CASES REPORTED

SUPREME  COURT  REPORTS  ANNOTATED

____________________

G.R. No. 205728. January 21, 2015.*

THE DIOCESE OF BACOLOD, represented by the MOST

REV. BISHOP VICENTE M. NAVARRA and THE BISHOP
HIMSELF IN HIS PERSONAL CAPACITY, petitioners, vs.
COMMISSION ON ELECTIONS and the ELECTION
OFFICER OF BACOLOD CITY, ATTY. MAVIL V.
MAJARUCON, respondents.

Remedial Law; Special Civil Actions; Certiorari; Rule 64 is not

the exclusive remedy for all acts of the Commission on Elections
(COMELEC). Rule 65 is applicable especially to raise objections
relating to a grave abuse of discretion resulting in the ouster of juris-

_______________

* EN BANC.

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The Diocese of Bacolod vs. Commission on Elections

diction.·Rule 64 is not the exclusive remedy for all acts of the

COMELEC. Rule 65 is applicable especially to raise objections
relating to a grave abuse of discretion resulting in the ouster of
jurisdiction. As a special civil action, there must also be a showing
that there be no plain, speedy, and adequate remedy in the ordinary
course of the law.
Election Contests; Appeals; Conditions in Order for the Supreme
Court (SC) to Review Orders and Decisions of the Commission on
Elections (COMELEC) in Electoral Contests Despite Not Being
Reviewed by the COMELEC En Banc.·Based on ABS-CBN
Broadcasting Corporation v. COMELEC, 323 SCRA 811 (2000), this
court could review orders and decisions of COMELEC · in electoral
contests · despite not being reviewed by the COMELEC En Banc,
if: 1) It will prevent the miscarriage of justice; 2) The issue involves
a principle of social justice; 3) The issue involves the protection of
labor; 4) The decision or resolution sought to be set aside is a
nullity; or 5) The need for relief is extremely urgent and certiorari is
the only adequate and speedy remedy available.
Supreme Court; Jurisdictions; Subject Matter Jurisdiction;
Words and Phrases; The jurisdiction of the Supreme Court (SC) over
the subject matter is determined from the allegations in the petition.
Subject matter jurisdiction is defined as the authority „to hear and
determine cases of the general class to which the proceedings in
question belong and is conferred by the sovereign authority which
organizes the court and defines its powers.‰·The jurisdiction of this
court over the subject matter is determined from the allegations in
the petition. Subject matter jurisdiction is defined as the authority
„to hear and determine cases of the general class to which the
proceedings in question belong and is conferred by the sovereign
authority which organizes the court and defines its powers.‰
Definitely, the subject matter in this case is different from the cases
cited by respondents. Nothing less than the electorateÊs political
speech will be affected by the restrictions imposed by COMELEC.
Political speech is motivated by the desire to be heard and
understood, to move people to action. It is concerned with the
sovereign right to change the contours of power whether through
the election of representatives in a republican government or the
revision of the basic text of the Constitution. The zeal with which
we protect this kind of speech does not depend on our evaluation of
the cogency of the message. Neither do

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The Diocese of Bacolod vs. Commission on Elections
 we assess whether we should protect speech based on the
motives of COMELEC. We evaluate restrictions on freedom of
expression from their effects. We protect both speech and medium
because the quality of this freedom in practice will define the
quality of deliberation in our democratic society.
Same; Same; During elections, the Supreme Court (SC) has the
power and the duty to correct any grave abuse of discretion or any
act tainted with unconstitutionality on the part of any government
branch or instrumentality.·During elections, we have the power
and the duty to correct any grave abuse of discretion or any act
tainted with unconstitutionality on the part of any government
branch or instrumentality. This includes actions by the COMELEC.
Furthermore, it is this courtÊs constitutional mandate to protect the
people against governmentÊs infringement of their fundamental
rights. This constitutional mandate outweighs the jurisdiction
vested with the COMELEC.
Courts; Hierarchy of Courts; The doctrine that requires respect
for the hierarchy of courts was created by the Supreme Court (SC) to
ensure that every level of the judiciary performs its designated roles
in an effective and efficient manner.·The doctrine that requires
respect for the hierarchy of courts was created by this court to
ensure that every level of the judiciary performs its designated roles
in an effective and efficient manner. Trial courts do not only
determine the facts from the evaluation of the evidence presented
before them. They are likewise competent to determine issues of
law which may include the validity of an ordinance, statute, or even
an executive issuance in relation to the Constitution. To effectively
perform these functions, they are territorially organized into
regions and then into branches. Their writs generally reach within
those territorial boundaries. Necessarily, they mostly perform the
all-important task of inferring the facts from the evidence as these
are physically presented before them. In many instances, the facts
occur within their territorial jurisdiction, which properly present
the Âactual caseÊ that makes ripe a determination of the
constitutionality of such action. The consequences, of course, would
be national in scope. There are, however, some cases where resort to
courts at their level would not be practical considering their
decisions could still be appealed before the higher courts, such as
the Court of Appeals.

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The Diocese of Bacolod vs. Commission on Elections

Same; Court of Appeals; The Court of Appeals (CA) is primarily

designed as an appellate court that reviews the determination of
facts and law made by the trial courts. It is collegiate in nature.·
The Court of Appeals is primarily designed as an appellate court
that reviews the determination of facts and law made by the trial
courts. It is collegiate in nature. This nature ensures more
standpoints in the review of the actions of the trial court. But the
Court of Appeals also has original jurisdiction over most special
civil actions. Unlike the trial courts, its writs can have a nationwide
scope. It is competent to determine facts and, ideally, should act on
constitutional issues that may not necessarily be novel unless there
are factual questions to determine.
Same; Hierarchy of Courts; The doctrine of hierarchy of courts
is not an iron-clad rule.·The doctrine of hierarchy of courts is not
an iron-clad rule. This court has „full discretionary power to take
cognizance and assume jurisdiction [over] special civil actions for
certiorari . . . filed directly with it for exceptionally compelling
reasons or if warranted by the nature of the issues clearly and
specifically raised in the petition.‰
Constitutional Law; Freedom of Expression; In a democracy, the
citizenÊs right to freely participate in the exchange of ideas in
furtherance of political decision-making is recognized.·In a
democracy, the citizenÊs right to freely participate in the exchange of
ideas in furtherance of political decision-making is recognized. It
deserves the highest protection the courts may provide, as public
participation in nation-building is a fundamental principle in our
Constitution. As such, their right to engage in free expression of
ideas must be given immediate protection by this court.
Same; Same; The right to suffrage not only includes the right to
vote for oneÊs chosen candidate, but also the right to vocalize that
choice to the public in general, in the hope of influencing their votes.
·In the case before this court, there is a clear threat to the
paramount right of freedom of speech and freedom of expression
which warrants invocation of relief from this court. The principles
laid down in this decision will likely influence the discourse of
freedom of speech in the future, especially in the context of
elections. The right to suffrage not only includes the right to vote
for oneÊs chosen candidate, but also the right to vocalize that choice
to the

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The Diocese of Bacolod vs. Commission on Elections

public in general, in the hope of influencing their votes. It may

be said that in an election year, the right to vote necessarily
includes the right to free speech and expression. The protection of
these fundamental constitutional rights, therefore, allows for the
immediate resort to this court.
Same; Same; This case concerns the right of petitioners, who are
noncandidates, to post the tarpaulin in their private property, as an
exercise of their right of free expression.·The present petition does
not involve a dispute between the rich and poor, or the powerful and
weak, on their equal opportunities for media coverage of candidates
and their right to freedom of expression. This case concerns the
right of petitioners, who are noncandidates, to post the tarpaulin in
their private property, as an exercise of their right of free
expression. Despite the invocation of the political question doctrine
by respondents, this court is not proscribed from deciding on the
merits of this case.
Same; Political Questions; What is generally meant, when it is
said that a 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 department or particular officer of the government, with
discretionary power to act.·In Tañada v. Cuenco, 103 Phil. 1051
(1957), this court previously elaborated on the concept of what
constitutes a political question: What is generally meant, when it is
said that a 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 department or particular officer of the government, with
discretionary power to act. (Emphasis omitted) It is not for this
court to rehearse and reenact political debates on what the text of
the law should be. In political forums, particularly the legislature,
the creation of the text of the law is based on a general discussion of
factual circumstances, broadly construed in order to allow for
general application by the executive branch. Thus, the creation of
the law is not limited by particular and specific facts that affect the
rights of certain individuals, per se.
Same; Same; A political question arises in constitutional issues
relating to the powers or competence of different agencies and
departments of the executive or those of the legislature.·A political
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question arises in constitutional issues relating to the powers

or competence of different agencies and departments of the
executive or those of the legislature. The political question doctrine
is used as a defense when the petition asks this court to nullify
certain acts that are exclusively within the domain of their
respective competencies, as provided by the Constitution or the law.
In such situation, presumptively, this court should act with
deference. It will decline to void an act unless the exercise of that
power was so capricious and arbitrary so as to amount to grave
abuse of discretion.
Exhaustion of Administrative Remedies; Political Speeches;
Sovereignty resides in the people. Political speech is a direct exercise
of the sovereignty. The principle of exhaustion of administrative
remedies yields in order to protect this fundamental right.·Peti​-
tionersÊ exercise of their right to speech, given the message and
their medium, had understandable relevance especially during the
elections. COMELECÊs letter threatening the filing of the election
offense against petitioners is already an actionable infringement of
this right. The impending threat of criminal litigation is enough to
curtail petitionersÊ speech. In the context of this case, exhaustion of
their administrative remedies as COMELEC suggested in their
pleadings prolongs the violation of their freedom of speech. Political
speech enjoys preferred protection within our constitutional order.
In Chavez v. Gonzales, 545 SCRA 441 (2008), Justice Carpio in a
separate opinion emphasized: „[i]f ever there is a hierarchy of
protected expressions, political expression would occupy the highest
rank, and among different kinds of political expression, the subject
of fair and honest elections would be at the top.‰ Sovereignty resides
in the people. Political speech is a direct exercise of the sovereignty.
The principle of exhaustion of administrative remedies yields in
order to protect this fundamental right.
Supreme Court; Jurisdiction; Suspension of the Rules; Time
and again, we have held that the Supreme Court (SC) „has the
power to relax or suspend the rules or to except a case from their
operation when compelling reasons so warrant, or when the purpose
of justice requires it, [and when] [w]hat constitutes [as] good and
sufficient cause that will merit suspension of the rules is
discretionary upon the court.‰·Time and again, we have held that
this court „has the power to relax or suspend the rules or to except a
case from their operation when compelling reasons so warrant, or
when the purpose of justice

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The Diocese of Bacolod vs. Commission on Elections

requires it, [and when] [w]hat constitutes [as] good and

sufficient cause that will merit suspension of the rules is
discretionary upon the court.‰ Certainly, this case of first
impression where COMELEC has threatened to prosecute private
parties who seek to participate in the elections by calling attention
to issues they want debated by the public in the manner they feel
would be effective is one of those cases.
Election Law; Fair Elections Act (R.A. No. 9006); Section 17 of
Commission on Elections (COMELEC) Resolution No. 9615, the
rules and regulations implementing the Fair Elections Act,
regulating the posting of campaign materials only apply to
candidates and political parties, and petitioners are neither of the
two.·Respondents considered the tarpaulin as a campaign
material in their issuances. The above provisions regulating the
posting of campaign materials only apply to candidates and political
parties, and petitioners are neither of the two. Section 3 of Republic
Act No. 9006 on „Lawful Election Propaganda‰ also states that
these are „allowed for all registered political parties, national,
regional, sectoral parties or organizations participating under the
party list elections and for all bona fide candidates seeking national
and local elective positions subject to the limitation on authorized
expenses of candidates and political parties. . . .‰ Section 6 of
COMELEC Resolution No. 9615 provides for a similar wording.
These provisions show that election propaganda refers to matter
done by or on behalf of and in coordination with candidates and
political parties. Some level of coordination with the candidates and
political parties for whom the election propaganda are released
would ensure that these candidates and political parties maintain
within the authorized expenses limitation.
Constitutional Law; Freedom of Expression; In this case, the
tarpaulin contains speech on a matter of public concern, that is, a
statement of either appreciation or criticism on votes made in the
passing of the Reproductive Health Law (RH Law). Thus, petitioners
invoke their right to freedom of expression.·True, there is no
mention whether election campaign is limited only to the
candidates and political parties themselves. The focus of the
definition is that the act must be „designed to promote the election
or defeat of a particular candidate or candidates to a public office.‰
In this case, the tarpaulin contains speech on a matter of public
concern, that is, a statement of either appreciation or criticism on
votes made in the

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passing of the RH Law. Thus, petitioners invoke their right to

freedom of expression.
Same; Same; The right to freedom of expression applies to the
entire continuum of speech from utterances made to conduct enacted,
and even to inaction itself as a symbolic manner of communication.
·Communication exists when „(1) a speaker, seeking to signal
others, uses conventional actions because he or she reasonably
believes that such actions will be taken by the audience in the
manner intended; and (2) the audience so takes the actions.‰ „[I]n
communicative action[,] the hearer may respond to the claims by . .
. either accepting the speech actÊs claims or opposing them with
criticism or requests for justification.‰ Speech is not limited to vocal
communication. „[C]onduct is treated as a form of speech sometimes
referred to as Âsymbolic speech[,]ʉ such that „Âwhen ÂspeechÊ and
ÂnonspeechÊ elements are combined in the same course of conduct,Ê
the Âcommunicative elementÊ of the conduct may be Âsufficient to
bring into play the [right to freedom of expression].ʉ The right to
freedom of expression, thus, applies to the entire continuum of
speech from utterances made to conduct enacted, and even to
inaction itself as a symbolic manner of communication.
Same; Same; Speech that promotes dialogue on public affairs,
or airs out grievances and political discontent, should be protected
and encouraged.·Proponents of the political theory on „deliberative
democracy‰ submit that „substantial, open, [and] ethical dialogue is
a critical, and indeed defining, feature of a good polity.‰ This theory
may be considered broad, but it definitely „includes [a] collective
decision-making with the participation of all who will be affected by
the decision.‰ It anchors on the principle that the cornerstone of
every democracy is that sovereignty resides in the people. To ensure
order in running the stateÊs affairs, sovereign powers were
delegated and individuals would be elected or nominated in key
government positions to represent the people. On this note, the
theory on deliberative democracy may evolve to the right of the
people to make government accountable. Necessarily, this includes
the right of the people to criticize acts made pursuant to
governmental functions. Speech that promotes dialogue on public
affairs, or airs out grievances and political discontent, should thus
be protected and encouraged.

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Same; Same; The Supreme Court (SC) has held free speech and
other intellectual freedoms as „highly ranked in our scheme of
constitutional values.‰ These rights enjoy precedence and primacy.·
Petitioners invoke their „constitutional right to communicate their
opinions, views and beliefs about issues and candidates.‰ They
argue that the tarpaulin was their statement of approval and
appreciation of the named public officialsÊ act of voting against the
RH Law, and their criticism toward those who voted in its favor. It
was „part of their advocacy campaign against the RH Law,‰ which
was not paid for by any candidate or political party. Thus, „the
questioned orders which . . . effectively restrain[ed] and curtail[ed]
[their] freedom of expression should be declared unconstitutional
and void.‰ This court has held free speech and other intellectual
freedoms as „highly ranked in our scheme of constitutional values.‰
These rights enjoy precedence and primacy. In Philippine Blooming
Mills Employees Organization v. Philippine Blooming Mills Co.,
Inc., 51 SCRA 189 (1973), this court discussed the preferred position
occupied by freedom of expression: Property and property rights can
be lost thru prescription; but human rights are imprescriptible. If
human rights are extinguished by the passage of time, then the Bill
of Rights is a useless attempt to limit the power of government and
ceases to be an efficacious shield against the tyranny of officials, of
majorities, of the influential and powerful, and of oligarchs ·
political, economic or otherwise. In the hierarchy of civil liberties,
the rights of free expression and of assembly occupy a preferred
position as they are essential to the preservation and vitality of our
civil and political institutions; and such priority „gives these
liberties the sanctity and the sanction not permitting dubious
intrusions.‰
 Same; Same; „Political Speech‰ and „Commercial Speech,‰
Distinguished.·We distinguish between political and commercial
speech. Political speech refers to speech „both intended and received
as a contribution to public deliberation about some issue,‰
„foster[ing] informed and civic-minded deliberation.‰ On the other
hand, commercial speech has been defined as speech that does „no
more than propose a commercial transaction.‰ The expression
resulting from the content of the tarpaulin is, however, definitely
political speech.
Same; Same; Election Propaganda; While the tarpaulin may
influence the success or failure of the named candidates and
political

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parties, this does not necessarily mean it is election

propaganda.·While the tarpaulin may influence the success or
failure of the named candidates and political parties, this does not
necessarily mean it is election propaganda. The tarpaulin was not
paid for or posted „in return for consideration‰ by any candidate,
political party, or party list group.
Same; Same; Speech with political consequences is at the core of
the freedom of expression and must be protected by the Supreme
Court (SC).·Speech with political consequences is at the core of the
freedom of expression and must be protected by this court. Justice
Brion pointed out that freedom of expression „is not the god of
rights to which all other rights and even government protection of
state interest must bow.‰ The right to freedom of expression is
indeed not absolute. Even some forms of protected speech are still
subject to some restrictions. The degree of restriction may depend
on whether the regulation is content-based or content-neutral.
Content-based regulations can either be based on the viewpoint of
the speaker or the subject of the expression.
Same; Same; Clear and Present Danger Rule; Content-based
regulation bears a heavy presumption of invalidity, and this court
has used the clear and present danger rule as measure.·Size
limitations during elections hit at a core part of expression. The
content of the tarpaulin is not easily divorced from the size of its
medium. Content-based regulation bears a heavy presumption of
invalidity, and this court has used the clear and present danger rule
as measure. Thus, in Chavez v. Gonzales, 545 SCRA 441 (2008): A
content-based regulation, however, bears a heavy presumption of
invalidity and is measured against the clear and present danger
rule. The latter will pass constitutional muster only if justified by a
compelling reason, and the restrictions imposed are neither
overbroad nor vague. (Citations omitted) Under this rule, „the evil
consequences sought to be prevented must be substantive,
Âextremely serious and the degree of imminence extremely high.ʉ
„Only when the challenged act has overcome the clear and present
danger rule will it pass constitutional muster, with the government
having the burden of overcoming the presumed unconstitutionality.‰
Same; Same; Same; Even with the clear and present danger
test, respondents failed to justify the regulation. There is no compel-

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ling and substantial state interest endangered by the posting of

the tarpaulin as to justify curtailment of the right of freedom of
expression.·Even with the clear and present danger test,
respondents failed to justify the regulation. There is no compelling
and substantial state interest endangered by the posting of the
tarpaulin as to justify curtailment of the right of freedom of
expression. There is no reason for the state to minimize the right of
noncandidate petitioners to post the tarpaulin in their private
property. The size of the tarpaulin does not affect anyone elseÊs
constitutional rights.
Same; Same; „Content-Based Restraint‰ and „Content-Neutral
Regulation,‰ Distinguished.·Content-based restraint or censorship
refers to restrictions „based on the subject matter of the utterance
or speech.‰ In contrast, content-neutral regulation includes controls
merely on the incidents of the speech such as time, place, or manner
of the speech.
Same; Right of Peaceful Assembly; In the landmark case of
Reyes v. Bagatsing, 125 SCRA 553 (1983), this court summarized
the steps that permit applicants must follow which include
informing the licensing authority ahead of time as regards the date,
public place, and time of the assembly.·In the landmark case of
Reyes v. Bagatsing, 125 SCRA 553 (1983), this court summarized
the steps that permit applicants must follow which include
informing the licensing authority ahead of time as regards the date,
public place, and time of the assembly. This would afford the public
official time to inform applicants if there would be valid objections,
provided that the clear and present danger test is the standard used
for his decision and the applicants are given the opportunity to be
heard. This ruling was practically codified in Batas Pambansa Blg.
880, otherwise known as the Public Assembly Act of 1985.
Subsequent jurisprudence have upheld Batas Pambansa Blg. 880 as
a valid content-neutral regulation. In the 2006 case of Bayan v.
Ermita, 488 SCRA 226 (2006), this court discussed how Batas
Pambansa Blg. 880 does not prohibit assemblies but simply
regulates their time, place, and manner. In 2010, this court found in
Integrated Bar of the Philippines v. Atienza, 613 SCRA 518 (2010),
that respondent Mayor Atienza committed grave abuse of discretion
when he modified the rally permit by changing the venue from
Mendiola Bridge to Plaza Miranda without first affording
petitioners the opportunity to be heard.

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Same; Freedom of Expression; Limiting the maximum size of

the tarpaulin would render ineffective petitionersÊ message and
violate their right to exercise freedom of expression.·In this case,
the size regulation is not unrelated to the suppression of speech.
Limiting the maximum size of the tarpaulin would render
ineffective petitionersÊ message and violate their right to exercise
freedom of expression. The COMELECÊs act of requiring the
removal of the tarpaulin has the effect of dissuading expressions
with political consequences. These should be encouraged, more so
when exercised to make more meaningful the equally important
right to suffrage.
Same; Same; The guarantee of freedom of expression to
individuals without any relationship to any political candidate
should not be held hostage by the possibility of abuse by those
seeking to be elected.·The guarantee of freedom of expression to
individuals without any relationship to any political candidate
should not be held hostage by the possibility of abuse by those
seeking to be elected. It is true that there can be underhanded,
covert, or illicit dealings so as to hide the candidateÊs real levels of
expenditures. However, labelling all expressions of private parties
that tend to have an effect on the debate in the elections as election
paraphernalia would be too broad a remedy that can stifle genuine
speech like in this case. Instead, to address this evil, better and
more effective enforcement will be the least restrictive means to the
fundamental freedom.
Same; Same; Satire; Words and Phrases; Satire is a „literary
form that employs such devices as sarcasm, irony and ridicule to
deride prevailing vices or follies,‰ and this may target any
individual or group in society, private and government alike.·The
twin tarpaulins consist of satire of political parties. Satire is a
„literary form that employs such devices as sarcasm, irony and
ridicule to deride prevailing vices or follies,‰ and this may target
any individual or group in society, private and government alike. It
seeks to effectively communicate a greater purpose, often used for
„political and social criticism‰ „because it tears down facades,
deflates stuffed shirts, and unmasks hypocrisy. . . . Nothing is more
thoroughly democratic than to have the high-and-mighty
lampooned and spoofed.‰ Northrop Frye, well-known in this literary
field, claimed that satire had two defining features: „one is wit or
humor founded on fantasy or a sense of the grotesque and absurd,
the other is an object of attack.‰ Thus,

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satire frequently uses exaggeration, analogy, and other

rhetorical devices.
Same; Same; In an equality-based approach, „politically
disadvantaged speech prevails over regulation[,] but regulation
promoting political equality prevails over speech.‰·In an equality-
based approach, „politically disadvantaged speech prevails over
regulation[,] but regulation promoting political equality prevails
over speech.‰ This view allows the government leeway to
redistribute or equalize Âspeaking power,Ê such as protecting, even
implicitly subsidizing, unpopular or dissenting voices often
systematically subdued within societyÊs ideological ladder. This view
acknowledges that there are dominant political actors who, through
authority, power, resources, identity, or status, have capabilities
that may drown out the messages of others. This is especially true
in a developing or emerging economy that is part of the
majoritarian world like ours.
Same; Same; Regulation of speech in the context of electoral
campaigns made by candidates or the members of their political
parties or their political parties may be regulated as to time, place,
and manner.·Clearly, regulation of speech in the context of
electoral campaigns made by candidates or the members of their
political parties or their political parties may be regulated as to
time, place, and manner. This is the effect of our rulings in Osmeña
v. COMELEC, 288 SCRA 447 (1998) and National Press Club v.
COMELEC, 207 SCRA 1 (1992). Regulation of speech in the context
of electoral campaigns made by persons who are not candidates or
who do not speak as members of a political party which are, taken
as a whole, principally advocacies of a social issue that the public
must consider during elections is unconstitutional. Such regulation
is inconsistent with the guarantee of according the fullest possible
range of opinions coming from the electorate including those that
can catalyze candid, uninhibited, and robust debate in the criteria
for the choice of a candidate.
Same; Same; Regulation of election paraphernalia will still be
constitutionally valid if it reaches into speech of persons who are not
candidates or who do not speak as members of a political party if
they are not candidates, only if what is regulated is declarative
speech that, taken as a whole, has for its principal object the
endorsement of a candidate only; The regulation must only be with
respect to the

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time, place, and manner of the rendition of the message.

·Regulation of election paraphernalia will still be constitutionally
valid if it reaches into speech of persons who are not candidates or
who do not speak as members of a political party if they are not
candidates, only if what is regulated is declarative speech that,
taken as a whole, has for its principal object the endorsement of a
candidate only. The regulation (a) should be provided by law, (b)
reasonable, (c) narrowly tailored to meet the objective of enhancing
the opportunity of all candidates to be heard and considering the
primacy of the guarantee of free expression, and (d) demonstrably
the least restrictive means to achieve that object. The regulation
must only be with respect to the time, place, and manner of the
rendition of the message. In no situation may the speech be
prohibited or censored on the basis of its content. For this purpose, it
will not matter whether the speech is made with or on private
property.
 Same; Same; Right to Property; Other than the right to freedom
of expression and the meaningful exercise of the right to suffrage, the
present case also involves oneÊs right to property.·Other than the
right to freedom of expression and the meaningful exercise of the
right to suffrage, the present case also involves oneÊs right to
property.
Same; Same; Same; Freedom of expression can be intimately
related with the right to property.·Freedom of expression can be
intimately related with the right to property. There may be no
expression when there is no place where the expression may be
made. COMELECÊs infringement upon petitionersÊ property rights
as in the present case also reaches out to infringement on their
fundamental right to speech.
Same; Same; This caricature, though not agreeable to some, is
still protected speech.·The tarpaulin in question may be viewed as
producing a caricature of those who are running for public office.
Their message may be construed generalizations of very complex
individuals and party list organizations. They are classified into
black and white: as belonging to „Team Patay‰ or „Team Buhay.‰
But this caricature, though not agreeable to some, is still protected
speech.

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The Diocese of Bacolod vs. Commission on Elections

Carpio, J., Separate Concurring Opinion:

Election Law; Political Ads; View that Republic Act (RA) No.
9006 regulates a host of other campaign related acts, such as the
airing and printing of paid political ads (Section 3.4 in relation to
Section 4) and the conduct of election surveys (Section 5), which
involve not only political parties and candidates but also other
individuals or entities who fall within the ambit of these provisions.
·Section 3.3 of RA 9006 and its implementing rule for the 2013
elections, Section 6(c) of Resolution 9615, are regulations of general
applicability, covering campaign speech of all · candidates,
noncandidates, political parties and nonpolitical parties. This
conclusion is compelled by the absence of any provision in RA 9006,
and indeed, in any related statutes, limiting their application only
to the campaign speech of candidates and political parties. On the
contrary, the penal clause of RA 9006 is couched in broad language
encompassing within its ambit anyone who breaches its provisions:
„[v]iolation of th[e] Act and the rules and regulations of the
COMELEC issued to implement [it] shall be an election offense
punishable under the first and second paragraphs of Section 264 of
the Omnibus Election Code.‰ Indeed, RA 9006 regulates a host of
other campaign related acts, such as the airing and printing of paid
political ads (Section 3.4 in relation to Section 4) and the conduct of
election surveys (Section 5), which involve not only political
parties and candidates but also other individuals or entities
who fall within the ambit of these provisions. RA 9006 is a
generally applicable law as much as the Omnibus Election Code is
in the field of election propaganda regulation.
Same; Election Spending; Words and Phrases; View that
„election spending‰ refers not only to expenses of political parties and
candidates but also to expenses of their supporters.·„Election
spending‰ refers not only to expenses of political parties and
candidates but also to expenses of their supporters.
(Otherwise, all the limitations on election spending and on
what constitutes lawful election propaganda would be
meaningless). Freeing noncandidates and non-parties from the
coverage of RA 9006 allows them to (1) print campaign ad banners
and posters of any size and in any quantity, (2) place TV and radio
ads in national and local stations for any length of time, and (3)
place full-page print ads in broadsheets, tabloids and related media.
Obviously,

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16 SUPREME COURT REPORTS ANNOTATED

The Diocese of Bacolod vs. Commission on Elections

printing posters of any size, placing full-page print ads, and

running extended broadcast ads all entail gargantuan costs. Yet,
under the ponenciaÊs holding, so long as these are done by
noncandidates and non​political parties, the state is powerless to
regulate them.
Constitutional Law; Freedom of Expression; Free Speech
Clause; To satisfy the strictures of the Free Speech Clause, Congress
needs to craft legislation on the sizing of campaign posters and other
paraphernalia with sufficient flexibility to address concerns inherent
in the present fixed-dimension model.·The practical effect of the
fixed-size rule under Section 3.3 of RA 9006 (and its implementing
rule) is to further narrow the choices of poster locations for anyone
wishing to display them in any of the venues allowed by law. Voters
who wish to make known to the public their choice of candidates (or
for that matter, candidates who wish to advertise their candidacies)
through the display of posters are precluded from doing so from
certain areas not because these areas are off-limits but because, for
reasons of geography vis-à-vis the size of the poster, their contents
simply become illegible. Such restriction on campaign speech
appears to me to be „greater than is essential‰ to advance the
important government interests of minimizing election spending
and ensuring orderly elections. To satisfy the strictures of the Free
Speech Clause, Congress needs to craft legislation on the sizing of
campaign posters and other paraphernalia with sufficient flexibility
to address concerns inherent in the present fixed-dimension model.

Brion, J., Dissenting Opinion:

Judicial Review; View that the petition prematurely availed of

the Supreme CourtÊs (SCÊs) power of judicial review by openly
disregarding established Commission on Elections (COMELEC)
processes by bypassing the comelec En Banc.·In my view, the
petition prematurely availed of the CourtÊs power of judicial review
BY OPENLY DISREGARDING ESTABLISHED COMELEC
PROCESSES BY BYPASSING THE COMELEC EN BANC. This is
a legal mortal sin that will sow havoc in future cases before this
Court. The petition consequently failed to show any prima facie
case of grave abuse of discretion on the part of the Comelec, as it
had not yet finally decided on its course of action. Most importantly,
the issues the petition presents have now been MOOTED and do
not now present any LIVE CONTROVERSY. The Court will recall
that we im-

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mediately issued a temporary restraining order to halt further

Comelec action, so that the petitioner was effectively the prevailing
party when the elections · the critical time involved in this case ·
took place. Subsequently, the interest advocated in the disputed
tarpaulin was decided by this Court to the satisfaction of the public
at large, among them the Church whose right to life views
prevailed. THESE ARE CIRCUMSTANCES THAT SHOULD
DISSUADE THIS COURT FROM RULING ON A CASE THAT
WEIGHS THE RIGHTS OF FREE SPEECH AND DEMOCRATIC
ELECTORAL VALUES.
Same; View on Requirements of Justiciability.·Judicial review
under the traditional jurisdiction of the Court requires the following
requirements of justiciability: (1) there must be an actual case or
controversy calling for the exercise of judicial power; (2) the person
challenging the act must have the standing to question the validity
of the subject act or issuance; otherwise stated, he must have a
personal and substantial interest in the case such that he has
sustained, or will sustain, direct injury as a result of its
enforcement; (3) the question of constitutionality must be raised
at the earliest opportunity; and (4) the issue of constitutionality
must be the very lis mota of the case. Failure to meet any of these
requirements justifies the CourtÊs refusal to exercise its power of
judicial review under the CourtÊs traditional power. The Court,
however, has, in several instances, opted to relax one or more of
these requirements to give due course to a petition presenting
issues of transcendental importance to the nation.
Same; Locus Standi; Transcendental Importance Doctrine; View
that when the standing is relaxed because of the transcendental
importance doctrine, the character of the injury presented to fulfill
the actual case or controversy requirement is likewise tempered.·In
these cases, the doctrine of transcendental importance relaxes the
standing requirement, and thereby indirectly relaxes the injury
embodied in the actual case or controversy requirement. Note at
this point that an actual case or controversy is present when the
issues it poses are ripe for adjudication, that is, when the act being
challenged has had a direct adverse effect on the individual
challenging it. Standing, on the other hand, requires a personal
and substantial interest manifested through a direct injury that the
petitioner has or will sustain as a result of the questioned act. Thus,
when the stand-

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The Diocese of Bacolod vs. Commission on Elections

ing is relaxed because of the transcendental importance

doctrine, the character of the injury presented to fulfill the actual
case or controversy requirement is likewise tempered. When we, for
instance, say that the petitioners have no standing as citizens or as
taxpayers but we nevertheless give the petition due course, we
indirectly acknowledge that the injury that they had or will sustain
is not personally directed towards them, but to the more general
and abstract Filipino public.
Same; Political Questions; View that the political question
doctrine prevents the Supreme Court (SC) from deciding cases that
are of a political nature, and leaves the decision to the elected
officials of government.·The political question doctrine prevents
the Court from deciding cases that are of a political nature, and
leaves the decision to the elected-officials of government. In other
words, the Court, through the political question doctrine, defers to
the judgment and discretion of the Executive and Legislature,
matters that involve policy because they are the peopleÊs elected
officials and hence are more directly accountable to them.
Same; Same; View that the 1987 Constitution, recognizing the
importance of the Supreme CourtÊs (SCÊs) active role in checking
abuses in government, relaxed the political question doctrine and
made it a duty upon the Court to determine whether there had been
abuses in the governmentÊs exercise of discretion and consequently
nullify such actions that violate the Constitution albeit in the narrow
and limited instances of grave abuse of discretion.·The 1987
Constitution, recognizing the importance of the CourtÊs active role
in checking abuses in government, relaxed the political question
doctrine and made it a duty upon the Court to determine whether
there had been abuses in the governmentÊs exercise of discretion
and consequently nullify such actions that violate the Constitution
albeit in the narrow and limited instances of grave abuse of
discretion. Thus, when a government agencyÊs exercise of discretion
is so grave as to amount to an excess or lack of jurisdiction, it
becomes the duty to step in and check for violations of the
Constitution. In these instances, the political question doctrine
cannot prevent the Court from determining whether the
government gravely abused its jurisdiction, against the back drop of
the Constitution.

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Same; Same; View that translated in terms of the Supreme

CourtÊs (SCÊs) expanded jurisdiction, the actual case or controversy
requirement is fulfilled by a prima facie showing of grave abuse of
discretion.·Translated in terms of the CourtÊs expanded
jurisdiction, the actual case or controversy requirement is fulfilled
by a prima facie showing of grave abuse of discretion. This approach
reflects the textual requirement of grave abuse of discretion in the
second paragraph of Article VIII, Section 1 of the 1987 Constitution.
As I have earlier pointed out in my separate opinion in Araullo v.
Aquino III, 728 SCRA 1 (2014), justiciability under the expanded
judicial power expressly and textually depends only on the presence
or absence of grave abuse of discretion, as distinguished from a
situation where the issue of constitutional validity is raised within
a „traditionally‰ justiciable case which demands that the
requirement of actual controversy based on specific legal rights
must exist.
Commission on Elections; Jurisdiction; View that the
constitutional grant to the Commission on Elections (Comelec) of the
power to investigate and to prosecute election offenses as an adjunct
to the enforcement and administration of all election laws is
intended to enable the Comelec to effectively ensure to the people the
free, orderly, and honest conduct of elections.·The petition
characterizes the notices as administrative acts of the Comelec that
are outside the latterÊs jurisdiction to perform. The ComelecÊs
administrative function refers to the enforcement and
administration of election laws. Under Section 2(6), Article IX-C of
the Constitution, the Comelec is expressly given the power to
„prosecute cases of violations of election laws, including acts or
omissions constituting election frauds, offenses, and malpractices.‰
The constitutional grant to the Comelec of the power to investigate
and to prosecute election offenses as an adjunct to the enforcement
and administration of all election laws is intended to enable the
Comelec to effectively ensure to the people the free, orderly, and
honest conduct of elections.
Judicial Review; Jurisdiction; Expanded Jurisdiction; View
that the Supreme Court (SC) reviews Commission on ElectionsÊ
(ComelecÊs) administrative acts only by way of exception, when it
acts capriciously or whimsically, with grave abuse of discretion
amounting to lack or excess of jurisdiction. Necessarily, this invokes
the CourtÊs expanded jurisdiction under the second paragraph of
Article VIII, Section 1.·The Court reviews ComelecÊs adminis-

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20 SUPREME COURT REPORTS ANNOTATED

The Diocese of Bacolod vs. Commission on Elections

trative acts only by way of exception, when it acts

capriciously or whimsically, with grave abuse of discretion
amounting to lack or excess of jurisdiction. Necessarily, this invokes
the CourtÊs expanded jurisdiction under the second paragraph of
Article VIII, Section 1. That there is an alleged grave abuse of
discretion on the part of Comelec, however, does not automatically
mean that the petition should be given due course. It has to meet
the requirements of justiciability which, under the terms of the
CourtÊs expanded judicial power, has been translated to mean a
prima facie showing of a governmental entity, office or official
granted discretionary authority to act and that this
authority has been gravely abused. There can be no prima facie
showing of grave abuse of discretion unless something has already
been done or has taken place under the law and the petitioner
sufficiently alleges the existence of a threatened or immediate
injury to itself as a result of the gravely abusive exercise of
discretion.
Election Law; Preliminary Investigation; View that Commission
on Elections (Comelec) Resolution No. 9386 (Rules of Procedure in
the Investigation and Prosecution of Election Offense Cases in the
COMELEC), in particular, provides that once a complaint is
initiated, an investigating officer would have to conduct a
preliminary investigation to determine whether it warrants
prosecution.·Comelec Resolution No. 9386 (Rules of Procedure
in the Investigation and Prosecution of Election Offense
Cases in the Commission on Elections), in particular, provides
that once a complaint is initiated, an investigating officer would
have to conduct a preliminary investigation to determine whether it
warrants prosecution. At this stage, the respondent(s) to the
complaint may submit his counter-affidavit and other supporting
documents for the complaintÊs dismissal. The investigating officer
may also hold a hearing to propound clarificatory questions to the
parties and their witnesses. The parties may even submit questions
to the investigating officer, which the latter may propound to the
parties or parties or witnesses concerned.
Moot and Academic; View that a case becomes moot and
academic when there is no more actual controversy between the
parties, or no useful purpose can be served in passing upon the
merits.·A petition becomes moot and academic when it „ceases to
present a justiciable controversy by virtue of supervening events, so
that a

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 The Diocese of Bacolod vs. Commission on Elections

declaration thereon would be of no practical use or value.‰ A

case becomes moot and academic when there is no more actual
controversy between the parties, or no useful purpose can be served
in passing upon the merits.
Judicial Review; View that after the Commission on Elections
(Comelec) had been allowed to exercise its jurisdiction to the fullest,
judicial review of its actions may be availed of through a petition for
certiorari under the Rules of Court.·But while these issues are
capable of repetition, they most certainly cannot escape review. The
administrative process outlined in Comelec Resolution No. 9615
provides a process through which the Comelec may decide these
issues with finality. After the Comelec had been allowed to exercise
its jurisdiction to the fullest, judicial review of its actions may be
availed of through a petition for certiorari under the Rules of Court.
At that point, the issues would certainly no longer be premature.
Election Law; View that the content of the tarpaulin, as well as
the timing of its posting, makes it subject of the regulations in
Republic Act (RA) No. 9006 and Commission on Elections (Comelec)
Resolution No. 9615.·The content of the tarpaulin, as well as the
timing of its posting, makes it subject of the regulations in RA 9006
and Comelec Resolution No. 9615. Comelec Resolution No. 9615
contains rules and regulations implementing RA 9006 during the
2013 national elections. Section 3 of RA 9006 and Section 6 of
Comelec Resolution No. 9615 seek to regulate election propaganda,
defined in the latter as: The term „political advertisement‰ or
„election propaganda‰ refers to any matter broadcasted,
published, printed, displayed or exhibited, in any medium,
which contain the name, image, logo, brand, insignia, color motif,
initials, and other symbol or graphic representation that is capable
of being associated with a candidate or party, and is
intended to draw the attention of the public or a segment
thereof to promote or oppose, directly or indirectly, the
election of the said candidate or candidates to a public
office. In broadcast media, political advertisements may take the
form of spots, appearances on TV shows and radio programs, live or
taped announcements, teasers, and other forms of advertising
messages or announcements used by commercial advertisers.
Political advertising includes matters, not falling within the scope
of personal opinion, that appear on any Internet website, including,
but not limited to, social networks,

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The Diocese of Bacolod vs. Commission on Elections

blogging sites, and micro-blogging sites, in return for

consideration, or otherwise capable of pecuniary estimation.
Same; Election Propaganda; View that had Congress intended
to limit its definition of election propaganda to materials posted for
or in behalf of candidates, it could have so specified.·Had
Congress intended to limit its definition of election
propaganda to materials posted for or in behalf of
candidates, it could have so specified. Notably, Section 9 on the
Posting of Campaign Materials indicates who the Comelec may
authorize to erect common poster areas for campaign materials in
public places. It does not, as the ponencia makes it appear, limit
the definition of election propaganda to those posted by candidates
and parties. The title of Section 9 uses the word „campaign
materials‰ and not election propaganda; thus, it refers to a
particular type of election propaganda. Election
propaganda becomes a campaign material once it is used by
candidates and political parties. Nevertheless, the latter is
different from the more generic term Âelection propagandaÊ
in the other parts of RA 9006.
Same; Same; View that that the subject poster was posted on
private property does not divest the Commission on Elections
(Comelec) of authority to regulate it.·That the subject poster was
posted on private property does not divest the Comelec of authority
to regulate it. The law specifically recognizes the posting of election
propaganda on private property provided its owner consents to it. In
the present case, the property owner is the Diocese of Bacolod itself,
and the posting of the subject poster was made upon its own
directive.
Same; Same; Content-Neutral Regulations; View that the
assailed regulations in the present case involve a content-neutral
regulation that controls the incidents of speech. Both the notice and
letter sent by the Commission on Elections (Comelec) to the Diocese
of Bacolod sought to enforce Section 3.3 of Republic Act (RA) No.
9006 and Section 6(c) of Comelec Resolution No. 9615 which limits
the size of posters that contain election propaganda to not more than
two (2) by three (3) feet. It does not prohibit anyone from posting
materials that contain election propaganda, so long as it meets the
size limitations.·Content-based regulations are viewed with a
heavy presumption of unconstitutionality. Thus, the government
has the burden of showing that the regulation is narrowly tailored
to meet a

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The Diocese of Bacolod vs. Commission on Elections

compelling state interest, otherwise, the Court will strike it

down as unconstitutional. In contrast, content-neutral
regulations are not presumed unconstitutional. They pass
constitutional muster once they meet the following requirements:
first, that the regulation is within the constitutional power of the
Government; second, that it furthers an important or substantial
governmental interest; third, that the governmental interest is
unrelated to the suppression of free expression; and fourth, that
the incidental restriction on speech is no greater than is essential to
further that interest. The assailed regulations in the present
case involve a content-neutral regulation that controls the
incidents of speech. Both the notice and letter sent by the
Comelec to the Diocese of Bacolod sought to enforce Section 3.3 of
RA 9006 and Section 6(c) of Comelec Resolution No. 9615 which
limits the size of posters that contain election propaganda to not
more than two by three feet. It does not prohibit anyone from
posting materials that contain election propaganda, so long as it
meets the size limitations.
Constitutional Law; Freedom of Expression; View that
Philippine jurisprudence has long settled that the time, place, and
manner of speech may be subject to Government regulation. Since
the size of a poster involves a time, place and manner regulation,
then it may be the proper subject of a government regulation.·
Philippine jurisprudence has long settled that the time, place, and
manner of speech may be subject to Government regulation. Since
the size of a poster involves a time, place and manner regulation,
then it may be the proper subject of a government regulation. That
Congress may impose regulations on the time place, and manner of
speech during the election period is even implicitly recognized in
Section 2, paragraph 7, Article IX-C of the 1987 Constitution.
Under this provision, the Comelec is empowered to recommend to
Congress effective measures to minimize election spending,
including limitation of places where propaganda materials shall be
posted. That Congress can pass regulations regarding places where
propaganda materials may be posted necessarily indicates that it
can also pass other content-neutral regulations, such as the time
and manner of the speechÊs utterance.
 Same; Same; View that freedom of expression, in the first place,
is not the god of rights to which all other rights and even government
protection of state interest must bow.·Freedom of expression, in the
first place, is not the god of rights to which all other rights and even

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24 SUPREME COURT REPORTS ANNOTATED

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government protection of state interest must bow. Speech

rights are not the only important and relevant values even in the
most democratic societies. Our Constitution, for instance, values
giving equal opportunity to proffer oneself for public office, without
regard to a personÊs status, or the level of financial resources that
one may have at oneÊs disposal.
Same; Same; View that size limits to posters are necessary to
ensure equality of public information campaigns among candidates,
as allowing posters with different sizes gives candidates and their
supporters the incentive to post larger posters. This places
candidates with more money and/or with deep-pocket supporters at
an undue advantage against candidates with more humble financial
capabilities.·Size limits to posters are necessary to ensure equality
of public information campaigns among candidates, as allowing
posters with different sizes gives candidates and their supporters
the incentive to post larger posters. This places candidates with
more money and/or with deep-pocket supporters at an undue
advantage against candidates with more humble financial
capabilities. Notably, the law does not limit the number of posters
that a candidate, his supporter, or a private individual may post. If
the size of posters becomes unlimited as well, then candidates and
parties with bigger campaign funds could effectively crowd out
public information on candidates with less money to spend to secure
posters · the formerÊs bigger posters and sheer number could
effectively take the attention away from the latterÊs message. In the
same manner, a lack of size limitations would also crowd out
private, unaffiliated individuals from participating in the discussion
through posters, or at the very least, compel them to erect bigger
posters and thus spend more.

Perlas-Bernabe, J., Separate Concurring Opinion:

 Constitutional Law; Freedom of Expression; Content-Neutral
Regulation; View that a governmental regulation is sufficiently
justified if it is within the constitutional power of the Government, if
[(a)] it furthers an important or substantial governmental interest;
[(b)] the governmental interest is unrelated to the suppression of free
expression; and [(c)] the incident restriction on alleged [freedom of
speech and expression] is no greater than is essential to the
furtherance of that interest.·As comprehensively explained in the
seminal case of Chavez v. Gonzales, 545 SCRA 441 (2008), „[w]hen
the speech

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restraints take the form of a content-neutral regulation,

only a substantial governmental interest is required for its
validity. Because regulations of this type are not designed to
suppress any particular message, they are not subject to the
strictest form of judicial scrutiny but an intermediate approach
· somewhere between the mere rationality that is required of any
other law and the compelling interest standard applied to content-
based restrictions. The test is called intermediate because the
Court will not merely rubberstamp the validity of a law but also
require that the restrictions be narrowly-tailored to promote an
important or significant governmental interest that is unrelated to
the suppression of expression. The intermediate approach has
[thus] been formulated in this manner: A governmental regulation
is sufficiently justified if it is within the constitutional power of the
Government, if [(a)] it furthers an important or substantial
governmental interest; [(b)] the governmental interest is
unrelated to the suppression of free expression; and [(c)] the
incident restriction on alleged [freedom of speech and expression] is
no greater than is essential to the furtherance of that interest.‰
Same; Same; Same; View that a governmental action that
restricts freedom of speech or of the press based on content is given
the strictest scrutiny in light of its inherent and invasive impact.·A
governmental action that restricts freedom of speech or of the press
based on content is given the strictest scrutiny in light of its
inherent and invasive impact. Only when the challenged act has
overcome the clear and present danger rule will it pass
constitutional muster, with the government having the burden of
overcoming the presumed unconstitutionality.
Same; Same; View that while the Commission on ElectionsÊ
(COMELECÊs) regulatory powers ought to be recognized, personal
advocacies pertaining to relevant social issues by a private entity
within its own private property ought to fall beyond that broad
authority, lest we stifle the value of a core liberty.·Considering the
totality of the factors herein detailed, and equally bearing in mind
the discussions made in Adiong v. COMELEC, 207 SCRA 712
(1992), I submit that the COMELEC issuances subject of this case
do not satisfy the substantial governmental interest requisite and,
hence, fail the intermediate scrutiny test. Surely, while the
COMELECÊs regulatory powers ought to be recognized, personal
advocacies per-

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26 SUPREME COURT REPORTS ANNOTATED

The Diocese of Bacolod vs. Commission on Elections

taining to relevant social issues by a private entity within its

own private property ought to fall beyond that broad authority, lest
we stifle the value of a core liberty.

SPECIAL CIVIL ACTION in the Supreme Court.

Certiorari and Prohibition.
The facts are stated in the opinion of the Court.
Ralph A. Sarmiento, Raymundo T. Pandan, Jr. and
Michelle M. Abella for petitioners.

LEONEN, J.:

„The Philippines is a democratic and republican State.

Sovereignty resides in the people and all government authority
emanates from them.‰ · Article II, Section 1, Constitution

All governmental authority emanates from our people.

No unreasonable restrictions of the fundamental and
preferred right to expression of the electorate during
political contests no matter how seemingly benign will be
tolerated.
This case defines the extent that our people may shape
the debates during elections. It is significant and of first
impression. We are asked to decide whether the
Commission on Elections (COMELEC) has the competence
to limit expressions made by the citizens · who are not
candidates · during elections.
Before us is a special civil action for certiorari and
prohibition with application for preliminary injunction and
temporary restraining order1 under Rule 65 of the Rules of
Court seeking to nullify COMELECÊs Notice to Remove
Campaign Materials2 dated February 22, 2013 and letter3
issued on February 27, 2013.

_______________

1 Rollo, pp. 3-8.

2 Id., at p. 19.

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The facts are not disputed.

On February 21, 2013, petitioners posted two (2)
tarpaulins within a private compound housing the San
Sebastian Cathedral of Bacolod. Each tarpaulin was
approximately six feet (6Ê) by ten feet (10Ê) in size. They
were posted on the front walls of the cathedral within
public view. The first tarpaulin contains the message
„IBASURA RH Law‰ referring to the Reproductive Health
Law of 2012 or Republic Act No. 10354. The second
tarpaulin is the subject of the present case.4
This tarpaulin contains the heading „Conscience Vote‰
and lists candidates as either „(Anti-RH) Team Buhay‰
with a check mark, or „(Pro-​RH) Team Patay‰ with an „X‰
mark.5 The electoral candidates were classified according
to their vote on the adoption of Republic Act No. 10354,
otherwise known as the RH Law.6 Those who voted for the
passing of the law were classified by petitioners as
comprising „Team Patay,‰ while those who voted against it
form „Team Buhay‰:7
_______________

3 Id., at p. 23.
4 Id., at p. 6.
5 Id., at p. 155.
6 Id., at pp. 6-7.
7 Id.

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During oral arguments, respondents conceded that the

tarpaulin was neither sponsored nor paid for by any
candidate. Petitioners also conceded that the tarpaulin
contains names of candidates for the 2013 elections, but not
of politicians who helped in the passage of the RH Law but
were not candidates for that election.
On February 22, 2013, respondent Atty. Mavil V.
Majarucon, in her capacity as Election Officer of Bacolod
City, issued a Notice to Remove Campaign Materials8
addressed to petitioner Most Rev. Bishop Vicente M.
Navarra. The election officer ordered the tarpaulinÊs
removal within three (3) days from receipt for being
oversized. COMELEC Resolution No. 9615 provides for the
size requirement of two feet (2Ê) by three feet (3Ê).9
On February 25, 2013, petitioners replied10 requesting,
among others, that (1) petitioner Bishop be given a definite
ruling by COMELEC Law Department regarding the
tarpaulin; and (2) pending this opinion and the availment
of legal remedies, the tarpaulin be allowed to remain.11
 On February 27, 2013, COMELEC Law Department
issued a letter12 ordering the immediate removal of the
tarpaulin; otherwise, it will be constrained to file an
election offense against petitioners. The letter of
COMELEC Law Department was silent on the remedies
available to petitioners. The letter provides as follows:

_______________

8 Id., at p. 19.
9 See COMELEC Resolution No. 9615 (2013), Sec. 6(c).
10 Rollo, pp. 20-22.
11 Id., at p. 21.
12 Id., at p. 23.

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Dear Bishop Navarra:

It has reached this Office that our Election Officer for this City,
Atty. Mavil Majarucon, had already given you notice on February
22, 2013 as regards the election propaganda material posted on the
church vicinity promoting for or against the candidates and party
list groups with the following names and messages, particularly
described as follows:

The three (3)-day notice expired on February 25, 2013.

Considering that the above mentioned material is found to be in
violation of Comelec Resolution No. 9615 promulgated on January
15, 2013 particularly on the size (even with the subsequent division
of the said tarpaulin into two), as the lawful size for election
propaganda material is only two feet (2Ê) by three feet (3Ê), please
order/cause the immediate removal of said election propaganda
material, otherwise, we shall be constrained to file an election
offense case against you.
We pray that the Catholic Church will be the first institution to
help the Commission on Elections in ensuring the conduct of
peaceful, orderly, honest and credible elections.
Thank you and God Bless!

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The Diocese of Bacolod vs. Commission on Elections

[signed]
ATTY. ESMERALDA AMORA-LADRA
Director IV13

Concerned about the imminent threat of prosecution for

their exercise of free speech, petitioners initiated this case
through this petition for certiorari and prohibition with
application for preliminary injunction and temporary
restraining order.14 They question respondentsÊ notice
dated February 22, 2013 and letter issued on February 27,
2013. They pray that: (1) the petition be given due course;
(2) a temporary restraining order (TRO) and/or a writ of
preliminary injunction be issued restraining respondents
from further proceeding in enforcing their orders for the
removal of the Team Patay tarpaulin; and (3) after notice
and hearing, a decision be rendered declaring the
questioned orders of respondents as unconstitutional and
void, and permanently restraining respondents from
enforcing them or any other similar order.15
After due deliberation, this court, on March 5, 2013,
issued a temporary restraining order enjoining respondents
from enforcing the assailed notice and letter, and set oral
arguments on March 19, 2013.16
On March 13, 2013, respondents filed their comment17
arguing that (1) a petition for certiorari and prohibition
under Rule 65 of the Rules of Court filed before this court is
not the proper remedy to question the notice and letter of
respondents; and (2) the tarpaulin is an election
propaganda subject to regulation by COMELEC pursuant
to its mandate under Article IX-C, Section 4 of the
Constitution. Hence, respon-

_______________

13 Id.
 14 Id., at pp. 15-16.
15 Id., at p. 16.
16 Id., at p. 24.

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The Diocese of Bacolod vs. Commission on Elections

dents claim that the issuances ordering its removal for

being oversized are valid and constitutional.18
During the hearing held on March 19, 2013, the parties
were directed to file their respective memoranda within 10
days or by April 1, 2013, taking into consideration the
intervening holidays.19
The issues, which also served as guide for the oral
arguments, are:20

I.
WHETHER THE 22 FEBRUARY 2013 NOTICE/ORDER BY
ELECTION OFFICER MAJARUCON AND THE 27 FEBRUARY
2013 ORDER BY THE COMELEC LAW DEPARTMENT ARE
CONSIDERED JUDGMENTS/
FINAL ORDERS/RESOLUTIONS OF THE COMELEC WHICH
WOULD WARRANT A REVIEW OF THIS COURT VIA RULE 65
PETITION[;]
A. WHETHER PETITIONERS VIOLATED THE HIERARCHY
OF COURTS DOCTRINE AND JURISPRUDENTIAL RULES
GOVERNING APPEALS FROM COMELEC DECISIONS;
B. ASSUMING ARGUENDO THAT THE AFOREMENTIONED
ORDERS ARE NOT CONSIDERED JUDGMENTS/
FINAL ORDERS/RESOLUTIONS OF THE COMELEC,
WHETHER THERE ARE EXCEPTIONAL CIRCUMSTANCES
WHICH WOULD ALLOW THIS COURT TO TAKE COGNIZANCE
OF THE CASE[;]

_______________

17 Id., at pp. 32-49.

18 Id., at p. 35.
19 Id., at p. 50C.
20 Id., at pp. 94-96.

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32 SUPREME COURT REPORTS ANNOTATED
The Diocese of Bacolod vs. Commission on Elections

II.
WHETHER IT IS RELEVANT TO DETERMINE WHETHER
THE TARPAULINS ARE „POLITICAL ADVERTISEMENT‰ OR
„ELECTION PROPAGANDA‰ CONSIDERING THAT
PETITIONER IS NOT A POLITICAL CANDIDATE[;]
III.
WHETHER THE TARPAULINS ARE A FORM OR
EXPRESSION (PROTECTED SPEECH), OR ELECTION
PROPAGANDA/POLITICAL ADVERTISEMENT[;]
A. ASSUMING ARGUENDO THAT THE TARPAULINS ARE A
FORM OF EXPRESSION, WHETHER THE COMELEC
POSSESSES THE AUTHORITY TO REGULATE THE SAME[;]
B. WHETHER THIS FORM OF EXPRESSION MAY BE
REGULATED[;]
IV.
WHETHER THE 22 FEBRUARY 2013 NOTICE/ORDER BY
ELECTION OFFICER MAJARUCON AND THE 27 FEBRUARY
2013 ORDER BY THE COMELEC LAW DEPARTMENT
VIOLATES THE PRINCIPLE OF SEPARATION OF CHURCH
AND STATE[;] [AND]
V.
WHETHER THE ACTION OF THE PETITIONERS IN
POSTING ITS TARPAULIN VIOLATES THE CONSTITUTIONAL
PRINCIPLE OF SEPARATION OF CHURCH AND STATE.

PROCEDURAL ISSUES
I.A
This courtÊs jurisdiction over COMELEC cases

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Respondents ask that this petition be dismissed on the

ground that the notice and letter are not final orders,
decisions, rulings, or judgments of the COMELEC En Banc
issued in the exercise of its adjudicatory powers, reviewable
via Rule 64 of the Rules of Court.21
 Rule 64 is not the exclusive remedy for all acts of the
COMELEC. Rule 65 is applicable especially to raise
objections relating to a grave abuse of discretion resulting
in the ouster of jurisdiction.22 As a special civil action,
there must also be a showing that there be no plain,
speedy, and adequate remedy in the ordinary course of the
law.
Respondents contend that the assailed notice and letter
are not subject to review by this court, whose power to
review is „limited only to final decisions, rulings and orders
of the COMELEC En Banc rendered in the exercise of its
adjudicatory or quasi-judicial power.‰23 Instead,
respondents claim that the assailed notice and letter are
reviewable only by COMELEC itself pursuant to Article IX-
C, Section 2(3) of the Constitution24 on COMELECÊs power
to decide all questions affecting elections.25 Respondents
invoke the cases of Ambil, Jr. v. COMELEC,26 Repol v.
COMELEC,27 Soriano, Jr. v.

_______________

21 Id., at pp. 62-64.

22 See Macabago v. Commission on Elections, 440 Phil. 683, 690-692;
392 SCRA 178, 183 (2002) [Per J. Callejo, Sr., En Banc].
23 Rollo, p. 63.
24 Const., Art. IX-C, Sec. 2(3):
Sec. 2. The Commission on Elections shall exercise the following
powers and functions:
....
(3)  Decide, except those involving the right to vote, all questions
affecting elections, including determination of the number and location of
polling places, appointment of election officials and inspectors, and
registration of voters.
25 Rollo, p. 64.
26 398 Phil. 257; 344 SCRA 358 (2000) [Per J. Pardo, En Banc].
27 G.R. No. 161418, April 28, 2004, 428 SCRA 321 [Per J. Carpio, En
Banc].

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34 SUPREME COURT REPORTS ANNOTATED

The Diocese of Bacolod vs. Commission on Elections

COMELEC,28 Blanco v. COMELEC,29 and Cayetano v.

COMELEC,30 to illustrate how judicial intervention is
limited to final decisions, orders, rulings and judgments of
the COMELEC En Banc.31
These cases are not applicable.
In Ambil, Jr. v. COMELEC, the losing party in the
gubernatorial race of Eastern Samar filed the election
protest.32 At issue was the validity of the promulgation of a
COMELEC Division resolution.33 No motion for
reconsideration was filed to raise this issue before the
COMELEC En Banc. This court declared that it did not
have jurisdiction and clarified:

We have interpreted [Section 7, Article IX-A of the

Constitution]34 to mean final orders, rulings and decisions of the
COMELEC rendered in the exercise of its adjudicatory or quasi-
judicial powers.‰ This decision must be a final decision or resolution
of the Comelec En Banc, not of a division, certainly not an
interlocutory order of a division. The Supreme Court has no power
to review via certiorari, an interlocutory order or even a final
resolution of a Division of the Commission on Elections.35
(Emphasis in the original, citations omitted)

_______________

28 548 Phil. 639; 520 SCRA 88 (2007) [Per J. Carpio, En Banc].

29 577 Phil. 622; 554 SCRA 755 (2008) [Per J. Azcuna, En Banc].
30 G.R. No. 193846, April 12, 2011, 648 SCRA 561 [Per J. Nachura,
En Banc].
31 Rollo, p. 64.
32 Ambil, Jr. v. Commission on Elections, supra note 26 at p. 271; p.
367.
33 Id., at pp. 271-272; p. 367.
34 Sec. 7. . . . Unless otherwise provided by this Constitution or by
law, any decision, order, or ruling of each Commission may be brought to
the Supreme Court on certiorari by the aggrieved party within thirty
days from receipt of a copy thereof.
35 Ambil, Jr. v. Commission on Elections, supra at p. 274; pp. 365-
366.

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However, in the next case cited by respondents, Repol v.

COMELEC, this court provided exceptions to this general
rule. Repol was another election protest case, involving the
mayoralty elections in Pagsanghan, Samar.36 This time, the
case was brought to this court because the COMELEC
First Division issued a status quo ante order against the
Regional Trial Court executing its decision pending
appeal.37 This courtÊs ponencia discussed the general rule
enunciated in Ambil, Jr. that it cannot take jurisdiction to
review interlocutory orders of a COMELEC Division.38
However, consistent with ABS-CBN Broadcasting
Corporation v. COMELEC,39 it clarified the exception:

This Court, however, has ruled in the past that this procedural
requirement [of filing a motion for reconsideration] may be glossed
over to prevent miscarriage of justice, when the issue involves the
principle of social justice or the protection of labor, when the
decision or resolution sought to be set aside is a nullity, or when the
need for relief is extremely urgent and certiorari is the only
adequate and speedy remedy available.40

Based on ABS-CBN, this court could review orders and

decisions of COMELEC · in electoral contests · despite
not being reviewed by the COMELEC En Banc, if:
1) It will prevent the miscarriage of justice;
2) The issue involves a principle of social justice;
3) The issue involves the protection of labor;

_______________

36 Repol v. COMELEC, supra note 27 at p. 322.

37 Id., at p. 325.
38 Id., at p. 330.
39 380 Phil. 780; 323 SCRA 811 (2000) [Per J. Panganiban, En Banc].
40 Repol v. Commission on Elections, supra at p. 330, citing ABS-
CBN v. Commission on Elections, id., at pp. 789-790; p. 820.

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36 SUPREME COURT REPORTS ANNOTATED

The Diocese of Bacolod vs. Commission on Elections

4) The decision or resolution sought to be set aside is a

nullity; or
5) The need for relief is extremely urgent and certiorari
is the only adequate and speedy remedy available.
 Ultimately, this court took jurisdiction in Repol and
decided that the status quo ante order issued by the
COMELEC Division was unconstitutional.
Respondents also cite Soriano, Jr. v. COMELEC. This
case was also an election protest case involving candidates
for the city council of Muntinlupa City.41 Petitioners in
Soriano, Jr. filed before this court a petition for certiorari
against an interlocutory order of the COMELEC First
Division.42 While the petition was pending in this court, the
COMELEC First Division dismissed the main election
protest case.43 Soriano applied the general rule that only
final orders should be questioned with this court. The
ponencia for this court, however, acknowledged the
exceptions to the general rule in ABS-CBN.44
Blanco v. COMELEC, another case cited by respondents,
was a disqualification case of one of the mayoralty
candidates of Meycauayan, Bulacan.45 The COMELEC
Second Division ruled that petitioner could not qualify for
the 2007 elections due to the findings in an administrative
case that he engaged in vote buying in the 1995 elections.46
No motion for reconsideration was filed before the
COMELEC En Banc. This court, however, took cognizance
of this case applying one of the

_______________

41 Soriano, Jr. v. Commission on Elections, supra note 28 at p. 89.

42 Id., at p. 643; p. 91.
43 Id.
44 Id., at p. 656; p. 105.
45 Blanco v. Commission on Elections, supra note 29 at p. 627; p. 758.
46 Id.

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The Diocese of Bacolod vs. Commission on Elections

exceptions in ABS-CBN: The assailed resolution was a

nullity.47
Finally, respondents cited Cayetano v. COMELEC, a
recent election protest case involving the mayoralty
candidates of Taguig City.48 Petitioner assailed a resolution
of the COMELEC denying her motion for reconsideration to
dismiss the election protest petition for lack of form and
substance.49 This court clarified the general rule and
refused to take cognizance of the review of the COMELEC
order. While recognizing the exceptions in ABS-CBN, this
court ruled that these exceptions did not apply.50
Ambil, Jr., Repol, Soriano, Jr., Blanco, and
Cayetano cited by respondents do not operate as
precedents to oust this court from taking
jurisdiction over this case. All these cases cited
involve election protests or disqualification cases
filed by the losing candidate against the winning
candidate.
In the present case, petitioners are not candidates
seeking for public office. Their petition is filed to
assert their fundamental right to expression.
Furthermore, all these cases cited by respondents
pertained to COMELECÊs exercise of its adjudicatory or
quasi-judicial power. This case pertains to acts of
COMELEC in the implementation of its regulatory powers.
When it issued the notice and letter, the COMELEC was
allegedly enforcing election laws.

_______________

47 Id., at p. 630; p. 761.

48 Cayetano v. Commission on Elections, supra note 30 at p. 563.
49 Id., at p. 566.
50 Id., at p. 571.

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38 SUPREME COURT REPORTS ANNOTATED

The Diocese of Bacolod vs. Commission on Elections

I.B
Rule 65, grave abuse of discretion,
and limitations on political speech

The main subject of this case is an alleged constitutional

violation: the infringement on speech and the „chilling
effect‰ caused by respondent COMELECÊs notice and letter.
Petitioners allege that respondents committed grave
abuse of discretion amounting to lack or excess of
jurisdiction in issuing the notice51 dated February 22, 2013
and letter52 dated February 27, 2013 ordering the removal
of the tarpaulin.53 It is their position that these infringe on
their fundamental right to freedom of expression and
violate the principle of separation of church and state and,
thus, are unconstitutional.54
The jurisdiction of this court over the subject matter is
determined from the allegations in the petition. Subject
matter jurisdiction is defined as the authority „to hear and
determine cases of the general class to which the
proceedings in question belong and is conferred by the
sovereign authority which organizes the court and defines
its powers.‰55 Definitely, the subject matter in this case is
different from the cases cited by respondents.
Nothing less than the electorateÊs political speech will be
affected by the restrictions imposed by COMELEC.
Political speech is motivated by the desire to be heard and
understood, to move people to action. It is concerned with
the sovereign right to change the contours of power
whether through the election of representatives in a
republican government or the

_______________

51 Rollo, p. 19.
52 Id., at p. 23.
53 Id., at pp. 3-4.
54 Id., at pp. 8-9.
55 Reyes v. Diaz, 73 Phil. 484, 486 (1941) [Per J. Moran, En Banc].

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The Diocese of Bacolod vs. Commission on Elections

revision of the basic text of the Constitution. The zeal

with which we protect this kind of speech does not depend
on our evaluation of the cogency of the message. Neither do
we assess whether we should protect speech based on the
motives of COMELEC. We evaluate restrictions on freedom
of expression from their effects. We protect both speech and
medium because the quality of this freedom in practice will
define the quality of deliberation in our democratic society.
COMELECÊs notice and letter affect preferred speech.
RespondentsÊ acts are capable of repetition. Under the
conditions in which it was issued and in view of the novelty
of this case, it could result in a „chilling effect‰ that would
affect other citizens who want their voices heard on issues
during the elections. Other citizens who wish to express
their views regarding the election and other related issues
may choose not to, for fear of reprisal or sanction by the
COMELEC.
Direct resort to this court is allowed to avoid such
proscribed conditions. Rule 65 is also the procedural
platform for raising grave abuse of discretion.
Both parties point to constitutional provisions on
jurisdiction. For petitioners, it referred to this courtÊs
expanded exercise of certiorari as provided by the
Constitution as follows:

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.56
(Emphasis supplied)

On the other hand, respondents relied on its

constitutional mandate to decide all questions affecting
elections. Article IX-C, Section 2(3) of the Constitution,
provides:

_______________

56 Const., Art. VIII, Sec. 1, par. (2).

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40 SUPREME COURT REPORTS ANNOTATED

The Diocese of Bacolod vs. Commission on Elections

Sec. 2. The Commission on Elections shall exercise the

following powers and functions:
....
(3) Decide, except those involving the right to vote, all questions
affecting elections, including determination of the number and
location of polling places, appointment of election officials and
inspectors, and registration of voters.

RespondentsÊ reliance on this provision is misplaced.

We are not confronted here with the question of whether
the COMELEC, in its exercise of jurisdiction, gravely
abused it. We are confronted with the question as to
whether the COMELEC had any jurisdiction at all with its
acts threatening imminent criminal action effectively
abridging meaningful political speech.
It is clear that the subject matter of the controversy is
the effect of COMELECÊs notice and letter on free speech.
This does not fall under Article IX-C, Section 2(3) of the
Constitution. The use of the word „affecting‰ in this
provision cannot be interpreted to mean that COMELEC
has the exclusive power to decide any and all questions
that arise during elections. COMELECÊs constitutional
competencies during elections should not operate to divest
this court of its own jurisdiction.
The more relevant provision for jurisdiction in this case
is Article VIII, Section 5(1) of the Constitution. This
provision provides for this courtÊs original jurisdiction over
petitions for certiorari and prohibition. This should be read
alongside the expanded jurisdiction of the court in Article
VIII, Section 1 of the Constitution.
Certainly, a breach of the fundamental right of
expression by COMELEC is grave abuse of discretion.
Thus, the constitutionality of the notice and letter coming
from COMELEC is within this courtÊs power to review.

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During elections, we have the power and the duty to

correct any grave abuse of discretion or any act tainted
with unconstitutionality on the part of any government
branch or instrumentality. This includes actions by the
COMELEC. Furthermore, it is this courtÊs constitutional
mandate to protect the people against governmentÊs
infringement of their fundamental rights. This
constitutional mandate outweighs the jurisdiction vested
with the COMELEC.
It will, thus, be manifest injustice if the court does not
take jurisdiction over this case.

I.C
Hierarchy of Courts
 This brings us to the issue of whether petitioners
violated the doctrine of hierarchy of courts in directly filing
their petition before this court.
Respondents contend that petitionersÊ failure to file the
proper suit with a lower court of concurrent jurisdiction is
sufficient ground for the dismissal of their petition.57 They
add that observation of the hierarchy of courts is
compulsory, citing Heirs of Bertuldo Hinog v. Melicor.58
While respondents claim that while there are exceptions to
the general rule on hierarchy of courts, none of these are
present in this case.59
On the other hand, petitioners cite Fortich v. Corona60
on this courtÊs discretionary power to take cognizance of a
petition filed directly to it if warranted by „compelling
reasons, or [by] the nature and importance of the issues
raised. . . .‰61

_______________

57 Rollo, p. 66.
58 495 Phil. 422, 432; 455 SCRA 460, 470 (2005) [Per J. Austria-
Martinez, Second Division].
59 Rollo, p. 67.
60 352 Phil. 461; 298 SCRA 679 (1998) [Per J. Martinez, Second
Division].
61 Id., at p. 480; pp. 690-91; Rollo, p. 99.

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The Diocese of Bacolod vs. Commission on Elections

Petitioners submit that there are „exceptional and

compelling reasons to justify a direct resort [with] this
Court.‰62
In Bañez, Jr. v. Concepcion,63 we explained the necessity
of the application of the hierarchy of courts:

The Court must enjoin the observance of the policy on the

hierarchy of courts, and now affirms that the policy is not to be
ignored without serious consequences. The strictness of the policy is
designed to shield the Court from having to deal with causes that
are also well within the competence of the lower courts, and thus
leave time to the Court to deal with the more fundamental and
more essential tasks that the Constitution has assigned to it. The
Court may act on petitions for the extraordinary writs of certiorari,
prohibition and mandamus only when absolutely necessary or when
serious and important reasons exist to justify an exception to the
policy.64

In Bañez, we also elaborated on the reasons why lower

courts are allowed to issue writs of certiorari, prohibition,
and mandamus, citing Vergara v. Suelto:65

The Supreme Court is a court of last resort, and must so remain

if it is to satisfactorily perform the functions assigned to it by the
fundamental charter and immemorial tradition. It cannot and
should not be burdened with the task of dealing with causes in the
first instance. Its original jurisdiction to issue the so-called
extraordinary writs should be exercised only where absolutely
necessary or where serious and important reasons exist therefore.
Hence, that jurisdiction should generally be exercised relative to
actions or proceedings before the

_______________

62 Rollo, p. 100.
63 G.R. No. 159508, August 29, 2012, 679 SCRA 237 [Per J.
Bersamin, First Division].
64 Id., at p. 250.
65 240 Phil. 719; 156 SCRA 753 (1987) [Per J. Narvasa, First
Division].

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Court of Appeals, or before constitutional or other tribunals,

bodies or agencies whose acts for some reason or another are not
controllable by the Court of Appeals. Where the issuance of an
extraordinary writ is also within the competence of the Court of
Appeals or a Regional Trial Court, it is in either of these courts that
the specific action for the writÊs procurement must be presented.
This is and should continue to be the policy in this regard, a policy
that courts and lawyers must strictly observe.66 (Emphasis omitted)
 The doctrine that requires respect for the hierarchy of
courts was created by this court to ensure that every level
of the judiciary performs its designated roles in an effective
and efficient manner. Trial courts do not only determine
the facts from the evaluation of the evidence presented
before them. They are likewise competent to determine
issues of law which may include the validity of an
ordinance, statute, or even an executive issuance in
relation to the Constitution.67 To effectively perform these
functions, they are territorially organized into regions and
then into branches. Their writs generally reach within
those territorial boundaries. Necessarily, they mostly
perform the all-important task of inferring the facts from
the evidence as these are physically presented before them.
In many instances, the facts occur within their territorial
jurisdiction, which properly present the Âactual caseÊ that
makes ripe a determination of the constitutionality of such
action. The consequences, of course, would be national in
scope. There are, however, some cases where resort to
courts at their level would not be practical considering
their deci-

_______________

66 Id., at pp. 732-733; p. 766.

67 Ynot v. Intermediate Appellate Court, 232 Phil. 615, 621; 148 SCRA
659, 666 (1987) [Per J. Cruz, En Banc]. See J.M. Tuason & Co., Inc. v.
Court of Appeals, 113 Phil. 673, 681; 3 SCRA 696, 703 (1961) [Per J.
J.B.L. Reyes, En Banc]; Espiritu v. Fugoso, 81 Phil. 637, 639 (1948) [Per
J. Perfecto, En Banc].

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sions could still be appealed before the higher courts,

such as the Court of Appeals.
The Court of Appeals is primarily designed as an
appellate court that reviews the determination of facts and
law made by the trial courts. It is collegiate in nature. This
nature ensures more standpoints in the review of the
actions of the trial court. But the Court of Appeals also has
original jurisdiction over most special civil actions. Unlike
the trial courts, its writs can have a nationwide scope. It is
competent to determine facts and, ideally, should act on
constitutional issues that may not necessarily be novel
unless there are factual questions to determine.
This court, on the other hand, leads the judiciary by
breaking new ground or further reiterating · in the light
of new circumstances or in the light of some confusions of
bench or bar · existing precedents. Rather than a court of
first instance or as a repetition of the actions of the Court
of Appeals, this court promulgates these doctrinal devices
in order that it truly performs that role.
In other words, the Supreme CourtÊs role to interpret the
Constitution and act in order to protect constitutional
rights when these become exigent should not be
emasculated by the doctrine in respect of the hierarchy of
courts. That has never been the purpose of such doctrine.
Thus, the doctrine of hierarchy of courts is not an iron-
clad rule.68 This court has „full discretionary power to take
cognizance and assume jurisdiction [over] special civil
actions for certiorari . . . filed directly with it for
exceptionally compelling reasons69 or if warranted by the
nature of the issues clearly

_______________

68 Roque, Jr. v. COMELEC, 615 Phil. 149, 201; 599 SCRA 69, 112
(2009) [Per J. Velasco, Jr., En Banc].
69 Id., citing Chavez v. National Housing Authority, 557 Phil. 29, 72;
530 SCRA 235, 286 (2007) [Per J. Velasco, Jr., En Banc].

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and specifically raised in the petition.‰70 As correctly

pointed out by petitioners,71 we have provided exceptions to
this doctrine:
First, a direct resort to this court is allowed when there
are genuine issues of constitutionality that must be
addressed at the most immediate time. A direct resort to
this court includes availing of the remedies of certiorari
and prohibition to assail the constitutionality of actions of
both legislative and executive branches of the
government.72
In this case, the assailed issuances of respondents
prejudice not only petitionersÊ right to freedom of
expression in the present case, but also of others in future
similar cases. The case before this court involves an active
effort on the part of the electorate to reform the political
landscape. This has become a rare occasion when private
citizens actively engage the public in political discourse. To
quote an eminent political theorist:

[T]he theory of freedom of expression involves more than a

technique for arriving at better social judgments through
democratic procedures. It comprehends a vision of society, a faith
and a whole way of life. The theory grew out of an age that was
awakened and invigorated by the idea of new society in which manÊs
mind was free, his fate determined by his own powers of reason,
and his prospects of creating a rational and enlightened civilization
virtually unlimited. It is put forward as a prescription for attaining
a creative, progressive, exciting and in-

_______________

70 Id., at p. 201; pp. 112-113, citing Cabarles v. Maceda, 545 Phil. 210,
224; 516 SCRA 303, 321 (2007) [Per J. Quisumbing, Second Division].
71 The counsels for petitioners are Atty. Ralph A. Sarmiento, Atty.
Raymundo T. Pandan, Jr., and Atty. Mitchelle M. Abella.
72 See Aquino III v. COMELEC, G.R. No. 189793, April 7, 2010, 617
SCRA 623, 637-638 [Per J. Perez, En Banc]; Magallona v. Ermita, G.R.
No. 187167, August 16, 2011, 655 SCRA 476, 487-488 [Per J. Carpio, En
Banc].

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tellectually robust community. It contemplates a mode of life

that, through encouraging toleration, skepticism, reason and
initiative, will allow man to realize his full potentialities. It spurns
the alternative of a society that is tyrannical, conformist, irrational
and stagnant.73

In a democracy, the citizenÊs right to freely participate in

the exchange of ideas in furtherance of political decision-
making is recognized. It deserves the highest protection the
courts may provide, as public participation in nation-
building is a fundamental principle in our Constitution. As
such, their right to engage in free expression of ideas must
be given immediate protection by this court.
A second exception is when the issues involved are of
transcendental importance.74 In these cases, the
imminence and clarity of the threat to fundamental
constitutional rights outweigh the necessity for prudence.
The doctrine relating to constitutional issues of
transcendental importance prevents courts from the
paralysis of procedural niceties when clearly faced with the
need for substantial protection.
In the case before this court, there is a clear threat to
the paramount right of freedom of speech and freedom of
expression which warrants invocation of relief from this
court. The principles laid down in this decision will likely
influence the discourse of freedom of speech in the future,
especially in the context of elections. The right to suffrage
not only includes

_______________

73 Thomas I. Emerson, Toward a General Theory of the First

Amendment, Faculty Scholarship Series, Paper 2796 (1963), cited in
Gonzales v. COMELEC, 137 Phil. 471, 493-494; 27 SCRA 835, 858 (1969)
[Per J. Fernando, En Banc].
74 See Initiatives for Dialogue and Empowerment through Alternative
Legal Services, Inc. (IDEALS, INC.) v. Power Sector Assets and Liabilities
Management Corporation (PSALM), G.R. No. 192088, October 9, 2012,
682 SCRA 602, 633 [Per J. Villarama, Jr., En Banc]; Agan, Jr. v. PIATCO,
450 Phil. 744, 805; 402 SCRA 612, 646 (2003) [Per J. Puno, En Banc].

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the right to vote for oneÊs chosen candidate, but also the
right to vocalize that choice to the public in general, in the
hope of influencing their votes. It may be said that in an
election year, the right to vote necessarily includes the
right to free speech and expression. The protection of these
fundamental constitutional rights, therefore, allows for the
immediate resort to this court.
Third, cases of first impression75 warrant a direct resort
to this court. In cases of first impression, no jurisprudence
yet exists that will guide the lower courts on this matter. In
Government of the United States v. Purganan,76 this court
took cognizance of the case as a matter of first impression
that may guide the lower courts:

In the interest of justice and to settle once and for all the
important issue of bail in extradition proceedings, we deem it best
to take cognizance of the present case. Such proceedings constitute
a matter of first impression over which there is, as yet, no local
jurisprudence to guide lower courts.77

This court finds that this is indeed a case of first

impression involving as it does the issue of whether the
right of suffrage includes the right of freedom of
expression. This is a question which this court has yet to
provide substantial answers to, through jurisprudence.
Thus, direct resort to this court is allowed.

_______________

75 See Soriano v. Laguardia, 605 Phil. 43, 99; 587 SCRA 79, 102
(2009) [Per J. Velasco, Jr., En Banc]; See also Mallion v. Alcantara, 536
Phil. 1049, 1053; 506 SCRA 336, 341 (2006) [Per J. Azcuna, Second
Division].
76 438 Phil. 417; 389 SCRA 623 (2002) [Per J. Panganiban, En Banc].
77 Id., at p. 439; pp. 651-652.

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Fourth, the constitutional issues raised are better

decided by this court. In Drilon v. Lim,78 this court held
that:

. . . it will be prudent for such courts, if only out of a becoming

modesty, to defer to the higher judgment of this Court in the
consideration of its validity, which is better determined after a
thorough deliberation by a collegiate body and with the concurrence
of the majority of those who participated in its discussion.79
(Citation omitted)

In this case, it is this court, with its constitutionally

enshrined judicial power, that can rule with finality on
whether COMELEC committed grave abuse of discretion or
performed acts contrary to the Constitution through the
assailed issuances.
Fifth, the time element presented in this case cannot be
ignored. This case was filed during the 2013 election
period. Although the elections have already been
concluded, future cases may be filed that necessitate
urgency in its resolution. Exigency in certain situations
would qualify as an exception for direct resort to this court.
Sixth, the filed petition reviews the act of a
constitutional organ. COMELEC is a constitutional body.
In Albano v. Arranz,80 cited by petitioners, this court held
that „[i]t is easy to realize the chaos that would ensue if the
Court of First Instance of each and every province were [to]
arrogate itself the power to disregard, suspend, or
contradict any order of the Commission on Elections: that
constitutional body would be speedily reduced to
impotence.‰81

_______________

78 G.R. No. 112497, August 4, 1994, 235 SCRA 135 [Per J. Cruz, En
Banc].
79 Id., at p. 140.
80 114 Phil. 318; 4 SCRA 386 (1962) [Per J. J.B.L. Reyes, En Banc].
81 Id., at p. 322; p. 389.

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In this case, if petitioners sought to annul the actions of

COMELEC through pursuing remedies with the lower
courts, any ruling on their part would not have been
binding for other citizens whom respondents may place in
the same situation. Besides, this court affords great respect
to the Constitution and the powers and duties imposed
upon COMELEC. Hence, a ruling by this court would be in
the best interest of respondents, in order that their actions
may be guided accordingly in the future.
Seventh, petitioners rightly claim that they had no other
plain, speedy, and adequate remedy in the ordinary course
of law that could free them from the injurious effects of
respondentsÊ acts in violation of their right to freedom of
expression.
In this case, the repercussions of the assailed issuances
on this basic right constitute an exceptionally compelling
reason to justify the direct resort to this court. The lack of
other sufficient remedies in the course of law alone is
sufficient ground to allow direct resort to this court.
Eighth, the petition includes questions that are „dictated
by public welfare and the advancement of public policy, or
demanded by the broader interest of justice, or the orders
complained of were found to be patent nullities, or the
appeal was considered as clearly an inappropriate
remedy.‰82 In the past, questions similar to these which
this court ruled on immediately despite the doctrine of
hierarchy of courts included citizensÊ right to bear arms,83
government contracts

_______________

82 Chong v. Dela Cruz, 610 Phil. 725, 728; 593 SCRA 311, 314 (2009)
[Per J. Nachura, Third Division], citing Gelindon v. De la Rama, G.R. No.
105072, December 9, 1993, 228 SCRA 322, 326-327 [Per J. Vitug, Third
Division].
83 Chavez v. Romulo, G.R. No. 157036, June 9, 2004, 431 SCRA 534
[Per J. Sandoval-Gutierrez, En Banc].

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involving modernization of votersÊ registration lists,84

and the status and existence of a public office.85
This case also poses a question of similar, if not greater
import. Hence, a direct action to this court is permitted.
It is not, however, necessary that all of these exceptions
must occur at the same time to justify a direct resort to this
court. While generally, the hierarchy of courts is respected,
the present case falls under the recognized exceptions and,
as such, may be resolved by this court directly.

I.D
The concept of a political question

Respondents argue further that the size limitation and

its reasonableness is a political question, hence not within
the ambit of this courtÊs power of review. They cite Justice
VitugÊs separate opinion in Osmeña v. COMELEC86 to
support their position:

It might be worth mentioning that Section 26, Article II, of the

Constitution also states that the „State shall guarantee equal
access to opportunities for public service, and prohibit political
dynasties as may be defined by law.‰ I see neither Article IX(C)(4)
nor Section 26, Article II, of the Constitution to be all that
adversarial or irreconcilably inconsistent with the right of free
expression. In any event, the latter, being one of general
application, must yield to the specific demands of the Constitution.
The freedom of expression concededly holds, it is true, a vantage
point in hierarchy of constitutionally-

_______________

84 COMELEC v. Quijano-Padilla, 438 Phil. 72; 389 SCRA 353 (2002)

[Per J. Sandoval-Gutierrez, En Banc].
85 Buklod ng Kawaning EIIB v. Zamora, 413 Phil. 281; 360 SCRA
718 (2001) [Per J. Sandoval-Gutierrez, En Banc].
86 351 Phil. 692; 288 SCRA 447 (1998) [Per J. Mendoza, En Banc].

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enshrined rights but, like all fundamental rights, it is not

without limitations.
The case is not about a fight between the „rich‰ and the „poor‰ or
between the „powerful‰ and the „weak‰ in our society but it is to me
a genuine attempt on the part of Congress and the Commission on
Elections to ensure that all candidates are given an equal chance to
media coverage and thereby be equally perceived as giving real life
to the candidatesÊ right of free expression rather than being viewed
as an undue restriction of that freedom. The wisdom in the
enactment of the law, i.e., that which the legislature deems to be
best in giving life to the Constitutional mandate, is not for the
Court to question; it is a matter that lies beyond the normal
prerogatives of the Court to pass upon.87

This separate opinion is cogent for the purpose it was

said. But it is not in point in this case.
The present petition does not involve a dispute between
the rich and poor, or the powerful and weak, on their equal
opportunities for media coverage of candidates and their
right to freedom of expression. This case concerns the right
of petitioners, who are noncandidates, to post the tarpaulin
in their private property, as an exercise of their right of free
expression. Despite the invocation of the political question
doctrine by respondents, this court is not proscribed from
deciding on the merits of this case.
In Tañada v. Cuenco,88 this court previously elaborated
on the concept of what constitutes a political question:

What is generally meant, when it is said that a 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 department or
particular officer of the gov-

_______________

87 Id., at pp. 727-728; pp. 487-488, Separate Opinion of J. Vitug.

88 103 Phil. 1051 (1957) [Per J. Concepcion, En Banc].

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ernment, with discretionary power to act.89 (Emphasis omitted)

It is not for this court to rehearse and reenact political

debates on what the text of the law should be. In political
forums, particularly the legislature, the creation of the text
of the law is based on a general discussion of factual
circumstances, broadly construed in order to allow for
general application by the executive branch. Thus, the
creation of the law is not limited by particular and specific
facts that affect the rights of certain individuals, per se.
Courts, on the other hand, rule on adversarial positions
based on existing facts established on a specific case-to-case
basis, where parties affected by the legal provision seek the
courtsÊ understanding of the law.
The complementary nature of the political and judicial
branches of government is essential in order to ensure that
the rights of the general public are upheld at all times. In
order to preserve this balance, branches of government
must afford due respect and deference for the duties and
functions constitutionally delegated to the other. Courts
cannot rush to invalidate a law or rule. Prudence dictates
that we are careful not to veto political acts unless we can
craft doctrine narrowly tailored to the circumstances of the
case.
The case before this court does not call for the exercise of
prudence or modesty. There is no political question. It can
be acted upon by this court through the expanded
jurisdiction granted to this court through Article VIII,
Section 1 of the Constitution.
A political question arises in constitutional issues
relating to the powers or competence of different agencies
and departments of the executive or those of the
legislature. The political question doctrine is used as a
defense when the petition asks this court to nullify certain
acts that are exclusively

_______________

89 Id., at p. 1067.

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within the domain of their respective competencies, as

provided by the Constitution or the law. In such situation,
presumptively, this court should act with deference. It will
decline to void an act unless the exercise of that power was
so capricious and arbitrary so as to amount to grave abuse
of discretion.
The concept of a political question, however, never
precludes judicial review when the act of a constitutional
organ infringes upon a fundamental individual or collective
right. Even assuming arguendo that the COMELEC did
have the discretion to choose the manner of regulation of
the tarpaulin in question, it cannot do so by abridging the
fundamental right to expression.
Marcos v. Manglapus90 limited the use of the political
question doctrine:
 When political questions are involved, the Constitution limits the
determination to whether or not there has been a grave abuse of
discretion amounting to lack or excess of jurisdiction on the part of
the official whose action is being questioned. If grave abuse is not
established, the Court will not substitute its judgment for that of
the official concerned and decide a matter which by its nature or by
law is for the latter alone to decide.91

How this court has chosen to address the political

question doctrine has undergone an evolution since the
time that it had been first invoked in Marcos v. Manglapus.
Increasingly, this court has taken the historical and social
context of the case and the relevance of pronouncements of
carefully and narrowly tailored constitutional doctrines.
This trend was

_______________

90 258 Phil. 479; 177 SCRA 668 (1989) [Per J. Cortes, En Banc].
91 Id., at pp. 506-507; p. 696.

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followed in cases such as Daza v. Singson92 and Coseteng

v. Mitra, Jr.93
Daza and Coseteng involved a question as to the
application of Article VI, Section 18 of the 1987
Constitution involving the removal of petitioners from the
Commission on Appointments. In times past, this would
have involved a quintessentially political question as it
related to the dominance of political parties in Congress.
However, in these cases, this court exercised its power of
judicial review noting that the requirement of interpreting
the constitutional provision involved the legality and not
the wisdom of a manner by which a constitutional duty or
power was exercised. This approach was again reiterated in
Defensor Santiago v. Guingona, Jr.94
In Integrated Bar of the Philippines v. Zamora,95 this
court declared again that the possible existence of a
political question did not bar an examination of whether
the exercise of discretion was done with grave abuse of
discretion. In that case, this court ruled on the question of
whether there was grave abuse of discretion in the
PresidentÊs use of his power to call out the armed forces to
prevent and suppress lawless violence.
In Estrada v. Desierto,96 this court ruled that the legal
question as to whether a former President resigned was not
a political question even if the consequences would be to
ascertain the political legitimacy of a successor President.
Many constitutional cases arise from political crises. The
actors in such crises may use the resolution of
constitutional

_______________

92 259 Phil. 980; 180 SCRA 496 (1989) [Per J. Cruz, En Banc].
93 G.R. No. 86649, July 12, 1990, 187 SCRA 377 [Per J. Griño-
Aquino, En Banc].
94 359 Phil. 276; 298 SCRA 756 (1998) [Per J. Panganiban, En Banc].
95 392 Phil. 618; 338 SCRA 81 (2000) [Per J. Kapunan, En Banc].
96 406 Phil. 1; 353 SCRA 452 (2001) [Per J. Puno, En Banc].

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issues as leverage. But the expanded jurisdiction of this

court now mandates a duty for it to exercise its power of
judicial review expanding on principles that may avert
catastrophe or resolve social conflict.
This courtÊs understanding of the political question has
not been static or unbending. In Llamas v. Executive
Secretary Oscar Orbos,97 this court held:

While it is true that courts cannot inquire into the manner in

which the PresidentÊs discretionary powers are exercised or into the
wisdom for its exercise, it is also a settled rule that when the issue
involved concerns the validity of such discretionary powers or
whether said powers are within the limits prescribed by the
Constitution, We will not decline to exercise our power of judicial
review. And such review does not constitute a modification or
correction of the act of the President, nor does it constitute
interference with the functions of the President.98
 The concept of judicial power in relation to the concept of
the political question was discussed most extensively in
Francisco v. HRET.99 In this case, the House of
Representatives argued that the question of the validity of
the second impeachment complaint that was filed against
former Chief Justice Hilario Davide was a political
question beyond the ambit of this court. Former Chief
Justice Reynato Puno elaborated on this concept in his
concurring and dissenting opinion:

To be sure, the force to impugn the jurisdiction of this Court

becomes more feeble in light of the new Constitution which
expanded the definition of judicial power

_______________

97 279 Phil. 920; 202 SCRA 844 (1991) [Per J. Paras, En Banc].
98 Id., at p. 934; pp. 854-855.
99 460 Phil. 830; 415 SCRA 44 (2003) [Per J. Carpio-Morales, En
Banc].

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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 amounting to lack or excess of jurisdiction
on the part of any branch or instrumentality of the Government.‰
As well observed by retired Justice Isagani Cruz, this expanded
definition of judicial power considerably constricted the scope of
political question. He opined that the 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 discretionary powers.100
(Emphasis in the original, citations omitted)

Francisco also provides the cases which show the

evolution of the political question, as applied in the
following cases:
 In Marcos v. Manglapus, this Court, speaking through Madame
Justice Irene Cortes, held:
The present Constitution limits resort to the political question
doctrine and broadens the scope of judicial inquiry into areas which
the Court, under previous constitutions, would have normally left to
the political departments to decide. x x x
In Bengzon v. Senate Blue Ribbon Committee, through Justice
Teodoro Padilla, this Court declared:
The „allocation of constitutional boundaries‰ is a task that this
Court must perform 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 claims. The
jurisdiction to delimit constitutional boundaries has been
given to this Court. It cannot abdicate that

_______________

100 Id., at p. 1103; pp. 201-202, Concurring and Dissenting Opinion of

J. Puno.

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obligation mandated by the 1987 Constitution, although said

provision by no means does away with the applicability of the
principle in appropriate cases.‰ (Emphasis and italics supplied)
And in Daza v. Singson, speaking through Justice Isagani Cruz,
this Court ruled:
In the case now before us, the jurisdictional objection becomes
even less tenable and decisive. The reason is that, even if we were to
assume that the issue presented before us was political in nature, we
would still not be precluded from resolving it under the expanded
jurisdiction conferred upon us that now covers, in proper cases, even
the political question. x x x (Emphasis and italics supplied)
....
In our jurisdiction, the determination of whether an issue
involves a truly political and nonjusticiable 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 properly
acted within such limits.101 (Citations omitted)
 As stated in Francisco, a political question will not be
considered justiciable if there are no constitutionally
imposed limits on powers or functions conferred upon
political bodies. Hence, the existence of constitutionally
imposed limits justifies subjecting the official actions of the
body to the scrutiny and review of this court.
In this case, the Bill of Rights gives the utmost
deference to the right to free speech. Any instance that this
right may be abridged demands judicial scrutiny. It does
not fall squarely into any doubt that a political question
brings.

_______________

101 Id., at pp. 910-912; pp. 150-151.

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I.E
Exhaustion of administrative remedies

Respondents allege that petitioners violated the

principle of exhaustion of administrative remedies.
Respondents insist that petitioners should have first
brought the matter to the COMELEC En Banc or any of its
divisions.102
Respondents point out that petitioners failed to comply
with the requirement in Rule 65 that „there is no appeal, or
any plain, speedy, and adequate remedy in the ordinary
course of law.‰103 They add that the proper venue to assail
the validity of the assailed issuances was in the course of
an administrative hearing to be conducted by
COMELEC.104 In the event that an election offense is filed
against petitioners for posting the tarpaulin, they claim
that petitioners should resort to the remedies prescribed in
Rule 34 of the COMELEC Rules of Procedure.105
The argument on exhaustion of administrative remedies
is not proper in this case.
Despite the alleged non-exhaustion of administrative
remedies, it is clear that the controversy is already ripe for
adjudication. Ripeness is the „prerequisite that something
had by then been accomplished or performed by either
branch [or in this case, organ of government] before a court
may come into the picture.‰106
PetitionersÊ exercise of their right to speech, given the
message and their medium, had understandable relevance
especially during the elections. COMELECÊs letter
threatening the filing of the election offense against
petitioners is already an

_______________

102 Rollo, p. 37.

103 Rules of Court, Rule 65, Sec. 1.
104 Rollo, p. 65.
105 Id.
106 Tan v. Macapagal, 150 Phil. 778, 784; 43 SCRA 677; 681 (1972)
[Per J. Fernando, En Banc].

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actionable infringement of this right. The impending

threat of criminal litigation is enough to curtail petitionersÊ
speech.
In the context of this case, exhaustion of their
administrative remedies as COMELEC suggested in their
pleadings prolongs the violation of their freedom of speech.
Political speech enjoys preferred protection within our
constitutional order. In Chavez v. Gonzales,107 Justice
Carpio in a separate opinion emphasized: „[i]f ever there is
a hierarchy of protected expressions, political expression
would occupy the highest rank, and among different kinds
of political expression, the subject of fair and honest
elections would be at the top.‰108 Sovereignty resides in the
people.109 Political speech is a direct exercise of the
sovereignty. The principle of exhaustion of administrative
remedies yields in order to protect this fundamental right.
Even assuming that the principle of exhaustion of
administrative remedies is applicable, the current
controversy is within the exceptions to the principle. In
Chua v. Ang,110 this court held:

On the other hand, prior exhaustion of administrative remedies

may be dispensed with and judicial action may be validly resorted
to immediately: (a) when there is a violation of due process; (b)
when the issue involved is purely a legal question; (c) when the
administrative action is patently illegal amounting to lack or excess
of jurisdiction; (d) when there is estoppel on the part of the
administrative agency concerned; (e) when there is irreparable
injury; (f) when the respondent is a department secretary whose
acts as an alter ego of the President bear the implied and assumed
approval of the lat-

_______________

107 569 Phil. 155; 545 SCRA 441 (2008) [Per CJ. Puno, En Banc].
108 Id., at p. 245; pp. 538-539, Separate Concurring Opinion of J.
Carpio.
109 Const., Preamble.
110 614 Phil. 416; 598 SCRA 229 (2009) [Per J. Brion, Second
Division].

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ter; (g) when to require exhaustion of administrative remedies

would be unreasonable; (h) when it would amount to a nullification
of a claim; (i) when the subject matter is a private land in land case
proceedings; (j) when the rule does not provide a plain, speedy and
adequate remedy; or (k) when there are circumstances indicating the
urgency of judicial intervention.‰111 (Emphasis supplied, citation
omitted)

The circumstances emphasized are squarely applicable

with the present case. First, petitioners allege that the
assailed issuances violated their right to freedom of
expression and the principle of separation of church and
state. This is a purely legal question. Second, the
circumstances of the present case indicate the urgency of
judicial intervention considering the issue then on the RH
Law as well as the upcoming elections. Thus, to require the
exhaustion of administrative remedies in this case would
be unreasonable.
Time and again, we have held that this court „has the
power to relax or suspend the rules or to except a case from
their operation when compelling reasons so warrant, or
when the purpose of justice requires it, [and when] [w]hat
constitutes [as] good and sufficient cause that will merit
suspension of the rules is discretionary upon the court.‰112
Certainly, this

_______________

111 Id., at pp. 425-426; p. 238.

112 Tiangco v. Land Bank of the Philippines, G.R. No. 153998,
October 6, 2010, 632 SCRA 256, 271 [Per J. Peralta, Second Division],
quoting Heirs of Villagracia v. Equitable Banking Corporation, 573 Phil.
212, 221; 550 SCRA 60, 69 (2008) [Per J. Nachura, Third Division]: „The
rules of procedure ought not to be applied in a very rigid and technical
sense, for they have been adopted to help secure, not override,
substantial justice. Judicial action must be guided by the principle that a
party-litigant should be given the fullest opportunity to establish the
merits of his complaint or defense rather than for him to lose life, liberty,
honor or property on technicalities. When a rigid application of the rules
tends to frustrate rather than promote substantial justice, this Court is
empowered to suspend their operation.‰

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case of first impression where COMELEC has

threatened to prosecute private parties who seek to
participate in the elections by calling attention to issues
they want debated by the public in the manner they feel
would be effective is one of those cases.

II
SUBSTANTIVE ISSUES

II.A
COMELEC had no legal basis
to regulate expressions
made by private citizens

Respondents cite the Constitution, laws, and

jurisprudence to support their position that they had the
power to regulate the tarpaulin.113 However, all of these
provisions pertain to candidates and political parties.
Petitioners are not candidates. Neither do they belong to
any political party. COMELEC does not have the authority
to regulate the enjoyment of the preferred right to freedom
of expression exercised by a noncandidate in this case.

II.A.1

First, respondents cite Article IX-C, Section 4 of the

Constitution, which provides:

Section 4. The Commission may, during the election period,

supervise or regulate the enjoyment or utilization of all franchises
or permits for the operation of transportation and other public
utilities, media of communication or information, all grants, special
privileges, or concessions granted by the Government or any
subdivision, agency, or instrumentality thereof, including any
government-owned or -controlled corporation or its subsidi-

_______________

113 Rollo, pp. 70-71, 74, and 82-83.

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ary. Such supervision or regulation shall aim to ensure equal

opportunity, time, and space, and the right to reply, including
reasonable, equal rates therefor, for public information campaigns
and forums among candidates in connection with the objective of
holding free, orderly, honest, peaceful, and credible elections.114
(Emphasis supplied)

Sanidad v. COMELEC115 involved the rules

promulgated by COMELEC during the plebiscite for the
creation of the Cordillera Autonomous Region.116
Columnist Pablito V. Sanidad questioned the provision
prohibiting journalists from covering plebiscite issues on
the day before and on plebiscite day.117 Sanidad argued
that the prohibition was a violation of the „constitutional
guarantees of the freedom of expression and of the press. . .
.‰118 We held that the „evil sought to be prevented by this
provision is the possibility that a franchise holder may
favor or give any undue advantage to a candidate in terms
of advertising space or radio or television time.‰119 This
court found that „[m]edia practitioners exercising their
freedom of expression during plebiscite periods are neither
the franchise

_______________

114 See Rep. Act No. 9006 (2001), Sec. 2.

Sec. 2. Declaration of Principles.·The State shall, during the
election period, supervise or regulate the enjoyment or utilization of all
franchises or permits for the operation of media of communication or
information to guarantee or ensure equal opportunity for public service,
including access to media time and space, and the equitable right to
reply, for public information campaigns and fora among candidates and
assure free, orderly, honest[,] peaceful and credible elections.
The State shall ensure that bona fide candidates for any public office
shall be free from any form of harassment and discrimination.
115 260 Phil. 565; 181 SCRA 529 (1990) [Per J. Medialdea, En Banc].
116 Id., at p. 567; p. 530.
117 Id.
118 Id.
119 Id., at p. 570; pp. 533-534.

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holders nor the candidates[,]‰120 thus, their right to

expression during this period may not be regulated by
COMELEC.121
Similar to the media, petitioners in the case at bar are
neither franchise holders nor candidates.

II.A.2

Respondents likewise cite Article IX-C, Section 2(7) of

the Constitution as follows:122

Sec. 2. The Commission on Elections shall exercise the

following powers and functions:
....
(7) Recommend to the Congress effective measures to minimize
election spending, including limitation of places where propaganda
materials shall be posted, and to prevent and penalize all forms of
election frauds, offenses, malpractices, and nuisance candidates.
(Emphasis supplied)

Based on the enumeration made on acts that may be

penalized, it will be inferred that this provision only affects
candidates.
Petitioners assail the „Notice to Remove Campaign
Materials‰ issued by COMELEC. This was followed by the
assailed letter regarding the „election propaganda material
posted on the church vicinity promoting for or against the
candidates and party list groups. . . .‰123 Section 9 of the
Fair Elections Act124 on the posting of campaign materials
only mentions „parties‰ and „candidates‰:

_______________

120 Id.
121 Id.
122 Rollo, p. 84.
123 Id., at p. 23.
124 Rep. Act No. 9006 (2001).

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Sec. 9. Posting of Campaign Materials.·The COMELEC may

authorize political parties and party list groups to erect common
poster areas for their candidates in not more than ten (10) public
places such as plazas, markets, barangay centers and the like,
wherein candidates can post, display or exhibit election propaganda:
Provided, That the size of the poster areas shall not exceed twelve
(12) by sixteen (16) feet or its equivalent.
Independent candidates with no political parties may likewise be
authorized to erect common poster areas in not more than ten (10)
public places, the size of which shall not exceed four (4) by six (6)
feet or its equivalent.
Candidates may post any lawful propaganda material in private
places with the consent of the owner thereof, and in public places or
property which shall be allocated equitably and impartially among
the candidates. (Emphasis supplied)
 Similarly, Section 17 of COMELEC Resolution No. 9615,
the rules and regulations implementing the Fair Elections
Act, provides as follows:

SECTION 17. Posting of Campaign Materials.·Parties and

candidates may post any lawful campaign material in:
a. Authorized common poster areas in public places subject to the
requirements and/or limitations set forth in the next following
section; and
b. Private places provided it has the consent of the owner
thereof.
The posting of campaign materials in public places outside of the
designated common poster areas and those enumerated under
Section 7(g) of these Rules and the like is prohibited. Persons
posting the same shall be liable together with the candidates and
other persons who caused the posting. It will be presumed that the
candidates and parties caused the posting of campaign materials
outside the

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common poster areas if they do not remove the same within

three (3) days from notice which shall be issued by the Election
Officer of the city or municipality where the unlawful election
propaganda are posted or displayed.
Members of the PNP and other law enforcement agencies called
upon by the Election Officer or other officials of the COMELEC
shall apprehend the violators caught in the act, and file the
appropriate charges against them. (Emphasis supplied)

Respondents considered the tarpaulin as a campaign

material in their issuances. The above provisions
regulating the posting of campaign materials only apply to
candidates and political parties, and petitioners are neither
of the two.
Section 3 of Republic Act No. 9006 on „Lawful Election
Propaganda‰ also states that these are „allowed for all
registered political parties, national, regional, sectoral
parties or organizations participating under the party list
elections and for all bona fide candidates seeking national
and local elective positions subject to the limitation on
authorized expenses of candidates and political parties. . .
.‰ Section 6 of COMELEC Resolution No. 9615 provides for
a similar wording.
These provisions show that election propaganda refers
to matter done by or on behalf of and in coordination with
candidates and political parties. Some level of coordination
with the candidates and political parties for whom the
election propaganda are released would ensure that these
candidates and political parties maintain within the
authorized expenses limitation.
The tarpaulin was not paid for by any candidate or
political party.125 There was no allegation that petitioners
coordinated with any of the persons named in the tarpaulin
regarding its posting. On the other hand, petitioners posted
the tarpaulin as part of their advocacy against the RH Law.

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125 Rollo, p. 106.

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Respondents also cite National Press Club v.

COMELEC126 in arguing that its regulatory power under
the Constitution, to some extent, set a limit on the right to
free speech during election period.127
National Press Club involved the prohibition on the sale
and donation of space and time for political
advertisements, limiting political advertisements to
COMELEC-designated space and time. This case was
brought by representatives of mass media and two
candidates for office in the 1992 elections. They argued
that the prohibition on the sale and donation of space and
time for political advertisements is tantamount to
censorship, which necessarily infringes on the freedom of
speech of the candidates.128
This court upheld the constitutionality of the
COMELEC prohibition in National Press Club. However,
this case does not apply as most of the petitioners
were electoral candidates, unlike petitioners in the
instant case. Moreover, the subject matter of National
Press Club, Section 11(b) of Republic Act No. 6646,129 only
refers to a particular kind of media such as newspapers,
radio broadcasting, or television.130

_______________

126 G.R. No. 102653, March 5, 1992, 207 SCRA 1 [Per J. Feliciano,
En Banc].
127 Rollo, p. 82.
128 National Press Club v. COMELEC, G.R. No. 102653, March 5,
1992, 207 SCRA 1, 6 [Per J. Feliciano, En Banc].
129 The Electoral Reforms Law of 1987.
130 Rep. Act No. 6646 (1988), Sec. 11(b).
Sec. 11 Prohibited Forms of Election Propaganda.·In addition to
the forms of election propaganda prohibited under Section 85 of Batas
Pambansa Blg. 881, it shall be unlawful:
....
b)  for any newspaper, radio broadcasting or television station, other
mass media, or any person making use of the mass media to sell or to
give free of charge print space or air time for campaign or other political
purposes except to the Commission as provided under Sections 90 and 92
of Batas Pambansa Blg. 881. Any mass media columnist, commentator,
announcer or personality who is a candi-

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Justice Feliciano emphasized that the provision did not

infringe upon the right of reporters or broadcasters to air
their commentaries and opinions regarding the candidates,
their qualifications, and program for government.
Compared to Sanidad wherein the columnists lost their
ability to give their commentary on the issues involving the
plebiscite, National Press Club does not involve the same
infringement.
In the case at bar, petitioners lost their ability to give a
commentary on the candidates for the 2013 national
elections because of the COMELEC notice and letter. It was
not merely a regulation on the campaigns of candidates
vying for public office. Thus, National Press Club does not
apply to this case.
 Finally, Section 79 of Batas Pambansa Blg. 881,
otherwise known as the Omnibus Election Code, defines an
„election campaign‰ as follows:

....
(b) The term „election campaign‰ or „partisan political
activity‰ refers to an act designed to promote the election or defeat
of a particular candidate or candidates to a public office which shall
include:
(1) Forming organizations, associations, clubs, committees or
other groups of persons for the purpose of soliciting votes and/or
undertaking any campaign for or against a candidate;
(2) Holding political caucuses, conferences, meetings, rallies,
parades, or other similar assemblies, for the purpose of soliciting
votes and/or undertaking any campaign or propaganda for or
against a candidate;
(3) Making speeches, announcements or commentaries, or
holding interviews for or against the election of any candidate for
public office;

_______________

date for any elective public office shall take a leave of absence from his
work as such during the campaign period.

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(4) Publishing or distributing campaign literature or materials

designed to support or oppose the election of any candidate; or
(5) Directly or indirectly soliciting votes, pledges or support for
or against a candidate.
The foregoing enumerated acts if performed for the purpose of
enhancing the chances of aspirants for nomination for candidacy to
a public office by a political party, aggroupment, or coalition of
parties shall not be considered as election campaign or partisan
election activity.
Public expressions or opinions or discussions of probable issues in
a forthcoming election or on attributes of or criticisms against
probable candidates proposed to be nominated in a forthcoming
political party convention shall not be construed as part of any
election campaign or partisan political activity contemplated under
this Article. (Emphasis supplied)
 True, there is no mention whether election campaign is
limited only to the candidates and political parties
themselves. The focus of the definition is that the act must
be „designed to promote the election or defeat of a
particular candidate or candidates to a public office.‰
In this case, the tarpaulin contains speech on a matter
of public concern, that is, a statement of either appreciation
or criticism on votes made in the passing of the RH Law.
Thus, petitioners invoke their right to freedom of
expression.

II.B
The violation of the constitutional right
to freedom of speech and expression

Petitioners contend that the assailed notice and letter

for the removal of the tarpaulin violate their fundamental
right to freedom of expression.
On the other hand, respondents contend that the
tarpaulin is an election propaganda subject to their
regulation pursuant

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to their mandate under Article IX-C, Section 4 of the

Constitution. Thus, the assailed notice and letter ordering
its removal for being oversized are valid and
constitutional.131

II.B.1

Fundamental to the consideration of this issue is Article

III, Section 4 of the Constitution:

Section 4. No law shall be passed abridging the freedom of

speech, of expression, or of the press, or the right of the people
peaceably to assemble and petition the government for redress of
grievances.132

No law. . .
 While it is true that the present petition assails not a
law but an opinion by the COMELEC Law Department,
this court has applied Article III, Section 4 of the
Constitution even to governmental acts.
In Primicias v. Fugoso,133 respondent Mayor applied by
analogy Section 1119 of the Revised Ordinances of 1927 of
Manila for the public meeting and assembly organized by
petitioner Primicias.134 Section 1119 requires a MayorÊs
permit for the use of streets and public places for purposes
such as

_______________

131 Rollo, pp. 40 and 47.

132 This right is also found under Article 19 of The Universal
Declaration of Human Rights in that „[e]veryone has the right to freedom
of opinion and expression; this right includes freedom to hold opinions
without interference and to seek, receive and impart information and
ideas through any media and regardless of frontiers.‰ The Universal
Declaration of Human Rights was adopted by the UN General Assembly
on December 10, 1948. Available at
<http://www.un.org/en/documents/udhr/index.shtml> (visited March 25,
2013).
133 80 Phil. 75 (1948) [Per J. Feria, En Banc].
134 Id., at pp. 76-77.

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athletic games, sports, or celebration of national

holidays.135 What was questioned was not a law but the
MayorÊs refusal to issue a permit for the holding of
petitionerÊs public meeting.136 Nevertheless, this court
recognized the constitutional right to freedom of speech, to
peaceful assembly and to petition for redress of grievances,
albeit not absolute,137 and the petition for mandamus to
compel respondent Mayor to issue the permit was
granted.138
In ABS-CBN v. COMELEC, what was assailed was not a
law but COMELEC En Banc Resolution No. 98-1419 where
the COMELEC resolved to approve the issuance of a
restraining order to stop ABS-CBN from conducting exit
surveys.139 The right to freedom of expression was similarly
upheld in this case and, consequently, the assailed
resolution was nullified and set aside.140
. . . shall be passed abridging. . .
All regulations will have an impact directly or indirectly
on expression. The prohibition against the abridgment of
speech should not mean an absolute prohibition against
regulation. The primary and incidental burden on speech
must be weighed against a compelling state interest clearly
allowed in the Constitution. The test depends on the
relevant theory of speech implicit in the kind of society
framed by our Constitution.
. . . of expression. . .
Our Constitution has also explicitly included the
freedom of expression, separate and in addition to the
freedom of speech and of the press provided in the US
Constitution. The word

_______________

135 Id.
136 Id., at p. 75.
137 Id.
138 Id., at p. 88.
139 ABS-CBN v. Commission on Elections, supra note 39 at p. 787; p.
818.
140 Id., at p. 800; p. 821.

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„expression‰ was added in the 1987 Constitution by

Commissioner Brocka for having a wider scope:

MR. BROCKA: This is a very minor amendment, Mr. Presiding

Officer. On Section 9, page 2, line 29, it says: „No law shall be
passed abridging the freedom of speech.‰ I would like to recommend
to the Committee the change of the word „speech‰ to EXPRESSION;
or if not, add the words AND EXPRESSION after the word
„speech,‰ because it is more expansive, it has a wider scope, and it
would refer to means of expression other than speech.
THE PRESIDING OFFICER (Mr. Bengzon): What does the
Committee say?
FR. BERNAS: „Expression‰ is more broad than speech. We
accept it.
MR. BROCKA: Thank you.
THE PRESIDING OFFICER (Mr. Bengzon): Is it accepted?
FR. BERNAS: Yes.
THE PRESIDING OFFICER (Mr. Bengzon): Is there any
objection? (Silence) The Chair hears none; the amendment is
approved.
FR. BERNAS: So, that provision will now read: „No law shall be
passed abridging the freedom of speech, expression or of the press . .
. .‰141

Speech may be said to be inextricably linked to freedom

itself as „[t]he right to think is the beginning of freedom,
and speech must be protected from the government because
speech is the beginning of thought.‰142

_______________

141 Record of the 1986 Constitutional Commission, R.C.C. No. 33,

Vol. I, July 18, 1986.
142 Freedom of Speech and Expression, 116 Harv. L. Rev. 272, 277
(2002), quoting Justice Kennedy in Ashcroft v. Free Speech Coalition, 122
S. Ct. 1389, 1403 (2002).

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II.B.2
Communication is an essential outcome of protected
speech.143
Communication exists when „(1) a speaker, seeking to
signal others, uses conventional actions because he or she
reasonably believes that such actions will be taken by the
audience in the manner intended; and (2) the audience so
takes the actions.‰144 „[I]n communicative action[,] the
hearer may respond to the claims by . . . either accepting
the speech actÊs claims or opposing them with criticism or
requests for justification.‰145
Speech is not limited to vocal communication. „[C]onduct
is treated as a form of speech sometimes referred to as
Âsymbolic speech[,]ʉ146 such that „Âwhen ÂspeechÊ and
ÂnonspeechÊ elements are combined in the same course of
conduct,Ê the Âcom-

_______________

143 There are, of course, theories of the fundamental right to

expression that finds the individualÊs right to express as also part of the
core value protected by this provision. See for instance Daniel Mark
Cohen, Unhappy Anniversary: Thirty Years since Miller v. California: The
Legacy of the Supreme CourtÊs Misjudgment on Obcenity Part, 15 St.
Thomas L. Rev. 545, 638 (2003). This provides that „[a]lthough speech is
a form of communication, communication does not necessarily constitute
speech.‰ The article states: „A man may communicate (1) the conceptions
of his mind through words, (2) his emotions through facial expressions
and body posture, and (3) the perception of his senses through artistic
renditions or photographs. Words, facial expressions, and pictures are all
communicative. But only words, as the vehicle upon which ideas are
vitally dependent for their successful conveyance, are comprehended in
the word Âspeech.ʉ
144 Heidi M. Hurd, Sovereignty in Silence, 99 YALE L. J. 945, 954
(1990).
145 Hugh Baxter, System and Lifeworld in HabermasÊs Theory of
Law, 23 Cardozo L. Rev. 473, 499 (2002).
146 Joshua Waldman, Symbolic Speech and Social Meaning, 97
Colum. L. Rev. 1844, 1847 (1997).

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municative elementÊ of the conduct may be Âsufficient to

bring into play the [right to freedom of expression].ʉ147
The right to freedom of expression, thus, applies to the
entire continuum of speech from utterances made to
conduct enacted, and even to inaction itself as a symbolic
manner of communication.
In Ebralinag v. The Division Superintendent of Schools
of Cebu,148 students who were members of the religious sect
JehovahÊs Witnesses were to be expelled from school for
refusing to salute the flag, sing the national anthem, and
recite the patriotic pledge.149 In his concurring opinion,
Justice Cruz discussed how the salute is a symbolic
manner of communication and a valid form of
expression.150 He adds that freedom of speech includes
even the right to be silent:
 Freedom of speech includes the right to be silent. Aptly has it
been said that the Bill of Rights that guarantees to the individual
the liberty to utter what is in his mind also guarantees to him the
liberty not to utter what is not in his mind. The salute is a symbolic
manner of communication that conveys its message as clearly as the
written or spoken word. As a valid form of expression, it cannot be
compelled any more than it can be prohibited in the face of valid
religious objections like those raised in this petition. To impose it on
the petitioners is to deny them the right not to speak when their
religion bids them to be silent. This coercion of conscience has no
place in the free society.
The democratic system provides for the accommodation of
diverse ideas, including the unconventional and even the bizarre or
eccentric. The will of the majority prevails, but it cannot regiment
thought by prescribing

_______________

147 Id., citing US v. OÊBrien, 391 U.S. 367, 376 (1968).

148 G.R. No. 95770, March 1, 1993, 219 SCRA 256 [Per J. Griño-
Aquino, En Banc].
149 Id., at p. 260.
150 Id., at p. 275, Concurring Opinion of J. Cruz.

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the recitation by rote of its opinions or proscribing the assertion

of unorthodox or unpopular views as in this case. The conscientious
objections of the petitioners, no less than the impatience of those
who disagree with them, are protected by the Constitution. The
State cannot make the individual speak when the soul within
rebels.151

Even before freedom „of expression‰ was included in

Article III, Section 4 of the present Constitution, this court
has applied its precedent version to expressions other than
verbal utterances.
In the 1985 case of Gonzalez v. Chairman Katigbak,152
petitioners objected to the classification of the motion
picture „Kapit sa Patalim‰ as „For Adults Only.‰ They
contend that the classification „is without legal and factual
basis and is exercised as impermissible restraint of artistic
expression.‰153 This court recognized that „[m]otion
pictures are important both as a medium for the
communication of ideas and the expression of the artistic
impulse.‰154 It adds that „every writer, actor, or producer,
no matter what medium of expression he may use, should
be freed from the censor.‰155 This court found that „[the
BoardÊs] perception of what constitutes obscenity appears
to be unduly restrictive.‰156 However, the petition was
dismissed solely on the ground that there were

_______________

151 Id., at pp. 275-276.

152 222 Phil. 225; 137 SCRA 717 (1985) [Per CJ. Fernando, En Banc].
153 Id., at p. 228; p. 722.
154 Id., at p. 229; p. 723.
155 Id., at p. 231; p. 725, citing Superior Films v. Regents of
University of State of New York, 346 U.S. 587, 589 (1954), J. Douglas,
concurring.
156 Gonzalez v. Katigbak, 222 Phil. 225, 234; 137 SCRA 717, 728
(1985) [Per CJ. Fernando, En Banc].

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not enough votes for a ruling of grave abuse of discretion

in the classification made by the Board.157

II.B.3

Size does matter

The form of expression is just as important as the
information conveyed that it forms part of the expression.
The present case is in point.
It is easy to discern why size matters.
First, it enhances efficiency in communication. A larger
tarpaulin allows larger fonts which make it easier to view
its messages from greater distances. Furthermore, a larger
tarpaulin makes it easier for passengers inside moving
vehicles to read its content. Compared with the
pedestrians, the passengers inside moving vehicles have
lesser time to view the content of a tarpaulin. The larger
the fonts and images, the greater the probability that it
will catch their attention and, thus, the greater the
possibility that they will understand its message.
Second, the size of the tarpaulin may underscore the
importance of the message to the reader. From an ordinary
personÊs perspective, those who post their messages in
larger fonts care more about their message than those who
carry their messages in smaller media. The perceived
importance given by the speakers, in this case petitioners,
to their cause is also part of the message. The effectivity of
communication sometimes relies on the emphasis put by
the speakers and on the credibility of the speakers
themselves. Certainly, larger segments of the public may
tend to be more convinced of the point made by
authoritative figures when they make the effort to
emphasize their messages.

_______________

157 Id., at p. 235; p. 279.

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Third, larger spaces allow for more messages. Larger

spaces, therefore, may translate to more opportunities to
amplify, explain, and argue points which the speakers
might want to communicate. Rather than simply placing
the names and images of political candidates and an
expression of support, larger spaces can allow for brief but
memorable presentations of the candidatesÊ platforms for
governance. Larger spaces allow for more precise
inceptions of ideas, catalyze reactions to advocacies, and
contribute more to a more educated and reasoned
electorate. A more educated electorate will increase the
possibilities of both good governance and accountability in
our government.
These points become more salient when it is the
electorate, not the candidates or the political parties, that
speaks. Too often, the terms of public discussion during
elections are framed and kept hostage by brief and catchy
but meaningless sound bites extolling the character of the
candidate. Worse, elections sideline political arguments
and privilege the endorsement by celebrities. Rather than
provide obstacles to their speech, government should in fact
encourage it. Between the candidates and the electorate,
the latter have the better incentive to demand discussion of
the more important issues. Between the candidates and the
electorate, the former have better incentives to avoid
difficult political standpoints and instead focus on
appearances and empty promises.
Large tarpaulins, therefore, are not analogous to time
and place.158 They are fundamentally part of expression
protected under Article III, Section 4 of the Constitution.

_______________

158 See Navarro v. Villegas, No. L-31687, February 26, 1970, 31

SCRA 730, 732 and Reyes v. Bagatsing, 210 Phil. 457, 476; 125 SCRA
553, 570 (1983) [Per CJ. Fernando, En Banc]. Both cases involve
regulation of time and place, but this does not affect free speech. In
Navarro, this court considered that „civil rights and liberties can exist
and be preserved only in an ordered society.‰ Moreover, Reyes held that
„[t]he high estate accorded the rights to free speech and peaceable
assembly demands nothing less.‰

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II.B.4

There are several theories and schools of thought that

strengthen the need to protect the basic right to freedom of
expression.
First, this relates to the right of the people to participate
in public affairs, including the right to criticize government
actions.
Proponents of the political theory on „deliberative
democracy‰ submit that „substantial, open, [and] ethical
dialogue is a critical, and indeed defining, feature of a good
polity.‰159 This theory may be considered broad, but it
definitely „includes [a] collective decision-making with the
participation of all who will be affected by the decision.‰160
It anchors on the principle that the cornerstone of every
democracy is that sovereignty resides in the people.161 To
ensure order in running the stateÊs affairs, sovereign
powers were delegated and individuals would be elected or
nominated in key government positions to represent the
people. On this note, the theory on deliberative democracy
may evolve to the right of the people to make government
accountable. Necessarily, this includes the right of the
people to criticize acts made pursuant to governmental
functions.
Speech that promotes dialogue on public affairs, or airs
out grievances and political discontent, should thus be
protected and encouraged.
Borrowing the words of Justice Brandeis, „it is
hazardous to discourage thought, hope and imagination;
that fear breeds

_______________

159 See James A. Gardner, Shut Up and Vote: A Critique of

Deliberative Democracy and the Life of Talk, 63 Tenn. L. Rev. 421, 422
(1996).
160 See John J. Worley, Deliberative Constitutionalism, Byu L. Rev.
431, 441 (2009), citing Jon Elster, Deliberative Democracy, p. 8 (1998).
161 Const., Art. II, Sec. 1.

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repression; that repression breeds hate; that hate

menaces stable government; that the path of safety lies in
the opportunity to discuss freely supposed grievances and
proposed remedies.‰162
In this jurisdiction, this court held that „[t]he interest of
society and the maintenance of good government demand a
full discussion of public affairs.‰163 This court has, thus,
adopted the principle that „debate on public issues should
be uninhibited, robust, and wide open . . . [including even]
unpleasantly sharp attacks on government and public
officials.‰164
Second, free speech should be encouraged under the
concept of a market place of ideas. This theory was
articulated by Justice Holmes in that „the ultimate good
desired is better reached by [the] free trade in ideas:‰165

When men have realized that time has upset many fighting
faiths, they may come to believe even more than they believe the
very foundations of their own conduct that the ultimate good
desired is better reached by free trade in ideas · that the best test
of truth is the power of the thought to get itself accepted in the
competition of the

_______________

162 See J. Sanchez, Concurring and Dissenting Opinion in Gonzales,

v. COMELEC, 137 Phil. 471, 523; 27 SCRA 835, 887-888 (1969) [Per J.
Fernando, En Banc], citing Concurring Opinion in Whitney v. California,
274 U.S. 357, 375 (1927).
163 United States v. Bustos, 37 Phil. 731, 740 (1918) [Per J. Malcolm,
En Banc].
164 Adiong v. COMELEC, G.R. No. 103956, March 31, 1992, 207
SCRA 712, 716 [Per J. Gutierrez, Jr., En Banc]. See also Gonzales v.
COMELEC, supra at p. 493; p. 857.
165 See The Impermeable Life: Unsolicited Communications in the
Marketplace of Ideas, 118 Harv. L. Rev. 1314 (2005), citing Abrams v.
United States, 250 U.S. 616, 630 (1919). In Abrams, Justice Holmes
dissented from the Supreme CourtÊs opinion affirming the conviction of
five men for circulating pro-Soviet leaflets.

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market, and that truth is the only ground upon which their
wishes safely can be carried out.166

The way it works, the exposure to the ideas of others

allows one to „consider, test, and develop their own
conclusions.‰167 A free, open, and dynamic market place of
ideas is constantly shaping new ones. This promotes both
stability and change where recurring points may crystallize
and weak ones may develop. Of course, free speech is more
than the right to approve existing political beliefs and
economic arrangements as it includes, „[t]o paraphrase
Justice Holmes, [the] freedom for the thought that we hate,
no less than for the thought that agrees with us.‰168 In fact,
free speech may „best serve its high purpose when it
induces a condition of unrest, creates dissatisfaction with
conditions as they are, or even stirs people to anger.‰169 It is
in this context that we should guard against any
curtailment of the peopleÊs right to participate in the free
trade of ideas.
Third, free speech involves self-expression that
enhances human dignity. This right is „a means of assuring
individual self-fulfillment,‰170 among others. In Philippine
Blooming Mills Employees Organization v. Philippine
Blooming Mills Co., Inc.,171 this court discussed as follows:

The rights of free expression, free assembly and petition, are not
only civil rights but also political rights essential

_______________

166 Id.
167 Id.
168 Gonzales v. COMELEC, supra note 162 at p. 493; pp. 857-858,
citing Justice Holmes in U.S. v. Schwimmer, 279 U.S. 644, 655 (1929).
169 Gonzales v. COMELEC, id., at p. 493; p. 857 citing Termi​niello v.
City of Chicago, 337 U.S. 1, 4 (1949).
170 Gonzales v. COMELEC, id.
171 Philippine Blooming Mills Employees Organization v. Philippine
Blooming Mills Co., Inc., 151-A Phil. 656; 51 SCRA 189 (1973) [Per J.
Makasiar, En Banc].

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to manÊs enjoyment of his life, to his happiness and to his full and
complete fulfillment. Thru these freedoms the citizens can
participate not merely in the periodic establishment of the
government through their suffrage but also in the administration of
public affairs as well as in the discipline of abusive public officers.
The citizen is accorded these rights so that he can appeal to the
appropriate governmental officers or agencies for redress and
protection as well as for the imposition of the lawful sanctions on
erring public officers and employees.172 (Emphasis supplied)
 Fourth, expression is a marker for group identity. For
one, „[v]oluntary associations perform [an] important
democratic role [in providing] forums for the development
of civil skills, for deliberation, and for the formation of
identity and community spirit[,] [and] are largely immune
from [any] governmental interference.‰173 They also
„provide a buffer between individuals and the state · a
free space for the development of individual personality,
distinct group identity, and dissident ideas · and a
potential source of opposition to the state.‰174 Free speech
must be protected as the vehicle to find those who have
similar and shared values and ideals, to join together and
forward common goals.
Fifth, the Bill of Rights, free speech included, is
supposed to „protect individuals and minorities against
majoritarian abuses perpetrated through [the] framework
[of democratic

_______________

172 Id., at p. 675; pp. 201-202.

173 See Lessons in Transcendence: Forced Associations and the
Military, 117 Harv. L. Rev. 1981 (2004). This note explains why
integration has been so successful regarding military as a forced
community, and acknowledging the benefits that forced communities
produce such as empathy and the like. It discusses voluntary
associations by way of background.
174 Id., at p. 1983, citing Cynthia Estlund, Working Together: How
Workplace Bonds Strengthen a Diverse Democracy, p. 106 (2003).

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governance].‰175 Federalist framers led by James

Madison were concerned about two potentially vulnerable
groups: „the citizenry at large · majorities · who might
be tyrannized or plundered by despotic federal officials‰176
and the minorities who may be oppressed by „dominant
factions of the electorate [that] capture [the] government
for their own selfish ends[.]‰177 According to Madison, „[i]t
is of great importance in a republic not only to guard the
society against the oppression of its rulers, but to guard
one part of the society against the injustice of the other
part.‰178 We should strive to ensure that free speech is
protected especially in light of any potential oppression
against those who find themselves in the fringes on public
issues.
Lastly, free speech must be protected under the safety
valve theory.179 This provides that „nonviolent
manifestations of dissent reduce the likelihood of
violence[.]‰180 „[A] dam about to burst . . . resulting in the
Âbanking up of a menacing flood of sullen anger behind the
walls of restrictionʉ181 has been used to describe the effect
of repressing nonviolent outlets.182 In order to avoid this
situation and prevent people from resorting to violence,
there is a need for peaceful methods in making passionate
dissent. This includes „free expression and

_______________

175 See Daryl J. Levinson, Rights and Votes, 121 Yale L. J. 1293
(2012).
176 Id., at pp. 1293-1294.
177 Id., at p. 1294.
178 Id.
179 See Reyes v. Bagatsing, supra note 158 at p. 468; p. 562.
180 See Safety Valve Closed: The Removal of Nonviolent Outlets for
Dissent and the Onset of Anti-Abortion Violence, 113 Harv. L. Rev. 1210,
1222 (2000).
181 Id., citing Bradley C. Bobertz, The Brandeis Gambit: The Making
of AmericaÊs „First Freedom,‰ 1909-1931, 40 WM. & Mary L. Rev. 557,
611 (1999), quoting Glenn Frank, Is Free Speech Dangerous? 355, 359
(July 1920).
182 Id.

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political participation‰183 in that they can „vote for

candidates who share their views, petition their
legislatures to [make or] change laws, . . . distribute
literature alerting other citizens of their concerns[,]‰184 and
conduct peaceful rallies and other similar acts.185 Free
speech must, thus, be protected as a peaceful means of
achieving oneÊs goal, considering the possibility that
repression of nonviolent dissent may spill over to violent
means just to drive a point.

II.B.5

Every citizenÊs expression with political consequences

enjoys a high degree of protection.
Respondents argue that the tarpaulin is election
propaganda, being petitionersÊ way of endorsing candidates
who voted against the RH Law and rejecting those who
voted for it.186 As such, it is subject to regulation by
COMELEC under its constitutional mandate.187 Election
propaganda is defined under Section 1(4) of COMELEC
Resolution No. 9615 as follows:

SECTION 1. Definitions . . .
....
4. The term „political advertisement‰ or „election propaganda‰
refers to any matter broadcasted, published, printed, displayed or
exhibited, in any medium, which contain the name, image, logo,
brand, insignia, color motif, initials, and other symbol or graphic
representation that is capable of being associated with a candidate
or party, and is intended to draw

_______________

183 Id., at p. 1223.

184 Id., at p. 1210.
185 Id.
186 Rollo, pp. 72-73.
187 Id., at p. 73.

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the attention of the public or a segment thereof to promote or

oppose, directly or indirectly, the election of the said candidate or
candidates to a public office. In broadcast media, political
advertisements may take the form of spots, appearances on TV
shows and radio programs, live or taped announcements, teasers,
and other forms of advertising messages or announcements used by
commercial advertisers.
Political advertising includes matters, not falling within the
scope of personal opinion, that appear on any Internet website,
including, but not limited to, social networks, blogging sites, and
micro-blogging sites, in return for consideration, or otherwise
capable of pecuniary estimation.

On the other hand, petitioners invoke their

„constitutional right to communicate their opinions, views
and beliefs about issues and candidates.‰188 They argue
that the tarpaulin was their statement of approval and
appreciation of the named public officialsÊ act of voting
against the RH Law, and their criticism toward those who
voted in its favor.189 It was „part of their advocacy
campaign against the RH Law,‰190 which was not paid for
by any candidate or political party.191 Thus, „the questioned
orders which . . . effectively restrain[ed] and curtail[ed]
[their] freedom of expression should be declared
unconstitutional and void.‰192
This court has held free speech and other intellectual
freedoms as „highly ranked in our scheme of constitutional
val-

_______________

188 Id., at p. 107.

189 Id.
190 Id., at p. 106.
191 Id.
192 Id., at p. 111.

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ues.‰193 These rights enjoy precedence and primacy.194 In

Philippine Blooming Mills, this court discussed the
preferred position occupied by freedom of expression:

Property and property rights can be lost thru prescription; but

human rights are imprescriptible. If human rights are extinguished
by the passage of time, then the Bill of Rights is a useless attempt
to limit the power of government and ceases to be an efficacious
shield against the tyranny of officials, of majorities, of the
influential and powerful, and of oligarchs · political, economic or
otherwise.
In the hierarchy of civil liberties, the rights of free expression
and of assembly occupy a preferred position as they are essential to
the preservation and vitality of our civil and political institutions;
and such priority „gives these liberties the sanctity and the sanction
not permitting dubious intrusions.‰195 (Citations omitted)

This primordial right calls for utmost respect, more so

„when what may be curtailed is the dissemination of
information to make more meaningful the equally vital
right of suffrage.‰196 A similar idea appeared in our
jurisprudence as early as 1969, which was Justice
BarredoÊs concurring and dissenting opinion in Gonzales v.
COMELEC:197

I like to reiterate over and over, for it seems this is the

fundamental point others miss, that genuine democracy thrives
only where the power and right of the people to elect the men to
whom they would entrust the privilege to run the affairs of the state
exist. In the language

_______________

193 Reyes v. Bagatsing, supra note 158 at p. 475; p. 563. See also
Adiong v. COMELEC, supra note 164 at pp. 712, 715 and 717.
194 Reyes v. Bagatsing, id., at p. 475; p. 570.
195 Philippine Blooming Mills Employees Organization v. Philippine
Blooming Mills Co., Inc., supra note 171 at p. 676; p. 202.
196 Adiong v. COMELEC, supra at p. 716.
197 Gonzales v. COMELEC, supra note 162.

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of the declaration of principles of our Constitution, „The

Philippines is a republican state. Sovereignty resides in the people
and all government authority emanates from them‰ (Section 1,
Article II). Translating this declaration into actuality, the
Philippines is a republic because and solely because the people in it
can be governed only by officials whom they themselves have placed
in office by their votes. And in it is on this cornerstone that I hold it
to be self-evident that when the freedoms of speech, press and
peaceful assembly and redress of grievances are being exercised in
relation to suffrage or as a means to enjoy the inalienable right of the
qualified citizen to vote, they are absolute and timeless. If our
democracy and republicanism are to be worthwhile, the conduct of
public affairs by our officials must be allowed to suffer incessant
and unabating scrutiny, favorable or unfavorable, everyday and at
all times. Every holder of power in our government must be ready
to undergo exposure any moment of the day or night, from January
to December every year, as it is only in this way that he can
rightfully gain the confidence of the people. I have no patience for
those who would regard public dissection of the establishment as an
attribute to be indulged by the people only at certain periods of
time. I consider the freedoms of speech, press and peaceful assembly
and redress of grievances, when exercised in the name of suffrage, as
the very means by which the right itself to vote can only be properly
enjoyed. It stands to reason therefore, that suffrage itself would be
next to useless if these liberties cannot be untrammelled [sic]
whether as to degree or time.198 (Emphasis supplied)

Not all speech are treated the same. In Chavez v.

Gonzales, this court discussed that some types of speech
may be subject to regulation:

Some types of speech may be subjected to some regulation by the

State under its pervasive police power, in order that it may not be
injurious to the equal right of

_______________

198 Id., at p. 563; pp. 926-927.

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others or those of the community or society. The difference in

treatment is expected because the relevant interests of one type of
speech, e.g., political speech, may vary from those of another, e.g.,
obscene speech. Distinctions have therefore been made in the
treatment, analysis, and evaluation of the permissible scope of
restrictions on various categories of speech. We have ruled, for
example, that in our jurisdiction slander or libel, lewd and obscene
speech, as well as „fighting words‰ are not entitled to constitutional
protection and may be penalized.199 (Citations omitted)

We distinguish between political and commercial speech.

Political speech refers to speech „both intended and
received as a contribution to public deliberation about some
issue,‰200 „foster[ing] informed and civic-minded
201
deliberation.‰ On the other hand, commercial speech has
been defined as speech that does „no more than propose a
commercial transaction.‰202
The expression resulting from the content of the
tarpaulin is, however, definitely political speech.
In Justice BrionÊs dissenting opinion, he discussed that
„[t]he content of the tarpaulin, as well as the timing of its
posting, makes it subject of the regulations in RA 9006 and
Comelec Resolution No. 9615.‰203 He adds that „[w]hile
indeed the RH issue, by itself, is not an electoral matter,
the slant that the petitioners gave the issue converted the
nonelection

199 Chavez v. Gonzales, 569 Phil. 155, 199; 545 SCRA 441, 486 (2008)
[Per CJ. Puno, En Banc].
200 See footnote 64 of Freedom of Speech and Expression, 116 Harv. L.
Rev. 272 (2002), citing Cass R. Sunstein, Free Speech Now, The Bill of
Rights in the Modern State 255, 304 (1992).
201 See Freedom of Speech and Expression, 116 Harv. L. Rev. 272, 278
(2002).
202 See Eric Barendt, Tobacco Advertising: The Last Puff?, Pub. L. 27
(2002).
203 J. Brion, Dissenting Opinion, p. 152.

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issue into a live election one hence, Team Buhay and

Team Patay and the plea to support one and oppose the
other.‰204
While the tarpaulin may influence the success or failure
of the named candidates and political parties, this does not
necessarily mean it is election propaganda. The tarpaulin
was not paid for or posted „in return for consideration‰ by
any candidate, political party, or party list group.
The second paragraph of Section 1(4) of COMELEC
Resolution No. 9615, or the rules and regulations
implementing Republic Act No. 9006 as an aid to interpret
the law insofar as the facts of this case requires, states:

4. The term „political advertisement‰ or „election propaganda‰

refers to any matter broadcasted, published, printed, displayed or
exhibited, in any medium, which contain the name, image, logo,
brand, insignia, color motif, initials, and other symbol or graphic
representation that is capable of being associated with a candidate
or party, and is intended to draw the attention of the public or a
segment thereof to promote or oppose, directly or indirectly, the
election of the said candidate or candidates to a public office. In
broadcast media, political advertisements may take the form of
spots, appearances on TV shows and radio programs, live or taped
announcements, teasers, and other forms of advertising messages
or announcements used by commercial advertisers.
Political advertising includes matters, not falling within
the scope of personal opinion, that appear on any Internet
website, including, but not limited to, social networks,
blogging sites, and micro-blogging sites, in return for
consideration, or otherwise capable of pecuniary estimation.
(Emphasis supplied)

_______________

204 J. Brion, Dissenting Opinion, p. 158.

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It is clear that this paragraph suggests that personal

opinions are not included, while sponsored messages are
covered.
Thus, the last paragraph of Section 1(1) of COMELEC
Resolution No. 9615 states:

SECTION 1. Definitions.·As used in this Resolution:

1. The term „election campaign‰ or „partisan political activity‰
refers to an act designed to promote the election or defeat of a
particular candidate or candidates to a public office, and shall
include any of the following:
 ....
Personal opinions, views, and preferences for candidates,
contained in blogs shall not be considered acts of election
campaigning or partisan political activity unless expressed by
government officials in the Executive Department, the Legislative
Department, the Judiciary, the Constitutional Commissions, and
members of the Civil Service.

In any event, this case does not refer to speech in

cyberspace, and its effects and parameters should be
deemed narrowly tailored only in relation to the facts and
issues in this case. It also appears that such wording in
COMELEC Resolution No. 9615 does not similarly appear
in Republic Act No. 9006, the law it implements.
We should interpret in this manner because of the value
of political speech.
As early as 1918, in United States v. Bustos,205 this court
recognized the need for full discussion of public affairs. We
acknowledged that free speech includes the right to
criticize the conduct of public men:

_______________

205 37 Phil. 731 (1918) [Per J. Malcolm, En Banc].

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The interest of society and the maintenance of good government

demand a full discussion of public affairs. Complete liberty to
comment on the conduct of public men is a scalpel in the case of free
speech. The sharp incision of its probe relieves the abscesses of
officialdom. Men in public life may suffer under a hostile and an
unjust accusation; the wound can be assuaged with the balm of a
clear conscience. A public officer must not be too thin-skinned with
reference to comment upon his official acts. Only thus can the
intelligence and dignity of the individual be exalted.206

Subsequent jurisprudence developed the right to

petition the government for redress of grievances, allowing
for criticism, save for some exceptions.207 In the 1951 case
of Espuelas v. People,208 this court noted every citizenÊs
privilege to criticize his or her government, provided it is
„specific and therefore constructive, reasoned or tempered,
and not a contemptuous condemnation of the entire
government setup.‰209
The 1927 case of People v. Titular210 involved an alleged
violation of the Election Law provision „penaliz[ing] the
anonymous criticism of a candidate by means of posters or
circulars.‰211 This court explained that it is the posterÊs
anonymous character that is being penalized.212 The
ponente adds that he would „dislike very much to see this
decision made the vehicle for the suppression of public
opinion.‰213

_______________

206 Id., at pp. 740-741.

207 People v. Perez, 45 Phil. 599, 604-605 (1923) [Per J. Malcolm, En
Banc].
208 90 Phil. 524 (1951) [Per J. Bengzon, En Banc].
209 Id., at p. 529.
210 49 Phil. 930 (1927) [Per J. Malcolm, En Banc].
211 Id., at p. 931.
212 Id., at p. 937.
213 Id., at p. 938.

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In 1983, Reyes v. Bagatsing214 discussed the importance

of allowing individuals to vent their views. According to
this court, „[i]ts value may lie in the fact that there may be
something worth hearing from the dissenter [and] [t]hat is
to ensure a true ferment of ideas.‰215
Allowing citizens to air grievances and speak
constructive criticisms against their government
contributes to every societyÊs goal for development. It puts
forward matters that may be changed for the better and
ideas that may be deliberated on to attain that purpose.
Necessarily, it also makes the government accountable for
acts that violate constitutionally protected rights.
In 1998, Osmeña v. COMELEC found Section 11(b) of
Republic Act No. 6646, which prohibits mass media from
selling print space and air time for campaign except to the
COMELEC, to be a democracy-enhancing measure.216 This
court mentioned how „discussion of public issues and
debate on the qualifications of candidates in an election are
essential to the proper functioning of the government
established by our Constitution.‰217
As pointed out by petitioners, „speech serves one of its
greatest public purposes in the context of elections when
the free exercise thereof informs the people what the issues
are, and who are supporting what issues.‰218 At the heart of
democracy is every advocateÊs right to make known what
the people need to know,219 while the meaningful exercise
of oneÊs

_______________

214 210 Phil. 457; 125 SCRA 553 (1983) [Per CJ. Fernando, En Banc].
215 Id., at p. 468; pp. 562-563.
216 Osmeña v. COMELEC, 351 Phil. 692, 720; 288 SCRA 447, 479
(1998) [Per J. Mendoza, En Banc].
217 Id., at p. 719; pp. 478-479.
218 Rollo, p. 108.
219 See Barry Sullivan, FOIA and the First Amendment:
Representative Democracy and the PeopleÊs Elusive „Right to Know,‰ 72
MD. L. REV. 1, 9 (2012). „[P]eopleÊs Âright to knowÊ serves two sepa

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right of suffrage includes the right of every voter to

know what they need to know in order to make their
choice.
Thus, in Adiong v. COMELEC,220 this court discussed
the importance of debate on public issues, and the freedom
of expression especially in relation to information that
ensures the meaningful exercise of the right of suffrage:

We have adopted the principle that debate on public issues

should be uninhibited, robust, and wide open and that it may well
include vehement, caustic and sometimes unpleasantly sharp
attacks on government and public officials. Too many restrictions
will deny to people the robust, uninhibited, and wide open debate,
the generating of interest essential if our elections will truly be free,
clean and honest.
We have also ruled that the preferred freedom of expression calls
all the more for the utmost respect when what may be curtailed is the
dissemination of information to make more meaningful the equally
vital right of suffrage.221 (Emphasis supplied, citations omitted)

Speech with political consequences is at the core of the

freedom of expression and must be protected by this court.
Justice Brion pointed out that freedom of expression „is
not the god of rights to which all other rights and even
government protection of state interest must bow.‰222
The right to freedom of expression is indeed not
absolute. Even some forms of protected speech are still
subject to some restrictions. The degree of restriction may
depend on whether

_______________

rate democratic values: governmental accountability and citizen

participation.‰
220 Adiong v. COMELEC, supra note 164.
221 Id., at p. 716. See also Mutuc v. COMELEC, 146 Phil. 798, 805-
806; 36 SCRA 228, 233-234 (1970) [Per J. Fernando, En Banc].
222 J. Brion, Dissenting Opinion, p. 169.

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the regulation is content-based or content-neutral.223

Content-based regulations can either be based on the
viewpoint of the speaker or the subject of the expression.

II.B.6

Content-based regulation
COMELEC contends that the order for removal of the
tarpaulin is a content-neutral regulation. The order was
made simply because petitioners failed to comply with the
maximum size limitation for lawful election propaganda.224
On the other hand, petitioners argue that the present
size regulation is content-based as it applies only to
political speech and not to other forms of speech such as
commercial speech.225 „[A]ssuming arguendo that the size
restriction sought to be applied . . . is a mere time, place,
and manner regulation, itÊs still unconstitutional for lack of
a clear and reasonable nexus with a constitutionally
sanctioned objective.‰226
The regulation may reasonably be considered as either
content-neutral or content-based.227 Regardless, the
disposition of this case will be the same. Generally,
compared with other forms of speech, the proposed speech
is content-based.
As pointed out by petitioners, the interpretation of
COMELEC contained in the questioned order applies only
to posters

_______________

223 See Chavez v. Gonzales, supra note 199 at pp. 204-205; pp. 492-
493. See also Erwin Chemerinsky, Content Neutrality as a Central
Problem of Freedom of Speech: Problems in the Supreme CourtÊs
Application, 74 S. CAL. L. Rev. 49, 51 (2000).
224 Rollo, p. 83.
225 Id., at p. 118.
226 Id., at p. 123.
227 See for instance Wilson R. Huhn, Assessing the Constitutionality
of Laws That Are Both Content-Based and Content-Neutral: The
Emerging Constitutional Calculus, 79 Ind. L. J. 801 (2004).

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and tarpaulins that may affect the elections because

they deliver opinions that shape both their choices. It does
not cover, for instance, commercial speech.
Worse, COMELEC does not point to a definite view of
what kind of expression of noncandidates will be adjudged
as „election paraphernalia.‰ There are no existing bright
lines to categorize speech as election-related and those that
are not. This is especially true when citizens will want to
use their resources to be able to raise public issues that
should be tackled by the candidates as what has happened
in this case. COMELECÊs discretion to limit speech in this
case is fundamentally unbridled.
Size limitations during elections hit at a core part of
expression. The content of the tarpaulin is not easily
divorced from the size of its medium.
Content-based regulation bears a heavy presumption of
invalidity, and this court has used the clear and present
danger rule as measure.228 Thus, in Chavez v. Gonzales:

A content-based regulation, however, bears a heavy presumption

of invalidity and is measured against the clear and present danger
rule. The latter will pass constitutional muster only if justified by a
compelling reason, and the restrictions imposed are neither
overbroad nor vague.229 (Citations omitted)

Under this rule, „the evil consequences sought to be

prevented must be substantive, Âextremely serious and the
degree of imminence extremely high.ʉ230 „Only when the
challenged act has overcome the clear and present danger
rule will it pass constitutional muster, with the government
hav

_______________

228 Chavez v. Gonzales, supra note 199 at pp. 207-208; p. 496.

229 Id.
230 Id., at p. 200; p. 488.

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ing the burden of overcoming the presumed

unconstitutionality.‰231
Even with the clear and present danger test,
respondents failed to justify the regulation. There is no
compelling and substantial state interest endangered by
the posting of the tarpaulin as to justify curtailment of the
right of freedom of expression. There is no reason for the
state to minimize the right of noncandidate petitioners to
post the tarpaulin in their private property. The size of the
tarpaulin does not affect anyone elseÊs constitutional rights.
Content-based restraint or censorship refers to
restrictions „based on the subject matter of the utterance or
speech.‰232 In contrast, content-neutral regulation includes
controls merely on the incidents of the speech such as time,
place, or manner of the speech.233
This court has attempted to define „content-neutral‰
restraints starting with the 1948 case of Primicias v.
Fugoso.234 The ordinance in this case was construed to
grant the Mayor discretion only to determine the public
places that may be used for the procession or meeting, but
not the power to refuse the issuance of a permit for such
procession or meeting.235 This court explained that free
speech and peaceful assembly are „not absolute for it may
be so regulated that it shall not be injurious to the equal
enjoyment of others having equal rights, nor injurious to
the rights of the community or society.‰236

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231 Id., at p. 206; p. 494.

232 Id., at p. 205; p. 493.
233 Id., at p. 204; p. 493. See Primicias v. Fugoso, 80 Phil. 71 (1948)
[Per J. Feria, En Banc]; Reyes v. Bagatsing, supra note 158.
234 Primicias v. Fugoso, id.
235 Id., at p. 77.
236 Id., at p. 75.

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The earlier case of Calalang v. Williams237 involved the

National Traffic Commission resolution that prohibited the
passing of animal-drawn vehicles along certain roads at
specific hours.238 This court similarly discussed police
power in that the assailed rules carry out the legislative
policy that „aims to promote safe transit upon and avoid
obstructions on national roads, in the interest and
convenience of the public.‰239
As early as 1907, United States v. Apurado240 recognized
that „more or less disorder will mark the public assembly of
the people to protest against grievances whether real or
imaginary, because on such occasions feeling is always
wrought to a high pitch of excitement. . . .‰241 It is with this
backdrop that the state is justified in imposing restrictions
on incidental matters as time, place, and manner of the
speech.
In the landmark case of Reyes v. Bagatsing, this court
summarized the steps that permit applicants must follow
which include informing the licensing authority ahead of
time as regards the date, public place, and time of the
assembly.242 This would afford the public official time to
inform applicants if there would be valid objections,
provided that the clear and present danger test is the
standard used for his decision and the applicants are given
the opportunity to be heard.243 This ruling was practically
codified in Batas Pambansa Blg. 880, otherwise known as
the Public Assembly Act of 1985.
Subsequent jurisprudence have upheld Batas Pambansa
Blg. 880 as a valid content-neutral regulation. In the 2006
case of Bayan v. Ermita,244 this court discussed how Batas

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237 70 Phil. 726 (1940) [Per J. Laurel, En Banc].

238 Id., at pp. 728-729.
239 Id., at p. 733.
240 7 Phil. 422 (1907) [Per J. Carson, En Banc].
241 Id., at p. 426.
242 Reyes v. Bagatsing, supra note 158 at p. 475; p. 563.
243 Id.
244 522 Phil. 201; 488 SCRA 226 (2006) [Per J. Azcuna, En Banc].

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Pambansa Blg. 880 does not prohibit assemblies but

simply regulates their time, place, and manner.245 In 2010,
this court found in Integrated Bar of the Philippines v.
Atienza246 that respondent Mayor Atienza committed grave
abuse of discretion when he modified the rally permit by
changing the venue from Mendiola Bridge to Plaza
Miranda without first affording petitioners the opportunity
to be heard.247
We reiterate that the regulation involved at bar is
content-based. The tarpaulin content is not easily divorced
from the size of its medium.

II.B.7

Justice Carpio and Justice Perlas-Bernabe suggest that

the provisions imposing a size limit for tarpaulins are
content-neutral regulations as these „restrict the manner
by which speech is relayed but not the content of what is
conveyed.‰248
If we apply the test for content-neutral regulation, the
questioned acts of COMELEC will not pass the three
requirements for evaluating such restraints on freedom of
speech.249 „When

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245 Id., at pp. 219 and 231; p. 268. See also Osmeña v. COMELEC,
supra note 216 at p. 719; p. 467.
246 Integrated Bar of the Philippines v. Atienza, G.R. No. 175241,
February 24, 2010, 613 SCRA 518 [Per J. Carpio-Morales, First
Division].
247 Id., at pp. 526-527.
248 J. Carpio, Separate Concurring Opinion, p. 127, emphasis in the
original; J. Perlas-Bernabe, Separate Concurring Opinion, p. 172.
249 Chavez v. Gonzales, supra note 199 at p. 200; p. 487. The
ponencia was concurred in by J. Ynares-Santiago and J. Reyes. Separate
concurring opinions were written by J. Sandoval-Gutierrez, J. Carpio,
and J. Azcuna. Three justices (J. Quisumbing, J. Austria-Martinez, and
J. Carpio Morales) joined J. CarpioÊs opinion. Dissenting and concurring
opinions were written by J. Tinga and J. Velasco, Jr. Separate dissenting
opinions were written by J. Chico-Nazario

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the speech restraints take the form of a content-neutral

regulation, only a substantial governmental interest is
required for its validity,‰250 and it is subject only to the
intermediate approach.251
This intermediate approach is based on the test that we
have prescribed in several cases.252 A content-neutral
government regulation is sufficiently justified:

[1] if it is within the constitutional power of the Government; [2]

if it furthers an important or substantial governmental interest; [3]
if the governmental interest is unrelated to the suppression of free
expression; and [4] if the incident restriction on alleged [freedom of
speech & expression] is no greater than is essential to the
furtherance of that interest.253

On the first requisite, it is not within the constitutional

powers of the COMELEC to regulate the tarpaulin. As
discussed earlier, this is protected speech by petitioners
who are noncandidates.
On the second requirement, not only must the
governmental interest be important or substantial, it must
also be compelling as to justify the restrictions made.
Compelling governmental interest would include
constitutionally declared principles. We have held, for
example, that „the welfare of children and the StateÊs
mandate to protect

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and J. Nachura. J. Corona joined J. NachuraÊs opinion. J. Leonardo-

De Castro joined J. NazarioÊs and J. NachuraÊs opinions.
250 Id., at p. 205; p. 493. See Osmeña v. COMELEC, supra note 216
at p. 717; p. 477 [Per J. Mendoza, En Banc].
251 Id.
252 See Social Weather Stations, Inc. v. COMELEC, 409 Phil. 571;
357 SCRA 496 (2001) [Per J. Mendoza, Second Division]; Adiong v.
COMELEC, supra note 164; Osmeña v. COMELEC, supra.
253 Chavez v. Gonzales, supra note 199 at p. 206; p. 494.

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and care for them, as parens patriae,254 constitute a

substantial and compelling government interest in
regulating . . . utterances in TV broadcast.‰255
Respondent invokes its constitutional mandate to ensure
equal opportunity for public information campaigns among
candidates in connection with the holding of a free, orderly,
honest, peaceful, and credible election.256
Section 4. The Commission may, during the election
period, supervise or regulate the enjoyment or utilization of
all franchises or permits for the operation of transportation
and other public utilities, media of communication or
information, all grants, special privileges, or concessions
granted by the Government or any subdivision, agency, or
instrumentality thereof, including any government-owned
or -controlled corporation or its subsidiary. Such
supervision or regulation shall aim to ensure equal
opportunity, time, and space, and the right to reply,
including reasonable, equal rates therefor, for public
information campaigns and forums among candidates in
connection with the objective of holding free, orderly,
honest, peaceful, and credible elections.
Justice Brion in his dissenting opinion discussed that
„[s]ize limits to posters are necessary to ensure equality of
public information campaigns among candidates, as
allowing posters with different sizes gives candidates and
their supporters the incentive to post larger posters[,] [and]
[t]his places candidates with more money and/or with deep-
pocket supporters at an undue advantage against
candidates with more humble financial capabilities.‰257
First, Adiong v. COMELEC has held that this interest is
„not as important as the right of [a private citizen] to freely
express his choice and exercise his right of free speech.‰258
In any case, faced with both rights to freedom of speech
and

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254 Const., Art. II, Secs. 12 and 13.

255 Soriano v. Laguardia, 605 Phil. 43, 106; 587 SCRA 79, 110 (2009)
[Per J. Velasco, Jr., En Banc].
256 Const., Art. IX-C, Sec. 4.
257 J. Brion, Dissenting Opinion, p. 170.
258 Adiong v. COMELEC, supra note 164 at p. 722.

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equality, a prudent course would be to „try to resolve the

tension in a way that protects the right of participation.‰259
Second, the pertinent election laws related to private
property only require that the private property ownerÊs
consent be obtained when posting election propaganda in
the property.260 This is consistent with the fundamental
right against deprivation of property without due process of
law.261 The present facts do not involve such posting of
election propaganda absent consent from the property
owner. Thus, this regulation does not apply in this case.
Respondents likewise cite the Constitution262 on their
authority to recommend effective measures to minimize
election spending. Specifically, Article IX-C, Section 2(7)
provides:

Sec. 2. The Commission on Elections shall exercise the

following powers and functions:
....
(7) Recommend to the Congress effective measures to minimize
election spending, including limitation of places where propaganda
materials shall be posted, and to prevent and penalize all forms of
election frauds, offenses, malpractices, and nuisance candidates.
(Emphasis supplied)

This does not qualify as a compelling and substantial

government interest to justify regulation of the preferred
right to freedom of expression.
The assailed issuances for the removal of the tarpaulin
are based on the two feet (2Ê) by three feet (3Ê) size
limitation

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259 See John A. Powell, Worlds Apart: Reconciling Freedom of Speech

and Equality, 85 KY.L.J. 94 (1996-1997).
260 Rep. Act No. 9006, Sec. 9; COMELEC Resolution No. 9615, Sec.
17(b).
261 Const., Art. III, Sec. 1.
262 Const., Art. IX-C, Sec. 2(7).

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under Section 6(c) of COMELEC Resolution No. 9615.

This resolution implements the Fair Elections Act that
provides for the same size limitation.263
This court held in Adiong v. COMELEC that
„[c]ompared to the paramount interest of the State in
guaranteeing freedom of expression, any financial
considerations behind the regulation are of marginal
significance.‰264 In fact, speech with political consequences,
as in this case, should be encouraged and not curtailed. As
petitioners pointed out, the size limitation will not serve
the objective of minimizing election spending considering
there is no limit on the number of tarpaulins that may be
posted.265
The third requisite is likewise lacking. We look not only
at the legislative intent or motive in imposing the
restriction, but more so at the effects of such restriction, if
implemented. The restriction must not be narrowly tailored
to achieve the purpose. It must be demonstrable. It must
allow alternative avenues for the actor to make speech.
In this case, the size regulation is not unrelated to the
suppression of speech. Limiting the maximum size of the
tarpau-

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263 Rep. Act No. 9006 (2001), Sec. 3.3, provides:

Sec. 3. Lawful Election Propaganda.· . . . .
For the purpose of this Act, lawful election propaganda shall include:
....
3.3.  Cloth, paper or cardboard posters whether framed, or posted,
with an area not exceeding two (2) feet by three (3) feet, except that, at
the site and on the occasion of a public meeting or rally, or in announcing
the holding of said meeting or rally, streamers not exceeding three (3)
feet by eight (8) feet in size, shall be allowed: Provided, That said
streamers may be displayed five (5) days before the date of the meeting
or rally and shall be removed within twenty-four (24) hours after said
meeting or rally[.]
264 Adiong v. COMELEC, supra note 164 at p. 722.
265 Rollo, p. 133.

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lin would render ineffective petitionersÊ message and

violate their right to exercise freedom of expression.
The COMELECÊs act of requiring the removal of the
tarpaulin has the effect of dissuading expressions with
political consequences. These should be encouraged, more
so when exercised to make more meaningful the equally
important right to suffrage.
The restriction in the present case does not pass even
the lower test of intermediate scrutiny for content-neutral
regulations.
The action of the COMELEC in this case is a strong
deterrent to further speech by the electorate. Given the
stature of petitioners and their message, there are
indicators that this will cause a „chilling effect‰ on robust
discussion during elections.
The form of expression is just as important as the
message itself. In the words of Marshall McLuhan, „the
medium is the message.‰266 McLuhanÊs colleague and
mentor Harold Innis has earlier asserted that „the
materials on which words were written down have often
counted for more than the words themselves.‰267

III
Freedom of expression and equality

III.A
The possibility of abuse

Of course, candidates and political parties do solicit the

help of private individuals for the endorsement of their
electoral campaigns.

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266 Christina J. Angelopoulos, Freedom of Expression and Copyright:

The Double Balancing Act, I.P.Q. 3, 334-335 (2008).
267 M. Ethan Katsh, Cybertime, Cyberspace and Cyberlaw, J.
ONLINE L. Art. 1, par. 7 (1995).

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On the one extreme, this can take illicit forms such as

when endorsement materials in the form of tarpaulins,
posters, or media advertisements are made ostensibly by
„friends‰ but in reality are really paid for by the candidate
or political party. This skirts the constitutional value that
provides for equal opportunities for all candidates.
However, as agreed by the parties during the oral
arguments in this case, this is not the situation that
confronts us. In such cases, it will simply be a matter for
investigation and proof of fraud on the part of the
COMELEC.
The guarantee of freedom of expression to individuals
without any relationship to any political candidate should
not be held hostage by the possibility of abuse by those
seeking to be elected. It is true that there can be
underhanded, covert, or illicit dealings so as to hide the
candidateÊs real levels of expenditures. However, labelling
all expressions of private parties that tend to have an effect
on the debate in the elections as election paraphernalia
would be too broad a remedy that can stifle genuine speech
like in this case. Instead, to address this evil, better and
more effective enforcement will be the least restrictive
means to the fundamental freedom.
On the other extreme, moved by the credentials and the
message of a candidate, others will spend their own
resources in order to lend support for the campaigns. This
may be without agreement between the speaker and the
candidate or his or her political party. In lieu of donating
funds to the campaign, they will instead use their resources
directly in a way that the candidate or political party would
have done so. This may effectively skirt the constitutional
and statutory limits of campaign spending.
Again, this is not the situation in this case.
The message of petitioners in this case will certainly not
be what candidates and political parties will carry in their
election posters or media ads. The message of petitioner,
taken as a whole, is an advocacy of a social issue that it
deeply believes.

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Through rhetorical devices, it communicates the desire of

Diocese that the positions of those who run for a political
position on this social issue be determinative of how the
public will vote. It primarily advocates a stand on a
social issue; only secondarily · even almost
incidentally · will cause the election or nonelection
of a candidate.
The twin tarpaulins consist of satire of political parties.
Satire is a „literary form that employs such devices as
sarcasm, irony and ridicule to deride prevailing vices or
follies,‰268 and this may target any individual or group in
society, private and government alike. It seeks to effectively
communicate a greater purpose, often used for „political
and social criticism‰269 „because it tears down facades,
deflates stuffed shirts, and unmasks hypocrisy. . . . Nothing
is more thoroughly democratic than to have the high-and-
mighty lampooned and spoofed.‰270 Northrop Frye, well-
known in this literary field, claimed that satire had two
defining features: „one is wit or humor founded on fantasy
or a sense of the grotesque and absurd, the other is an
object of attack.‰271 Thus, satire frequently uses
exaggeration, analogy, and other rhetorical devices.
The tarpaulins exaggerate. Surely, „Team Patay‰ does
not refer to a list of dead individuals nor could the
Archbishop of the Diocese of Bacolod have intended it to
mean that the entire plan of the candidates in his list was
to cause death intentionally. The tarpaulin caricatures
political parties and parodies the intention of those in the
list. Furthermore,

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268 See Leslie Kim Treiger, Protecting Satire Against Libel Claims: A
New Reading of the First AmendmentÊs Opinion Privilege, 98 YALE L.J.
1215 (1989).
269 Id.
270 Id., citing Falwell v. Flynt, 805 F.2d 484, 487 (4th Cir. 1986) (J.
Wilkinson, Dissenting from denial of rehearing En Banc).
271 See Joseph Brooker, Law, Satire, Incapacity: Satire Bust: The
Wagers of Money, 17 Law & Literature 321, 327 (2005), citing Northrop
Frye, Anatomy of Criticism: Four Essays 224 (1957).

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the list of „Team Patay‰ is juxtaposed with the list of

„Team Buhay‰ that further emphasizes the theme of its
author: Reproductive health is an important marker for the
church of petitioners to endorse.
The messages in the tarpaulins are different from the
usual messages of candidates. Election paraphernalia from
candidates and political parties are more declarative and
descriptive and contain no sophisticated literary allusion to
any social objective. Thus, they usually simply exhort the
public to vote for a person with a brief description of the
attributes of the candidate. For example „Vote for [x], Sipag
at Tiyaga,‰ „Vote for [y], Mr. Palengke,‰ or „Vote for [z], Iba
kami sa Makati.‰
This courtÊs construction of the guarantee of freedom of
expression has always been wary of censorship or
subsequent punishment that entails evaluation of the
speakerÊs viewpoint or the content of oneÊs speech. This is
especially true when the expression involved has political
consequences. In this case, it hopes to affect the type of
deliberation that happens during elections. A becoming
humility on the part of any human institution no matter
how endowed with the secular ability to decide legal
controversies with finality entails that we are not the
keepers of all wisdom.
HumanityÊs lack of omniscience, even acting collectively,
provides space for the weakest dissent. Tolerance has
always been a libertarian virtue whose version is embedded
in our Bill of Rights. There are occasional heretics of
yesterday that have become our visionaries. Heterodoxies
have always given us pause. The unforgiving but insistent
nuance that the majority surely and comfortably disregards
provides us with the checks upon reality that may soon
evolve into creative solutions to grave social problems. This
is the utilitarian version. It could also be that it is just part
of human necessity to evolve through being able to express
or communicate.
However, the Constitution we interpret is not a
theoretical document. It contains other provisions which,
taken together

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with the guarantee of free expression, enhances each

otherÊs value. Among these are the provisions that
acknowledge the idea of equality. In shaping doctrine
construing these constitutional values, this court needs to
exercise extraordinary prudence and produce narrowly
tailored guidance fit to the facts as given so as not to
unwittingly cause the undesired effect of diluting freedoms
as exercised in reality and, thus, render them meaningless.
 III.B.
Speech and equality:
Some considerations

We first establish that there are two paradigms of free

speech that separate at the point of giving priority to
equality vis-à-vis liberty.272
In an equality-based approach, „politically
disadvantaged speech prevails over regulation[,] but
regulation promoting political equality prevails over
speech.‰273 This view allows the government leeway to
redistribute or equalize Âspeaking power,Ê such as
protecting, even implicitly subsidizing, unpopular or
dissenting voices often systematically subdued within
societyÊs ideological ladder.274 This view acknowledges that
there are dominant political actors who, through authority,
power, resources, identity, or status, have capabilities that
may drown out the messages of others. This is especially
true in a developing or emerging economy that is part of
the majoritarian world like ours.
The question of libertarian tolerance
This balance between equality and the ability to express
so as to find oneÊs authentic self or to participate in the self
de-

_______________

272 See Kathleen M. Sullivan, Two Concepts of Freedom of Speech,

124 Harv. L. Rev. 144-146 (2010).
273 Id., at p. 145.
274 Id., at pp. 148-149.

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termination of oneÊs communities is not new only to law.

It has always been a philosophical problematique.
In his seminal work, Repressive Tolerance, philosopher
and social theorist Herbert Marcuse recognized how
institutionalized inequality exists as a background
limitation, rendering freedoms exercised within such
limitation as merely „protect[ing] the already established
machinery of discrimination.‰275 In his view, any
improvement „in the normal course of events‰ within an
unequal society, without subversion, only strengthens
existing interests of those in power and control.276
In other words, abstract guarantees of fundamental
rights like freedom of expression may become meaningless
if not taken in a real context. This tendency to tackle rights
in the abstract compromises liberties. In his words:

Liberty is self-determination, autonomy · this is almost a

tautology, but a tautology which results from a whole series of
synthetic judgments. It stipulates the ability to determine oneÊs own
life: to be able to determine what to do and what not to do, what to
suffer and what not. But the subject of this autonomy is never the
contingent, private individual as that which he actually is or
happens to be; it is rather the individual as a human being who is
capable of being free with the others. And the problem of making
possible such a harmony between every individual liberty and the
other is not that of finding a compromise between competitors, or
between freedom and law, between general and individual interest,
common and private welfare in an established society, but of
creating the society in which man is no longer enslaved by
institutions which vitiate self-determination from the beginning. In
other words, freedom is still to be

_______________

275 See Herbert Marcuse, Repressive Tolerance, in A Critique of Pure

Tolerance, p. 85 (1965).
276 Id., at pp. 93-94.

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created even for the freest of the existing societies.277 (Emphasis

in the original)

Marcuse suggests that the democratic argument · with

all opinions presented to and deliberated by the people ·
„implies a necessary condition, namely, that the people
must be capable of deliberating and choosing on the basis
of knowledge, that they must have access to authentic
information, and that, on this basis, their evaluation must
be the result of autonomous thought.‰278 He submits that
„[d]ifferent opinions and ÂphilosophiesÊ can no longer
compete peacefully for adherence and persuasion on
rational grounds: the Âmarketplace of ideasÊ is organized
and delimited by those who determine the national and the
individual interest.‰279
A slant toward left manifests from his belief that „there
is a Ânatural rightÊ of resistance for oppressed and
overpowered minorities to use extralegal means if the legal
ones have proved to be inadequate.‰280 Marcuse, thus,
stands for an equality that breaks away and transcends
from established hierarchies, power structures, and
indoctrinations. The tolerance of libertarian society he
refers to as „repressive tolerance.‰

Legal scholars

The 20th century also bears witness to strong support

from legal scholars for „stringent protections of expressive
liberty,‰281 especially by political egalitarians.
Considerations such as „expressive, deliberative, and
informational interests,‰282 costs or the price of expression,
and background facts,

_______________

277 Id., at pp. 86-87.

278 Id., at p. 95.
279 Id., at p. 110.
280 Id., at p. 116.
281 See Joshua Cohen, Freedom of Expression, in Toleration: an
Elusive Virtue, p. 176 (1996).
282 Id., at p. 184.

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when taken together, produce bases for a system of

stringent protections for expressive liberties.283
Many legal scholars discuss the interest and value of
expressive liberties. Justice Brandeis proposed that „public
discussion is a political duty.‰284 Cass Sustein placed
political speech on the upper tier of his two-tier model for
freedom of expression, thus, warranting stringent
protection.285 He defined political speech as „both intended
and received as a contribution to public deliberation about
some issue.‰286
But this is usually related also to fair access to
opportunities for such liberties.287 Fair access to
opportunity is suggested to mean substantive equality and
not mere formal equality since „favorable conditions for
realizing the expressive interest will include some
assurance of the resources required for expression and
some guarantee that efforts to express views on matters of
common concern will not be drowned out by the speech of
better-endowed citizens.‰288
Justice BrandeisÊ solution is to „remedy the harms of
speech with more speech.‰289 This view moves away from
playing down the danger as merely exaggerated, toward
„tak[ing] the costs seriously and embrac[ing] expression as
the preferred strategy for addressing them.‰290
However, in some cases, the idea of more speech may not
be enough. Professor Laurence Tribe observed the need for
context and „the specification of substantive values before

_______________

283 Id., at pp. 184-192.

284 Id., at p. 186, citing Whitney v. California, 274 US 357, 375 (1927)
(J. Brandeis, concurring).
285 See Joshua Cohen, Freedom of Expression, supra note 281 at p.
187.
286 Id., citing Democracy, p. 134.
287 Id., at p. 179.
288 Id., at p. 202.
289 Id., at p. 200.
290 Id., at p. 201.

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[equality] has full meaning.‰291 Professor Catherine A.

MacKinnon adds that „equality continues to be viewed in a
formal rather than a substantive sense.‰292 Thus, more
speech can only mean more speech from the few who are
dominant rather than those who are not.

Our jurisprudence

This court has tackled these issues.

Osmeña v. COMELEC affirmed National Press Club v.
COMELEC on the validity of Section 11(b) of the Electoral
Reforms Law of 1987.293 This section „prohibits mass media
from selling or giving free of charge print space or air time
for campaign or other political purposes, except to the
Commission on Elections.‰294 This court explained that this
provision only regulates the time and manner of
advertising in order to ensure media equality among
candidates.295 This court grounded this measure on
constitutional provisions mandating political equality:296

Article IX-C, Section 4

Section 4. The Commission may, during the election period,
supervise or regulate the enjoyment or utilization of all franchises
or permits for the operation of transportation and other public
utilities, media of communication or information, all grants, special
privileges, or concessions granted by the Government or any
subdivision, agency, or instrumentality thereof, including any
government-owned or -controlled

_______________

291 See John A. Powell, Worlds Apart: Reconciling Freedom of Speech

and Equality, 85 KY. L. J. 9, 50-51 (1996-1997).
292 Id., at p. 51.
293 Osmeña v. COMELEC, supra note 216 at p. 705; p. 478.
294 Id., at p. 702; p. 461.
295 Id., at p. 706; p. 467.
296 Id., at pp. 713-714; p. 473.

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corporation or its subsidiary. Such supervision or regulation shall

aim to ensure equal opportunity, time, and space, and the right to
reply, including reasonable, equal rates therefor, for public
information campaigns and forums among candidates in connection
with the objective of holding free, orderly, honest, peaceful, and
credible elections. (Emphasis supplied)
Article XIII, Section 1
Section 1. The Congress shall give highest priority to the
enactment of measures that protect and enhance the right of all the
people to human dignity, reduce social, economic, and political
inequalities, and remove cultural inequities by equitably diffusing
wealth and political power for the common good.
To this end, the State shall regulate the acquisition, ownership,
use, and disposition of property and its increments. (Emphasis
supplied)
Article II, Section 26
Section 26. The State shall guarantee equal access to
opportunities for public service, and prohibit political dynasties as
may be defined by law. (Emphasis supplied)

Thus, in these cases, we have acknowledged the

ConstitutionÊs guarantee for more substantive expressive
freedoms that take equality of opportunities into
consideration during elections.

The other view

However, there is also the other view. This is that

considerations of equality of opportunity or equality in the
ability of citizens as speakers should not have a bearing in
free speech doctrine.

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Under this view, „members of the public are trusted to

make their own individual evaluations of speech, and
government is forbidden to intervene for paternalistic or
redistributive reasons . . . [thus,] ideas are best left to a
freely competitive ideological market.‰297 This is consistent
with the libertarian suspicion on the use of viewpoint as
well as content to evaluate the constitutional validity or
invalidity of speech.
The textual basis of this view is that the constitutional
provision uses negative rather than affirmative language.
It uses ÂspeechÊ as its subject and not Âspeakers.Ê298
Consequently, the Constitution protects free speech per se,
indifferent to the types, status, or associations of its
speakers.299 Pursuant to this, „government must leave
speakers and listeners in the private order to their own
devices in sorting out the relative influence of speech.‰300
Justice RomeroÊs dissenting opinion in Osmeña v.
COMELEC formulates this view that freedom of speech
includes „not only the right to express oneÊs views, but also
other cognate rights relevant to the free communication [of]
ideas, not excluding the right to be informed on matters of
public concern.‰301 She adds:

And since so many imponderables may affect the outcome of

elections · qualifications of voters and candidates, education,
means of transportation, health, public discussion, private
animosities, the weather, the threshold of a voterÊs resistance to
pressure · the utmost ventilation of opinion of men and issues,
through assembly,

_______________

297 See Kathleen M. Sullivan, Two Concepts of Freedom of Speech,

124 Harv. L. Rev. 145 (2010).
298 Id., at pp. 155-156.
299 Id., at p. 156.
300 Id., at p. 157.
301 J. Romero, Dissenting Opinion in Osmeña v. COMELEC, supra
note 216 at p. 736; p. 496 [Per J. Mendoza, En Banc].

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association and organizations, both by the candidate and the

voter, becomes a sine qua non for elections to truly reflect the will of
the electorate.302 (Emphasis supplied)

Justice RomeroÊs dissenting opinion cited an American

case, if only to emphasize free speech primacy such that
„courts, as a rule are wary to impose greater restrictions as
to any attempt to curtail speeches with political content,‰303
thus:

the concept that the government may restrict the speech of some
elements in our society in order to enhance the relative voice of the
others is wholly foreign to the First Amendment which was
designed to „secure the widest possible dissemination of information
from diverse and antagonistic sources‰ and „to assure unfettered
interchange of ideas for the bringing about of political and social
changes desired by the people.‰304

This echoes Justice Oliver Wendell HolmesÊ submission

„that the market place of ideas is still the best alternative
to censorship.‰305
Parenthetically and just to provide the whole detail of
the argument, the majority of the US Supreme Court in the
campaign expenditures case of Buckley v. Valeo
„condemned restrictions (even if content-neutral) on
expressive liberty imposed in the name of Âenhanc[ing] the
relative voice of othersÊ

_______________

302 Id., at p. 742; p. 503.

303 Id., at p. 755; p. 516.
304 Id., at p. 750; p. 511, quoting Buckley v. Valeo, 424 US 1 (1976),
citing New York Times v. Sullivan, 84 S Ct. 710, quoting Associated Press
v. United States, 326 US 1 (1945) and Roth v. United States, 484.
305 J. Carpio, Dissenting opinion in Soriano v. Laguardia, G.R. No.
164785, March 15, 2010, 615 SCRA 254, 281 [Per J. Velasco, Jr., En
Banc], citing the Dissenting Opinion of J. Holmes in Abrams v. United
States, 250 U.S. 616, 40 S. Ct. 17, 63 L. Ed. 1173 (1919).

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and thereby Âequaliz[ing] access to the political

arena.ʉ306 The majority did not use the equality-based
paradigm.
One flaw of campaign expenditure limits is that „any
limit placed on the amount which a person can speak,
which takes out of his exclusive judgment the decision of
when enough is enough, deprives him of his free speech.‰307
Another flaw is how „[a]ny quantitative limitation on
political campaigning inherently constricts the sum of
public information and runs counter to our Âprofound
national commitment that debate on public issues should
be uninhibited, robust, and wide-open.ʉ308
In fact, „[c]onstraining those who have funds or have
been able to raise funds does not ease the plight of those
without funds in the first place . . . [and] even if oneÊs main
concern is slowing the increase in political costs, it may be
more effective to rely on market forces to achieve that
result than on active legal intervention.‰309 According to
Herbert Alexander, „[t]o oppose limitations is not
necessarily to argue that the skyÊs the limit [because in]
any campaign there are saturation levels and a point where
spending no longer pays off in votes per dollar.‰310

III.C.
When private speech amounts
to election paraphernalia

_______________

306 See Joshua Cohen, Freedom of Expression, supra note 281 at p.

202 (1996), citing Buckley v. Valeo, 424 U.S. 1, 48-49 (1976).
307 See Joel L. Fleishman, Freedom of Speech and Equality of
Political Opportunity: The Constitutionality of the Federal Election
Campaign Act of 1971, 51 N.C.L. Rev. 389, 453 (1973).
308 Id., at p. 454.
309 Id., at p. 479.
310 Id.

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The scope of the guarantee of free expression takes into

consideration the constitutional respect for human
potentiality and the effect of speech. It valorizes the ability
of human beings to express and their necessity to relate.
On the other hand, a complete guarantee must also take
into consideration the effects it will have in a deliberative
democracy. Skewed distribution of resources as well as the
cultural hegemony of the majority may have the effect of
drowning out the speech and the messages of those in the
minority. In a sense, social inequality does have its effect
on the exercise and effect of the guarantee of free speech.
Those who have more will have better access to media that
reaches a wider audience than those who have less. Those
who espouse the more popular ideas will have better
reception than the subversive and the dissenters of society.
To be really heard and understood, the marginalized view
normally undergoes its own degree of struggle.
The traditional view has been to tolerate the viewpoint
of the speaker and the content of his or her expression.
This view, thus, restricts laws or regulation that allows
public officials to make judgments of the value of such
viewpoint or message content. This should still be the
principal approach.
However, the requirements of the Constitution
regarding equality in opportunity must provide limits to
some expression during electoral campaigns.
Thus clearly, regulation of speech in the context of
electoral campaigns made by candidates or the members of
their political parties or their political parties may be
regulated as to time, place, and manner. This is the effect
of our rulings in Osmeña v. COMELEC and National Press
Club v. COMELEC.
Regulation of speech in the context of electoral
campaigns made by persons who are not candidates or who
do not speak as members of a political party which are,
taken as a whole, principally advocacies of a social issue
that the public must consider during elections is
unconstitutional. Such regulation is inconsistent with the
guarantee of according the fullest

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possible range of opinions coming from the electorate

including those that can catalyze candid, uninhibited, and
robust debate in the criteria for the choice of a candidate.
This does not mean that there cannot be a specie of
speech by a private citizen which will not amount to an
election paraphernalia to be validly regulated by law.
Regulation of election paraphernalia will still be
constitutionally valid if it reaches into speech of persons
who are not candidates or who do not speak as members of
a political party if they are not candidates, only if what is
regulated is declarative speech that, taken as a whole, has
for its principal object the endorsement of a candidate only.
The regulation (a) should be provided by law, (b)
reasonable, (c) narrowly tailored to meet the objective of
enhancing the opportunity of all candidates to be heard and
considering the primacy of the guarantee of free expression,
and (d) demonstrably the least restrictive means to achieve
that object. The regulation must only be with respect to the
time, place, and manner of the rendition of the message. In
no situation may the speech be prohibited or censored on the
basis of its content. For this purpose, it will not matter
whether the speech is made with or on private property.
This is not the situation, however, in this case for two
reasons. First, as discussed, the principal message in the
twin tarpaulins of petitioners consists of a social advocacy.
Second, as pointed out in the concurring opinion of
Justice Antonio Carpio, the present law · Section 3.3 of
Republic Act No. 9006 and Section 6(c) of COMELEC
Resolution No. 9615 · if applied to this case, will not pass
the test of reasonability. A fixed size for election posters or
tarpaulins without any relation to the distance from the
intended average audience will be arbitrary. At certain
distances, posters measuring 2 by 3 feet could no longer be
read by the general public and, hence, would render speech
meaningless. It will amount to the abridgement of speech
with political consequences.

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IV
Right to property

Other than the right to freedom of expression311 and the

meaningful exercise of the right to suffrage,312 the present
case also involves oneÊs right to property.313
Respondents argue that it is the right of the state to
prevent the circumvention of regulations relating to
election propaganda by applying such regulations to
private individuals.314
Certainly, any provision or regulation can be
circumvented. But we are not confronted with this
possibility. Respondents agree that the tarpaulin in
question belongs to petitioners. Respondents have also
agreed, during the oral arguments, that petitioners were
neither commissioned nor paid by any candidate or political
party to post the material on their walls.
Even though the tarpaulin is readily seen by the public,
the tarpaulin remains the private property of petitioners.
Their right to use their property is likewise protected by
the Constitution.
In Philippine Communications Satellite Corporation v.
Alcuaz:315

Any regulation, therefore, which operates as an effective

confiscation of private property or constitutes an arbitrary or
unreasonable infringement of property rights is void, because it is
repugnant to the constitu-

_______________

311 Const., Art. III, Sec. 4.

312 Const., Art. V, Sec. 1
313 Const., Art. III, Sec. 1.
314 Rollo, p. 81.
315 259 Phil. 707; 180 SCRA 218 (1989) [Per J. Regalado, En Banc].

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tional guaranties of due process and equal protection of the

laws.316 (Citation omitted)

This court in Adiong held that a restriction that

regulates where decals and stickers should be posted is „so
broad that it encompasses even the citizenÊs private
property.‰317 Consequently, it violates Article III, Section 1
of the Constitution which provides that no person shall be
deprived of his property without due process of law. This
court explained:

Property is more than the mere thing which a person owns, it

includes the right to acquire, use, and dispose of it; and the
Constitution, in the 14th Amendment, protects these essential
attributes.
Property is more than the mere thing which a person owns. It is
elementary that it includes the right to acquire, use, and dispose of
it. The Constitution protects these essential attributes of property.
Holden v. Hardy, 169 U.S. 366, 391, 41 L. ed. 780, 790, 18 Sup. Ct.
Rep. 383. Property consists of the free use, enjoyment, and disposal
of a personÊs acquisitions without control or diminution save by the
law of the land. 1 CooleyÊs Bl. Com. 127. (Buchanan v. Warley, 245
US 60 [1917])318

This court ruled that the regulation in Adiong violates

private property rights:

The right to property may be subject to a greater degree of

regulation but when this right is joined by a „liberty‰ interest, the
burden of justification on the part of the Government must be
exceptionally convincing and irrefutable. The burden is not met in
this case.
Section 11 of Rep. Act 6646 is so encompassing and invasive that
it prohibits the posting or display of elec-

_______________

316 Id., at pp. 721-722; pp. 231-232.

317 Adiong v. COMELEC, supra note 164 at p. 720.
318 Id., at p. 721.

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tion propaganda in any place, whether public or private, except

in the common poster areas sanctioned by COMELEC. This means
that a private person cannot post his own crudely prepared personal
poster on his own front door or on a post in his yard. While the
COMELEC will certainly never require the absurd, there are no
limits to what overzealous and partisan police officers, armed with
a copy of the statute or regulation, may do.319

Respondents ordered petitioners, who are private

citizens, to remove the tarpaulin from their own property.
The absurdity of the situation is in itself an indication of
the unconstitutionality of COMELECÊs interpretation of its
powers.
Freedom of expression can be intimately related with
the right to property. There may be no expression when
there is no place where the expression may be made.
COMELECÊs infringement upon petitionersÊ property rights
as in the present case also reaches out to infringement on
their fundamental right to speech.
Respondents have not demonstrated that the present
state interest they seek to promote justifies the intrusion
into petitionersÊ property rights. Election laws and
regulations must be reasonable. It must also acknowledge a
private individualÊs right to exercise property rights.
Otherwise, the due process clause will be violated.
COMELEC Resolution No. 9615 and the Fair Elections
Act intend to prevent the posting of election propaganda in
private property without the consent of the owners of such
private property. COMELEC has incorrectly implemented
these regulations. Consistent with our ruling in Adiong, we
find that the act of respondents in seeking to restrain
petitioners from posting the tarpaulin in their own private
property is an impermissible encroachments on the right to
property.

_______________

319 Id., at pp. 721-722.

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V
Tarpaulin and its message are not religious speech

We proceed to the last issues pertaining to whether the

COMELEC in issuing the questioned notice and letter
violated the right of petitioners to the free exercise of their
religion.
At the outset, the Constitution mandates the separation
of church and state.320 This takes many forms. Article III,
Section 5 of the Constitution, for instance provides:

Section 5. No law shall be made respecting an establishment of

religion, or prohibiting the free exercise thereof. The free exercise
and enjoyment of religious profession and worship, without
discrimination or preference, shall forever be allowed. No religious
test shall be required for the exercise of civil or political rights.
 There are two aspects of this provision.321 The first is the
nonestablishment clause.322 Second is the free exercise and
enjoyment of religious profession and worship.323
The second aspect is at issue in this case.
Clearly, not all acts done by those who are priests,
bishops, ustadz, imams, or any other religious make such
act immune

_______________

320 Const., Art. II, Sec. 6 provides that „[t]he separation of Church
and State shall be inviolable.‰
321 See Re: Request of Muslim Employees in the Different Courts in
Iligan City (Re: Office Hours), 514 Phil. 31, 38; 477 SCRA 648, 655 (2005)
[Per J. Callejo, Sr., En Banc].
322 See Ebralinag v. The Division Superintendent of Schools of Cebu,
supra note 148.
323 See Islamic DaÊwah Council of the Philippines, Inc. v. Office of the
Executive Secretary, 453 Phil. 440; 405 SCRA 497 (2003) [Per J. Corona,
En Banc]. See also German v. Barangan, 220 Phil. 189; 135 SCRA 514
(1985) [Per J. Escolin, En Banc].

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from any secular regulation.324 The religious also have a

secular existence. They exist within a society that is
regulated by law.
The Bishop of Bacolod caused the posting of the
tarpaulin. But not all acts of a bishop amounts to religious
expression. This notwithstanding petitionersÊ claim that
„the views and position of the petitioners, the Bishop and
the Diocese of Bacolod, on the RH Bill is inextricably
connected to its Catholic dogma, faith, and moral
teachings. . . .‰325
The difficulty that often presents itself in these cases
stems from the reality that every act can be motivated by
moral, ethical, and religious considerations. In terms of
their effect on the corporeal world, these acts range from
belief, to expressions of these faiths, to religious
ceremonies, and then to acts of a secular character that
may, from the point of view of others who do not share the
same faith or may not subscribe to any religion, may not
have any religious bearing.
Definitely, the characterizations of the religious of their
acts are not conclusive on this court. Certainly, our powers
of adjudication cannot be blinded by bare claims that acts
are religious in nature.
Petitioners erroneously relied on the case of Ebralinag v.
The Division Superintendent of Schools of Cebu326 in
claiming that the court „emphatically‰ held that the
adherents of a particular religion shall be the ones to
determine whether a particular matter shall be considered
ecclesiastical in nature.327 This court in Ebralinag
exempted JehovahÊs Witnesses from participating in the
flag ceremony „out of respect for their religious beliefs, [no
matter how] „bizarre‰ those beliefs

_______________

324 See Pamil v. Teleron, 176 Phil. 51; 86 SCRA 413 (1978) [Per J.
Fernando, En Banc].
325 Rollo, p. 13.
326 Ebralinag v. The Division Superintendent of Schools of Cebu,
supra note 148.
327 Rollo, p. 140.

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may seem to others.‰328 This court found a balance

between the assertion of a religious practice and the
compelling necessities of a secular command. It was an
early attempt at accommodation of religious beliefs.
In Estrada v. Escritor,329 this court adopted a policy of
benevolent neutrality:

With religion looked upon with benevolence and not hostility,

benevolent neutrality allows accommodation of religion under
certain circumstances. Accommodations are government policies
that take religion specifically into account not to promote the
governmentÊs favored form of religion, but to allow individuals and
groups to exercise their religion without hindrance. Their purpose
or effect therefore is to remove a burden on, or facilitate the exercise
of, a personÊs or institutionÊs religion. As Justice Brennan explained,
the „government [may] take religion into account . . . to exempt,
when possible, from generally applicable governmental regulation
individuals whose religious beliefs and practices would otherwise
thereby be infringed, or to create without state involvement an
atmosphere in which voluntary religious exercise may flourish.‰330

This court also discussed the Lemon test in that case,

such that a regulation is constitutional when: (1) it has a
secular legislative purpose; (2) it neither advances nor
inhibits relig-

_______________

328 Id., at p. 273.

329 455 Phil. 411; 408 SCRA 1 (2003) [Per J. Puno, En Banc] [CJ.
Davide, Jr., JJ. Austria-Martinez, Corona, Azcuna, Tinga, and Vitug,
concurring; J. Bellosillo, concurring in the result; JJ. Panganiban,
Ynares-Santiago, Carpio, Carpio-Morales, Callejo, Sr., dis​senting; JJ.
Quisumbing and Sandoval-Gutierrez, On Official Leave].
330 Id., at pp. 522-523; p. 121, citing Michael W. McConnell,
Accommodation of Religion: An Update and a Response to the Critics, 60
(3) Geo. Wash. L. Rev. 685, 688 (1992).

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ion; and (3) it does not foster an excessive entanglement

with religion.331
As aptly argued by COMELEC, however, the tarpaulin,
on its face, „does not convey any religious doctrine of the
Catholic church.‰332 That the position of the Catholic
church appears to coincide with the message of the
tarpaulin regarding the RH Law does not, by itself, bring
the expression within the ambit of religious speech. On the
contrary, the tarpaulin clearly refers to candidates
classified under „Team Patay‰ and „Team Buhay‰ according
to their respective votes on the RH Law.
The same may be said of petitionersÊ reliance on papal
encyclicals to support their claim that the expression on
the tarpaulin is an ecclesiastical matter. With all due
respect to the Catholic faithful, the church doctrines relied
upon by petitioners are not binding upon this court. The
position of the Catholic religion in the Philippines as
regards the RH Law does not suffice to qualify the posting
by one of its members of a tarpaulin as religious speech
solely on such basis. The enumeration of candidates on the
face of the tarpaulin precludes any doubt as to its nature as
speech with political consequences and not religious
speech.
Furthermore, the definition of an „ecclesiastical affair‰
in Austria v. National Labor Relations Commission333 cited
by petitioners finds no application in the present case. The
posting of the tarpaulin does not fall within the category of
matters that are beyond the jurisdiction of civil courts as
enumerated in the Austria case such as „proceedings for
excommunication, ordinations of religious ministers,
administration

_______________

331 Estrada v. Escritor, supra note 329 at p. 506; pp. 106-107, citing
Lemon v. Kurtzman, 403 U.S. 602, 612-613 (1971).
332 Rollo, p. 86.
333 371 Phil. 340; 312 SCRA 410 (1999) [Per J. Kapunan, First
Division].

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of sacraments and other activities with attached

religious significance.‰334

A FINAL NOTE

We maintain sympathies for the COMELEC in

attempting to do what it thought was its duty in this case.
However, it was misdirected.
COMELECÊs general role includes a mandate to ensure
equal opportunities and reduce spending among candidates
and their registered political parties. It is not to regulate or
limit the speech of the electorate as it strives to participate
in the electoral exercise.
The tarpaulin in question may be viewed as producing a
caricature of those who are running for public office. Their
message may be construed generalizations of very complex
individuals and party list organizations.
They are classified into black and white: as belonging to
„Team Patay‰ or „Team Buhay.‰
But this caricature, though not agreeable to some, is still
protected speech.
That petitioners chose to categorize them as purveyors
of death or of life on the basis of a single issue · and a
complex piece of legislation at that · can easily be
interpreted as an attempt to stereotype the candidates and
party list organizations. Not all may agree to the way their
thoughts were expressed, as in fact there are other Catholic
dioceses that chose not to follow the example of petitioners.
Some may have thought that there should be more room
to consider being more broad-minded and nonjudgmental.
Some may have expected that the authors would give more
space to practice forgiveness and humility.

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334 Id., at p. 353; pp. 421-422.

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But, the Bill of Rights enumerated in our Constitution is

an enumeration of our fundamental liberties. It is not a
detailed code that prescribes good conduct. It provides
space for all to be guided by their conscience, not only in
the act that they do to others but also in judgment of the
acts of others.
Freedom for the thought we can disagree with can be
wielded not only by those in the minority. This can often be
expressed by dominant institutions, even religious ones.
That they made their point dramatically and in a large way
does not necessarily mean that their statements are true,
or that they have basis, or that they have been expressed in
good taste.
Embedded in the tarpaulin, however, are opinions
expressed by petitioners. It is a specie of expression
protected by our fundamental law. It is an expression
designed to invite attention, cause debate, and hopefully,
persuade. It may be motivated by the interpretation of
petitioners of their ecclesiastical duty, but their
parishionerÊs actions will have very real secular
consequences.
Certainly, provocative messages do matter for the
elections.
What is involved in this case is the most sacred of
speech forms: expression by the electorate that tends to
rouse the public to debate contemporary issues. This is not
speech by candidates or political parties to entice votes. It
is a portion of the electorate telling candidates the
conditions for their election. It is the substantive content of
the right to suffrage.
This is a form of speech hopeful of a quality of
democracy that we should all deserve. It is protected as a
fundamental and primordial right by our Constitution. The
expression in the medium chosen by petitioners deserves
our protection.
WHEREFORE, the instant petition is GRANTED. The
temporary restraining order previously issued is hereby
made permanent. The act of the COMELEC in issuing the
assailed

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notice dated February 22, 2013 and letter dated

February 27, 2013 is declared unconstitutional.
SO ORDERED.

Sereno (CJ.), Leonardo-De Castro, Del Castillo,

Villarama, Jr., Perez, Mendoza and Reyes, JJ., concur.
Carpio, J., See Separate Concurring Opinion.
Velasco, Jr., J., I join the dissent of J. Brion.
Brion,** J., On Official Leave.
Peralta, J., I join J. CarpioÊs Opinion.
Bersamin, J., I join the dissent of J. Brion.
Perlas-Bernabe, J., See Separate Concurring Opinion.
Jardeleza, J., No Part.

SEPARATE CONCURRING OPINION

CARPIO, J.:
 I join the holding of the ponencia setting aside the „take
down‰ notices1 sent by the Commission on Elections
(COMELEC) to petitioners. My concurrence, however, is
grounded on the fact that such notices, and the
administrative and statutory provisions on which they are
based, are content-​neutral regulations of general
applicability repugnant to the Free Speech Clause. Hence,
I vote to strike down not only the COMELEC notices
but also Section 6(c) of COMELEC Resolution No.
9615, dated 15 January 2013 (Resolution 9615), the
regulatory basis for the COMELEC notices,

_______________

* * As per CJ. Sereno, J. Brion left his vote. See his Dissenting
Opinion.
1 Dated 22 February 2013 and 27 February 2013.

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and Section 3.3 of Republic Act No. 9006 (RA 9006),

the statutory basis for Resolution 9615.

Section 3.3 of RA 9006, Section 6(c) of Resolution

9615, and the COMELEC Notices Repugnant
to the Free Speech Clause

The COMELEC notices were based on Section 6(c) of

Resolution 9615, dated 15 January 2013, which provides:

Lawful Election Propaganda. x x x.

Lawful election propaganda shall include:
xxxx
c. Posters made of cloth, paper, cardboard or any other
material, whether framed or posted, with an area not exceeding two
feet (2Ê) by three feet (3Ê). (Emphasis supplied)

This provision is, in turn, based on Section 3.3 of RA

9006:

Lawful Election Propaganda. x x x.

For the purpose of this Act, lawful election propaganda shall
include:
xxxx
3.3. Cloth, paper or cardboard posters, whether framed or
posted, with an area not exceeding two (2) feet by three (3) feet
x x x. (Emphasis supplied)

The COMELEC required petitioner Navarra to remove

the streamer hanging within the compound of the Roman
Catholic church in Bacolod City because, at six by ten feet,
it exceeded the maximum size for election posters under
Section 3.3 of RA 9006 as implemented by Resolution 9615.

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Section 3.3 of RA 9006 and Section 6(c) of Resolution

9615, Regulations of General Applicability

Section 3.3 of RA 9006 and its implementing rule for the

2013 elections, Section 6(c) of Resolution 9615, are
regulations of general applicability, covering campaign
speech of all · candidates, noncandidates, political parties
and non-political parties. This conclusion is compelled by
the absence of any provision in RA 9006, and indeed, in any
related statutes, limiting their application only to the
campaign speech of candidates and political parties. On the
contrary, the penal clause of RA 9006 is couched in broad
language encompassing within its ambit anyone who
breaches its provisions: „[v]iolation of th[e] Act and the
rules and regulations of the COMELEC issued to
implement [it] shall be an election offense punishable
under the first and second paragraphs of Section 264 of the
Omnibus Election Code.‰2 Indeed, RA 9006 regulates a host
of other campaign related acts, such as the airing and
printing of paid political ads (Section 3.4 in relation to
Section 4) and the conduct of election surveys (Section 5),
which involve not only political parties and
candidates but also other individuals or entities who
fall within the ambit of these provisions. RA 9006 is a
generally applicable law as much as the Omnibus Election
Code is in the field of election propaganda regulation.
To hold the COMELEC without authority to enforce
Section 3.3 of RA 9006 against noncandidates and non-
political parties, despite the absence of any prohibition
under that law, is not only to defeat the constitutional
intent behind the regulation of „minimiz[ing] election
spending‰3 but also to open a backdoor through which
candidates and political parties can indirectly circumvent
the myriad campaign speech regula-

_______________

2 Section 13, third paragraph.

3 Article IX-C, Section 2(7), Constitution.

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tions the government adopted to ensure fair and orderly

elections.
„Election spending‰ refers not only to expenses of
political parties and candidates but also to expenses
of their supporters. (Otherwise, all the limitations on
election spending and on what constitutes lawful
election propaganda would be meaningless). Freeing
non-candidates and non-parties from the coverage of RA
9006 allows them to (1) print campaign ad banners and
posters of any size and in any quantity, (2) place TV and
radio ads in national and local stations for any length of
time, and (3) place full-page print ads in broadsheets,
tabloids and related media. Obviously, printing posters of
any size, placing full-page print ads, and running extended
broadcast ads all entail gargantuan costs.4 Yet, under the
ponenciaÊs holding, so long as these are done by
noncandidates and non​political parties, the state is
powerless to regulate them.
The second evil which results from treating private
campaign speech as absolutely protected (and thus beyond
the power of the state to regulate) is that candidates and
political parties, faced with the limitations on the size of
print ads and maximum airtime for TV and radio ads
under RA 9006, will have a ready means of circumventing
these limitations by simply channeling their campaign
propaganda activities to supporters who do not happen to
be candidates or political parties. Thus, voters during an
election season can one day wake up to find print media
and broadcast airwaves blanketed with political ads,
running full-page and airing night and day, respectively, to
promote certain candidates, all paid for by a noncandidate
billionaire supporter. Such bifurcated application of RA
9006Ês limitations on the sizes of print ads

_______________

4 For selected TV and radio broadcast rates during the 2013 elections,
see GMA Network, Inc. v. Commission on Elections, G.R. No. 205357, 2
September 2014, 734 SCRA 88 (Carpio, J., concurring).

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(Section 6.15) and maximum broadcast time for TV and

radio campaign ads (Section 6.26) defeats the purpose of
regulating campaign speech.

Section 3.3 of RA 9006 and Section 6(c) of Resolution

9615, Content-Neutral Regulations which imper​mis​-
sibly restrict Freedom of Speech

Section 3.3 of RA 9006 and Section 6(c) of Resolution

9615 regulate campaign posters by limiting their size to
two by three feet, regardless of what is printed on the face
of the posters. These provisions are classic examples
of content-neutral regulations which restrict the
manner by which speech is relayed but not the
content of what is conveyed. Thus, the notices sent by
the COMELEC to petitioner Navarra required the latter to
remove the streamer in question not because it contained a
message favoring and disfavoring certain senatorial
candidates who ran in the last elections but because the
streamer, taking into account existing law, was
„oversized.‰
Testing the validity of content-neutral regulations like
the statutory and administrative provisions in question,
requires analysis along four prongs, namely, whether (1)
they are
_______________

5 This provides: „Print advertisements shall not exceed one-fourth

(1/4) page, in broadsheet and one-half (1/2) page in tabloids thrice a week
per newspaper, magazine or other publications, during the campaign
period.‰
6 This provides, in relevant parts: „(a) Each bona fide candidate or
registered political party for a nationally elective office shall be entitled
to not more than one hundred twenty (120) minutes of television
advertisement and one hundred eighty (180) minutes of radio
advertisement whether by purchase or donation.
(b) Each bona fide candidate or registered political party for a locally
elective office shall be entitled to not more than sixty (60) minutes of
television advertisement and ninety (90) minutes of radio advertisement
whether by purchase or donation.‰

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within the constitutional power of the government; (2)

they further an important or substantial governmental
interest; (3) the governmental interest is unrelated to the
suppression of free expression; and (4) the incidental
restriction on freedoms of speech, expression and press is
no greater than is essential to the furtherance of that
interest.7 The level of interest required of the government
to justify the validity of content-neutral regulations ·
„important or substantial‰ · is lower than the most
stringent standard of „compelling interest‰ because such
regulations are „unrelated to the suppression of free
expression.‰8 Proof of compelling interest is required of the
government only in the scrutiny of content-based
regulations which strike at the core of the freedoms of
speech, of expression and of the press protected by the Free
Speech Clause.9 Nevertheless, content-neutral
regulations may still fail constitutional muster if
„the incidental restriction on [expressive] freedoms
is x x x greater than is essential to the furtherance‰
of the proffered government interest.10
No serious objections can be raised against the
conclusion that it was within the governmentÊs
constitutional powers to adopt Section 3.3 of RA 9006 and
Section 6(c) of Resolution 9615. Nor is there any quarrel
that these regulations advance the important and
substantial government interests of „minimiz[ing] election
spending‰ and ensuring orderly elections in light of
unmistakable connection between the size of

_______________

7 These are commonly referred to as the four prongs of the OÊBrien

test from United States v. OÊBrien, 391 U.S. 367 (1968), which has been
adopted in this jurisdiction (see Osmeña v. COMELEC, 351 Phil. 692;
228 SCRA 447 (1998); Social Weather Stations, Inc. v. COMELEC, 409
Phil. 571; 357 SCRA 496 (2001).
8 Osmeña v. COMELEC, id.
9 See Texas v. Johnson, 491 U.S. 397 (1989).
10 See Social Weather Stations, Inc. v. COMELEC, supra, (striking
down Section 5.4 of RA 9006 for failing the third and fourth prongs of the
OÊBrien test).

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campaign posters, on the one hand, and the overall cost

of campaigns and orderly dissemination of campaign
information, on the other hand. As these interests relate to
the reduction of campaign costs and the maintenance of
order, they are also „unrelated to the suppression of free
expression.‰ It is in the extent of the incidental restriction
wrought by these regulations on expressive freedoms where
they ran afoul with the Free Speech Clause.
As crafted, Section 3.3 of RA 9006 provides a uniform
and fixed size for all campaign posters, two by three feet,11
irrespective of the location where the posters are placed in
relation to the distance from the nearest possible viewer.
Thus, whether placed at a common poster area, at
the gate of a residential house or outside a 30th floor
condominium unit, the campaign poster must be of
the same size. However, when placed at the 30th floor of a
condominium, the letters in a two by three feet poster
would be so small that they would no longer be readable
from the ground or from the street.
A space of two by three feet can only accommodate so
much number of letters of a particular size to be reasonably
visible to the reader standing from a certain distance. Even
if only the name of a single candidate, the position he
seeks, and his party affiliation are printed on the poster,
the limited space available allows the printing of these
data using letters of relatively small size, compared with
those printed in a larger canvass. The size of the letters
inevitably shrinks if more names and data are added to the
poster.
The practical effect of the fixed-size rule under Section
3.3 of RA 9006 (and its implementing rule) is to further
narrow the choices of poster locations for anyone wishing to
display

_______________

11 The dimensions for streamers for display during rallies or

announcing its holding are different (three by eight feet) (Section 3.3).

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them in any of the venues allowed by law.12 Voters who

wish to make known to the public their choice of candidates
(or for that matter, candidates who wish to advertise their
candidacies) through the display of posters are precluded
from doing so from certain areas not because these areas
are off-limits but because, for reasons of geography vis-à-
vis the size of the poster, their contents simply become
illegible. Such restriction on campaign speech appears to
me to be „greater than is essential‰ to advance the
important government interests of minimizing election
spending and ensuring orderly elections. To satisfy the
strictures of the Free Speech Clause, Congress needs to
craft legislation on the sizing of campaign posters and
other paraphernalia with sufficient flexibility to address
concerns inherent in the present fixed-dimension model.
Accordingly, I vote to GRANT the petition and
DECLARE UNCONSTITUTIONAL (1) Section 3.3 of
Republic Act No. 9006; (2) Section 6(c) of COMELEC
Resolution No. 9615, dated 15 January 2013; and (3) the
notices, dated 22 February 2013 and 27 February 2013, of
the Commission on Elec-
_______________

12 E.g., Section 9 of RA 9006 which provides:

Posting of Campaign Materials.·The COMELEC may authorize
political parties and party list groups to erect common poster areas for
their candidates in not more than ten (1) public places such as plazas,
markets, barangay centers and the like, wherein candidates can post,
display or exhibit election propaganda: Provided, That the size of the
poster areas shall not exceed twelve (12) by sixteen (16) feet or its
equivalent.
Independent candidates with no political parties may likewise be
authorized to erect common poster areas in not more than ten (10) public
places, the size of which shall not exceed four (4) by six (6) feet or its
equivalent.
Candidates may post any lawful propaganda material in private
places with the consent of the owner thereof, and in public places or
property which shall be allocated equitably and impartially among the
candidates.

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tions for being violative of Section 4, Article III of the

Constitution.

DISSENTING OPINION

BRION, J.:

Prefatory Statement

The present case asks us to determine whether

respondent Commission on Elections (Comelec) should be
prevented from implementing the size restrictions in
Republic Act No. 9006 (RA 9006, otherwise known as the
Fair Elections Act) to the six by ten feet tall tarpaulin
posted by petitioner Diocese of Bacolod containing the
message „RH LAW IBASURA‰ during the election period.
The ponente opts to give due course to the petition
despite obvious jurisprudential, practical and procedural
infirmities that will prejudicially impact on established
rules to the detriment of the electoral process; that
confuses the lines between right of free speech and election
propaganda; and that inordinately disregards
constitutional electoral values through its misplaced views
on the right to free speech · a right that can exist only if
this country continues to be a democratic one where leaders
are elected under constitutionally established electoral
values and orderly processes.
Thus, the ponente declares as unconstitutional Section
3.3 of RA 9006, and its implementing rule, Section 6(c) of
Comelec Resolution No. 9615, for violating the freedom of
speech. In so doing, it classifies the size restrictions in RA
9006 as a content-based regulation and applied the strict
scrutiny test to a regulation of a posterÊs size.
In my view, the petition prematurely availed of the
CourtÊs power of judicial review BY OPENLY
DISREGARDING ESTABLISHED COMELEC
PROCESSES BY BYPASSING THE COMELEC EN BANC.
This is a legal mortal sin that will sow

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havoc in future cases before this Court. The petition

consequently failed to show any prima facie case of grave
abuse of discretion on the part of the Comelec, as it had not
yet finally decided on its course of action.
Most importantly, the issues the petition presents have
now been MOOTED and do not now present any LIVE
CONTROVERSY. The Court will recall that we
immediately issued a temporary restraining order to halt
further Comelec action, so that the petitioner was
effectively the prevailing party when the elections · the
critical time involved in this case · took place.
Subsequently, the interest advocated in the disputed
tarpaulin was decided by this Court to the satisfaction of
the public at large, among them the Church whose right to
life views prevailed. THESE ARE CIRCUMSTANCES
THAT SHOULD DISSUADE THIS COURT FROM
RULING ON A CASE THAT WEIGHS THE RIGHTS OF
FREE SPEECH AND DEMOCRATIC ELECTORAL
VALUES.
A point that should not be missed is that the disputed
tarpaulin is covered by regulations under RA 9006, as it
falls within the definition of election propaganda. The key
in determining whether a material constitutes as election
propaganda lies in whether it is intended to promote the
election of a list of candidates it favors and/or oppose
the election of candidates in another list. RA 9006 did
not, as the ponente infers, require that the material be
posted by, or in behalf of the candidates and/or political
parties.
Lastly, the assailed law is a valid content-neutral
regulation on speech, and is thus not unconstitutional. The
assailed regulation does not prohibit the posting of posters;
does not limit the number of allowable posters that may be
posted; and does not even restrict the place where election
propaganda may be posted. It only regulates the postersÊ
size.
To reiterate, our decision in the present case sets the
tone in resolving future conflicts between the values before
us. While freedom of speech is paramount, it does have its
limits. We should thus be careful in deciding the present
case, such

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that in recognizing one manÊs right to speak, we do not

end up sacrificing the ideals in which our republican,
democratic nation stands upon.
IN SUM, THE MORE PRUDENT APPROACH FOR
THIS COURT IS TO SIMPLY DISMISS THE PETITION
FOR MOOTNESS AND PROCEDURAL INFIRMITIES,
AND TO PROCEED TO THE WEIGHING OF
CONSTITUTIONAL VALUES IN A FUTURE LIVE AND
MORE APPROPRIATE CASE WHERE OUR RULING
WILL CLARIFY AND ELUCIDATE RATHER THAN
CONFUSE.

I. Factual Antecedent

This case reached us through a special civil action for

certiorari and prohibition with application for preliminary
injunction and temporary restraining order under Rule 65
of the Rules of Court. The petition assails the ComelecÊs
Notice to Remove Campaign Materials that it issued
through Election Officer Mavil V. Majarucon on February
22, 2013, and through Comelec Law Director Esmeralda
Amora-Ladra on February 27, 2013.
The assailed notices direct the petitioners to remove the
tarpaulin (subject poster) they placed within a private
compound housing at the San Sebastian Cathedral of
Bacolod on February 21, 2013 for exceeding the size
limitations on election propaganda. The notice dated
February 27, 2013 warned the petitioners that the Comelec
Law Department would be forced to file an election offense
case against them if the subject poster would not be
removed.
The petitioners responded by filing the present petition
assailing the two notices the Comelec sent to them on the
ground that the poster is not a campaign material, and
is hence outside the coverage of Comelec Resolution
No. 9615. The petitioners also supported their position by
invoking their rights to freedom of expression and
freedom of religion.

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II. Procedural Arguments

A. Reviewability of the assailed notices as an

administrative act of the Comelec

The ponente posits that a judicial review of the size

limitations under RA 9006 is necessary, as it has a chilling
effect on political speech. According to the ponente, the
present petition has triggered the CourtÊs expanded
jurisdiction since the ComelecÊs letter and notice threaten
the fundamental right to speech.
To be sure, the concept of judicial power under the 1987
Constitution recognizes its (1) traditional jurisdiction to
settle actual cases or controversies; and (2) expanded
jurisdiction to determine whether a government agency or
instrumentality committed a grave abuse of discretion.1
The exercise of either power could pave the way to the
CourtÊs power of judicial review, the CourtÊs authority to
strike down acts of the legislative and/or executive,
constitutional bodies or administrative agencies that are
contrary to the Constitution.2
 Judicial review under the traditional jurisdiction of the
Court requires the following requirements of justiciability:
(1) there must be an actual case or controversy calling
for the exercise of judicial power; (2) the person challenging
the act must have the standing to question the validity of
the subject act or issuance; otherwise stated, he must have
a personal and substantial interest in the case such that he
has sustained, or will sustain, direct injury as a result of its
enforcement; (3) the question of constitutionality must be

_______________

1 See J. BrionÊs discussion on the Power of Judicial Review in his

Concurring Opinion in Imbong v. Ochoa, Jr., G.R. No. 204819, April 8,
2014, 721 SCRA 146, 487-489.
2 Garcia v. Executive Secretary, G.R. No. 157584, April 2, 2009, 583
SCRA 119, 128-129.

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raised at the earliest opportunity; and (4) the issue

of constitutionality must be the very lis mota of the case.3
Failure to meet any of these requirements justifies the
CourtÊs refusal to exercise its power of judicial review
under the CourtÊs traditional power. The Court, however,
has, in several instances, opted to relax one or more of
these requirements to give due course to a petition
presenting issues of transcendental importance to the
nation.
In these cases, the doctrine of transcendental
importance relaxes the standing requirement, and thereby
indirectly relaxes the injury embodied in the actual case or
controversy requirement. Note at this point that an actual
case or controversy is present when the issues it poses are
ripe for adjudication, that is, when the act being challenged
has had a direct adverse effect on the individual
challenging it. Standing, on the other hand, requires a
personal and substantial interest manifested through a
direct injury that the petitioner has or will sustain as a
result of the questioned act.
Thus, when the standing is relaxed because of the
transcendental importance doctrine, the character of the
injury presented to fulfill the actual case or controversy
requirement is likewise tempered. When we, for instance,
say that the petitioners have no standing as citizens or as
taxpayers but we nevertheless give the petition due course,
we indirectly acknowledge that the injury that they had or
will sustain is not personally directed towards them, but to
the more general and abstract Filipino public.
A readily apparent trend from jurisprudence invoking
the transcendental importance doctrine shows its
application in cases where the government has committed
grave abuse of discretion amounting to lack of, or excess of
jurisdiction. This

_______________

3 Senate of the Philippines v. Ermita, G.R. No. 169777, April 20, 2006,
488 SCRA 1, 35; and Francisco, Jr. v. Nagmamalasakit na mga
Manananggol ng mga Manggagawang Pilipino, Inc., 460 Phil. 830, 842;
415 SCRA 44, 133 (2003).

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strong correlation between the exercise of the CourtÊs

expanded jurisdiction and its use of the transcendental
importance doctrine reflects the formerÊs distinct nature
and origin. The CourtÊs expanded jurisdiction roots from
the constitutional commissionersÊ perception of the political
question doctrineÊs overuse prior to the 1987 Constitution,
a situation that arguably contributed to societal unrest in
the years preceding the 1987 Constitution.
The political question doctrine prevents the Court from
deciding cases that are of a political nature, and leaves the
decision to the elected-officials of government. In other
words, the Court, through the political question doctrine,
defers to the judgment and discretion of the Executive and
Legislature, matters that involve policy because they are
the peopleÊs elected officials and hence are more directly
accountable to them.
The 1987 Constitution, recognizing the importance of
the CourtÊs active role in checking abuses in government,
relaxed the political question doctrine and made it a duty
upon the Court to determine whether there had been
abuses in the governmentÊs exercise of discretion and
consequently nullify such actions that violate the
Constitution albeit in the narrow and limited instances of
grave abuse of discretion. Thus, when a government
agencyÊs exercise of discretion is so grave as to amount to
an excess or lack of jurisdiction, it becomes the duty to step
in and check for violations of the Constitution. In these
instances, the political question doctrine cannot prevent
the Court from determining whether the government
gravely abused its jurisdiction, against the back drop of the
Constitution.
Necessarily, the governmentÊs act of grave abuse of
discretion, more so if it has nationwide impact, involves a
matter of transcendental importance to the nation. On the
other hand, when the governmentÊs act involves a
legitimate exercise of discretion, or amounts to an abuse of
discretion that is not grave, then the need to temper
standing requirements

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through the transcendental importance doctrine is not

apparent.
This correlation between the CourtÊs use of the
transcendental doctrine requirement and its eventual
exercise of the power of judicial review under its expanded
jurisdiction warrants a review, prima facie, of whether
there had been a grave abuse of discretion on the part of
government. Where there is a showing prima facie of grave
abuse, the Court relaxes its locus standi requirement (and
indirectly its actual case or controversy requirement)
through the transcendental importance doctrine. Where
there is no showing of prima facie grave abuse, then the
requirements of justiciability are applied strictly.
Thus, translated in terms of the CourtÊs expanded
jurisdiction, the actual case or controversy requirement is
fulfilled by a prima facie showing of grave abuse of
discretion. This approach reflects the textual requirement
of grave abuse of discretion in the second paragraph of
Article VIII, Section 1 of the 1987 Constitution. As I have
earlier pointed out in my separate opinion in Araullo v.
Aquino, justiciability under the expanded judicial power
expressly and textually depends only on the presence or
absence of grave abuse of discretion, as distinguished from
a situation where the issue of constitutional validity is
raised within a „traditionally‰ justiciable case which
demands that the requirement of actual controversy based
on specific legal rights must exist.
That a case presents issues of transcendental
importance, on the other hand, justifies direct resort to this
Court without first complying with the doctrine of
hierarchy of courts.
A review of the petition shows that it has failed to show
a prima facie case of grave abuse of discretion on the part
of the Comelec.
The petition characterizes the notices as administrative
acts of the Comelec that are outside the latterÊs jurisdiction
to perform. The ComelecÊs administrative function refers
to

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the enforcement and administration of election laws.

Under Section 2(6), Article IX-C of the Constitution, the
Comelec is expressly given the power to „prosecute cases of
violations of election laws, including acts or omissions
constituting election frauds, offenses, and malpractices.‰
The constitutional grant to the Comelec of the power to
investigate and to prosecute election offenses as an adjunct
to the enforcement and administration of all election laws
is intended to enable the Comelec to effectively ensure to
the people the free, orderly, and honest conduct of
elections.4
This administrative function is markedly distinct from
the ComelecÊs two other powers as an independent
government agency established under the 1987
Constitution, i.e., its quasi-legislative power to issue
rules and regulations to implement the provisions of the
1987 Constitution,5 the Omnibus Election Code,6 and other
election laws;7 and its quasi-

_______________

4 Pimentel, Jr. v. COMELEC, 352 Phil. 424; 289 SCRA 586 (1998).
 5 Article IX-C, Section 2 of the 1987 Constitution provides:
Section 2. The Commission on Elections shall exercise the following
powers and functions:
(1) Enforce and administer all laws and regulations relative to the
conduct of an election, plebiscite, initiative, referendum, and recall. x x x
6 Sec. 52. Powers and functions of the Commission on Elections.·In
addition to the powers and functions conferred upon it by the
Constitution, the Commission shall have exclusive charge of the
enforcement and administration of all laws relative to the conduct of
elections for the purpose of ensuring free, orderly and honest elections,
and shall:
xxxx
(c) Promulgate rules and regulations implementing the provisions of
this Code or other laws which the Commission is required to enforce and
administer, and require the payment of legal fees and collect the same in
payment of any business done in the Commission, at rates that it may
provide and fix in its rules and regulations.

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judicial power to resolve controversies arising from the

enforcement of election laws, and to be the sole judge of all
pre-proclamation controversies and of all contests relating
to the elections, returns, and qualifications.8
The nature of the assailed action of the Comelec is
essential to determine the proper remedy by which a
review of its actions can reach this Court. As a general
rule, an administrative order of the Comelec is not an
appropriate subject of a special civil action for
certiorari.9
Through jurisprudence, the Court has clarified that the
petition for certiorari under Rule 64 in relation to Rule 65
of the Rules of Court covers only the ComelecÊs quasi-
judicial functions.10 By reason of its distinct role in our
scheme of government, the Comelec is allowed considerable
latitude in devising means and methods to ensure the
accomplishment of the great objective for which it was
created · free, orderly and

_______________

x x x. See Bedol v. Commission on Elections, G.R. No. 179830,

December 3, 2009, 606 SCRA 554.
7 See, for instance, Section 26, Rep. Act No. 8436.
8 Section 2. The Commission on Elections shall exercise the
following powers and functions: x x x
(2)  Exercise exclusive original jurisdiction over all contests relating
to the elections, returns, and qualifications of all elective regional,
provincial, and city officials, and appellate jurisdiction over all contests
involving elective municipal officials decided by trial courts of general
jurisdiction, or involving elective barangay officials decided by trial
courts of limited jurisdiction.
Decisions, final orders, or rulings of the Commission on Elections
contests involving elective municipal and barangay offices shall be final,
executory, and not appealable.
9 Macabago v. Commission on Elections, G.R. No. 152163, November
18, 2002, 392 SCRA 178.
10 Jalosjos v. Commission on Elections, G.R. No. 205033, June 18,
2013, 698 SCRA 742, 752-753.

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honest elections.11 The Court recognizes this reality and

concedes that it has no general powers of supervision over
the Comelec except those specifically granted by the
Constitution, i.e., to review its decisions, orders and rulings
within the limited terms of a petition for certiorari.12
Thus, the Court reviews ComelecÊs administrative
acts only by way of exception, when it acts
capriciously or whimsically, with grave abuse of
discretion amounting to lack or excess of jurisdiction.
Necessarily, this invokes the CourtÊs expanded jurisdiction
under the second paragraph of Article VIII, Section 1.
That there is an alleged grave abuse of discretion on the
part of Comelec, however, does not automatically mean
that the petition should be given due course. It has to meet
the requirements of justiciability which, under the terms of
the CourtÊs expanded judicial power, has been translated to
mean a prima facie showing of a governmental entity,
office or official granted discretionary authority to
act and that this authority has been gravely abused.
There can be no prima facie showing of grave abuse of
discretion unless something has already been done13 or has
taken place under the law14 and the petitioner sufficiently
alleges the existence of a

_______________

11 Sumulong v. Commission on Elections, 73 Phil. 288, 294-295

(1941), cited in Espino v. Zaldivar, 129 Phil. 451, 474; 21 SCRA 1204,
1224 (1967).
12 Macalintal v. Commission on Elections, G.R. No. 157013, July 10,
2003, 405 SCRA 614.
13 In the case of a challenged law or official action, for instance, the
Court will not consider an issue ripe for judicial resolution, unless
something had already been done. Imbong v. Ochoa, Syjuico v. Abad;
Bayan Telecommunications v. Republic.
14 Mariano, Jr. v. Commission on Elections, G.R. No. 118577, March
7, 1995, 242 SCRA 211.

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threatened or immediate injury to itself as a result of

the gravely abusive exercise of discretion.15
In the case of an administrative agency (more so, if it
involves an independent constitutional body), a matter
cannot be considered ripe for judicial resolution unless
administrative remedies have been exhausted.16 Judicial
review is appropriate only if, at the very least, those
who have the power to address the petitionerÊs
concerns have been given the opportunity to do so. In
short, the requirement of ripeness does not become less
relevant under the courtsÊ expanded judicial power.
In this light, I find it worthy to note that that the
petition challenges RA 9006 and Comelec Resolution
No. 9615 not because its text, on its face, violates
fundamental rights,363 but because Comelec
erroneously applied an otherwise constitutional law.
ComelecÊs administrative act of including the petitionersÊ
poster within the coverage of

_______________

15 Province of North Cotabato v. Government of the Republic of the

Philippines Peace Panel, 589 Phil. 463, 481; 568 SCRA 402, 451 (2008).
16 See Corales v. Republic, G.R. No. 186613, August 27, 2013, 703
SCRA 623.
17 This is in contrast to my discussion of a prima facie grave abuse of
discretion in Imbong v. Ochoa, Jr. In Imbong, the petition alleged (and
the Court eventually concluded) that the text of the Reproductive Health
Law violates the right to life of the unborn child in the Constitution.
Congress, in enacting a law that violates a fundamental right, committed
a grave abuse of discretion. Thus, citizens have an interest in stopping
the implementation of an unconstitutional law that could cause
irreparable injury to the countless unborn.
The constitutionality of the text of RA 9006, on the other hand, is not
in question in the present case. What the petitioners assail is their
inclusion within the coverage of election propaganda regulations in RA
9006 and Comelec Resolution No. 9615.

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Comelec Resolution No. 9615 allegedly violated their

constitutional rights to freedom of speech and religion.
This issue could have been best decided by the Comelec,
had the petitioners followed the regular course of procedure
in the investigation and prosecution of election offense
cases. The assailed action of Comelec, after all,
contained a warning against possible prosecution for
an election offense that would have had to undergo
an entire process before it is filed before the proper
tribunal. This process allows suspected election offenders
to explain why an election offense should not be filed
against them, and for the Comelec to consider the
explanation.
Comelec Resolution No. 9386 (Rules of Procedure in
the Investigation and Prosecution of Election
Offense Cases in the Commission on Elections), in
particular, provides that once a complaint is initiated, an
investigating officer would have to conduct a preliminary
investigation to determine whether it warrants
prosecution. At this stage, the respondent(s) to the
complaint may submit his counter-affidavit and other
supporting documents for the complaintÊs dismissal.18 The
investigating officer may also hold a hearing

_______________
 18 Section 6 of Comelec Resolution No. 9386 provides:
Section 6. Conduct of Preliminary Investigation.·Within ten (10)
days from receipt of the Complaint, the investigating officer shall issue a
subpoena to the respondent/s, attaching thereto a copy of the Complaint,
Affidavits and other supporting documents, giving said respondent/s ten
(10) days from receipt within which to submit Counter-Affidavits and
other supporting documents. The respondent shall have the right to
examine all other evidence submitted by the complainant. Otherwise, the
Investigating officer shall dismiss the Complaint if he finds no ground to
continue with the inquiry. Such Counter-Affidavits and other supporting
evidence submitted by the respondent shall be furnished by the latter to
the complainant.
If the respondent cannot be subpoenaed, or if subpoenaed, does not
submit Counter-Affidavits within the ten (10) day period, the inves-

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to propound clarificatory questions to the parties and

their

_______________

tigating officer shall base his Resolution on the evidence presented by

the complainant.
If the investigating officer believes that there are matters to be
clarified, he may set a hearing to propound clarificatory questions to the
parties or their witnesses, during which the parties shall be afforded an
opportunity to be present, but without the right to examine or cross-
examine. If the parties so desire, they may submit questions to the
investigating officer which the latter may propound to the parties or
parties or witnesses concerned.
Thereafter, the investigation shall be deemed concluded, and the
investigating officer shall resolve the case within thirty (30) days
therefrom. Upon the evidence thus adduced, the investigating officer
shall determine whether or not there is sufficient ground to hold the
respondent for trial.
Where the respondent is a minor, the investigating officer shall not
conduct the preliminary investigation unless the child respondent shall
have first undergone the requisite proceedings before the Local Social
Welfare Development Officer pursuant to Republic Act No. 9344,
otherwise known as the „Juvenile Justice and Welfare Act of 2006.‰
No motion, except on the ground of lack of jurisdiction or request for
extension of time to submit Counter-Affidavits shall be allowed or
granted except on exceptionally meritorious cases. Only one (1) Motion
for Extension to file Counter-Affidavit for a period not exceeding ten (10)
days shall be allowed. The filing of Reply-Affidavits, Rejoinder-Affidavits,
Memoranda and similar pleadings are likewise prohibited.
A Memorandum, Manifestation or Motion to Dismiss is a prohibitive
pleading and cannot take the place of a Counter-Affidavit unless the
same is made by the respondent himself and verified.
When an issue of a prejudicial question is raised in the Counter-
Affidavit, the investigating officer shall suspend preliminary
investigation if its existence is satisfactorily established. All orders
suspending the preliminary investigation based on existence of
prejudicial question issued by the investigating officer shall have the
written approval of the Regional Election Director or the Director of the
Law Department, as the case may be.

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witnesses. The parties may even submit questions to the

investigating officer, which the latter may propound to the
parties or parties or witnesses concerned.19
After preliminary investigation, the investigating officer
has two options: if he finds no cause to hold the respondent
for trial, he shall recommend the dismissal of the
complaint; otherwise, he shall prepare a
recommendation to prosecute, and the corresponding
Information.20
Whichever course he takes, the investigating officer is
required to forward the records of the case to the
Commission En Banc (in cases investigated by the Law
Department or the Regional Election Director) or to the
Regional Election Director (in cases investigated by the
Assistant Regional Election Director, Regional Election
Attorney, or Provincial Election Supervisor or any of the
CommissionÊs lawyers assigned in the field office) for their
approval or disapproval. In the latter case, the
resolution of the Regional Election Director may be
subject of a motion for reconsideration and, if need
be, a petition for review with the COMELEC En
Banc.21
In the case before us, the petitioners ask us to exercise
our power of judicial review over the action of the
COMELECÊs Election Officer, Mavil Majarucon, who
ordered the petitioners to remove the subject poster, and
over the action of Director Esmeralda Amora-Ladra
of the Comelec Law Department, reiterating the
previous order with a warning of possible criminal
prosecution · without any other action by the Comelec
at its higher levels as the established procedures
provide.
Contrary to the petitionersÊ allegation that they „have no
other plain, speedy, and adequate remedy, the above de-

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19 Comelec Resolution No. 9386, Section 6.

20 Id., Section 8.
21 Id., Sections 11 and 12.

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scribed procedure before the Comelec clearly shows

otherwise. By immediately invoking remedies before
this Court, the petitioners deprived the Comelec itself
of the opportunity to pass upon the issue before us ·
a procedure critical in a certiorari proceeding. In short, the
direct invocation of judicial intervention is clearly
premature.
In the interest of orderly procedure and the respect for
an independent constitutional commission such as the
Comelec, on matters that are prima facie within its
jurisdiction, the expansion of the power of judicial
review could not have meant the power to review any
and all acts of a department or office within an
administrative framework.
While I agree with the ponencia that Section 2(3),
Article IX-C does not grant the Comelec the power to
determine „any and all‰ issues arising during elections, the
Comelec under this provision can certainly decide whether
to initiate a preliminary investigation against the
petitioners. It can decide based on the arguments and
pieces of evidence presented during the preliminary
investigation · whether there is probable cause to file an
information for an election offense against the petitioners.
This determination is even subject to review and
reconsideration, as discussed in the above described
process.
To be sure, this is a matter that the Comelec should
have been given first an opportunity to resolve before the
petitioners directly sought judicial recourse. While the
freedoms invoked by the petitioners certainly occupy
preferential status in our hierarchy of freedoms, the Court
cannot second-guess what the ComelecÊs action would have
been, particularly when the matters before us are nothing
more than the Election Officer MajaruconÊs notice and the
Director Amora-LadraÊs order.
In these lights, I see no occasion to discuss the
traditional rules on hierarchy of courts and
transcendental impor-

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tance, which only concern the propriety of a direct

resort to the Supreme Court instead of the lower courts,
and not the question of whether judicial intervention is
proper in the first place. As I concluded above, the direct
invocation of judicial intervention is as yet premature.

B. The petition is already

moot and academic

Aside from the petitionÊs premature recourse to the

Court, the legal issues it presents has already become moot
and academic.
A petition becomes moot and academic when it „ceases to
present a justiciable controversy by virtue of supervening
events, so that a declaration thereon would be of no
practical use or value.‰22 A case becomes moot and
academic when there is no more actual controversy
between the parties, or no useful purpose can be served in
passing upon the merits.23
The passage of the election period has effectively made
the issues in the present petition moot and academic. Any
decision on our part · whether for the validity or
invalidity of the ComelecÊs actions would no longer affect
the rights of either the petitioners to post the subject
posters, or the Comelec to prosecute election offenses.

_______________

22 David v. Macapagal-Arroyo, G.R. No. 171396, May 3, 2006, 489

SCRA 160, 213-214, citing Province of Batangas v. Romulo, G.R. No.
152774, May 27, 2004, 429 SCRA 736, Banco Filipino Savings and
Mortgage Bank v. Tuazon, Jr., G.R. No. 132795, March 10, 2004, 425
SCRA 129, Vda. de Dabao v. Court of Appeals, G.R. No. 116526, March
23, 2004, 426 SCRA 91, Paloma v. Court of Appeals, G.R. No. 145431,
November 11, 2003, 415 SCRA 590, Royal Cargo Corporation v. Civil
Aeronautics Board, G.R. Nos. 103055-56, January 26, 2004, 421 SCRA 21
and Lacson v. Perez, G.R. No. 147780, May 10, 2001, 357 SCRA 756.
23 Tantoy, Sr. v. Abrogar, 497 Phil. 615; 458 SCRA 301 (2005).

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The present petition had been filed to assail an

administrative act of the Comelec, which warned the
petitioners of a possible prosecution should they continue
posting election propaganda that do not comply with the
size requirements under RA 9006. The Letter issued by
Comelec Director Amora-Ladra, in particular, advised
compliance with the size requirements, otherwise it would
file an election case against them. Thus, as per the
ComelecÊs Letter, prosecution of the offense would
commence only if the petitioners continued posting the
poster without complying with the size requirements. Had
the petitioners complied with the size requirements for
their poster, no election offense would have been filed
against them.
The petitioners, upon receipt of the letter, immediately
filed a petition for certiorari before the Court the next day.
Five days later, they were granted a temporary restraining
order that forbade the Comelec from enforcing its Notice
and Letter. At this point, the Comelec had not yet
implemented the warning it gave the petitioners in its
Letter. Thus, the temporary restraining order effectively
prevented the ComelecÊs Letter from being enforced. At the
time the TRO prevented the enforcement of the ComelecÊs
Letter, the petitioners could have still exercised the choice
of complying with the ComelecÊs Notice and Letter, and
hence avoided the initiation of an election offense against
them. This choice had never been exercised by the
petitioners as the temporary restraining order forbade the
Notice and LetterÊs implementation, and effectively allowed
them to continue posting the subject posters without threat
of prosecution.
In the meantime, the election period, during which the
election offense of illegally posting election propaganda
may be committed and prosecuted, came to pass. Thus, our
decision in this case, and the consequent lifting of the
temporary restraining order against the Comelec, could no
longer affect the rights of the petitioners. At this point in
time, our ruling regarding the validity of the ComelecÊs
Notice and Letter

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(whether for its validity or invalidity) would no longer

have any impact on the petitioners and respondent.
To be sure, the issue of the constitutionality of the
posterÊs size limitations, as well as the inclusion of speech
of private individuals are issues capable of repetition, as
elections are held every three years.
But while these issues are capable of repetition, they
most certainly cannot escape review. The administrative
process outlined in Comelec Resolution No. 9615 provides a
process through which the Comelec may decide these issues
with finality. After the Comelec had been allowed to
exercise its jurisdiction to the fullest, judicial review of its
actions may be availed of through a petition for certiorari
under the Rules of Court. At that point, the issues would
certainly no longer be premature.

III. Substantive Arguments: Section 3.3 of RA 9006

and Section 6(c) of Comelec Resolution No. 9615 are
valid content-neutral regulations on election
propaganda

Even assuming that the Court can give due course to the
present petition, I strongly disagree with the ponenciaÊs
finding that the notices, as well as the regulations they
enforce, are unconstitutional for violating the petitionersÊ
right to free speech.
According to the ponencia, the ComelecÊs attempt to
enforce Comelec Resolution No. 9615 is a content-based
regulation that is heavily burdened with
unconstitutionality. Even assuming that the letter and
notice contain a content-neutral regulation, the ponencia
asserts that it still fails to pass the intermediate test of
constitutionality.
The letter and notice sent by the ComelecÊs legal
department both sought to enforce the size restrictions
on election propaganda applicable to the subject poster.
The

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Comelec advised the petitioners to comply with these

size restrictions or take down the poster, or else it would be
compelled to file an election offense against him. Thereby,
the Comelec recognized that it would not have any cause of
action or complaint if only the petitioners would comply
with the size restriction.
The size restrictions are found in Comelec Resolution
No. 9615, which implements Section 3 of the Fair Elections
Act. Section 3.3 of the Fair Elections Act and Section 6(c)
of Comelec Resolution No. 9615 mandate that posters
containing election propaganda must not exceed an area of
two by three feet.
Three queries must be resolved in determining the
legality of ComelecÊs letter and notice:
First, whether the subject poster falls within the
election propaganda that may be regulated by the Comelec;
Second, whether the size restrictions in Comelec
Resolution No. 9615 and RA 9006 impose content-neutral
or content-based restrictions on speech; and
Third, whether this regulation pass the appropriate test
of constitutionality.

A. The subject poster falls within the regulated

election propaganda in RA 9006 and Comelec
Resolution No. 9615

The subject poster carries the following characteristics:

 (1) It was posted during the campaign period, by
private individuals and within a private compound housing
at the San Sebastian Cathedral of Bacolod.
(2) It was posted with another tarpaulin with the
message „RH LAW IBASURA.‰

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(3) Both tarpaulins were approximately six by ten feet

in size, and were posted in front of the Cathedral within
public view.
(4) The subject poster contains the heading „conscience
vote‰ and two lists of senators and members of the House
of Representatives. The first list contains names of
legislators who voted against the passage of the
Reproductive Health Law, denominated as Team Buhay.
The second list contains names of legislators who voted
for the RH LawÊs passage, denominated as „Team Patay.‰
The „Team Buhay‰ list contained a check mark, while the
Team Patay list an X mark. All the legislators named in
both lists were candidates during the 2013 national
elections.
(5) It does not appear to have been sponsored or paid for
by any candidate.
The content of the tarpaulin, as well as the timing of its
posting, makes it subject of the regulations in RA 9006 and
Comelec Resolution No. 9615.
Comelec Resolution No. 9615 contains rules and
regulations implementing RA 9006 during the 2013
national elections. Section 3 of RA 9006 and Section 6 of
Comelec Resolution No. 9615 seek to regulate election
propaganda, defined in the latter as:

The term „political advertisement‰ or „election propaganda‰

refers to any matter broadcasted, published, printed,
displayed or exhibited, in any medium, which contain the
name, image, logo, brand, insignia, color motif, initials, and other
symbol or graphic representation that is capable of being
associated with a candidate or party, and is intended to
draw the attention of the public or a segment thereof to
promote or oppose, directly or indirectly, the election of the
said candidate or candidates to a public office. In broadcast
media, political advertisements may

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take the form of spots, appearances on TV shows and radio

programs, live or taped announcements, teasers, and other forms of
advertising messages or announcements used by commercial
advertisers.
Political advertising includes matters, not falling within the
scope of personal opinion, that appear on any Internet website,
including, but not limited to, social networks, blogging sites, and
micro-blogging sites, in return for consideration, or otherwise
capable of pecuniary estimation. [Emphasis supplied]

Based on these definitions, the subject poster falls

within the definition of election propaganda. It
named candidates for the 2013 elections, and was clearly
intended to promote the election of a list of
candidates it favors and oppose the election of
candidates in another list. It was displayed in public
view, and as such is capable of drawing the attention
of the voting public passing by the cathedral to its
message.
That the subject poster was posted by private
individuals does not take it away from the ambit of the
definition. The definition found in Comelec Resolution
No. 9615 does not limit election propaganda to acts by
or in behalf of candidates.
Neither does RA 9006 contain such restrictions: a look
at what constitutes lawful election propaganda in RA
9006 also does not specify by whom or for whom the
materials are posted, viz.:

Sec. 3. Lawful Election Propaganda.·Election propaganda

whether on television, cable television, radio, newspapers or any
other medium is hereby allowed for all registered political
parties, national, regional, sectoral parties or organizations
participating under the party list elections and for all bona fide
candidates seeking national and local elective positions
subject to the limitation on authorized expenses of candidates and
political parties, observance of truth in adver-

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tising and to the supervision and regulation by the Commission

on Elections (COMELEC). x x x [Emphasis supplied]

Further, lawful election propaganda under the Omnibus

Election Code, which RA 9006 cites as part of its definition
of what constitutes lawful propaganda, does not limit the
materials enumerated therein to those posted by or in
behalf of candidates.24 Neither does the definition of what
constitutes an election offense limit the unlawful posting of
election propaganda to those posted by, or in behalf of
candidates and their parties.25
Thus, I find it clear that the law does not distinguish
between materials posted by or in behalf of candidates or
by

_______________

24 Sec. 82. Lawful election propaganda.·Lawful election

propaganda shall include:
(a)  Pamphlets, leaflets, cards, decals, stickers or other written or
printed materials of a size not more than eight and one-half inches in
width and fourteen inches in length;
(b) Handwritten or printed letters urging voters to vote for or against
any particular candidate;
(c)  Cloth, paper or cardboard posters, whether framed or posted,
with an area exceeding two feet by three feet, except that, at the site and
on the occasion of a public meeting or rally, or in announcing the holding
of said meeting or rally, streamers not exceeding three feet by eight feet
in size, shall be allowed: Provided, That said streamers may not be
displayed except one week before the date of the meeting or rally and
that it shall be removed within seventy-two hours after said meeting or
rally; or
(d) All other forms of election propaganda not prohibited by this
Code as the Commission may authorize after due notice to all interested
parties and hearing where all the interested parties were given an equal
opportunity to be heard: Provided, That the CommissionÊs authorization
shall be published in two newspapers of general circulation throughout
the nation for at least twice within one week after the authorization has
been granted.
25 Id.

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private individuals who have no political affiliation.

When the law does not distinguish, neither should we.
Had Congress intended to limit its definition of
election propaganda to materials posted for or in
behalf of candidates, it could have so specified.
Notably, Section 9 26 on the Posting of Campaign Materials
indicates who the Comelec may authorize to erect common
poster areas for campaign materials in public places. It
does not, as the ponencia makes it appear, limit the
definition of election propaganda to those posted by
candidates and parties.
The title of Section 9 uses the word „campaign
materials‰ and not election propaganda; thus, it
refers to a particular type of election propaganda.
Election pro​paganda becomes a campaign material
once it is used by candidates and political parties.
Nevertheless, the latter is different from the more
generic term Âelection propagandaÊ in the other parts
of RA 9006.
As worded, Section 9 regulates the manner by which
candidates may post campaign materials, allowing them,
subject to the ComelecÊs authorization, to erect common
poster areas in public places, and to post campaign
materials in private property subject to its ownerÊs consent.
It does not, by any stretch of statutory construction,
limit election propaganda to posts by parties and
candidates. Notably, the word „campaign material‰
appears only once in RA 9006, signifying its limited
application to Section 9, and that it should not be
interchanged with the term „election propaganda‰
appearing in other parts of the law.
In these lights, I disagree with the ponenciaÊs insistence
that the Comelec had no legal basis to regulate the subject
posters, as these are expressions made by private
individuals.
 To support this conclusion, the ponencia pointed out that
first, it may be inferred from Section 9 of RA 9006 and
Sec-

_______________

26 See Article XII of the Omnibus Election Code.

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tion 17 of Comelec Resolution No. 9615 (both referring

to campaign materials) that election propaganda are
meant to apply only to political parties and candidates
because the provisions on campaign materials only mention
political parties and candidates;27 second, the focus of the
definition of the term election propaganda hinges on
whether it is „designed to promote the election or defeat of
a particular candidate or candidates to a public office;‰28
and third, the subject poster falls within the scope of
personal opinion that is not considered as political
advertising under Section 1, paragraph 429 of Comelec
Resolution No. 9615.30
To my mind, the first two arguments lead us to navigate
the forbidden waters of judicial legislation. We cannot
make distinctions when the law provides none · ubi
lex non distinguit, nec nos distinguere debemos.
As I have earlier pointed out, the definition of election
propaganda is not limited to those posted by, or in behalf of

_______________

27 Draft ponencia, pp. 64-65.

28 Id., at p. 67.
29 The term „political advertisement‰ or „election propaganda‰ refers
to any matter broadcasted, published, printed, displayed or exhibited, in
any medium, which contain the name, image, logo, brand, insignia, color
motif, initials, and other symbol or graphic representation that is capable
of being associated with a candidate or party, and is intended to draw the
attention of the public or a segment thereof to promote or oppose, directly
or indirectly, the election of the said candidate or candidates to a public
office. In broadcast media, political advertisements may take the form of
spots, appearances on TV shows and radio programs, live or taped
announcements, teasers, and other forms of advertising messages or
announcements used by commercial advertisers.
Political advertising includes matters, not falling within the scope
of personal opinion, that appear on any Internet website, including,
but not limited to, social networks, blogging sites, and micro-blogging
sites, in return for consideration, or otherwise capable of pecuniary
estimation. (Emphasis supplied)
30 Draft ponencia, p. 87.

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candidates. Further, campaign materials are different

from election propaganda · the former refers to election
propaganda used by candidates and political parties, and
hence it is understandable that it would only mention
candidates and political parties.
Indeed, the definition of election propaganda focuses on
the impact of the message, i.e., that it is intended to
promote or dissuade the election of candidates, and not for
whom or by whom it is posted. This nuance in the
definition recognizes that the act of posting election
propaganda can be performed by anyone, regardless of
whether he is a candidate or private individual. It does not
serve to limit the definition of election propaganda to
materials posted by candidates.
At this point, I find it worthy to emphasize that our first
and primary task is to apply and interpret the law as
written, and not as how we believe it should be.
With respect to the third argument, personal opinions
are of course not included within the definition of election
propaganda. But when these opinions on public issues
comingle with persuading or dissuading the public to elect
candidates, then these opinions become election
propaganda.
Notably, the exclusion of personal opinions in the
definition of political advertisements refers to matters that
are printed in social media for pecuniary consideration.
The entire provision was meant to cover the phenomenon of
paid blogs and advertisements in the Internet, without
including in its scope personal opinions of netizens. I do not
think it can be extended to election propaganda, as
exceptions usually qualify the phrase nearest to it · in
this case, it was meant to qualify matters appearing in the
Internet.
Further, if we were to follow the ponenciaÊs logic, and
proclaim a personal opinion by a private individual meant
to influence the public as regards their vote an exemption
to the election propaganda definition, then it would render
the entire definition useless. Since Comelec Resolution No.
9615 does not limit personal opinions to private
individuals, then it

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applies with equal force to candidates, who necessarily

have a personal opinion that they should get elected, and
would not pay themselves to utter these opinions. I dare
say that such an absurd situation, where an exception
nullifies the general provision, had not been the intent of
Comelec Resolution No. 9615.
Additionally, the definition of election propaganda under
RA 9006 has no mention of personal opinions, and in case
of inconsistency (which to me does not exist in the present
case) between a law and a regulation implementing it, the
law should prevail.
Worthy of note, lastly, is that the commingling of the
subject posterÊs content with a public issue in another
poster does not exempt the former from regulation as an
election propaganda. The definition of election propaganda
necessarily includes issues that candidates support,
because these issues can persuade or dissuade voters to
vote for them. To be sure, it is a very shortsighted view to
claim that propaganda only relates to candidates, not to the
issues they espouse or oppose.
The present case reached this Court because the
petitioners, who apparently are bent on carrying their
Reproductive Health (RH) message to the people, and as a
means, rode on to the then raging electoral fight by
identifying candidates supporting and opposing the RH.
While indeed the RH issue, by itself, is not an electoral
matter, the slant that the petitioners gave the issue
converted the nonelection issue into a live election one
hence, Team Buhay and Team Patay and the plea to
support one and oppose the other.
 From this perspective, I find it beyond question that the
poster containing the message „RH LAW IBASURA‰ was
an election propaganda, and should thus comply with the
size limitations. To stress, the subject poster and its Team
Buhay and Team Patay message advocated support or
opposition to specific candidates based on their respective
RH stand and thus cannot but fall within the coverage of
what constitutes as election propaganda.

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Lastly, that the subject poster was posted on private

property does not divest the Comelec of authority to
regulate it. The law specifically recognizes the posting of
election propaganda on private property provided its owner
consents to it. In the present case, the property owner is
the Diocese of Bacolod itself, and the posting of the subject
poster was made upon its own directive.

B. The notice and letter enforce a content-neutral

regulation

Philippine jurisprudence distinguishes between the

regulation of speech that is content-based, from regulation
that is content-neutral. Content-based regulations regulate
speech because of the substance of the message it
conveys.31 In contrast, content-neutral regulations are
merely concerned with the incidents of speech: the time,
place or manner of the speechÊs utterance under well-
defined standards.32
Distinguishing the nature of the regulation is crucial in
cases involving freedom of speech, as it determines the test
the Court shall apply in determining its validity.
Content-based regulations are viewed with a heavy
presumption of unconstitutionality. Thus, the government
has the burden of showing that the regulation is narrowly
tailored to meet a compelling state interest, otherwise, the
Court will strike it down as unconstitutional.33
In contrast, content-neutral regulations are not
presumed unconstitutional. They pass constitutional
muster once they meet the following requirements: first,
that the regulation is within the constitutional power of the
Govern-

_______________

31 Newsounds Broadcasting Network, Inc. v. Dy, G.R. Nos. 170270 &

179411, April 2, 2009, 583 SCRA 333.
32 Chavez v. Gonzales, G.R. No. 168338, February 15, 2008, 545
SCRA 441, 493.
33 Id.

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ment; second, that it furthers an important or

substantial governmental interest; third, that the
governmental interest is unrelated to the suppression of
free expression; and fourth, that the incidental restriction
on speech is no greater than is essential to further that
interest.34
The assailed regulations in the present case
involve a content-neutral regulation that controls the
incidents of speech. Both the notice and letter sent by the
Comelec to the Diocese of Bacolod sought to enforce Section
3.3 of RA 9006 and Section 6(c) of Comelec Resolution No.
9615 which limits the size of posters that contain election
propaganda to not more than two by three feet. It does not
prohibit anyone from posting materials that contain
election propaganda, so long as it meets the size
limitations.
Limitations on the size of a poster involve a
content-neutral regulation involving the manner by
which speech may be uttered. It regulates how the
speech shall be uttered, and does not, in any manner affect
or target the actual content of the message.
That the size of a poster or billboard involves a time,
manner and place regulation is not without judicial
precedent, albeit in the US jurisdiction where our Bill of
Rights and most of our constitutional tests involving the
exercise of fundamental rights first took root. Several
cases35 decided by the US

_______________
 34 Social Weather Stations, Inc. v. Commission on Elections, G.R. No.
147571, May 5, 2001, 357 SCRA 496.
35 Members of the City Council of the City of Los Angeles v. Taxpayers
for Vincent, 466 U.S. 789; 104 S. Ct. 2118; 80 L. Ed. 2d 772; 1984;
Baldwin v. Redwood City, 540 F.2d 1360; 1976 U.S. App. LEXIS 7659;
Baldwin v. Redwood City, 540 F.2d 1360, 1368-1369 (CA9 1976), cert.
denied sub nom. Leipzig v. Baldwin, 431 U.S. 913 (1977); Temple Baptist
Church, Inc. v. City of Albuquerque, 98 N. M. 138, 146, 646 P. 2d 565, 573
(1982); Krych v. Village of Burr Ridge, 111 Ill. App. 3d 461, 464-466, 444
N.E. 2d 229, 232-233 (1982); Regan v. Time, 468 U.S. 641; 104 S. Ct.
3262; 82 L. Ed. 2d 487; 1984 U.S. LEXIS 147; 52 U.S.L.W. 5084.

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Supreme Court treated size restrictions in posters as a

content-neutral regulation, and consequently upheld their
validity upon a showing of their relationship to a
substantial government interest.
Admittedly, the size of the poster impacts on the
effectiveness of the communication and the gravity of
its message. Although size may be considered a part
of the message, this is an aspect that merely
highlights the content of the message. It is an
incident of speech that government can regulate,
provided it meets the requirements for content-
neutral regulations.
That the incidents of speech are restricted through
government regulation do not automatically taint them
because they do not restrict the message the poster itself
carries. Again, for emphasis, Comelec Resolution No. 9615
and RA 9006 regulate how the message shall be
transmitted, and not the contents of the message itself.
The message in the subject poster is transmitted
through the text and symbols that it contains. We can, by
analogy, compare the size of the poster to the volume of the
sound of a message.36 A blank poster, for instance and as a
rule, does not convey any message regardless of its size
(unless, of course, vacuity itself is the message being
conveyed). In the same manner, a sound or utterance,
without words or tunes spoken or played, cannot be
considered a message regardless of its volume. We
communicate with each other by symbols · written, verbal
or illustrated · and these communications are what the
freedom of speech protects, not the manner by which these
symbols are conveyed.
Neither is the ponenciaÊs contention that larger spaces
allow for more messages persuade to treat the size
limitation as a content-based regulation · persuasive. RA
9006 and Come-

_______________

36 See Regan v. Time, id., citing Kovacs v. Cooper, 336 U.S. 77 (1949).

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lec Resolution No. 9615 do not limit the number of

posters that may be posted; only their size is regulated.
Thus, the number of messages that a private person may
convey is not limited by restrictions on poster size.
Additionally, I cannot agree with the ponenciaÊs
assertion that the assailed regulation is content-based
because it only applies to speech connected to the elections,
and does not regulate other types of speech, such as
commercial speech.37
I am sure there are cases in the United States that
recognize that a difference in treatment of speech based on
the content of the message involves a content-based
regulation. These cases, however, involve a single law
providing either a preferential or prejudicial treatment on
certain types of messages over other messages.38 In
contrast, the assailed regulation covers only election
propaganda (without regard to the actual message), and
applies only during the election period.
Further, this kind of assertion, if followed, would
amount to the declaration that the entire RA 9006 is a
content-based regulation of speech, because it only
regulates speech related to the elections. On the flipside,
this kind of assertion would render time, manner and place
regulations on commercial speech as content-based
regulations because they regulate only speech pertaining to
commerce and not others. I find these resulting situations
to be absurd as, in effect, they eradicate the jurisprudential
distinction between content-based and content-neutral
regulations.
The more reasonable approach, to my mind, is to
examine the regulation based on what it has intended to
regulate, i.e., the resulting impact of the regulation. In the
present case, the assailed regulation results into restricting
the size of posters containing election propaganda, which,
as I have explained above, is a content-neutral regulation.

_______________

37 Draft ponencia, p. 72.

38 See, for instance, City of Ladue v. Gilleo, 512 U.S. 43.

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C. Comelec Resolution No. 9615 passes the

intermediate scrutiny test for content-neutral
regulation

Applying the test for the intermediate test to Section 3.3

of RA 9006 and Section 6(c) of Comelec Resolution No.
9615, I find that the size limitation on posters does not
offend the Constitution.

1. The size limitation for posters containing

election pro​pa​ganda in Section 6(c) of Comelec
Resolution No. 9615 and Section 3.3 of RA 9006 is
within the constitutional power of the Government
Philippine jurisprudence has long settled that the time,
place, and manner of speech may be subject to Government
regulation. Since the size of a poster involves a time, place
and manner regulation, then it may be the proper subject
of a government regulation.
That Congress may impose regulations on the time
place, and manner of speech during the election period is
even implicitly recognized in Section 2, paragraph 7,
Article IX-C of the 1987 Constitution. Under this provision,
the Comelec is empowered to recommend to Congress
effective measures to minimize election spending, including
limitation of places where propaganda materials shall be
posted. That Congress can pass regulations regarding
places where propaganda materials may be posted
necessarily indicates that it can also pass other content-
neutral regulations, such as the time and manner of the
speechÊs utterance.
In considering the matter before us, it should not be lost
to us that we are examining actions implementing election
laws. Both interests · freedom of speech and honest, fair
and or-

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derly elections · have been specifically recognized, in

our Constitution39 and in the jurisprudence applying
them,40 as important constitutional values. If speech
enjoys preference for the individual in the hierarchy of
rights, election regulations likewise have their preferred
status in the hierarchy of governmental interests and
have no less basis than the freedom of speech.41

_______________

39 Consider the following constitutional provisions on free speech and

the holding of free, orderly elections that provide equal opportunity for
all its candidates:
Article II, Section 26 of the 1987 Constitution provides:
Section  26. 
 The State shall guarantee equal access to opportunities
for public service and prohibit political dynasties as may be defined by
law.
Article III, Section 4 of the 1987 Constitution provides:
Section 4. No law shall be passed abridging the freedom of speech, of
expression, or of the press, or the right of the people peaceably to
assemble and petition the government for redress of grievances.
Article IX-C, Section 4 of the 1987 Constitution provides:
Section  4. The Commission may, during the election period,
supervise or regulate the enjoyment or utilization of all franchises or
permits for the operation of transportation and other public utilities,
media of communication or information, all grants, special privileges, or
concessions granted by the Government or any subdivision, agency, or
instrumentality thereof, including any government-owned or -controlled
corporation or its subsidiary. Such supervision or regulation shall aim to
ensure equal opportunity, time, and space, and the right to reply,
including reasonable, equal rates therefor, for public information
campaigns and forums among candidates in connection with the objective
of holding free, orderly, honest, peaceful, and credible elections.
40 See, for instance, National Press Club v. Commission on Elections,
G.R. No. 102653, March 5, 1992, 207 SCRA 1; Osmeña v. Commission on
Elections, G.R. No. 132231, March 31, 1998, 288 SCRA 447; SWS v.
Commission on Elections, supra note 34.
41 In National Press Club v. Commission on Elections, id., the Court
thus said:

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2. The size limitation for posters containing

election propaganda furthers an important and
substantial governmental interest

_______________

It seems a modest proposition that the provision of the Bill of Rights

which enshrines freedom of speech, freedom of expression and freedom of
the press (Article III[4], Constitution) has to be taken in conjunction with
Article IX(C)(4) which may be seen to be a special provision applicable
during a specific limited period · i.e., „during the election period.‰ It is
difficult to overemphasize the special importance of the rights of freedom
of speech and freedom of the press in a democratic polity, in particular
when they relate to the purity and integrity of the electoral process itself,
the process by which the people identify those who shall have governance
over them. Thus, it is frequently said that these rights are accorded a
preferred status in our constitutional hierarchy. Withal, the rights of free
speech and free press are not unlimited rights for they are not the only
important and relevant values even in the most democratic of polities. In
our own society, equality of opportunity to proffer oneself for public office,
without regard to the level of financial resources that one may have at
oneÊs disposal, is clearly an important value. One of the basic state
policies given constitutional rank by Article II, Section 26 of the
Constitution is the egalitarian demand that „the State shall guarantee
equal access to opportunities for public service and prohibit political
dynasties as may be defined by law.‰
The technical effect of Article IX(C)(4) of the Constitution may be seen
to be that no presumption of invalidity arises in respect of exercises of
supervisory or regulatory authority on the part of the Comelec for the
purpose of securing equal opportunity among candidates for political
office, although such supervision or regulation may result in some
limitation of the rights of free speech and free press. For supervision or
regulation of the operations of media enterprises is scarcely conceivable
without such accompanying limitation. Thus, the applicable rule is the
general, time-honored one · that a statute is presumed to be
constitutional and that the party asserting its unconstitutionality must
discharge the burden of clearly and convincingly proving that assertion.

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To justify its imposition of size restrictions on posters

containing election propaganda, the Comelec invokes its
constitutional mandate to ensure equal opportunity for
public information campaigns among candidates, to ensure
orderly elections and to recommend effective measures to
minimize election spending.
These, to me, are substantial government interests
sufficient to justify the content-neutral regulation on the
size of the subject poster. Their inclusion in the
Constitution signifies that they are important. We have, in
several cases, upheld the validity of regulations on speech
because of these state interests.42
Further, the limitation on the size of posters serves
these interests: a cap on the size of a poster ensures, to
some extent, uniformity in the medium through which
information on candidates may be conveyed to the public. It
effectively bars candidates, supporters or detractors from
using posters too large that they result in skewed attention
from the public. The limitation also prevents the
candidates and their supporting parties from engaging in a
battle of sizes (of posters) and, in this sense, serve to
minimize election spending and contribute to the
maintenance of peace and order during the election period.
The ponencia dismissed the government interests the
Comelec cites for not being compelling enough to justify a
restriction on protected speech. According to the ponencia,
a compelling state interest is necessary to justify the
governmental action because it affects constitutionally-
declared principles, i.e., freedom of speech.43
First of all, the ponencia has mixed and lumped
together the test for the constitutionality of a content-based
regulation with that of a content-neutral regulation.
_______________

42 See, for instance, National Press Club v. Comelec, id., Osmeña v.

Comelec, supra note 40.
43 Draft ponencia, pp. 96-97.

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A compelling state interest is a requirement for

the constitutionality of a content-based regulation.
The ponencia imposes this requirement as an addition to
the intermediate test for content-neutral regulations, while
at the same time applying this modified intermediate test
to a regulation that it has described as content-based. The
test to determine the constitutionality of a content-based
regulation is different, and in fact requires a higher
standard, from the test to determine a content-neutral
regulationÊs validity. The requirements for the compelling
state interest test should not be confused with the
requirements for the intermediate test, and vice versa.
If we were to require a compelling state interest
in content-neutral regulations, we, in effect, would
be transforming the intermediate test to a strict
scrutiny test, and applying it to both content-based
and content-neutral regulations, as both regulations
involve a constitutional principle (i.e., the content of
speech and the manner of speech). In other words,
we would be eradicating a crucial jurisprudential
distinction on testing the validity of a speech
regulation, something that I find no cogent reason to
disturb.
Neither can I agree with the ponenciaÊs use of Adiong v.
Comelec44 as authority for holding that ensuring equality
between candidates is less important than guaranteeing
the freedom of expression.45 This pronouncement is within
the context of characterizing the prohibition of stickers and
decals to private places as a form of unjustified censorship.
In contrast, the regulation in question does not prohibit
anyone from posting any election propaganda, but only to
regulate its size. Notably, the weighing of constitutional
values applies on a case-to-case basis; we have, in the past,
decided cases where
_______________

44 G.R. No. 103956, March 31, 1992, 207 SCRA 712.

45 Draft ponencia, p. 97.

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the regulation of speech is allowed to ensure equal

access to public service.
I note, too that ensuring equality between candidates is
not the only goal achieved in regulating the size of election
posters · it is also meant to enforce the constitutional
goals of minimizing election spending, and ensuring orderly
elections.
Lastly, I cannot agree with the ponenciaÊs contention
that the ComelecÊs interest and regulatory authority in the
posting of election propaganda is limited to postings in
public places. The regulatory framework of RA 9006 is not
limited to election propaganda in public places, and in fact
recognizes that they may be posted in private property,
subject to their ownersÊ consent.
Further, the pronouncement in Adiong, where the Court
held that the regulation prohibiting the posting of decals
and stickers in private property violates the property
ownersÊ right to property, does not apply in the presently
assailed regulation, because the latter does not prohibit the
posting of posters but merely regulates its size.
The ponenciaÊs legal conclusion also contravenes settled
doctrine regarding the governmentÊs capacity to regulate
the incidents of speech, i.e., its time, place and manner of
utterance. Notably, paragraph 7, Section 2, Article IX-C of
the 1987 Constitution · one of the provisions the Comelec
invokes to justify its regulation · specifically recognizes
that the Congress may regulate the places of posting
election propaganda. This provision, like RA 9006, does not
limit the generic term Âplace,Ê and thus applies to both
public and private property.
Justice Estela M. Perlas-Bernabe, on the other hand,
argues that there is no substantial state interest in
restricting the postersÊ size, because like the posting of
decals and stickers in Adiong,46 it does not endanger any
substantial govern-
_______________

46 Supra note 44.

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ment interest and at the same time restricts the speech

of individuals on a social issue.47
It must be stressed, however, that unlike in Adiong,
which prohibited the posting of decals and stickers in
private places, the assailed regulation in the present case
does not prohibit the posting of election propaganda, but
merely requires that it comply with size requirements.
These size requirements promote government interests
enumerated in the Constitution, and its nonregulation
would hinder them.

3. The governmental interest in limiting the size of

posters containing election pro​pa​ganda is unrelated
to the sup​pression of free expression

The governmentÊs interest in limiting the size of posters

containing election propaganda does add to or restrict the
freedom of expression. Its interests in equalizing
opportunity for public information campaigns among
candidates, minimizing election spending, and ensuring
orderly elections do not relate to the suppression of free
expression.
Freedom of expression, in the first place, is not the god
of rights to which all other rights and even government
protection of state interest must bow. Speech rights are not
the only important and relevant values even in the most
democratic societies. Our Constitution, for instance, values
giving equal opportunity to proffer oneself for public office,
without regard to a personÊs status, or the level of financial
resources that one may have at oneÊs disposal.48

_______________

47 Justice Estela M. Perlas-BernabeÊs Concurring Opinion, p. 173.

48 See National Press Club v. COMELEC, supra note 40.
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On deeper consideration, elections act as one of the

means by which the freedom of expression and other
guaranteed individual rights are protected, as they ensure
that our democratic and republican ideals of government
are fulfilled. To put it more bluntly, unless there are clean,
honest and orderly elections that give equal opportunities
and free choice to all, the freedoms guaranteed to
individuals may become a joke, a piece of writing held in
reverence only when it suits the needs or fancy of officials
elected in tainted elections.

4. The incidental restriction on speech is no

greater than is essential to further that interest

Indeed, the restriction on the posterÊs size affects the

manner by which the speech may be uttered, but this
restriction is no greater than necessary to further the
governmentÊs claimed interests.
Size limits to posters are necessary to ensure equality of
public information campaigns among candidates, as
allowing posters with different sizes gives candidates and
their supporters the incentive to post larger posters. This
places candidates with more money and/or with deep-
pocket supporters at an undue advantage against
candidates with more humble financial capabilities.
Notably, the law does not limit the number of posters
that a candidate, his supporter, or a private individual may
post. If the size of posters becomes unlimited as well, then
candidates and parties with bigger campaign funds could
effectively crowd out public information on candidates with
less money to spend to secure posters · the formerÊs bigger
posters and sheer number could effectively take the
attention away from the latterÊs message. In the same
manner, a lack of size limitations would also crowd out
private, unaffiliated individuals from participating in the
discussion through post-

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ers, or at the very least, compel them to erect bigger

posters and thus spend more.
Prohibiting size restrictions on posters is also related to
election spending, as it would allow candidates and their
supporters to post as many and as large posters as their
pockets could afford.
In these lights, I cannot agree with Justice Antonio T.
CarpioÊs argument that the size restriction on posters
restricts speech greater than what is necessary to achieve
the stateÊs interests. The restriction covers only the size of
the posters, and not the message it contains. If posting a
longer message or its readability is the issue, then it must
be pointed out that nothing in RA 9006 or Comelec
Resolution No. 9615 prevents the posting of more than one
poster containing the longer message in one site. Applying
this to Justice CarpioÊs example, condominium owners in
the 30th floor, should they be adamant in posting their
message in the said floor, can post more than one poster to
make their message readable.
Too, they can still post their message in other areas
where their message may be read. It may be argued, at this
point, that this would amount to an indirect regulation of
the place where posters may be posted. It must be
remembered, however, that the place of posting involves a
content​-neutral regulation that the Comelec is authorized
to implement, and that in any case, there is no explicit
limitation as to where the posters may be posted. They may
still be posted anywhere, subject only to the size
requirements for election propaganda.

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SEPARATE CONCURRING OPINION

PERLAS-BERNABE, J.:

I concur with the ponencia that the COMELECÊs Notice

to Remove Campaign Materials dated February 22, 2013
and Letter dated February 27, 2013 (the COMELEC
issuances) ordering the immediate removal of the tarpaulin
subject of this case are null and void for being
unreasonable restrictions on free speech. I, however,
disagree in the approach the ponencia takes in decreeing
the same. This stems from my view that the said
COMELEC issuances constitute content-neutral and
not content-based regulations as the ponencia so holds,
reasoning that „the content of the tarpaulin is not easily
divorced from the size of its medium.‰1 In this regard, I
agree with the opinion of Senior Associate Justice Antonio
T. Carpio that these issuances, which effectively limit
the size of the tarpaulin, are examples of content-
neutral regulations as they restrict only the manner
by which speech is relayed but not the content of
what is conveyed.2 I find this to be true since no peculiar
reason was proffered by the petitioners behind the sizing of
their poster · say, to put emphasis on a particular portion
of the text or to deliberately serve as some sort of symbolic
allusion. The tarpaulinÊs size links, as it appears, only to
the efficiency of the communication, following the logic that
a larger size makes them more visible. This, to my mind,
merely concerns the manner by which the speech is
communicated, and not its content. In the same vein, it is
my observation that sensible use of time and place (both of
which are generally recognized as incidents of speech, akin
to how I perceive the posterÊs size) may also affect the
efficiency of communication: perceptibly, a

_______________

1 See ponencia, p. 93.

2 See Separate Concurring Opinion of Senior Associate Justice
Antonio T. Carpio, p. 128.

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message conveyed at a time and place where people are

most likely to view the same may have the effect of making
the communication more „efficient.‰ The distinction
between a content-neutral regulation and a content-based
regulation, as enunciated in the case of Newsounds
Broadcasting Network, Inc. v. Hon. Dy,3 is as follows:

[J]urisprudence distinguishes between a content-neutral

regulation, i.e., merely concerned with the incidents of the
speech, or one that merely controls the time, place or
manner, and under well-defined standards; and a content-
based restraint or censorship, i.e., the restriction is based on
the subject matter of the utterance or speech.4
x x x x (Emphases supplied)

Since the sizing regulations, i.e., the COMELEC

issuances, are concerned only with an incident of speech,
that is, the manner by which the speech was
communicated, I thus respectfully submit that they should
have been characterized by the ponencia as content-
neutral, and not content-based regulations. As I see it, the
medium here is not the message.
On the premise that the COMELEC issuances constitute
content-neutral regulations, the method of constitutional
scrutiny which should be applied would then be the
intermediate scrutiny test, and not the strict scrutiny test
which the ponencia necessarily utilized due to its content-
based classification.
As comprehensively explained in the seminal case of
Chavez v. Gonzales,5 „[w]hen the speech restraints take the
form of a content-neutral regulation, only a
substantial governmental interest is required for its
validity. Because regulations of this type are not designed
to suppress any par-

_______________

3 602 Phil. 255; 583 SCRA 333 (2009).

4 Id., at p. 271; p. 352.
5 569 Phil. 155; 545 SCRA 441 (2008).

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ticular message, they are not subject to the strictest

form of judicial scrutiny but an intermediate approach
· somewhere between the mere rationality that is
required of any other law and the compelling interest
standard applied to content-based restrictions. The test is
called intermediate because the Court will not merely
rubberstamp the validity of a law but also require that the
restrictions be narrowly-tailored to promote an important
or significant governmental interest that is unrelated to
the suppression of expression. The intermediate approach
has [thus] been formulated in this manner: A governmental
regulation is sufficiently justified if it is within the
constitutional power of the Government, if [(a)] it
furthers an important or substantial governmental
interest; [(b)] the governmental interest is unrelated to
the suppression of free expression; and [(c)] the incident
restriction on alleged [freedom of speech and expression] is
no greater than is essential to the furtherance of that
interest.‰6
„On the other hand, a governmental action that restricts
freedom of speech or of the press based on content is
given the strictest scrutiny in light of its inherent and
invasive impact. Only when the challenged act has
overcome the clear and present danger rule will it pass
constitutional muster, with the government having the
burden of overcoming the presumed unconstitutionality.‰7
Given the peculiar circumstances of this case, it is my
view that the COMELEC issuances do not advance an
important or substantial governmental interest so as to
warrant the restriction of free speech. The subject
tarpaulin cannot be classified as the usual election
propaganda directly endorsing a particular candidateÊs
campaign. Albeit with the incidental effect of manifesting
candidate approval/disapproval, the

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6 Id., at pp. 205-206; pp. 493-494. (emphases and underscoring

supplied)
7 Id., at p. 206; p. 494. (emphases in the original)

175

VOL. 747, JANUARY 21, 2015 175

The Diocese of Bacolod vs. Commission on Elections

subject tarpaulin, at its core, really asserts a private

entityÊs, i.e., the DioceseÊs, personal advocacy on a social
issue, i.e., reproductive health, in relation to the passage of
Republic Act No. 10354,8 otherwise known as the
„Responsible Parenthood and Reproductive Health Act of
2012.‰ What is more is that the tarpaulin, although open to
the publicÊs view, was posted in purely private property by
the DioceseÊs own volition and without the prodding or
instruction of any candidate. In Blo Umpar Adiong v.
COMELEC (Adiong),9 the Court nullified the prohibition
on the posting of decals and stickers in „mobile‰ places like
cars and other moving vehicles as the restriction did not
endanger any substantial government interest,
observing, among others, that „the freedom of
expression curtailed by the questioned prohibition is
not so much that of the candidate or the political
party.‰10 The Court rationalized that:

The regulation strikes at the freedom of an individual to express

his preference and, by displaying it on his car, to convince others to
agree with him. A sticker may be furnished by a candidate but once
the car owner agrees to have it placed on his private vehicle, the
expression becomes a statement by the owner, primarily his
own and not of anybody else. If, in the National Press Club [v.
Comelec] case [G.R. No. 102653, March 5, 1992, 207 SCRA 1], the
Court was careful to rule out restrictions on reporting by
newspapers or radio and television stations and commentators or
columnists as long as these are not correctly paid-for
advertisements or purchased opinions[,] with less reason can we
sanction the prohibition against a sincere manifestation of
support and a proclamation of belief by an individual
person

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8 Entitled „An Act Providing for a National Policy on Responsible

Parenthood and Reproductive Health‰ (December 21, 2012).
9 G.R. No. 103956, March 31, 1992, 207 SCRA 712.
10 Id., at p. 719.

176

176 SUPREME COURT REPORTS ANNOTATED

The Diocese of Bacolod vs. Commission on Elections
 who pastes a sticker or decal on his private property.11
(Emphases supplied)

Considering the totality of the factors herein detailed,

and equally bearing in mind the discussions made in
Adiong, I submit that the COMELEC issuances subject of
this case do not satisfy the substantial governmental
interest requisite and, hence, fail the intermediate scrutiny
test. Surely, while the COMELECÊs regulatory powers
ought to be recognized, personal advocacies pertaining to
relevant social issues by a private entity within its own
private property ought to fall beyond that broad authority,
lest we stifle the value of a core liberty.
ACCORDINGLY, subject to the above stated reasons, I
concur with the ponencia and vote to GRANT the petition.

Petition granted, temporary restraining order made

permanent.

Notes.·Freedom of expression constitutes one of the

essential foundations of a democratic society, and this
freedom applies not only to those that are favorably
received but also to those that offend, shock or disturb.
(Ang Ladlad LGBT Party vs. Commission on Elections, 618
SCRA 32 [2010])
The established policy of strict observance of the judicial
hierarchy of courts, as a rule, requires that recourse must
first be made to the lower-ranked court exercising
concurrent jurisdiction with a higher court. (Dio vs. Subic
Bay Marine Exploratorium, Inc., 726 SCRA 244 [2014])
··o0o··

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11 Id.

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