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G.R. No. 141284. August 15, 2000.
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* EN BANC.
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however, are unfounded. The power to call the armed forces is just
that—calling out the armed forces. Unless, petitioner IBP can
show, which it has not, that in the deployment of the Marines, the
President has violated the fundamental law, exceeded his
authority or jeopardized the civil liberties of the people, this Court
is not inclined to overrule the President’s determination of the
factual basis for the calling of the Marines to prevent or suppress
lawless violence.
Freedom; Civil Liberties; Freedom and democracy will be in
full bloom only when people feel secure in their homes and in the
streets, not when the shadows of violence and anarchy constantly
lurk in their midst.—Since the institution of the joint visibility
patrol in January, 2000, not a single citizen has complained that
his political or civil rights have been violated as a result of the
deployment of the Marines. It was precisely to safeguard peace,
tranquility and the civil liberties of the people that the joint
visibility patrol was conceived. Freedom and democracy will be in
full bloom only when people feel secure in their homes and in the
streets, not when the shadows of violence and anarchy constantly
lurk in their midst.
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Same; Same; Same; Same; Same; Same; Given the light of our
constitutional history, the express grant of power to the Supreme
Court to review the sufficiency of the factual bases used by the
President in the suspension of the privilege of the writ of habeas
corpus and the declaration of martial law merely means that the
Court cannot decline the exercise of its power because of the
political question doctrine as it did in the past—It is true that the
third paragraph of Section 18, Article VII of the 1987 Constitution
expressly gives the Court the power to review the sufficiency of
the factual bases used by the President in the suspension of the
privilege of the writ of habeas corpus and the declaration of
martial law. It does not follow, however, that just because the
same provision did not grant to this Court the power to review the
exercise of the calling out power by the President, ergo, this Court
cannot pass upon the validity of its exercise. Given the light of our
constitutional history, this express grant of power merely means
that the Court cannot decline the exercise of its power because of
the political question doctrine as it did in the past. In fine, the
express grant simply stresses the mandatory duty of this Court to
check the exercise of the commander-in-chief powers of the
President. It eliminated the discretion of the Court not to wield its
power of review thru the use of the political question doctrine.
Same; Same; Same; Same; Same; Same; Even as it may be
conceded that the calling out power may be a “lesser power”
compared to the power to suspend the privilege of the writ of
habeas corpus and the power to declare martial law, its exercise
cannot be left to the absolute discretion of the Chief Executive as
Commander-in-Chief of the armed forces, as its impact on the
rights of our people protected by the Constitution cannot be
downgraded.—It may be conceded that the calling out power may
be a “lesser power” compared to the power to suspend the
privilege of the writ of habeas corpus and the power to declare
martial law. Even then, its exercise cannot be left to the absolute
discretion of the Chief Executive as Commander-in-Chief of the
armed forces, as its impact on the rights of our people protected
by the Constitution cannot be downgraded. We cannot hold that
acts of the commander-in-chief cannot be reviewed on the ground
that they have lesser impact on the civil and political rights of our
people. The exercise of the calling out power may be “benign” in
the case at bar but may not be so in future cases.
Same; Same; When private justiciable rights are involved in a
suit, the Court must not refuse to assume jurisdiction even though
questions of extreme political importance are necessarily involved.
—We should not water down the ruling that deciding whether a
matter has been committed by the Constitution to another branch
of government, or whether the
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94 SUPREME COURT REPORTS ANNOTATED
KAPUNAN, J.:
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xxx
2. PURPOSE:
The Joint Implementing Police Visibility Patrols between the
PNP NCRPO and the Philippine Marines partnership in the
conduct of visibility patrols in Metro Manila for the suppression of
crime prevention and other serious threats to national security.
3. SITUATION:
Criminal incidents in Metro Manila have been perpetrated not
only by ordinary criminals but also by organized syndicates whose
members include active and former police/military personnel—
whose training, skill, discipline and firepower prove well-above
the present capability of the local police alone to handle. The
deployment of a joint PNP NCRPO-Philippine Marines in the
conduct of police visibility patrol in urban areas will reduce the
incidence of crimes specially those perpetrated by active or former
police/military personnel.
4. MISSION:
The PNP NCRPO will organize a provisional Task Force to
conduct joint NCRPO-PM visibility patrols to keep Metro Manila
streets crime-free, through a sustained street patrolling to
minimize or eradicate all forms of high-profile crimes especially
those perpetrated by organized crime syndicates whose members
include those that are well-trained, disciplined and well-armed
active or former PNP/Military personnel.
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6 Id.
7 Rollo, p. 75.
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8 Id., at 17-18.
9 Id.
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II
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10 Rollo, p. 7.
11 Id., at 24.
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this case, a reading of the petition shows that the IBP has
advanced constitutional issues which deserve the attention
of this Court in view of their seriousness, novelty and
weight as precedents. Moreover, because peace and order
are under constant threat and lawless violence occurs in
increasing tempo, undoubtedly aggravated by the
Mindanao insurgency problem, the legal controversy raised
in the petition almost certainly will not go away. It will
stare us in the face again. It, therefore, behooves the Court
to relax the rules on standing and to resolve the issue now,
rather than later.
The President did not commit grave abuse of
discretion in calling out the Marines.
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cality which it may, in the exercise of its discretion, set aside in view of
the importance of the issues raised,” favorably citing our ruling in the
Emergency Powers Cases [L-2044 (Araneta v. Dinglasan); L-2756 (Araneta
v. Angeles); L-3054 (Rodriquez v. Tesorero de Filipinas); and L3056
(Barredo v. COMELEC, 84 Phil. 368 (1940)] where this Court brushed
aside this technicality because “the transcendental importance to the
public of these cases demands that they be settled promptly and
definitely, brushing aside, if we must, technical rules of procedure.” An
inflexible rule on locus standi would result in what Mr. Justice Florentino
P. Feliciano aptly described as a “doctrinal ball and chain x x x clamped on
our own limbs.” [Kilosbayan, Inc. v. Morato, 250 SCRA 130 (1995)].
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19 Rollo, p. 12.
20 Article II, Sections 4 and 5 of the Constitution provide:
Sec. 4. The prime duty of the Government is to serve and protect the people. The
Government may call upon the people to defend the State and, in the fulfillment thereof, all
citizens may be required, under conditions provided by law, to render personal, military or
civil service.
Sec. 5. The maintenance of peace and order, the protection of life, liberty, and property,
and the promotion of the general welfare are essential for the enjoyment by all the people of
the blessings of democracy.
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108 SUPREME COURT REPORTS ANNOTATED
Integrated Bar of the Philippines vs. Zamora
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Within forty-eight hours from the proclamation of martial law
or the suspension of the privilege of the writ of habeas corpus, the
President shall submit a report in person or in writing to the
Congress. The 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 shall
not be set aside by the President. Upon the initiative of the
President, the Congress may, in the same manner, extend such
proclamation or suspension for a period to be determined by the
Congress, if the invasion or rebellion shall persist and public
safety requires it.
The Congress, if not in session, shall within twenty-four hours
following such proclamation or suspension, convene in accordance
with its rules without need of a call.
The Supreme Court may review, in an appropriate proceeding
filed by any citizen, the sufficiency of the factual basis of the
proclamation of martial law or the suspension of the privilege of
the writ or the extension thereof, and must promulgate its
decision thereon within thirty days from its filing.
A state of martial law does not suspend the operation of the
Constitution, nor supplant the functioning of the civil courts or
legislative assemblies, nor authorize the conferment of
jurisdiction on military courts and agencies over civilians where
civil courts are able to function, nor automatically suspend the
privilege of the writ.
The suspension of the privilege of the writ shall apply only to
persons judicially charged for rebellion or offenses inherent in or
directly connected with invasion.
During the suspension of the privilege of the writ, any person
thus arrested or detained shall be judicially charged within three
days, otherwise he shall be released.
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VOL. 338, AUGUST 15, 2000 109
Integrated Bar of the Philippines vs. Zamora
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dent might decide that there is a need to call out the armed
forces may be of a nature not constituting technical proof.
On the other hand, the President as Commander-in-
Chief has a vast intelligence network to gather
information, some of which may be classified as highly
confidential or affecting the security of the state. In the
exercise of the power to call, on-the-spot decisions may be
imperatively necessary in emergency situations to avert
great loss of human lives and mass destruction of property.
Indeed, the decision to call out the military to prevent or
suppress lawless violence must be done swiftly and
decisively if it were to have any effect at all. Such a
scenario is not farfetched when we consider the present
situation in Mindanao, where the insurgency problem could
spill over the other parts of the country. The determination
of the necessity for the calling out power if subjected to
unfettered judicial scrutiny could be a veritable
prescription for disaster, as such power may be unduly
straitjacketed by an injunction or a temporary restraining
order every time it is exercised.
Thus, it is the unclouded intent of the Constitution to
vest upon the President, as Commander-in-Chief of the
Armed Forces, full discretion to call forth the military when
in his judgment it is necessary to do so in order to prevent
or suppress lawless violence, invasion or rebellion. Unless
the petitioner can show that the exercise of such discretion
was gravely abused, the President’s exercise of judgment
deserves to be accorded respect from this Court.
The President has already determined the necessity and
factual basis for calling the armed forces. In his
Memorandum, he categorically asserted that, “[V]iolent
crimes like bank/store robberies, holdups, kidnappings35
and
carnappings continue to occur in Metro Manila . . .” We do
not doubt the veracity of the President’s assessment of the
situation, especially in the light of present developments.
The Court takes judicial notice of the recent bombings
perpetrated by lawless elements in the shopping malls,
public utilities, and other public places. These are among
the areas of deployment described in the LOI 2000.
Considering all these facts, we hold that the President has
sufficient factual basis to call for mili-
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35 Rollo, p. 75.
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36 Section 3, provides:
Civilian authority, is at all times, supreme over the military. The Armed Forces of
the Philippines is the protector of the people and the State. Its goal is to secure the
sovereignty of the State and the integrity of the national territory.
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ment of the Marines. It is, likewise, their duty to provide
the necessary equipment to the Marines 40
and render
logistical support to these soldiers. In view of the
foregoing, it cannot be properly argued that military
authority is supreme over civilian authority. Moreover, the
deployment of the Marines to assist the PNP does not
unmake the civilian character of the police force. Neither
does it amount to an “insidious incursion” of the military in
the task of
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No member of the Armed Forces in the active service shall, at any time, be
appointed in the government including government-owned and controlled
corporations or any of their subsidiaries.
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2. Administration
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of the Philippine National Red
Cross;
3. Relief and44 rescue operations during calamities and
disasters;
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4. Amateur sports promotion and development;
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5. Development of the culture and the arts;
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6. Conservation of natural resources;
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7. Implementation of the agrarian reform program;
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8. Enforcement of customs laws;
9. Composite50 civilian-military law enforcement
activities;
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10. Conduct of licensure examinations;
11. Conduct of nationwide52
tests for elementary and
high school students;
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12. Anti-drug enforcement activities;
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13. Sanitary inspections;
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14. Conduct of census work;
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15. Administration of the Civil Aeronautics Board;
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51 Memorandum Circular No. 141 (1996), which is entitled “Enjoining
Government Agencies Concerned to Extend Optimum Support and
Assistance to the Professional Regulation Commission in its Conduct of
Licensure Examinations.”
52 Memorandum Circular No. 32 (1999), which is entitled “Directing the
Government Agencies Concerned to Extend Maximum Support and
Assistance to the National Educational Testing and Research Center
(NETRC) of the Department of Education, Culture and Sports (DECS) in
the Conduct of Tests of National Coverage.”
53 Executive Order No. 61 (1999), which is entitled “Creating the
National Drug Law Enforcement and Prevention Coordinating Center to
Orchestrate Efforts of National Government Agencies, Local Government
Units, and Non-Government Organizations for a More Effective Anti-Drug
Campaign.”
54 Republic Act No. 4089 (1964), which is entitled “An Act Making the
City Health Officer of Bacolod City the Local Civil Registrar, Amending
for the Purpose Section Forty-Three of the Charter of said City”; Republic
Act No. 537 (1950), which is entitled “An Act to Revise the Charter of
Quezon City”; Commonwealth Act No. 592 (1940), which is entitled “An
Act to Create the City of Dansalan”; Commonwealth Act No. 509 (1939),
which is entitled “An Act to Create Quezon City”; Commonwealth Act No.
326 (1938), which is entitled “An Act Creating the City of Bacolod”;
Commonwealth Act No. 39 (1936), which is entitled “An Act Creating the
City of Zamboanga”; Commonwealth Act No. 51 (1936), which is entitled
“An Act Creating the City of Davao.”
55 Republic Act No. 36 (1946), which is entitled “Census Act of Nineteen
Hundred and Forty-Six.”
56 Republic Act No. 776 (1952), Section 5, which is entitled “An Act to
Reorganize the Civil Aeronautics Board and the Civil Aeronautics
Administration, To Provide for the Regulation of Civil Aeronautics in the
Philippines and Authorizing the Appropriation of Funds Therefor.”
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16. Assistance
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in installation of weather forecasting
devices;
17. Peace and order58 policy formulation in local
government units.
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57 Republic Act No. 6613 (1972), Section 4, which is entitled “An Act Declaring a
Policy of the State to Adopt Modern Scientific Methods to Moderate Typhoons and
Prevent Destruction by Floods, Rains and Droughts, Creating a Council on
Typhoons and Prevent Destruction by Flood, Rains and Droughts, Creating a
Council on Typhoon Moderation and Flood Control Research and Development,
Providing for its Powers and Functions and Appropriating Funds Therefor.”
58 Local Government Code of 1991, Book I, Title Seven, Section 116.
59 This theory on gloss of executive power was advanced by Justice Frankfurter
in his concurring opinion in Youngstown Sheet and Tube v. Sawyer, 343 US 579,
610-611 (1952).
60 Bissonette v. Haig, 766 F. 2d 1384, 1389 (1985).
61 18 U.S.C.A §1385 (1878).
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64
64
military power which was regulatory, proscriptive, or compulsory
in nature, either presently or prospectively?
xxx
When this concept is transplanted into the present legal
context, we take it to mean that military involvement, even when
not expressly authorized by the Constitution or a statute, does not
violate the Posse Comitatus Act unless it actually regulates,
forbids or compels some conduct on the part of those claiming
relief. A mere threat of some future injury would be insufficient.
(emphasis supplied)
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62 Ibid.
63 Bissonette v. Haig, supra note 60, at 1390.
64 A power regulatory in nature is one which controls or directs. It is
proscriptive if it prohibits or condemns and compulsory if it exerts some
coercive force. See US v. Yunis, 681 F.Supp 891 (D.D.C., 1988). See also
FOURTH AMENDMENT AND POSSE COMITATUS ACT
RESTRICTIONS ON MILITARY INVOLVEMENT IN CIVIL LAW
ENFORCEMENT, 54 George Washington Law Review, pp. 404-433
(1986), which discusses the four divergent standards for assessing
acceptable involvement of military personnel in civil law enforcement. See
likewise HONORED IN THE BREECH: PRESIDENTIAL AUTHORITY
TO EXECUTE THE LAWS WITH MILITARY FORCE, 83 Yale Law
Journal, pp. 130-152, 1973.
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SEPARATE OPINION
PUNO, J.:
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VOL. 338, AUGUST 15, 2000 123
Integrated Bar of the Philippines vs. Zamora
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6 Id., at 97.
7 Id., at 104.
8 See Cruz, Philippine Political Law, p. 87 [1998].
9 Id. at 113-114.
10 Id. at 106-107.
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11
jandrino v. Quezon, Alejandrino, who was appointed
Senator by the Governor-General, was declared by Senate
Resolution as guilty of disorderly conduct for assaulting
another Senator in the course of a debate, and was
suspended from office for one year. Senator Alejandrino
filed a petition for mandamus and injunction to compel the
Senate to reinstate him. The Court held that under the
Jones Law, the power of the Senate to punish its members
for disorderly behavior does not authorize it to suspend an
appointive member from the exercise of his office. While
the Court found that the suspension was illegal, it refused
to issue the writ of mandamus on the ground that “the
Supreme Court does not possess the power of coercion to
make the Philippine Senate take any particular action.
[T]he Philippine Legislature or any branch thereof cannot
be directly controlled in the exercise
12
of their legislative
powers by any judicial process.”
The issue revisited the Court 13
twenty-two (22) years
later. In 1946, in Vera v. Avelino, three senators-elect who
had been prevented from taking their oaths of office by a
Senate resolution repaired to this Court to compel their
colleagues to allow them to occupy their seats contending
that only the Electoral Tribunal had jurisdiction over
contests relating to their election returns and
qualifications. Again, the Court refused to intervene citing
Alejandrino and affirmed the inherent right of the
legislature to determine who shall be admitted to its
membership. 14
In the 1947 case of Mabanag v. Lopez-Vito, three
Senators and eight representatives who were proclaimed
elected by Comelec were not allowed by Congress to take
part in the voting for the passage of the Parity amendment
to the Constitution. If their votes had been counted, the
affirmative votes in favor of the proposed amendment
would have been short of the necessary three-fourths vote
in either House of Congress to pass the amendment. The
amendment was eventually submitted to the people for
ratification. The Court declined to intervene and held that
a proposal to amend
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11 46 Phil. 83 [1924].
12 Id. at 97.
13 77 Phil. 192 [1946].
14 78 Phil. 1 [1947].
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15 Id. at 4-5. The court also adopted the enrolled bill theory which, like
findings under the political question doctrine, “imports absolute verity on
the courts”—at 12.
16 97 Phil. 358 [1955].
17 109 Phil. 863 [1960].
18 83 Phil. 17 [1949].
19 Id. at 21-22.
20 Id. at 68-69.
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127
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27 Id. at 785-786.
28 Id. at 787.
29 41 SCRA at 713.
128
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35 Id. at 637-638.
36 16 Phil. 534 [1910].
37 Id. at 568-569, 576.
38 94 Phil. 903 [1954].
39 Untal v. Chief of Staff, AFP, 84 Phil. 586 [1949]; Raquiza v. Bradford,
75 Phil. 50 [1945].
40 91 Phil. 882 [1952].
130
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41 Id. at 887.
42 42 SCRA 448 [1971].
43 Id. at 474.
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question of whether the President did not act arbitrarily.
Using this yardstick, the Court found that the President
did not.
The emergency period of the 1970’s flooded the Court
with cases which raised the political question defense. The
issue divided the 45 Court down the middle. Javellana v.
Executive Secretary showed that while a majority of the
Court held that the issue of whether or not the 1973
Constitution had been ratified in accordance with the 1935
Constitution was justiciable, a majority also ruled that the
decisive issue of whether the 1973 Constitution had come
into force and effect, with or without 46
constitutional
ratification, was a political question.
The validity of the declaration of martial law by then
President Marcos was 47
next litigated before the Court. In
Aquino, Jr. v. Enrile, it upheld the President’s declaration
of martial law. On whether the validity of the imposition of
martial law was a political or justiciable question, the
Court was almost evenly divided. One-half embraced the
political question position and the other half subscribed to
the justiciable position in Lansang. Those adhering to the
political question
48
doctrine used different methods of
approach to it.
In 1983, the Lansang ruling49
was weakened by the Court
in Garcia-Padilla v. Enrile. The petitioners therein were
arrested and detained by the Philippine Constabulary by
virtue of a Presidential Commitment Order (PCO).
Petitioners sought the issuance of a writ of habeas corpus.
The Court found that the PCO had the function of
validating a person’s detention for any of the offenses
covered in Proclamation No. 2045 which continued in force
the suspension of the privilege of the writ of habeas corpus.
It held that the issuance of the 50
PCO by the President was
not subject to judicial inquiry. It went further by declaring
that there was a need to re-examine Lan-
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44 Id. at 480-481.
45 50 SCRA 30 [1973].
46 Id. at 138, 140-141.
47 59 SCRA 183 [1973].
48 Ibid.
49 121 SCRA 472 [1983].
50 Id. at 490-491.
132
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51 Id. at 500-501.
52 121 SCRA 538 [1983].
53 Id. at 563.
133
second paragraph
54
of Section 1, Article VIII in the draft
Constitution, which reads:
“Sec. 1. x x x.
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
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.”
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135
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136
SEPARATE OPINION
VITUG, J.:
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58 42 SCRA at 506-507, see also Rossiter, The Supreme Court and the
Commander-in-chief, pp. 16-17 [1951].
59 Baker v. Carr, 7 L Ed 2d at 682.
60 Willoughby on the Constitution of the United States, vol. 3, 2d ed., p.
1336 [1929].
61 Tañada v. Macapagal, 103 Phil. At 1067, quoting In re McConaughy,
119 NW 408 [1909].
62 Id.
137
“x x x [I] concur with the majority that this Court has jurisdiction
over cases like the present x x x so as to establish in this country
the judicial supremacy, with the Supreme Court as the final
arbiter, to see that no branch or agency of the government
transcends the Constitution,
3
not only in justiciable but political
questions as well.”
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