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Case Digest: COCOFED v.

COMELEC
G.R.No.207026:August6,2013
COCOFEDPHILIPPINECOCONUTPRODUCERSFEDERATION,INC.,
Petitioner,v.COMMISSIONONELECTIONS,Respondent.
BRION,J.:
FACTS:
PetitionerCOCOFEDPhilippineCoconutProducersFederation,Inc.(COCOFED)is
anorganizationandsectoralpartywhosemembershipcomesfromthepeasantsector,
particularlythecoconutfarmersandproducers.OnMay29,2012,COCOFED
manifestedwiththeCOMELECitsintenttoparticipateinthepartylistelectionsof
May13,2013andsubmittedthenamesofonlytwonomineesAtty.EmeritoS.
Calderon(firstnominee)andAtty.DomingoP.Espina.
OnAugust23,2012,theCOMELECconductedasummaryhearing,pursuantto
COMELECResolutionNo.9513,todeterminewhetherCOCOFED,amongseveral
partylistgroupsthatfiledmanifestationsofintenttoparticipateintheMay13,2013
partylistelections,hadcontinuouslycompliedwiththelegalrequirements.
InitsNovember7,2012resolution,theCOMELECcancelledCOCOFEDs
registrationandaccreditationasapartylistorganizationonseveralgrounds.Notably,
theConcurringOpinionofCommissionerChristianLimcited,asadditionalground,
thatsinceCOCOFEDsubmittedonlytwonominees,thenitfailedtocomplywith
Section8ofRepublicAct(RA)No.7941thatrequiresthepartytosubmitto
COMELECalistofnotlessthanfivenominees.
OnDecember4,2012,COCOFEDsubmittedthenamesofCharlesR.Avila,in
substitutionofAtty.Espina,asitssecondnomineeandEfrenV.Villaserasitsthird
nominee.
COCOFED,amongseveralothers,questionedtheCOMELECscancellationofits
registrationandaccreditationbeforethisCourt,withaprayerfortheissuanceof
preliminaryinjunctionand/ortemporaryrestrainingorder.Byreasonofthestatusquo
anteorderissuedbytheCourt,COCOFEDsnamewasincludedintheprintingofthe
officialballotsfortheMay13,2013elections.
OnApril2,2013,theCourtrendereditsDecisioninAtongPaglaum,Inc.,etc.,etal.
v.CommissiononElections.TheCourtremandedallthepetitionstotheCOMELEC

todeterminetheircompliancewiththenewparametersandguidelinessetbythe
Courtinthatcase
OnMay10,2013,theCOMELECissueditsassailedresolution,maintainingits
earlierrulingcancellingCOCOFEDsregistrationandaccreditationforitsfailureto
complywiththerequirementofSection8ofRANo.7941,i.e.,tosubmitalistofnot
lessthanfivenominees.
TheCOMELECnotedthatallexistingpartylistgroupsororganizationswereon
noticeasearlyasFebruary8,2012(whenResolutionNo.9359waspromulgated)that
uponsubmissionoftheirrespectivemanifestationsofintenttoparticipate,theyalso
neededtosubmitalistoffivenominees.DuringthehearingonAugust23,2012,the
COMELECpointedouttoCOCOFEDthatithadonlytwonominees.
COCOFEDmovedforreconsiderationonlytowithdrawitsmotionlater.Instead,on
May20,2013,COCOFEDfiledaManifestationwithUrgentRequesttoAdmit
AdditionalNomineeswiththeCOMELEC,namely:(i)FelinoM.Gutierrezand(ii)
RodolfoT.deAsis.
OnMay24,2013,theCOMELECissuedaresolutiondeclaringthecancellationof
COCOFEDsaccreditationfinalandexecutory.
ISSUE:WhetherornotCOCOFEDSregistrationcanbecancelled?
HELD:Petitiondismissed.
REMEDIALLAW:mootandacademicpetition
Amootandacademiccaseisonethatceasestopresentajusticiablecontroversy
becauseofsuperveningeventssothatadeclarationthereonwouldbeofnopractical
useorvalue.
Inthepresentcase,whiletheCOMELECcountedandtalliedthevotesinfavorof
COCOFEDshowingthatitfailedtoobtaintherequirednumberofvotes,participation
inthe2013electionswasmerelyoneofthereliefsCOCOFEDprayedfor.The
validityoftheCOMELECsresolution,cancelingCOCOFEDsregistration,remainsa
veryliveissuethatisnotdependentontheoutcomeoftheelections.
UnderSection4ofRANo.7941,apartylistgroupalreadyregistered"neednot
registeranew"forpurposesofeverysubsequentelection,butonlyneedstofilea
manifestationofintenttoparticipatewiththeCOMELEC.Thesetwoactsare
differentfromeachother.

UnderSection5ofRANo.7941,anapplicantforregistrationhastofilewiththe
COMELEC,notlaterthanninety(90)daysbeforetheelection,averifiedpetition
statingitsdesiretoparticipateinthepartylistsystemasanational,regionalor
sectoralpartyororganizationoracoalitionofsuchpartiesororganizations.
Theapplicantisrequiredtosubmititsconstitution,bylaws,platformorprogramof
government,listofofficers,coalitionagreementandotherrelevantinformationasthe
COMELECmayrequire.Asidefromthese,thelawrequiresthepublicationofthe
applicantspetitioninatleasttwo(2)nationalnewspapersofgeneralcirculation.The
COMELECthenresolvesthepetition,determiningwhethertheapplicanthas
compliedwithallthenecessaryrequirements.
Underthislegalreality,thefactthatCOCOFEDdidnotobtainsufficientnumberof
votesintheelectionsdoesnotaffecttheissueofthevalidityoftheCOMELECs
registration.AfindingthattheCOMELECgravelyabuseditsdiscretionincanceling
COCOFEDsregistrationwouldentitleit,ifitissominded,toparticipatein
subsequentelectionswithoutneedofundergoingregistrationproceedingsanew.
POLITICALLAW:Graveabuseofdiscretion;requirementstobevalidly
registeredaspartylist
ThisbringsustotheissueofwhethertheCOMELECindeedgravelyabusedits
discretioninissuingtheassailedresolution.Weholdthatitdidnot.
Failuretosubmitthelistoffivenomineesbeforetheelectionwarrantsthe
cancellationofitsregistration
Thelawexpresslyrequiresthesubmissionofalistcontainingatleastfivequalified
nominees.Section8ofRANo.7941reads.
Section8.NominationofPartyListRepresentatives.Eachregisteredparty,
organizationorcoalitionshallsubmittotheCOMELECnotlaterthanfortyfive(45)
daysbeforetheelectionalistofnames,notlessthanfive(5),fromwhichpartylist
representativesshallbechosenincaseitobtainstherequirednumberofvotes.
AsearlyasFebruary8,2012,theCOMELEChadinformed,throughResolutionNo.
9359,allregisteredpartieswhowishedtoparticipateintheMay2013partylist
electionsthatthey"shallfilewiththeCOMELECaManifestationofIntentto
participateinthepartlistelectiontogetherwithitslistofatleastfive(5)nominees,
nolaterthanMay31,2012."

UnderSection6(5)ofRANo.7941,violationoforfailuretocomplywithlaws,rules
orregulationsrelatingtoelectionsisagroundforthecancellationofregistration.
However,noteverykindofviolationautomaticallywarrantsthecancellationofa
partylistgroupsregistration.SinceareadingoftheentireSection6showsthatallthe
groundsforcancellationactuallypertaintothepartyitself,thenthelaws,rulesand
regulationsviolatedtowarrantcancellationunderSection6(5)mustbeonethatis
primarilyimputabletothepartyitselfandnotonethatischieflyconfinedtoan
individualmemberoritsnominee.
COCOFEDsfailuretosubmitalistoffivenominees,despiteampleopportunitytodo
sobeforetheelections,isaviolationimputabletothepartyunderSection6(5)ofRA
No.7941.
First,thelanguageofSection8ofRANo.7941doesnotonlyusetheword"shall"in
connectionwiththerequirementofsubmittingalistofnominees;itusesthis
mandatoryterminconjunctionwiththenumberofnamestobesubmittedthatis
couchednegatively,i.e.,"notlessthanfive."Theuseofthesetermstogetherisaplain
indicationoflegislativeintenttomakethestatutoryrequirementmandatoryforthe
partytoundertake.Withthedateandmannerofsubmissionofthelisthavingbeen
determinedbylawaconditionprecedentfortheregistrationofnewpartylistgroups
orforparticipationinthepartylistelectionsincaseofpreviouslyregisteredpartylist
groups,andwasinfactreiteratedbytheCOMELECthroughitsresolutions
COCOFEDcannotnowclaimgoodfaith,muchlessdictateitsowntermsof
compliance.
PursuanttothetermsofSection8ofRANo.7941,theCourtcannotleavetothe
partythediscretiontodeterminethenumberofnomineesitwouldsubmit.Acontrary
viewoverlooksthefactthattherequirementofsubmissionofalistoffivenominees
isprimarilyastatutoryrequirementfortheregistrationofpartylistgroupsandthe
submissionofthislistispartofaregisteredpartyscontinuingcompliancewiththe
lawtomaintainitsregistration.Apartylistgroupspreviousregistrationwiththe
COMELECconfersnovestedrighttothemaintenanceofitsregistration.Inorderto
maintainapartyinacontinuingcompliancestatus,thepartymustprovenotonlyits
continuedpossessionoftherequisitequalificationsbut,equally,mustshowits
compliancewiththebasicrequirementsofthelaw.
Second,whileCOCOFEDsfailuretosubmitacompletelistofnomineesmaynot
havebeenamongthegroundscitedbytheCOMELECinearliercancelingits
registration,thisisnotsufficienttosupportafindingofgraveabuseofdiscretion.
ApartfromtheclearletterofSection8ofRANo.7941andtheCOMELEC
resolutionsissuedmoreorlessayearbeforethe2013elections,COCOFEDsbelated
submissionofaManifestationwithUrgentRequesttoAdmitAdditionalNominees
severaldaysaftertheelectionsbetraystheemptinessofCOCOFEDsformalisticplea

forpriornotice.
Section6ofRANo.7941requirestheCOMELECtoafford"duenoticeandhearing"
beforerefusingorcancellingtheregistrationofapartylistgroupasamatterof
proceduraldueprocess.TheCourtwouldhavedemandedanexactingcompliance
withthisrequirementiftheregistrationorcontinuingcomplianceproceedingwere
strictlyinthenatureofajudicialorquasijudicialproceeding.Inseveralcases,
however,theCourthadalreadyruledthattheregistrationofpartylistgroupsinvolves
theexerciseoftheCOMELECsadministrativepower,particularlyitspowerto
enforceandadministeralllawsrelatedtoelections.
WhileCOCOFEDcouldhavecompliedaftertheelections(asitinfactdid),itshould
have,attheveryleast,submittedanexplanationjustifyingitsinabilitytocomply
priortotheelections.However,COCOFEDsimplychosetoignorethelaw;this,to
us,isaplaindisregardoftheadministrativerequirementwarrantingthecancellation
ofitsregistration.
Third,thefactthatapartylistgroupisentitledtonomorethanthreeseatsin
Congress,regardlessofthenumberofvotesitmaygarner,doesnotrenderSection8
ofRANo.7941permissiveinnature.
OnFebruary21,2012,theCOMELEC,throughResolutionNo.9366,againapprised
registeredpartylistgroupsthatitsManifestationofIntenttoParticipateshallbe
accompaniedbyalistofatleastfive(5)nominees.UnderSection9,Rule5ofthis
resolution,theEducationandInformationDepartmentoftheCOMELECshallcause
theimmediatepublicationofthislistintwonationalnewspapersofgeneral
circulation.
Thepublicationofthelistofnomineesdoesnotonlyserveasthereckoningperiodof
certainremediesandproceduresundertheresolution.Mostimportantly,therequired
publicationsatisfiesthepeoplesconstitutionalrighttoinformationonmattersof
publicconcern.Theneedforsubmissionofthecompletelistrequiredbylawbecomes
allthemoreimportantinapartylistelectiontoapprisetheelectorateofthe
individualsbehindthepartytheyarevotingfor.Ifonlytogivemeaningtotherightof
thepeopletoelecttheirrepresentativesonthebasisofaninformedjudgment,thenthe
partylistgroupmustsubmitacompletelistoffivenomineesbecausetheidentityof
thesefivenomineescarriescriticalbearingontheelectorateschoice.Apostelection
completionofthelistofnomineesdefeatsthisconstitutionalpurpose.
Evenifapartylistgroupcanonlyhaveamaximumofthreeseats,therequirementof
additionaltwonomineesactuallyaddressesthecontingenciesthatmayhappenduring
thetermofthesepartylistrepresentatives.Section16ofRANo.7941reads.

Section16.Vacancy.Incaseofvacancyintheseatsreservedforpartylist
representatives,thevacancyshallbeautomaticallyfilledbythenextrepresentative
fromthelistofnomineesintheordersubmittedtotheCOMELECbythesameparty,
organization,orcoalition,whoshallservefortheunexpiredterm.Ifthelistis
exhausted,theparty,organizationcoalitionconcernedshallsubmitadditional
nominees.
Whilethelawallowsthesubmissionofadditionalnomineesoncethelistis
exhausted,theexhaustionofthelistpresupposespriorcompliancewiththe
requirementofSection8ofRANo.7941.Sincetheexhaustionofthelistisanevent
thatcanrarelyhappenunderthisinterpretation,thenthelaweffectivelyupholdsthe
peoplesrighttomakeinformedelectoraljudgments.Again,itisabasicruleof
statutoryconstructionthattheprovisionsofthelawmustnotbereadinisolationbut
asawhole,asthelawmustnotbereadintruncatedparts;itsprovisionsinrelationto
thewholelawandeverypartthereofmustbeconsideredinfixingthemeaningofany
ofitspartsinordertoproduceaharmoniouswhole.
Moreover,afterthesubmissionofalistofnomineestotheCOMELEC,theparty
itselfhasnodiscretiontochangethenamesortoaltertheorderofnominationinthe
listitsubmitted.Whilethereareinstanceswhenachangeofnameoralterationofthe
orderisallowed,thesecircumstancesfocusonthenomineehimself,whether
voluntary(thenomineewithdrawsinwritinghisnomination)orinvoluntary(the
nomineediesorbecomesincapacitated).ToallowCOCOFEDtocompletethelistof
itsnomineesbeyondthedeadlinesetbythelawwouldallowthepartyitselftodo
indirectlywhatitcannotdodirectly.
Fourth,wecannotdiscernanyvalidreasonwhyapartylistgroupcannotcomplywith
thestatutoryrequirement.Thepartylistsystemisaconstitutionalinnovationthat
wouldexpandopportunitiesforelectoralparticipationtothosewhocannothopeto
wininthelegislativedistrictelections,butwhomaygeneratevotesnationwide
equivalenttowhatawinnerinthelegislativedistrictelectionwouldgarner.Inshort,
thepartylistsystemoperatesonthetheoreticalassumptionthatapartylistgrouphas
nationalconstituencywhoseinterests,concerns,orideologiescallforrepresentation
intheHouseofRepresentatives.WequotewithapprovaltheCOMELECs
observation.
Ifthepartycannotevencomeupwithacompletelistoffivenamesoutofapurported
morethanonemillionmembers,thenitishighlydoubtfulthatCOCOFEDwillmeet
thisexpectationtocontributetotheformulationandenactmentoflegislationthatis
beneficialforthenationasawhole;andifitcannotevennameatleastthreemore
peoplewhobelongsto,orwithsufficientadvocacyfor,thesectorsoughttobe
representedthenasasectoralpartyororganization,ithasalreadyforsakenwhatit
seekstorepresent.

Giventhisdrivingidea,apartyisnotallowedtosimplyrefusetosubmitalist
containing"notlessthanfivenominees"andconsiderthedeficiencyasawaiveron
itspart.Asidefromcollidingwiththeplaintextofthelaw,thisinterpretationisnotin
harmonywiththestatutorypolicyofenhancingthepartylistgroupschancesto
competeforandwinseatsinthelegislature,andthereforedoesnotserveasincentive
toFilipinocitizensbelongingtothesegroupstocontributetotheformulationand
enactmentofappropriatelegislation.
Fifth,whileunderthe6thparameterinAtongPaglaum,theCourtsaidthatthe
disqualificationofsomeofthenomineesshallnotresultinthedisqualificationofthe
partylistgroup"providedthattheyhaveatleastonenomineewhoremains
qualified,"theCourtlargelyconsideredthat
petitioners'nomineeswhodonotbelongtothesectorstheyrepresentmayhavebeen
disqualified,althoughtheymayhaveatrackrecordofadvocacyfortheirsectors.
Likewise,nomineesofnonsectoralpartiesmayhavebeendisqualifiedbecausethey
donotbelongtoanysector.Moreover,apartymayhavebeendisqualifiedbecause
oneormoreofitsnomineesfailedtoqualify,evenifthepartyhasatleastone
remainingqualifiednominee.Asdiscussedabove,thedisqualificationofpetitioners,
andtheirnominees,undersuchcircumstancesiscontrarytothe1987Constitutionand
R.A.No.7941.
Infact,almostallofthepetitionersinAtongPaglaumweredisqualifiedonthe
groundthatthenomineesfailedto"qualify,"asthiswordwasinterpretedbythe
COMELEC.Inotherwords,theCourtinnowayauthorizedapartylistgroup's
inexcusablefailure,ifnotoutrightrefusal,tocomplywiththeclearletterofthelaw
onthesubmissionofatleastfivenominees.
Insum,allthesereasonsnegateafindingthattheCOMELECgravelyabusedits
discretionincancellingCOCOFED'sregistration.

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