Constitution, is proscribed.
other recourse but to actually try the case.[20]
IN THE LIGHT OF ALL THE FOREGOING, I vote to DENY DUE COURSE and to
The Rules of Procedure adverted to by the Justice Florenz D. Regalado is Sections 16 and 17, DISMISS all the petitions against the respondent Senate of the Philippines; and to DENY DUE
Rule V which reads: COURSE and DISMISS the petition in G.R. No. 160397; and to give due course and grant the
rest of the petitions against the respondent Speaker Jose G. de Venecia and his co-respondents.
Sec. 16. Impeachment Proceedings Deemed Initiated.-- In cases where a Member of
the House files a verified complaint of impeachment or a citizen files a verified Accordingly, Rule V of the 2001 House Rules of Procedure in Impeachment Proceedings which
complaint that is endorsed by a Member of the House through a resolution or was approved by the respondent House of Representatives on November 28, 2001 is
endorsement against an impeachable officer, impeachment proceedings against such UNCONSTITUTIONAL. The complaint of impeachment filed by the respondents
official are deemed inititated on the day the Committee on Justice finds that the Representatives Gilberto C. Teodoro, Jr. and Felix William G. Fuentebella on October 22, 2003
verified complaint and/or resolution against such official, as the case may be, is is barred under Article XI, Section 3(5) of the Constitution.
sufficient in substance or on the date the house votes to overturn or affirm the
finding of the said committee that the verified complaint and/or resolution, as the
case may be, is not sufficient in substance.
[1]Aside from this petition, several other petitions were filed against the same respondents
In cases where a verified complaint or a resolution of impeachment if filed or docketed as G.R. No. 160262, G.R. No. 160263, G.R. No. 160277, G.R. No. 160292, G.R. No.
endorsed, as the case may be, by at least one-third (1/3) of the Members of the 160295, G.R. No. 160310, G.R. No. 160318, G.R. No. 160342, G.R. No. 160343, G.R. No.
House, impeachment proceedings are deemed initiated at the time of the filing of 160360, G.R. No. 160365, G.R. No. 160370, G.R. No. 160376, G.R. No. 160392, G.R. No.
such verified complaint or resolution of impeachment with the Secretary General. 160397, G.R. No. 160403 and G.R. No. 160405.
Sec. 17. Bar Against Initiation of Impeachment Proceedings.-- Within a period of [2] 506 U.S. 224 (1993).
one (1) year from the date of impeachment proceedings are deemed initiated as
provided in Section 16 hereof, no impeachment proceedings, as such, can be
[3] Idonah Slade Perkins v. Mamerto Roxas, et al., 72 Phil. 514 (1941).
initiated against the same official.
The House of Representatives distorted and ignored the plain words of Section 3(1), Article XI [4] Vesagas v. Court of Appeals, et al., 371 SCRA 508 (2001).
of the Constitution when it provided in Section 16, Rule V that a complaint of impeachment is
"deemed initiated" in the House of Representatives "on the day the committee of justice finds [5] 353 SCRA 452 (2001).
that the said verified complaint and/or resolution against such official, as the case may be, is
sufficient in substance or on the date the House votes to overturn or affirm the finding of the
[6] Santiago
v. Guingona, Jr., 298 SCRA 756 (1998); Pacete v. The Secretary of Commission on
said committee that the verified complaint and/or resolution, as the case may, be is not sufficient
in substance." Consequently, it also distorted the computation of the one year period time bar Appointments, 40 SCRA 67 (1971).
under Section 3(5), Article XI of the Constitution to begin only "on the day this committee on
justice finds that the verified complaint and/or resolution against such official is sufficient in [7] Prowell v. McCormuck, 23 L.ed.2d. 491.
substance or on the date the house votes to overturn or affirm the finding of the said committee
that the verified complaint and/or resolution, as the case may be, is not sufficient in substance." [8] Supra.
Since Rule V of the 2001 Rules of Procedure is contrary to the Constitution, the said rule is
void. Resultantly, the complaint for impeachment against seven Justices of this Court filed by [9]
former President Joseph Ejercito Estrada with the office of the Secretary General of the House 286 U.S. 6 (1932).
of Representatives was initiated within the context of Section 3(5), Article XI of the
Constitution. The complaint was filed on June 2, 2003 and referred to the House Committee on [10] 356 SCRA 636 (2001).
Justice and Human Rights shortly thereafter. However, Congressmen Gilberto Teodoro and
Felix William Fuentebella initiated impeachment proceedings against Chief Justice Hilario G. [11] 338 SCRA 81.
Davide, Jr., with the Resolution of Endorsement of the Complaint for Impeachment by more
endorsement/impeachment" reached at least one-third of the members of the House, the

[12] Supra. complainants and their supporters were poised to move for the transmittal of the complaint, as
constituting the Articles of Impeachment, to the Senate.
[13] 281 SCRA 330, (1997), citing Tanada v. Angara, 272 SCRA 18 (1997). At this point, six of the petitions, which now total seventeen, seeking to declare the second
complaint unconstitutional were filed with this Court. The petitioners include two Members of
[14] Mapa v. Arroyo, 175 SCRA 76 (1989). the House of Representatives (Representative Salacnib F. Baterina and Deputy Speaker Raul M.
Gonzales), later joined by six other Members thereof. The Integrated Bar of the Philippines also
[15] 215 SCRA 489 (1992). filed a petition, while the others were Former Solicitor General Francisco I. Chavez, other
prominent lawyers, civic, labor and public- interest organizations, private individuals and plain
[16] taxpayers.
180 SCRA 496 (1989).
On October 28, 2003, the House of Representatives adjourned its session until November 10,
[17] Walter Nixon v. United States, 506 U.S. 224 (1993). 2003, for lack of quorum, which left the proponents of the impeachment unable to move to
transmit their complaint to the Senate. Also, on that date, this Court, acting on the petitions,
[18] Black's Law Dictionary, 7th ed., p. 1221. without granting the same due course, issued a status quo resolution.
[19] Webster's Third New International Dictionary. The Senate President, the Honorable Franklin M. Drilon, on behalf of the Senate, filed a
Manifestation stating that the matter of the impeachment is not yet with the Senate as it has not
[20] received the complaint or Articles of Impeachment from the House.
T.S.N., pp. 24-28 (Regalado). Underscoring supplied.
The House of Representatives, through the Speaker, the Honorable Jose de Venecia, Jr., as well
as the other Members of the House who support the complaint of impeachment, for their part,
through the legal counsel of the House, filed a Manifestation essentially questioning the
jurisdiction of the Court on the ground that the matter involves a political question that is, under
SEPARATE OPINION the Constitution, the sole prerogative of the House.
AZCUNA, J.: Senator Aquilino Q. Pimentel, Jr. was allowed to intervene and filed a Manifestation stating that
the Court has no jurisdiction over the matter, as it is a political question that is addressed solely
On June 2, 2003 a complaint for impeachment was filed in the House of Representatives against and exclusively to the Senate and the House of Representatives, and thus not justiciable.
Chief Justice Hilario G. Davide, Jr. and seven Associate Justices of the Supreme Court. Filed by
former President Joseph E. Estrada, the complaint accused the respondents of conspiring to The Solicitor General filed a Manifestation taking the position that the Court has jurisdiction,
remove him from power in violation of the Constitution. that the matter is justiciable, and that the filing of the second impeachment complaint subject of
the petition is in violation of the Constitution.
After referral to the Committee on Justice, and after several hearings thereon, the Committee
voted that the complaint was sufficient in form. Subsequently, however, on October 22, 2003, On November 5 and 6, 2003, the Court en banc heard the eight amici curiae, as well as the
said Committee voted to dismiss the complaint for being insufficient in substance. representatives and counsel of the parties. The Speaker and the House of Representatives and
proponent- Members thereof, made no appearance at said hearing.
The next day, on October 23, 2003, another complaint for impeachment was filed in the House
of Representatives, this time only against Chief Justice Hilario G. Davide, Jr.. It was filed by First, the preliminary or threshold issues, locus standi, justiciability, jurisdiction, ripeness and
two Members of the House, namely, Representative Felix William D. Fuentebella and propriety.
Representative Gilberto C. Teodoro, Jr., and charged the respondent with violating the law on
the use of the Judiciary Development Fund (JDF). There can be no serious challenge as to petitioners' locus standi. Eight are Members of the
House of Representatives, with direct interest in the integrity of its proceedings. Furthermore,
Subsequently, and before the complaint could be referred to the Committee on Justice, more petitioners as taxpayers have sufficient standing, in view of the transcendental importance of the
than seventy three other Representatives signed "resolutions of endorsement/impeachment," in issue at hand. It goes beyond the fate of Chief Justice Davide, as it shakes the very foundations
relation to said complaint. of our system of government and poses a question as to our survival as a democratic polity.
As the total number of those who filed and those who signed the "resolutions of There is, moreover, an actual controversy involving rights that are legally demandable, thereby
leaving no doubt as to the justiciability of the petitions. all cases of impeachment.
As to the jurisdiction of this Court, and whether the issue presents a political question that may (2) A verified complaint for impeachment may be filed by any Member of the House
not be delved into by the Court, it is necessary to look into the structure and essence of our of Representatives or by any citizen upon a resolution of endorsement by any
system of government under the Constitution. Member thereof, which shall be included in the Order of Business within ten session
days, and referred to the proper Committee within three session days thereafter. The
The starting principle is that the Philippines is a democratic and republican State and that Committee, after hearing, and by a majority vote of all its Members, shall submit its
sovereignty resides in the people and all governed authority emanates from them (Art. II, Sec. report to the House within sixty session days from such referral, together within the
1). corresponding resolution. The resolution shall be calendared for consideration by the
House within ten session days from receipt thereof.
As a republican State, the sovereign powers of the people are for the most part exercised
through representatives and not directly, except in the cases of suffrage, referenda and (3) A vote of at least one-third of all the Members of the House shall be necessary
initiatives. either to affirm a favorable resolution with the Articles of Impeachment of the
Committee, or override its contrary resolution. The vote of each Member shall be
Furthermore, the form of government we chose is that of a tripartite Presidential system, recorded.
whereby the great powers of government are divided among three separate, co-equal and co-
ordinate Departments. Accordingly, Articles VI, VII and VIII of the Constitution provide for the (4) In case the verified complaint or resolution of impeachment is filed by at least
Legislative Department, the Executive Department and the Judicial Department, with the one-third of all the Members of the House, the same shall constitute the Articles of
corresponding powers to make, to enforce and to interpret the laws. Impeachment, and trial by the Senate shall forthwith proceed.
The idea is to prevent absolutism that arises from a monopoly of power. Abuse is to be (5) No impeachment proceedings shall be initiated against the same official more
prevented by dividing power, and providing for a system of checks and balances. than once within a period of one year.
Historically, one such method of checks and balances is the institution of impeachment, or the (6) The Senate shall have the sole power to try and decide all cases of impeachment.
procedure of removing high officials on grounds spelled out in the Constitution. It was designed When sitting for that purpose, the Senators shall be on oath or affirmation. When the
as a check by the Legislative Department on the Executive and Judicial Departments. President of the Philippines is on trial, the Chief Justice of the Supreme Court shall
It is worth noting, however, that the Constitution places the provision on impeachment, not in two-thirds of all the Members of the Senate.
Articles VI, VII and VIII on governmental powers, but in Article XI on Accountability of Public
Officers. (7) Judgment in cases of impeachment shall not extend further than removal from
office and disqualification to hold any office under the Republic of the Philippines,
This placement is clearly intentional and meant to signal the importance of the accountability of but the party convicted shall nevertheless be liable and subject to prosecution, trial
public officers, and that impeachment is an instrument of enforcing or securing that and punishment according to law.
accountability, and not simply a method of checks and balances by one power over another.
(8) The Congress shall promulgate its rules on impeachment to effectively carry out
Now, how does Article XI provide for this power of impeachment? the purpose of this section.
Again, it divides the power - the first part, or the power to "initiate," is given exclusively to the It is clear, therefore, that unlike the Constitutions of other countries, that of the Philippines, our
House of Representatives. The second part, the power to try and decide, is given solely to the Constitution, has opted textually to commit the sole power and the exclusive power to this and
Senate. to that Department or branch of government, but in doing so it has further provided specific
procedures and equally textually identifiable limits to the exercise of those powers. Thus, the
The provisions in full are, as follows: filing of the complaint for impeachment is provided for in detail as to who may file and as to
what shall be done to the complaint after it is filed, the referral to the proper Committee, its
Article XI hearing, its voting, its report to the House, and the action of the House thereon, and the
Accountability of Public Officers timeframes for every step (Subsection 2).
xxxxxxxxx Similarly, the required number of votes to affirm or override a favorable or contrary resolution
is stated (Subsection 3).
Section 3 (1) The House of Representatives shall have the exclusive power to initiate
So, also, what is needed for a complaint or resolution of impeachment to constitute the Articles Commission, posited this query:
of Impeachment, so that trial by the Senate shall forthwith proceed, is specifically laid down,
i.e., a verified complaint or resolution of impeachment filed by at least one-third of all the MR. VILLACORTA. Madam President, I would just like to ask the
Members of the House (Subsection 4). Committee three questions:
It is my view that when the Constitution not only gives or allocates the power to one On Section 3, page 2, lines 12 to 14, the last paragraph reads as follows:
Department or branch of government, be it solely or exclusively, but also, at the same time, or `No impeachment proceedings shall be initiated against the same official
together with the grant or allocation, specifically provides certain limits to its exercise, then this more than once within a period of one year.' Does this mean that even if
Court, belonging to the Department called upon under the Constitution to interpret its an evidence is discovered to support another charge or ground for
provisions, has the jurisdiction to do so. impeachment, a second or subsequent proceeding cannot be initiated
against the same official within a period of one year? In other words, one
And, in fact, this jurisdiction of the Court is not so much a power as a duty, as clearly set forth year has to elapse before a second or subsequent charge or proceeding
in Article VIII, Section 1 of the Constitution: can be initiated. The intention may be to protect the public official from
undue harassment. On the other hand, is this not undue limitation on the
Section 1. The judicial power shall be vested in one Supreme Court and in such lower courts as accountability of public officers? Anyway, when a person accepts a
may be established by law. public trust, does he not consider taking the risk of accounting for his
acts or misfeasance in office?
Judicial power includes THE DUTY of the courts of justice to settle actual controversies
involving rights which are legally demandable and enforceable, and to determine whether or not The query produced this answer:
there has been a grave abuse of discretion amounting to lack or excess of jurisdiction on the part
of any branch or instrumentality of the Government. (Stress ours) MR. ROMULO. Yes, the intention here really is to limit. This is not only to protect
public officials who, in this case, are of the highest category from harassment but
This function of the Court is a necessary element not only of the system of checks and balances, also to allow the legislative body to do its work which is lawmaking. Impeachment
but also of a workable and living Constitution. For absent an agency or organ that can rule, with proceedings take a lot of time. And if we allow multiple impeachment charges on the
finality, as to what the terms of the Constitution mean, there will be uncertainty if not chaos in same individual to take place, the legislature will do nothing else but that. (Stress
governance, i.e., no governance at all. This is what the noted writer on legal systems, Prof. ours.)
H.L.A. Hart, calls the need for a Rule of Recognition in any legal system, without which that
system cannot survive and dies (HART, The Concept of Law, 92, 118). "Madame Justice Cecilia Muñoz-Palma [President of the Constitutional
Commission], in her article "We should remain steadfast with rule of law," Manila
From as far back as Angara v. Electoral Commission, 63 Phil. 139 (1936), it has been Bulletin, October 28, 2003, wrote:
recognized that this is not the supremacy of the Court. It is the supremacy of the Constitution
The Foundation makes of record its considered view, based on the RECORD OF
and of the sovereign Filipino people who ordained and promulgated it.
THE CONSTITUTIONAL COMMISSION OF 1986, at pages 373 to 376, and at
382 that:"
Proceeding, then, to do our duty of construing the Constitution in a matter of profound
necessity, we are called upon to rule whether the second complaint of impeachment is in accord 1. Ìnitiation' refers to the filing of any verified complaint by a Member of the
with Article XI, Sec. 3 (5) of the Constitution, which states: House or by a citizen, with the endorsement of a Member of the House, as
provided in Section 3 (2) of Article XI of the Constitution, and initiation could
No impeachment proceedings shall be initiated against the same official more than once within not therefore refer to the filing of the Articles of Impeachment in the Senate.
a period of one year.
2. The one-year prohibition was intended by the framers of the Constitution to
I say it is not. allow Congress to continue with its main task (emphasis in the original)
The purpose of this provision is two-fold: to prevent undue or too frequent harassment; and (2) "It is noted that in the Commissioner Villacorta query and the Commissioner
to allow the legislature to do its principal task, legislation. Romulo reply, the following values were considered: `to protect the public official
from undue harassment,' `(not to impose an) undue limitation on the accountability
As aptly put by the Association of Retired Justices of the Supreme Court: of public officers,' àcceptance of public trust' and `to allow the legislative body to
do its work which is lawmaking.' In the end, Commissioner Romulo struct this
"The debate as to the sense of the provision starts with the 1986 Constitutional balance: `[T]his is not only to protect public officials who, in this case, are of the
Commission. Commissioner Villacorta, Commissioner of the 1986 Constitutional
highest category from harassment but also to allow the legislative body to do its For this reason, Subsections (1) to (5) of Article XI, Section 3 apply to the House whereas
work which is lawmaking.'" (Stress ours.) Subsections (6) and (7) apply to the Senate, and Subsection (8) applies to both, or to
"Congress." There is therefore a sequence or order in these subsections, and the contrary view
The contention is advanced that the second complaint is not covered by the provision because disregards the same.
under the Rules of Procedure in Impeachment Proceedings, adopted by the House on November
28, 2001, the first complaint filed in June, four months earlier, is not yet "deemed initiated," Also, as aforestated, the very rules of the House are entitled "Rules of Procedure in
since it has not been reported to the floor of the House of Representatives. To my mind, this Impeachment Proceedings," and relate to every step of the impeachment proceedings, from the
position is not tenable. filing of the complaint with the House up to the formation of a Prosecution panel.
This would stretch the meaning of "initiate" and defeat the purpose of the provision of the I earlier adverted to the placement of the power of impeachment, not in the Articles on
Constitution. It would allow considerable harassment from multiple complaints filed within one governmental powers, but in the Article on accountability. This indicates that such power is not
year against the same official. And, what is even more telling, it would tie up the Legislature, essentially legislative in character, and is not primarily intended as a check by the Legislative
particularly the House of Representatives, in too frequent and too many complaints of Department on the other branches. Its main purpose, at least under our Constitution, is to
impeachment filed before it, leaving it little time to attend to its principal task of legislation, as achieve accountability, but this is to be done without detriment to the governmental power of
is in fact happening now. legislation under Article VI.
Therefore, the Rules referred to cannot be so interpreted as to defeat the objectives of Art. XI, A second complaint is not forever barred, but only temporarily so, or until June of 2004, to
Section 3 (5). For the very grant of the power to adopt Rules on Impeachment, Article XI, forestall disruption of the principal task of legislative work. As it is, without casting aspersions
Section 3 (8), provides, too, a limit or qualification, thus: on co-equal Departments but stressing only the fact that all the Departments have so much to do
and so little time to do it, the national budget is yet to be approved. The rationale of the
(8) The Congress shall promulgate its rules on impeachment to effectively carry out Constitutional provision is, thus, evident.
the purpose of this section. (Stress ours)
Finally, prudential considerations are urged to allow the political Departments to correct any
And, besides, as pointed out by amicus curiae former Constitutional Commissioner, Joaquin G. mistake themselves, rather than for the Court to intervene.
Bernas, S.J., said Rules refer to what are instances when a complaint for impeachment is
"deemed initiated," a matter of legal fiction, presumably for internal purposes of the House, as It is not certain, however, whether the Senate is called upon to review what the House has done
to the timing of some of its internal action on certain relevant matters. The Constitutional in the exercise of its exclusive power to initiate all cases of impeachment, any more that the
provision, on the other hand, states that "No impeachment proceedings shall be initiated," not House is wont to interfere with the sole power of the Senate to try and decide all such cases.
"deemed initiated," and, therefore, refers to actual initiation, not constructive initiation by legal Besides, the Senate action would itself be part of what is sought to be avoided by Subsection 5,
fiction. namely, disruption of legislative work.
It is also contended that the provision of Article XI, Sec. 3 (5) refers to impeachment For all these reasons, I vote to grant the petitions by declaring the second complaint of
proceedings in the Senate, not in the House of Representatives. impeachment as one that, for now, runs counter to Article XI, Section 3 (5) of the Constitution.
This is premised on the wording of Article XI, Sec. 3 (1) which states that "The House of
Representatives shall have the exclusive power to initiate all cases of impeachment." Thus, it is
argued, cases of impeachment are initiated only by the filing thereof by the House of
Representatives with the Senate, so that impeachment proceedings are those that follow said
filing. SEPARATEOPINION
This interpretation does violence to the carefully allocated division of power found in Article
XI, Sec. 3. Precisely, the first part of the power is lodged with the House, that of initiating Tinga, J.:
impeachment, so that a respondent hailed by the House before the Senate is a fact and in law
already impeached. What the House initiates in the Senate is an impeachment CASE, not "May you live in interesting times," say the Chinese. Whether as a curse or a blessing, the
PROCEEDINGS. The proceedings for impeachment preceded that and took place exclusively in Filipinos' lot, it seems, is to live in "interesting" times. In our recent past, we saw the imposition
the House (in fact, non-members of the House cannot initiate it and there is a need for a House
member to endorse the complaint). And what takes place in the Senate is the trial and the of martial law, [1] the ratification of a new Constitution,[2] the installation of a revolutionary
decision. government,[3] the promulgation of a provisional Constitution[4] the ratification of the present
one, [5] as well as attempted power-grabs by military elements resulting in the arrest of the then
Defense Minister.[6]
We saw the fall from grace of a once popular president, and the ascension from office, on impeachment for, and conviction of, culpable violation of the
Constitution, treason, bribery, graft and corruption, other high crimes, or betrayal of
to office of a new president.[7] public trust. All other public officers and employees may be removed from office as
provided by law, but not by impeachment.
To all these profound events, the Court bore witness - not silent but, possibly, muted. In all these
profound events, the Court took part - mostly passive and, sometimes, so it is said, active - by SEC. 3. (1) The House of Representatives shall have the exclusive power to initiate
upholding or revoking State action. all cases of impeachment.
Today, the Court is again asked to bear witness and take part in another unparalleled event in (2) A verified complaint for impeachment may be filed by any member of the House
Philippine history: the impeachment of the Chief Justice. Perhaps not since Javellana and the of Representatives or by any citizen upon a resolution of endorsement by any
martial law cases has the Supreme Court, even the entire judiciary, come under greater scrutiny. Member thereof, which shall be included in the Order of Business within ten session
days, and referred to the proper Committee within three session days thereafter. The
The consequences of this latest episode in our colorful saga are palpable. The economy has Committee, after hearing, and by a majority vote of all its Members, shall submit its
plunged to unprecedented depths. The nation, divided and still reeling from the last report to the House within sixty session days from such referral, together with the
impeachment trial, has again been exposed to a similar spectacle. Threats of "military corresponding resolution. The resolution shall be calendared for consideration by the
adventurists" seizing power have surfaced. House within ten session days from receipt thereof.
Punctuating the great impact of the controversy on the polity is the astounding fast clip by (3) A vote of at least one-third of all the Members of the House shall be necessary
which the factual milieu has evolved into the current conundrum of far-reaching proportions. either to affirm a favorable resolution with the Articles of Impeachment of the
Departing from the tradition of restraint of the House of Representatives, if not acute hesitancy Committee, or override its contrary resolution. The vote of each Member shall be
in the exercise of its impeachment powers, we saw more than one-third of the House recorded.
membership flexed their muscles in the past fortnight with no less than the Chief Justice as the
target. (4) In case the verified complaint or resolution of impeachment is filed by at least
one-third of all the Members of the House, the same shall constitute the Articles of
On June 2, 2003, former President Estrada filed a complaint for impeachment before the House Impeachment, and trial by the Senate shall forthwith proceed.
of Representatives against six incumbent members of the Supreme Court who participated in
authorizing the administration of the oath to President Macapagal-Arroyo and declaring the (5) No impeachment proceedings shall be initiated against the same official more
former president resigned in Estrada v. Desierto.[8] Chief among the respondents is Chief than once within a period of one year.
Justice Hilario G. Davide, Jr.[9] himself, the same person who co-presided the impeachment trial
of Estrada and personally swore in Macapagal-Arroyo as President. Also impleaded in the (6) The Senate shall have the sole power to try and decide all cases of impeachment.
When sitting for that purpose, the Senators shall be on oath or affirmation. When the
complaint are two other justices[10] for their alleged role, prior to their appointment to this
Court, in the events that led to the oath-taking. Nothing substantial happened until the House
Committee on Justice included the complaint in its Order of Business on October 13, 2003, and
two-thirds of all the Members of the Senate.
ruled that the same was "sufficient in form." However, the Committee dismissed the complaint
on October 22, 2003 for being insufficient in substance. But the Committee deferred the
(7) Judgment in cases of impeachment shall not extend further than removal from
preparation of the formal Committee Report that had to be filed with the Rules Committee. As it
office and disqualification to hold any office under the Republic of the Philippines,
turned out, there was a purpose behind the delay. The next day, on October 23, 2003, another
but the party convicted shall nevertheless be liable and subject to prosecution, trial
complaint was filed by respondent Representatives Gilberto Teodoro, Jr. and Felix William
and punishment according to law.
Fuentebella against the Chief Justice alone, alleging irregularities in the administration of the
Judiciary Development Fund.
(8) The Congress shall promulgate its rules on impeachment to effectively carry out
the purpose of this section. [Emphasis supplied.]
Several petitions, eighteen in all, were filed before this Court, most of them assailing specific provisions
of the House of Representatives' Rules on Impeachment, as well as the second impeachment complaint The impugned House of Representatives Rules on Impeachment, specifically, Sections 16 and
against the Chief Justice, for being contrary to Section 3 (5), Article XI of the Constitution on 17, Rule V (Bar against Initiation of Impeachment Proceedings against the same Official),
Accountability of Public Officers. Sections 2 and 3 of said Article read in full: provide:
SEC. 2. The President, the Vice-President, the Members of the Supreme Court, the Sec. 16. Impeachment Proceedings Deemed Initiated. - In cases where a Member of
Members of the Constitutional Commissions, and the Ombudsman may be removed the House files a verified complaint of impeachment or a citizen files a verified
complaint that is endorsed by a Member of the House through a resolution of Pambansa in the discharge of its impeachment powers other than the required majorities.
endorsement against an impeachable officer, impeachment proceedings against such
official are deemed initiated on the day the Committee on Justice finds that the Now comes the 1987 Constitution. It introduces conditionalities and limitations theretofore
verified complaint and/or resolution against such official, as the case may be is unheard of. An impeachment complaint must now be verified.[17] If filed by any member of the
sufficient in substance or on the date the House votes to overturn or affirm the House of Representatives or any citizen with the endorsement of a House Member, it shall be
finding of said Committee that the verified complaint and/or resolution, as the case included in the order of business within ten session days, and referred to the proper committee
may be, is not sufficient in substance.
within three session days thereafter.[18] Within sixty days after the referral, and after hearing and
In cases where a verified complaint or resolution of impeachment is filed or upon majority vote of all its members, the proper committee shall submit its report to the House,
endorsed, as the case may be, by at least one-third (1/3) of the Members of the together with the corresponding resolution, and the House shall calendar the same for
House, impeachment proceedings are deemed initiated at the time of the filing of consideration within ten days from receipt.[19] No impeachment proceedings shall be initiated
such verified complaint or resolution of impeachment with the Secretary General. against the same official more than once within a period of one year.[20]
Sec. 17. Bar Against Initiation of Impeachment Proceedings. - Within a period of While these limitations are intrusive on rules of parliamentary practice, they cannot take on a
one (1) year from the date impeachment proceedings are initiated as provided in merely procedural character because they are mandatory impositions made by the highest law of
Section 16 hereof, no impeachment proceedings, as such, can be initiated against the
the land, and therefore cannot be dispensed with upon whim of the legislative body.[21] Today, it
same official.
must be settled once and for all which entity shall determine whether impeachment powers have
In light of these contentions, petitioners - indeed, the whole Filipino nation - ask: What is the been exercised in accordance with law. This question is answered definitively by our
Court going to do? To this, the Court answers: We do our duty. Constitution.
The Constitution lodges on the House of Representatives "the exclusive power to initiate all Section 1, Article VIII of the Constitution provides:
cases of impeachment,"[11] and on the Senate, "the sole power to try and decide all cases of The judicial power shall be vested in one Supreme Court and in such lower courts as
impeachment."[12] But the power of impeachment is not inherently legislative; it is executive in may be established by law.
character. Neither is the power to try and decide impeachment cases; it is judicial by nature.
Thus, having emanated from the Constitution, the power of impeachment is circumscribed by Judicial power includes the duty of the courts of justice to settle actual controversies
constitutional limitations. Even if impeachment as a legal concept is sui generis, it is not supra involving rights which are legally demandable and enforceable, and to determine
legem. whether or not there has been a grave abuse of discretion amounting to lack or
excess of jurisdiction on the part of any branch or instrumentality of the
An examination of the various constitutions which held sway in this jurisdiction reveals Government.
structural changes in the legislature's role in the impeachment process. The 1935 Constitution,
as amended, was stark in its assignation of the impeachment authority. Therein, the House of Article VIII, Section 1 is a rule of jurisdiction,[22] one that expands the Supreme Court's
Representatives was vested "the sole power of impeachment,"[13] while the Senate had "the sole authority to take cognizance of and decide cases. No longer was the exercise of judicial review a
matter of discretion on the part of the courts bound by perceived notions of wisdom. No longer
power to try all impeachments," [14] No other qualifications were imposed upon either chamber
could this Court shirk from the "irksome task of inquiring into the constitutionality and legality
in the exercise of their respective functions other than prescribing the votes required for either
of legislative or executive action when a justiciable controversy is brought before the courts by
chambers exercise of their powers, listing the public officials who
someone who has been aggrieved or prejudiced by such action." [23] An eminent member of the
are impeachable, and enumerating the grounds for impeachment. The present Court, Justice Puno, described the scope of judicial power in this wise:
1935 Constitution was silent on the procedure. It was similar in this regard to the United States In the Philippine setting, there is a more compelling reason for courts to
categorically reject the political question defense when its interposition will cover up
Constitution.[15] abuse of power. For section 1, Article VIII of our Constitution was intentionally
cobbled to empower courts "x x x to determine whether or not there has been a grave
The 1973 Constitution provided a different system. As it ordained a unicameral legislature, the abuse of discretion amounting to lack or excess of jurisdiction on the part of any
power to impeach, try and decide impeachment cases was lodged on a single body, the Batasang branch or instrumentality of the government." This power is new and was not
Pambansa.[16] The new structure would necessitate a change in constitutional terminology granted to our courts in the 1935 and 1972 Constitutions. It was not also Xeroxed
regarding impeachment, the significance of which I shall discuss later. But despite the change, from the US Constitution or any foreign state constitution. The CONCOM granted
the Constitution did not impose any new limitation that would hamstring the Batasang this enormous power to our courts in view of our experience under martial law
where abusive exercises of state power were shielded from judicial scrutiny by the that they shall act as "sole judges" of all contests relating to the election, returns, and
misuse of the political question doctrine. Led by the eminent former Chief Justice qualifications of the members of Congress. The Court asserted this authority as far back as
Roberto Concepcion, the CONCOM expanded and sharpened the checking powers 1936, in the landmark case of Angara v. Electoral Commission.[25] More recently, this Court,
of the judiciary vis-a-vis the Executive and the Legislative departments of speaking through Justice Puno, expounded on the history of the Court's jurisdiction over these
government. In cases involving the proclamation of martial law and suspension of tribunals:
the privilege of habeas corpus, it is now beyond dubiety that the government can no
longer invoke the political question defense. In sum, our constitutional history clearly demonstrates that it has been our consistent
ruling that this Court has certiorari jurisdiction to review decisions and orders of
In Tolentino v. Secretary of Finance, I posited the following postulates: Electoral Tribunals on a showing of grave abuse of discretion. We made this ruling
although the Jones Law described the Senate and the House of Representatives as
xxx the `sole judges' of the election, returns, and qualifications of their elective members.
It cannot be overstressed that the 1935 Constitution also provided that the Electoral
Section 1. The judicial power shall be vested in one Supreme Court and in such Tribunals of the Senate and the House shall be the `sole judge' of all contests relating
lower courts as may be established by law. to the election, returns, and qualifications of their respective Members. Similarly, the
1973 Constitution transferred to the COMELEC the power be the `sole judge' of all
Judicial power includes the duty of the courts of justice to settle actual controversies contests relating to the election, returns, and qualifications of all members of the
involving rights which are legally demandable and enforceable, and to determine Batasang Pambansa. We can not lose sight of the significance of the fact that the
whether or not there has been a grave abuse of discretion amounting to lack or certiorari jurisdiction of this Court has not been altered in our 1935, 1973 and 1987
excess of jurisdiction on the part of any branch or instrumentality of the Constitutions.
Government.
xxx In the first place, our 1987 Constitution reiterated the certiorari jurisdiction of
Former Chief Justice Roberto R. Concepcion, the sponsor of this provision in the this Court on the basis of which it has consistently assumed jurisdiction over
Constitutional Commission explained the sense and the reach of judicial power as decisions of our Electoral Tribunals. In the second place, it even expanded the
follows: certiorari jurisdiction of this Court on the basis of which it has consistently
assumed jurisdiction over decision of our Electoral Tribunals. In the second
xxx place, it even expanded the certiorari jurisdiction of this Court by defining judicial
power as "x x x the duty of the courts of justice to settle actual controversies
x x x In other words, the judiciary is the final arbiter on the question of whether or involving rights which are legally demandable and enforceable, and to determine
not a branch of government or any of its officials has acted without jurisdiction, or whether or not there has been a grave abuse of discretion amounting to lack or
so capriciously as to constitute an abuse of discretion amounting to excess of excess of jurisdiction on the part of any branch or instrumentality of the
jurisdiction. This is not only a judicial power but a duty to pass judgment on matters Government. In the third place, it similarly reiterated the power of the Electoral
of this nature. Tribunals of the Senate and of the House to act as the `sole judge' of all contests
relating to the election, returns, and qualifications of their respective members.[26]
This is the background of paragraph 2 of Section 1, which means that the courts
(citations omitted, emphasis supplied)
cannot hereafter evade the duty to settle matters of this nature, by claiming that such
matters constitute political question. What circumscribes the Court's review of an act of Congress or a Presidential issuance are the
limits imposed by the Constitution itself or
The Constitution cannot be any clearer. What it granted to this Court is not a mere
power which it can decline to exercise. Precisely to deter this disinclination, the
Constitution imposed it as a duty of this Court to strike down any act of a branch or the notion of justiciability.[27] An issue is justiciable rather than political
instrumentality of government or any of its officials done with grave abuse of
discretion amounting to lack or excess of jurisdiction. Rightly or wrongly, the where it involves the legality and not the wisdom of the act complained of, [28] or if it pertains
Constitution has elongated the checking powers of this Court against the other to issues which are inherently susceptible of being decided on grounds recognized by law.[29]
branches of government despite their more democratic character, the President and
As this Court held in Tatad v. Secretary of Finance:[30]
the legislators being elected by the people.[24]
In seeking to nullify an act of the Philippine Senate on the ground that it contravenes
Thus, in the case of the House and Senate Electoral Tribunals, this Court has assumed the Constitution, the petition no doubt raises a justiciable controversy. Where an
jurisdiction to review the acts of these tribunals, notwithstanding the Constitutional mandate action of the legislative branch is seriously alleged to have infringed the
Constitution, it becomes not only the right but in fact the duty of the 'judiciary to
settle the dispute. The question thus posed is 'judicial rather than political. The duty In the interpretation of Constitutions, questions frequently arise as to whether
to adjudicate remains to assure that the supremacy of the Constitution is upheld. particular sections are mandatory or directory. The courts usually hesitate to declare
Once a controversy as to the application or interpretation of' a constitutional that a constitutional provision is directory merely in view of the tendency of the
provision is raised before this Court, it becomes a legal issue which the Court is legislature to disregard provisions which are not said to be mandatory. Accordingly,
bound by constitutional mandate to decide.[31] it is the general rule to regard constitutional provisions as mandatory, and not to
leave any discretion to the will of a legislature to obey or to disregard them. This
The petitions before us raise the question of whether the House of Representatives, in presumption as to mandatory quality is usually followed unless it is unmistakably
promulgating and implementing the present House Rules on Impeachment, had acted in manifest that the provisions are intended to be merely directory. The analogous rules
distinguishing mandatory and directory statutes are of little value in this connection
accordance with the Constitution. [32] Some insist that the issues before us are not justiciable
and are rarely applied in passing upon the provisions of a Constitution.
because they raise a "political question."[33] This view runs contrary to established authority. So strong is the inclination in favor of giving obligatory force to the terms of the
organic law that it has even been said that neither by the courts nor by any other
While the Court dismissed per its Resolution of September 3, 1985, the petition in G.R. No. department of the government may any provision of the Constitution be regarded as
71688 (Arturo M. de Castro, et al. v. Committee on Justice, et al.) seeking to annul the merely directory, but that each and every one of its provisions should be treated as
resolution of the Committee on Justice of the then Batasang Pambansa a verified complaint for imperative and mandatory, without reference to the rules and distinguishing between
the impeachment of then President Marcos signed by more than one-fifth (1/5) of all the the directory and the mandatory statutes. (II Am. Jur 686-687; italics supplied)
members of the Batasang Pambansa, which was the requisite number under the 1973
Constitution, and to give due course to the impeachment complaint, the Court clearly conceded Ten years later, the Court in Gonzales v. Commission on Elections [37] resolved the issue of
that had the procedure for impeachment been provided in the 1973 Constitution itself, the whether a resolution of Congress proposing amendments to the Constitution is a political
outcome of the petition would have been different. Wrote the Court: question. It held that it is not and is therefore subject to judicial review.
. . . Beyond saying that the Batasan may initiate impeachment by a vote of at least Indeed, the power to amend the Constitution or to propose amendments thereto is
one-fifth of all its members and that no official shall be convicted without the not included in the general grant of legislative powers to Congress. It is part of the
concurrence of at least two- thirds of all the members thereof, the Constitution says inherent powers of the people -- as the repository of sovereignty in a republican
no more. It does not lay down the procedure in said impeachment proceedings, state, such as ours -- to make, and, hence, to amend their own Fundamental Law.
which it had already done. The interpretation and application of said rules are Congress may propose amendments to the Constitution merely because the same
beyond the powers of the Court to review . . . . [34] explicitly grants such power. Hence, when exercising the same, it is said that
Senators and Members of the House of Representatives act, not as members of
Forty-six years ago, this Court in Tañada v. Cuenco[35] was confronted with the question of Congress, but as component elements of a constituent assembly. When acting as
whether the procedure laid down in the 1935 Constitution for the selection of members of the such, the members of Congress derive their authority from the Constitution, unlike
Electoral Tribunals was mandatory. After ruling that it was not a political question, the Court the people, when performing the same function for their authority does not emanate
proceeded to affirm the mandatory character of the procedure in these words: from the Constitution -- they are the very source of all powers of government,
including the Constitution itself.
The procedure prescribed in Section 11 of Article VI of the Constitution for the
selection of members of the Electoral Tribunals is vital to the role they are called Since, when proposing, as a constituent assembly, amendments to the Constitution,
upon to play. It constitutes the essence of said Tribunals. Hence, compliance with the members of Congress derive their authority from the Fundamental Law, it
said procedure is mandatory and acts performed in violation thereof are null and follows, necessarily, that they do not have the final say on whether or not their acts
void.[36] are within or beyond constitutional limits. Otherwise, they could brush aside and set
the same at naught, contrary to the basic tenet that ours is a government of laws, not
The footnote of authorities corresponding to the above-quoted pronouncement reads: of men, and to the rigid nature of our Constitution. Such rigidity is stressed by the
fact that, the Constitution expressly confers upon the Supreme Court, the power to
The need of adopting this view is demanded, not only by the factors already adverted declare a treaty unconstitution, despite the eminently political character of treaty-
to, but, also, by the fact that constitutional provisions, unlike statutory enactments, making power.
are presumed to be mandatory, ùnless the contrary is unmistakably manifest.' The
pertinent rule of statutory construction is set forth in the American Jurisprudence as In short, the issue whether or not a Resolution of Congress -- acting as a constituent
follows: assembly -- violates the Constitution essentially justiciable, not political, and, hence,

subject to judicial review, and, to the extent that this view may be inconsistent with not.
the stand taken in Mabanag v. Lopez Vito, the latter should be deemed modified
accordingly. The Members of the Court are unanimous on this point.[38] We cannot accept the view of the Solicitor General, in pursuing his theory of non-
justiciability, that the question of the President's authority to propose amendments
and the regularity of the procedure adopted for submission of the proposals to the
In Sanidad v. Commission on Elections[39] questioned was the power of the President to propose
people ultimately lie in the judgment of the latter. A clear Descartes fallacy of
amendments to the Constitution on the ground that it was exercised beyond the limits prescribed
vicious circle. Is it not that the people themselves, by their sovereign act, provided
by the Constitution. Holding that it was a justiciable controversy, this Court made the following
for the authority and procedure for the amending act, provided for the authority and
disquisition:
procedure for the amending process when they ratified the present Constitution in
The amending process both as to proposal and ratification, raises a judicial question. 1973? Whether, therefore, that constitutional provision has been followed or not is
This is especially true in cases where the power of the Presidency to initiate the indisputably a proper subject of inquiry, not by the people themselves -- of course --
amending process by proposals of amendments, a function normally exercised by the who exercise no power of judicial review, but by the Supreme Court in whom the
legislature, is seriously doubted. Under the terms of the 1973 Constitution, the power people themselves vested that power, a power which includes the competence to
to propose amendments to the Constitution resides in the interim National Assembly determine whether the constitutional norms for amendments have been observed or
during the period of transition (Sec. 15, Transitory Provisions). After that period, and not. And, this inquiry must be done a priori not a posteriori, i.e., before the
the regular National Assembly in its active session, the power to propose submission to and ratification by the people.[40]
amendments becomes ipso facto the prerogative of the regular National Assembly
(Sec. 1, pars. 1 and 2 of Art. XVI, 1973 Constitution). The normal course has not The doctrine that may be drawn from the cited decisions is clear. The determination of
been followed. Rather than calling the interim National Assembly to constitute itself compliance with a rule, requirement or limitation prescribed by the Constitution on the
into a constituent assembly, the incumbent President undertook the proposal of exercise of a power delegated by the Constitution itself on a body or official is invariably a
amendments and submitted the proposed amendments thru Presidential Decree 1033 justiciable controversy.
to the people in a Referendum-Plebiscite on October 16. Unavoidably, the regularity
of the procedure for amendments, written in lambent words in the very Constitution Contrary to what respondent Speaker Jose G. De Venecia and intervenor Senator Aquilino
sought to be amended, raises a contestable issue. The implementing Presidential Pimentel have posited, the ruling in Nixon v. United States[41] is not applicable to the present
Decree Nos. 991, 1031, and 1033, which commonly purport to have the force and petitions. There, the U.S. Supreme Court held that the constitutional challenge to the hearing of
effect of legislation are assailed as invalid, thus the issue of the validity of said the impeachment case by a committee created by the Senate is nonjusticiable. As pointed out
Decrees is plainly a justiciable one, within the competence of this Court to pass earlier, the provisions of the 1987
upon. Section 2(2), Article X of the new Constitution provides: All cases involving
the constitutionality of a treaty, executive agreement, or law shall be heard and Constitution on impeachment at the House level explicitly lay out the procedure, requirements
decided by the Supreme Court en banc, and no treaty, executive agreement, or law and limitations. In contrast, the provision for the Senate level, like in the U.S. Constitution, is
may be declared unconstitutional without the concurrence of at least ten Members . . quite sparse. So, if at all, Nixon would be persuasive only with respect to the Senate
. The Supreme Court has the last word in the construction not only of treaties and proceedings. Besides, Nixon leaves open the question of whether all challenges to impeachment
statutes, but also of the Constitution itself. The amending, like all other powers
are nonjusticiable. [42]
organized in the Constitution, is in form a delegated and hence a limited power, so
that the Supreme Court is vested with that authority to determine whether that power
The term "judicial supremacy" was previously used in relation to the Supreme Court's power of
has been discharged within its limits.
judicial review,[43] yet the phrase wrongly connotes the bugaboo of a judiciary supreme to all
Political questions are neatly associated with the wisdom, not the legality of a other branches of the government. When the Supreme Court mediates to allocate constitutional
particular act. Where the vortex of the controversy refers to the legality or validity of boundaries or invalidates the acts of a coordinate body, what it is upholding is not its own
the contested act, that matter is definitely justiciable or non-political. What is in the supremacy, but the supremacy of the Constitution. [44] When this supremacy is invoked, it
heels of the Court is not the wisdom of the act of the incumbent President in compels the errant branches of government to obey not the Supreme Court, but the Constitution.
proposing amendments to the Constitution, but his constitutional authority to
perform such act or to assume the power of a constituent assembly. Whether the There are other requisites for justiciability of a constitutional question which we have
amending process confers on the President that power to propose amendments is traditionally recognized - namely: the presence of an actual case or controversy; the matter of
therefore a downright justiciable question. Should the contrary be found, the standing, or when the question is raised by a proper party; the constitutional question must be
actuation of the President would merely be a brutum fulmen. If the Constitution raised at the earliest possible opportunity; and that the decision on the constitutional question
provides how it may be amended, the judiciary as the interpreter of that Constitution, must be necessary to the determination of the
can declare whether the procedure followed or the authority assumed was valid or
case itself.[45]
Justice Carpio-Morales, in her scholarly opinion, has addressed these issues as jurisdiction to determine whether or not the House Rules of Impeachment violate the
applied to this case definitively. I just would like to add a few thoughts on the questions of Constitution. As I earlier stated, impeachment is not an inherent legislative function, although it
standing and ripeness. is traditionally conferred on the legislature. It requires the mandate of a constitutional provision
before the legislature can assume impeachment functions. The grant of power should be explicit
It is argued that this Court cannot take cognizance of the petitions because petitioners do not in the Constitution. It
have the standing to bring the cases before us. Indeed, the numerous petitioners have brought
their cases under multifarious capacities, but not one of them is the subject of the impeachment cannot be readily carved out of the shade of a presumed penumbra.[51] In this case, there is a
complaint. However, there is a wealth of jurisprudence that would allow us to grant the looming prospect that an invalid impeachment complaint emanating from an unconstitutional
petitioners the requisite standing in this case, and any lengthy disquisition on this matter would set of House rules would be presented to the Senate for action. The proper recourse would be to
no longer be remarkable. But worthy of note is that the petitioners in G.R. No. 160295 [46] are dismiss the complaint on constitutional grounds. Yet, from the Constitutional and practical
suing in their capacities as members of the House of Representatives. Considering that they are perspectives, only this Court may grant that relief.
seeking to invalidate acts made by the House of Representatives, their standing to sue deserves
a brief remark. The Senate cannot be expected to declare void the Articles of Impeachment, as well as the
offending Rules of the House based on which the House completed the impeachment process.
The injury that petitioners-congressmen can assert in this case is arguably more demonstrable The Senate cannot look beyond the Articles of Impeachment. Under the Constitution, the
than that of the other petitioners. Relevant in this regard is our ruling in Philippine Constitution Senate's mandate is solely to try and decide the impeachment complaint. [52] While the Senate
Association v. Enriquez,[47] wherein taxpayers and Senators sought to declare unconstitutional acts as an impeachment court for the purpose of trying and deciding impeachment cases, such
portions of the General Appropriations Act of 1994. We upheld the standing of the legislators to "transformation" does not vest unto the Senate any of the powers inherent in the Judiciary,
bring suit to question the validity of any official action which they claim infringes their because impeachment powers are not residual with the Senate. Whatever powers the Senate
prerogatives as legislators, more particularly, the validity of a condition imposed on an item in may acquire as an impeachment court are limited to what the Constitution provides, if any, and
an appropriation bill. Citing American jurisprudence, we held: they cannot extend to judicial-like review of the acts of co-equal components of government,
including those of the House.
[T]o the extent to the powers of Congress are impaired, so is the power of each
member thereof, since his office confers arrive to participate in the exercise of the Pursuing the concept of the Senate as an impeachment court, its jurisdiction, like that of the
powers of that institution (Coleman v. Miller, 307 U.S. 433 [1939]; Holtzman v. regular courts', has to be conferred by law and it cannot be presumed.[53] This is the principle
Schlesinger, 484 F. 2d 1307 [1973]). that binds and guides all courts of the land, and it should likewise govern the impeachment
court, limited as its functions may be. There must be an express grant of authority in the
An act of the Executive which injuries the institution of Congress causes a derivative Constitution empowering the Senate to pass upon the House Rules on Impeachment.
but nonetheless substantial injury, which can be questioned by a member of
Congress (Kennedy v. Jones, 412 Ought to be recognized too is the tradition of comity observed by members of Congress
commonly referred to as "inter-chamber courtesy." It is simply the mutual deference accorded
F. Supp. 353 [1976]). In such a case, any member of Congress can have a resort to by the chambers of Congress to each other. Thus, "the opinion of each House should be
the courts.[48] independent and not influenced by the proceedings of the other."[54]
There is another unique, albeit uneasy, issue on standing that should be discussed. The party While inter-chamber courtesy is not a principle which has attained the level of a statutory
who can most palpably demonstrate injury and whose rights have been most affected by the command, it enjoys a high degree of obeisance among the members of the legislature, ensuring
actions of the respondents is the Chief Justice of this Court. Precisely because of that as it does the smooth flow of the legislative process. Thus, inter-chamber courtesy was invoked
consideration, we can assume that he is unable to file the petition for himself and therefore by the House in urging the Senate to terminate all proceedings in relation to the jueteng
standing should be accorded the petitioners who manifest that they have filed their petitions on controversy at the onset on the call for the impeachment of President Estrada, given the reality
his behalf. In a situation wherein it would be difficult for the person whose rights are asserted to that the power of impeachment solely lodged in the House could be infringed by hearings then
present his grievance before any court, the U.S. Supreme Court held in Barrows v. Jackson[49] ongoing in the upper chamber.[55] On another occasion, Senator Joker Arroyo invoked inter-
that the rules on standing are outweighed by the need chamber courtesy in refusing to compel the attendance of two congressmen as witnesses at an
investigation before the Senate Blue Ribbon Committee.[56]
to protect these fundamental rights and standing may be granted.[50] There is no reason why this
doctrine may not be invoked in this jurisdiction. More telling would be the Senate's disposition as a Court of Impeachment of the Motion to
Quash filed by the lawyers of President Estrada during the latter's impeachment trial. The
Another point. Despite suggestions to the contrary, I maintain that the Senate does not have the Motion to Quash was premised on purported defects in the impeachment complaint which
originated from the House of Representatives. Had the Senate granted the Motion to Quash, it constitutionality of a law that subjected the income of Supreme Court Justices to taxation. The
would have, by implication, ruled on whether the House of Representatives had properly Court did not hesitate to tackle the matter. It held:
exercised its prerogative in impeaching the President. The Senate refused to grant the Motion to
Quash, affirming the validity of the procedure adopted by the House of Representatives and Under our system of constitutional government, the Legislative department is
expressing its conformity to the House Rules of Procedure on Impeachment Proceedings.[57] assigned the power to make and enact laws. The Executive department is charged
with the execution or carrying out of the provisions of said laws. But the
It is my belief that any attempt on the part of the Senate to invalidate the House Rules of interpretation and application of said laws belong exclusively to the Judicial
Impeachment is obnoxious to inter- chamber courtesy. If the Senate were to render these House department. And this authority to interpret and apply the laws extends to the
Rules unconstitutional, it would set an unfortunate precedent that might engender a wrong- Constitution. Before the courts can determine whether a law is constitutional or not,
headed assertion that one chamber of Congress may invalidate the rules and regulations it will have to interpret and ascertain the meaning not only of said law, but also of
promulgated by the other chamber. Verily, the duty to pass upon the validity of the House Rules the pertinent portion of the Constitution in order to decide whether there is a conflict
of Impeachment is imposed by the Constitution not upon the Senate but upon this Court. between the two, because if there is, then the law will have to give way and has to be
declared invalid and unconstitutional.[61]
On the question of whether it is proper for this Court to decide the petitions, it would be useless
for us to pretend that the official being impeached is not a member of this Court, much less the In Radiowealth Inc. v. Agregado,[62] this Court was constrained to rule on the authority of the
primus inter pares. Simplistic notions of rectitude will cause a furor over the decision of this Property Requisition Committee appointed by the President to pass upon the Court's requisitions
Court, even if it is the right decision. Yet we must decide this case because the Constitution for supplies. There, this Court was compelled to assert its own financial independence
dictates that we do so. The most fatal charge that can be levied against this Court is that it did
not obey the Constitution. The Supreme Court cannot afford, as it did in the Javellana case, to . . . the prerogatives of this Court which the Constitution secures against interference
abdicate its duty and refuse to address a constitutional violation of a co- equal branch of includes not only the powers to adjudicate causes but all things that are reasonably
government just because it feared the political repercussions. necessary for administration of justice. It is within its power, free from
encroachment by the executive, to acquire books and other office equipment
And it is comforting that this Court need not rest merely on rhetoric in deciding that it is proper reasonably needed to the convenient transaction of its business. These implied,
for it to decide the petitions, despite the fact that the fate of the Chief Justice rests in the inherent, or incidental powers are as essential to the existence of the court as the
balance. Jurisprudence is replete with instances when this Court was called upon to exercise powers specifically granted. Without the power to provide itself with appropriate
judicial duty, notwithstanding the fact that the application of the same could benefit one or all instruments for the performance of its duties, the express powers with which the
members of the Court. Constitution endows it would become useless. The court could not maintain its
independence and dignity as the Constitution intends if the executive personally or
In Perfecto vs. Meer, [58] the Court passed upon the claim for a tax refund posed by Justice through subordinate officials could determine for the court what it should have or
Gregorio Perfecto. It was noted therein that: use in the discharge of its functions, and when and how it should obtain them.[63]
. . . [a]s the outcome indirectly affects all the members of the Court, consideration of Thus, in the cited cases the Court deviated from its self-imposed policy of prudence and
the matter is not without its vexing feature. Yet adjudication may not be declined, restraint, expressed in pronouncements of its distaste of cases which apparently cater to the
because (a) we are not legally disqualified; (b) jurisdiction may not be renounced, as ostensibly self-serving concerns of the Court or its individual members, and proceeded to
it is the defendant who appeals to this Court, and there is no other tribunal to which resolve issues involving the interpretation of the Constitution and the independence of the
the controversy may be referred; (c) supreme courts in the United States have judiciary. We can do no less in the present petitions. As was declared in Sanidad,[64] this Court
decided similar disputes relating to themselves; (d) the question touches all the in view of the paramount interests at stake and the need for immediate resolution of the
members of the judiciary from top to bottom; and (e) the issue involves the right of controversy has to act a priori, not a posteriori, as it does now.
other constitutional officers whose compensation is equally protected by the
Constitution, for instance, the President, the Auditor-General and the members of the Having established the jurisdiction of this Court to decide the petitions, the justiciability of the
Commission on Elections. Anyway the subject has been thoroughly discussed in issues raised, and the propriety of Court action on the petition, I proceed now to discuss the
many American lawsuits and opinions, and we shall hardly do nothing more than to constitutionality of the House Rules on Impeachment.
borrow therefrom and to compare their conclusions to local conditions. There shall
be little occasion to formulate new propositions, for the situation is not It is suggested that the term "initiate" in Sections 3 (1) and 3 (5), Article XI is used in the same
unprecedented.[59] sense, that is, the filing of the Articles of Impeachment by the House of Representatives to the
Senate:
Again, in Endencia v. David,[60] the Court was called upon to resolve a claim for an income tax
refund made by a justice of this Court. This time, the Court had the duty to rule upon the
SEC. 3. (1) The House of Representatives shall have the exclusive power to initiate The 1935 Constitution was amended in 1940. The 1940 amendment transformed the legislature
all cases of impeachment. from a unicameral to a bicameral body composed of a Senate and a House of Representatives.
Like the U.S. Constitution, the 1935 Constitution, as amended, lodged the "power of
.... impeachment " in the House of Representatives. This was a simple but complete grant of
power. Just as simple and complete was the power to "try and decide" which rested in the
(5) No impeachment proceedings shall be initiated against the same official more Senate.
than once within a period of one year. [Emphasis supplied.]
If the impeachment process is juxtaposed against a criminal case setting, the structural change
A review of the history of Section 3 (1) shows that this is not so. made the House the investigator and the proceeding before it akin to a preliminary investigation,
while the Senate was transformed into a court and the proceedings before it a trial. This is the
The Constitution of the United States, after which the 1935 and subsequent Constitutions, as same structure under the 1987 Constitution.
well as our system of government, were patterned, simply states:
Under the 1973 Constitution, the country reverted to a unicameral legislature; hence, the need to
5. The House of Representatives shall choose their speaker and other officers; and spell out the specific phases of impeachment, i.e., "to initiate, try and decide," all of which were
shall have the sole power of impeachment. [Sec. 3, Art. I.] vested in the Batasang Pambansa. This was the first time that the term "initiate" appeared in
constitutional provisions governing impeachment. Section 3, Article XIII thereof states:
Note that the phrase "power to initiate all cases of impeachment" does not appear in the above
provision. Rather, it uses the shorter clause "power of impeachment." Webster's Third New The Batasang Pambansa shall have the exclusive power to initiate, try, and decide all
International Dictionary defines "impeach" as, "to bring an accusation (as of wrongdoing or cases of impeachment. Upon the filing of a verified complaint, the Batasang
impropriety) against" or to "charge with a crime or misdemeanor." Specifically, it means, to Pambansa may initiate impeachment by a vote of at least one-fifth of all its
"charge (a public official) before a competent tribunal with misbehavior in office" or to "arraign Members. No official shall be convicted without the concurrence of at least two-
or cite for official misconduct." "Initiate," on the other hand, is defined primarily as, "to begin thirds of all the Members thereof. When the Batasang Pambansa sits in impeachment
or set going," or to "make a beginning of," or to "perform or facilitate the first actions, steps, or cases, its Members shall be on oath or affirmation.
stages of."
Unfortunately, it seems that the 1987 Constitution has retained the same term, "initiate," used in
Contrast this with the merely slight difference between Section 3 (6), Article XI of the 1987 the 1973 Constitution. The use of the term is improper and unnecessary. It is the source of the
Philippine Constitution ("The Senate shall have the sole power to try and decide all cases of present confusion. Nevertheless, the intent is clear to vest the power to "impeach" in the House
impeachment.") and Section 3.6, Article I of the U.S. Constitution ("The Senate shall have the of Representatives. This is a much broader power that necessarily and inherently includes not
sole power to try all impeachments."), the former adding only the word "decide." only the power to "initiate" impeachment cases before the Senate, but to investigate complaints
filed by any Member or any citizen, endorsed by any Member, against an impeachable official.
The original 1935 Constitution contemplated a unicameral legislature called National Assembly The term "initiate" in Section 3 (1), Article XI should, therefore, be read as "impeach" and the
but, nevertheless, employed a two-tiered impeachment process. The "sole power of manner in which it is used therein should be distinguished from its usage in Section 3 (5) of the
impeachment" was same Article.
reposed on the Commission on Impeachment of the National Assembly, composed of twenty- This conclusion is supported by the object to which the term relates in the different paragraphs
one members of the Assembly,[65] and the "sole power to try all impeachments," on the of the same Section 3. Thus, Section 3 (1) speaks of initiating "cases of impeachment" while
National Assembly as a body, less those who belong to the Commission on Impeachment. The Section 3 (5) pertains to the initiation of "impeachment proceedings." "Cases," no doubt, refers
pertinent provisions of Article IX (Impeachment) of the original 1935 Constitution read: to those filed before the Senate. Its use and its sense are consistent throughout Section 3. Thus,
Section 3(6) states, "The Senate shall have the sole power to decide all cases [not
SEC. 2. The Commission on Impeachment of the National Assembly, by a vote of "proceedings"] of impeachment." Section 3(7) provides, "Judgment in cases [not "proceedings"]
two-thirds of its Members, shall have the sole power of impeachment. of impeachment shall not extend further than removal from office and disqualification to hold
any office...."
SEC. 3. The National Assembly shall have the sole power to try all impeachments.
When sitting for that purpose the Members shall be on oath or affirmation. When the It may be argued, albeit unsuccessfully, that Sections 16 and 17, Rule V of the House of
President of the Philippines is on trial, the Chief Justice of the Supreme Court shall Representatives Rules on Impeachment constitute its interpretation of the Constitution and is,
preside. No person shall be convicted without the concurrence of three-fourths of all therefore, entitled to great weight. A comparison of these Rules, which, incidentally were
the Members who do not belong to the Commission on Impeachment. promulgated only recently by the Twelfth Congress, with the previous Rules adopted by the
Eighth, Ninth, Tenth and Eleventh Congress demonstrates how little regard should be given to
this most recent "interpretation." The old Rules simply reproduced Section 3 (5), Article XI of
the Constitution, which is to say, that they employed a literal interpretation of the same
provision, thus: The impugned House Rules on Impeachment defeats the very purpose of the time-bar rule
because they allow the filing of an infinite number of complaints against a single impeachable
RULE V official within a given year. Not until:
SEC. 14. Scope of Bar. -- No impeachment proceedings shall be initiated against the (1) . . . the day the Committee on Justice finds that the verified complaint and/or
same official more than once within the period of one year. resolution against such official, as the case may be, is sufficient in substance; or
The interpretation of the Twelfth Congress, however, is such a radical departure from previous (2) . . . the date the House votes to overturn or affirm the finding of said Committee
interpretations that it cannot be accorded the same great weight normally due it. Depending on that the verified complaint and/or resolution, as the case may be, is not sufficient in
the mode of the filing of the complaint, the impeachment proceedings are "deemed" initiated substance; or
only:
(3) . . . the time of the filing of such verified complaint or resolution of impeachment
(1) on the day the Committee on Justice finds that the verified complaint and/or with the Secretary General.
resolution against such official, as the case may be is sufficient in substance; or
are the impeachment proceedings deemed initiated. Until then, the right of the impeachable
(2) on the date the House votes to overturn or affirm the finding of said Committee official against harassment does not attach and is exposed to harassment by subsequent
that the verified complaint and/or resolution, as the case may be, is not sufficient in complaints. Until then, the House would be swamped with the task of resolving these
substance; or complaints. Clearly, the Rules do not "effectively carry out the purpose of" Section 3, Article XI
and, in fact, quite creatively killed not only the language but the spirit behind the constitutional
(3) at the time of the filing of such verified complaint or resolution of impeachment proscription. Clearly, Sections 16 and 17, Rule V of the House Rules on Impeachment
with the Secretary General. contravene Section 3(5), Article XI of the Constitution. They must be struck down.
Consequently, the second impeachment complaint is barred pursuant to Section 3(4), Article XI
It is true that each Congress is not bound by the interpretation of the previous Congress, that it of the Constitution.
has the power to disregard the Rules of its predecessor and to adopt its own Rules to conform to
what it may deem It is noteworthy that the above conclusion has been reached simply by taking into account the
ordinary meaning of the words used in the constitutional provisions in point, as well as their
as the proper interpretation of the Constitution. Thus, in Osmeña v. Pendatun,[66] the Court held rationale. Resort to the rule that the impeachment provisions should be given a narrow
that "the rules adopted by deliberative bodies are subject to revocation[,] modification or waiver interpretation in relation to the goal of an independent judiciary need not be made even. [68]
at the pleasure of the body adopting them." The Court concedes the congressional power to
interpret the Constitution in the promulgation of its Rules, but certainly not, as stated earlier, the Nevertheless, this does not mean that the second impeachment complaint is forever barred; only
congressional interpretation, which, in this case, is so dreadfully contrary, not only to the that it should be dismissed without prejudice to its re-filing after one year from the filing of the
language of the provision, but also to the intent of the framers of the Constitution and to the first impeachment complaint. Indeed, this Court cannot deprive the House of the exclusive
provision's very philosophy. power of impeachment lodged in the House by the Constitution.
Many of the petitions refer to the Records of the Constitutional Commission, stressing In taking cognizance of this case, the Court does not do so out of empathy or loyalty for one of
statements of Commissioner Regalado Maambong that "the initiation starts from the filing of our Brethren. Nor does it do so out of enmity or loathing toward the Members of a co-equal
the complaint," and that it "is not the [House] body which initiates [the complaint]." The Court, branch, whom I still call and regard as my Brethren. The Court, in assuming jurisdiction over
having heard from Commissioner Maambong himself, acting as amicus curiae, is persuaded by this case, to repeat, does so only out of duty, a duty reposed no less by the fundamental law.
the argument and the point need not be belabored. Plainly, the mere filing of the complaint (or a
resolution of impeachment) under Section 3(2) (or Section 3[4] ) precludes the initiation of Fears that the Court's conclusion today would yield a constitutional crisis, that the present
another impeachment proceeding against the same official within one year. controversy would shake the judicial institution to its very foundations, I am confident, would
not come to pass. Through one seemingly endless martial rule, two bloodless uprisings, three
The rationale behind the so-called time-bar rule cannot be overemphasized, however. The Constitutions and countless mini-revolts, no constitutional crisis erupted; the foundations of the
obvious philosophy of the bar is two-fold. The first is to prevent the harassment of the Court did not shake. This is not because, in the clashes between the great, perhaps greater,
impeachable official, who shall be constrained to defend himself in such proceedings and, as a Branches of Government, the Court is "Supreme" for it holds neither sword nor purse, and
consequence, is detracted from his official functions. The second is to prevent Congress from wields only a pen. Had the other Branches failed to do the Court's bidding, the Court would
being overwhelmed by its non-legislative chores to the detriment of its legislative duties.[67] have been powerless to enforce it. The Court stands firm only because its foundations are

grounded on law and logic and its moorings on justice and equity. It is a testament to the [14]Article IX, Section 3, 1935 Constitution, as amended.
Filipino's respect for the rule of law that in the face of these "clashes," this Court's
pronouncements have been heeded, however grudgingly at times. Should there be more [15]The
"interesting" times ahead for the Filipino, I pray that they prove to be more of a blessing than a United States Constitution contains just two provisions pertaining to the power of the
curse. Congress to impeach and to try impeachment. "The House of Representatives . . . shall have the
sole Power of Impeachment." (Article I, Section 2, par. 5, US Constitution); "The Senate shall
ACCORDINGLY, concurring in the comprehensive and well-reasoned opinion of Justice have the sole Power to try all Impeachments. When sitting for that Purpose, they shall be on
Carpio-Morales, I vote to GRANT the petitions insofar as they seek the declaration of the Oath or Affirmation. When the President of the United States is tried, the Chief Justice shall
unconstitutionality of the challenged provisions of the House Rules on Impeachment and the preside; And no Person shall be convicted without the Concurrence of two thirds of the
pronouncement that the second impeachment complaint is time-barred on the basis of Section Members present." (Article I, Section 3, par. 6). The class of officers subject to impeachment
3(5), Article XI of the Constitution. and the grounds for removal from office by impeachment are prescribed in Article II, Section 4
of the United States Constitution. "The President, Vice President, and all civil Officers of the
United States, shall be removed from Office on Impeachment for, and Conviction of, Treason,
Bribery, or other high Crimes and Misdemeanors."
[1]See
Aquino, Jr. v. Enrile, G.R. No. L-35546, September 17, 1974, 59 SCRA 183; Aquino, Jr. [16]Sec. 3, Art. XII, 1973 Constitution. "The Batasang Pambansa shall have the exclusive power
v. Comelec, G.R. No. L-4004, 31 January 1975, 62 SCRA 275; Aquino, Jr. v. Military
Commission No. 2, G.R. No. 37364, May 9, 1975, 63 SCRA, 546 (1975). to initiate, try, and decide all cases of impeachment. Upon the filing of a verified complaint, the
Batasang Pambansa may initiate impeachment by a vote of at least one-fifth of all its Members.
[2]See No official shall be convicted without the concurrence of at least two-thirds of all the Members
Javellana v. Executive Secretary, 151-A Phil. 35 (1973); Occeña v. Comelec, 191 Phil. thereof. When the Batasang Pambansa sits in impeachment cases, its Members shall be on oath
371 (1981); Mitra, Jr. v. Comelec, 191 Phil. 412 (1981). or affirmation."
[3]See Marcos v. Manglapus, G.R. No. 88211, September 15, 1989, 177 SCRA 668. [17]See Sec. 3 (1), Article XI, 1987 Constitution.
[4]See Palma, Sr. v. Fortich, G.R. No. L-59679, January 29, 1987, 147 SCRA 397. [18]See Sec. 3 (2), Article XI, 1987 Constitution.
[5]See De Leon v. Esguerra, G.R. No. L-78059, August 31, 1987, 153 SCRA 602. [19]See Sec. 3 (2), Article XI, 1987 Constitution.
[6]See Enrile v. Salazar, G.R. No. 92163, June 5, 1990, 186 SCRA 217. [20]See Sec. 3 (5), Article XI, 1987 Constitution.
[7]See Estrada v. Desierto, G.R. Nos. 146710-15, March 2, 2001, 353 SCRA 452. [21]See Romulo v. Yñiguez, 225 Phil. 221 (1986).
[8]See Note 7. [22]Daza v. Singson, G.R. No. 86344, December 21, 1989, 180 SCRA 496.
[9]The other four are Justices Bellosillo, Puno, Vitug, Panganiban and Quisumbing. Also [23]Bondoc v. Pineda, G.R. No. 97710, September 26, 1991, 201 SCRA 792, 795-796.
included in the complaint are Justices Carpio and Corona.
[24]Arroyo v. De Venecia, August 14, 1997, 277 SCRA 311.
[10]Justices Carpio and Corona.
[25]63 Phil. 139 (1936).
[11]Article XI, Section 3 (1), 1987 Constitution.
[26]Arroyov. House of Representatives Electoral Tribunal, 316 Phil. 464 at 508-510 (1995), J.
[12]Article XI, Section 3 (6), 1987 Constitution. Puno, concurring.
[13]Article IX, Section 2, 1935 Constitution, as amended. [27]"A controversy in which a present and fixed claim of right is asserted against one who has
an interest in contesting it; rights must be declared upon existing state of facts and not upon
state of facts that may or may not arise in future." See Black's Law Dictionary, 865. [43]Supra, note 33.
[28]Daza v. Singson, supra note 33. See also Tañada v. Cuenco, 100 Phil. 101 (1975). "A [44]Garcia v. Corona, 378 Phil. 848, 885. J. Quisumbing, concurring (1999).
question is political, and not judicial, is that it is a matter which is to be exercised by the people
in their primary political capacity, or that it has been specifically delegated to some other [45]See,
department or particular officer of the government, with discretionary power to act." e.g., Mirasol v. Court of Appeals, G.R. No. 128448, February 1, 2001, 351 SCRA 44,
53-54; Integrated Bar of the Philippines v. Zamora, G.R. No. 141284, August 15, 2000, 338
[29]IBP SCRA 81, 99; Sec. Guingona, Jr. v. Court of Appeals, 354 Phil. 415, 425 (1998); Board of
v. Zamora, G.R. No. 141284, August 15, 2003, 338 SCRA 81. Optometry v. Hon. Colet, 328 Phil. 1187, 1205 (1996); Joya v. PCGG, G.R. No. 96541, August
24, 1993, 255 SCRA 568, 575; Santos III v. Northwest Orient Airlines, G.R. No. 101538, June
[30]346 Phil. 321 (1997). 23, 1992, 210 SCRA 256; Garcia v. Executive Secretary, G.R. No. 100883, December 2, 1991,
204 SCRA 516, 522; Luz Farms v. Secretary of DAR, G.R. No. 86889, December 4, 1990, 192
[31]Ibid at 358. SCRA 51, 58; National Economic Protectionism Association v. Ongpin, G.R. No. 67752, April
10, 1989, 171 SCRA 657, 663-664.
[32]While Congress is granted the authority to promulgate its rules on impeachment, such rules [46]Deputy Speaker Raul Gonzales and Congressman Salacnib Baterina.
must effectively carry out the purpose of Section 3 of Article XI. See Section 3 (8), Article XI,
1987 Constitution.
[47]G.R. No. 113105, August 19, 1994, 235 SCRA 506.
[33]A political question refers to a question of policy or to issues which, under the Constitution,
are to be decided by the people in their sovereign capacity, or in regard to which full [48]Id. at 520.
discretionary authority has been delegated to the legislative or executive branch of the
government. Generally, political questions are concerned with issues dependent upon the [49]346 U.S. 249 (1953).
wisdom, not the legality, of a particular measure. Tañada v. Cuenco, 100 Phil. 101 [ 1957], as
cited in Tatad v. Secretary of Finance, 346 Phil. 321. [50]This case and rationale was cited by amicus curiae Dean Raul C. Pangalangan during the
[34]Resolution hearing on these petitions to support his belief that the petitioners had standing to bring suit in
dated September 3, 1985, p. 2, G.R. No. 71688 (De Castro, et al v. Committee on this case.
Justice, et al.)
[51]In reference to the famed pronouncement of Justice Holmes that the great ordinances of the
[35]103 Phil. 1051 (1957). Constitution do not establish and divide fields of black and white" but also because "even the
more specific of them are found to terminate in a penumbra shading gradually from one extreme
[36]Id. at 1088. to the other." Springer v. Government, 277 U. S., 189 (1928). Since the power of the legislature
to impeach and try impeachment cases is not inherent, the Holmesian dictum will find no
[37]129 Phil. 7 (1967). application in this case, because such authority is of limited constitutional grant, and cannot be
presumed to expand beyond what is laid down in the Constitution.
[38]Id at 22-23. [52]Section 3 (6), Article XI.
[39]G.R. No. L-44640, October 12, 1976, 73 SCRA 333. [53]Abbot v. Mapayo, G.R. No. 134102, 6 July 2000, 335 SCRA 265, 270.
[40]Id. at 359-361. [54]Mason's Manual of Legislative Procedure by Paul Mason, 1953 Edition p. 113 citing
[41]506 Jefferson, Sec. XXXV; Reed, Sec. 224; Cushing's Legislative Assemblies, Sec. 739. Op. Cit.
U.S. 224 (1993). 536-537 citing Jefferson, Sec. XVII, Hughes, Sec. 694.
[42]Chemirinsky,Constitutional Law Principles and Policies, 2nd Ed. (2002); Aspen Law and [55]"Impeachment Trial or Resignation? Where do we stand? What must we do?" (An updated
Business, New York, U.S.A. Position Paper of Kilosbayan, Bantay Katarungan and Bantayog ng mga Bayani Foundations).
http://www.mydestiny.net/~livewire/kilosbayan/paper6.htm.
8/4/2020 [ G.R. No. 160261, G.R. No. 160262, G.R. No. 160263, G.R. No. 160277, G.R. No. 160292, G.R. No. 160295, G.R. No. 160310, G.R. No. …
[56]"GMA Won't Lift A Finger To Bail Out Nani." See

http://www.newsflash.org/2002/11/pe/pe002423.htm.
[57]Resolution of the Senate dated November 29, 2000.
[58]85 Phil. 552 (1950).
[59]Id. at 553.
[60]93 Phil 696 (1953).
[61]Id. at 700.
[62]86 Phil. 429 (1950).
[63]Id. at 437-438.
[64]Supra note 38.
[65]See Sec. 7, Art. VI thereof.
[66]109 Phil. 863 (1960).
[67]II Record of the Constitutional Commission 272.
[68]Abraham, The Pillars and Politics of Judicial Independence in the United States, Judicial
Independence in the Age of Democracy, edited by Peter H. Rusell and David M. O'Brien, p. 28;
Published, 2000, The University Press of Virginia.
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8/4/2020 [ G.R. No. 160261, G.R. No. 160262, G.R. No. 160263, G.R. No. 160277, G.R. No.

460 Phil. 830

REPRESENTATIVES, THROUGH THE SPEAKER OR PRESIDING political crisis of conscience.

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impeachment cases [48]

These petitions raise five substantial issues:

unusual situations or for the substitution of Senators designated to the Tribunal

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Lopez, NPC, 3rd District, Davao City. [25]

[15] [27] 5 US 137 (1803).

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[38] 194 SCRA 317 (1991). Impeachment.

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[81] Gonzales [92]

[82] [93] Supra note 79.

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[130] Ramirez v. Corpuz- Macandog, 144 SCRA 462, 477 (1986).

[135] Supra note 119. [155] Id at 311.

[138] Supra note 33 at 32.

[139] Supra note 102 . SEPARATE OPINION

[140] Supra note 33. BELLOSILLO, J.:

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small in number: "The lawful discretion, which a court of impeachments must

transmitted to the Senate. Moreover, if it is true that the House Committee on

4. If the 2nd Impeachment Complaint finally reaches the Senate, a number of

CONCLUSION [10] Turley, op cit ., pp. 763-764.

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[27] Ibid, [43] Art. XI, sec. 3 of the 1987 Constitution.

[28] Ibid, [44] Ibid, Art. XI, sec. 3(1).

[29] Ibid., [45] Ibid, Art. XI, sec. 3(6).

[30] Ibid. [46] Ibid.

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As a proceeding, impeachment might be so described thusly - First, it is legal and political in

John O. McGinnis, "Impeachment: The Structural Understanding," The George Washington

[29] Tañada vs. Cuenco, 103 Phil 1051. [45] Ibid.

[36] 42 SCRA 448.

Thus, in Tañada v. Angara,[17]

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MR. NATIVIDAD. To initiate is different from to impeach; to impeach is different

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James Wilson described impeachment as "confined to political characters, to

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[1] [20] Dated June 2, 2003 and October 23, 2003.

endorsement/impeachment" reached at least one-third of the members of the House, the

leaving no doubt as to the justiciability of the petitions. all cases of impeachment.

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[56]"GMA Won't Lift A Finger To Bail Out Nani." See

[57]Resolution of the Senate dated November 29, 2000.

[58]85 Phil. 552 (1950).

[60]93 Phil 696 (1953).

[62]86 Phil. 429 (1950).

[64]Supra note 38.

[65]See Sec. 7, Art. VI thereof.

[66]109 Phil. 863 (1960).

[67]II Record of the Constitutional Commission 272.

Source: Supreme Court E-Library | Date created: November 25, 2014

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