REMEDIOS R. QUIZON, LORETA E. ATILANO L. ISAAC, CORAZON L. J.

EN BANC VERGARA, MELECIA M. ASTRERA, PEPITO, LUCILA S. PINEDA, ROCHE B.

VICENTA R. SAMANTE, HELEN M. CERRO, JOCELYN KL. LIBUT, REMBERTO
CUENTO-BUENDICHO, ANICIA V. L. GUTIERREZ, NAZARIO A. TRASMONTE,
G.R. No. 129118               July 19, 2000
MORALES, RISALINA C. GONZALES, REYNALDO O. MACARAT, FLORENCIA M.
ROSARIO CHARITO R. PABELLON, MALIBAGO, IMELDA G. TUYAY, JUAN A.
AGRIPINO A. DE GUZMAN, JR., NARCISO LOLITA L. MALADAGA, MAXIMO A. GIBA, JR., JOSE M. CAPACITE, ARCITA M.
M. ARABE, LETICIA T. ENDOMA, GLINDO, WILFREDO A. RODELAS, CELSO GARCIA, ANGEL G. DACUNO, RITA M.
ARISTIDES A. RAMOS, PANCHO M. O. ROGO, RAMON C. VALENCIA, FELIPE BEDIANG, RENATO L. CANDIDO,
RIVERA, TERESITA A. DE CASTRO, R. FRANDO, ADEN B. DUNGO, OFELIA N. NESTORIO B. BOCO, JONATHAN C.
CANDIDA C. HABANA, AZUCENA C. QUIBEN, LIGAYA S. VALENZUELA, AMBIDA, MONICA MACABARE, BENITO A.
FALCON, MARIA LUZ P. CAEDO, EUNICE S. FAMILARIN, MARCELA DE MONTALLANA, CLOTILDE C. APURA-
YOLANDA V. RIO, RUBEN S. ANIEVAS, LEON, ADELA M. JAMILLA, RENY ABLES, VALDEMORO, CIRIACO J. ARCENO,
LELISA L. SANCHEZ, VILLARDO A. ADELA E. FABERES, ALICIA P. PABLO L. FORMARAN, JR., PROSPERO S.
TRINIDAD, ENRIQUE CH. ZUNIGA, BALDOMAR, EDNA C. GARCIA, ANGELINA OLMEDO, IGNACIO V. CASCANO,
ROMEO A. GONZALES, CASIANO G. V. GARRIDO, ELOISA P. TORRENO, SERAFIN L. CLUTARIO, ARTURO L. DIN,
ATUEL, JR., GEMMA L. BANARES, CHARITO M. LACAMENTO, CLARENCIA M. JUCHITA C. SY, RODOLFO L. ASUERO,
PERFECTO T. CAMPOS, ARNULFO A. AQUINO, HILDA DIMALANTA, ELSIE PIO T. PORTES, MARILOU F. TAMAYO,
AGUILAR, RUDOLPH R. MELON, SIBAL, PURIFICACION TANGONAN, MILAGROS P. LAMBINO, ESTANISLAO A.
MAGDALENA M. LAO, MARINA GERONA, AMELITA FERNANDEZ, TEDDY C. ESPINA, RENERIO D. ENGO, FERNANDO
FLORIANA O. DE GUIA, EMETERIO B. MARIANO, LORETO SANGGALANG, A. MOSCARE, CONCHITA A. PICARDAL,
BRUCAL, NILDA C. CONCHA, YOLANDA P. GERARDO GONZALES, FEDERICO ELIAS T. TURLA, BONIFACIO T. LIM,
FERMA, TEOTISTA C. ANGKIKO, ONATE, JR., ARTURO BALIGNASAY, JOSEFINA A. AGUILAR, ANTONIO O.
FRANCISCO V. TRIAS, JENELYN E. FELIX M. CABARIOS, JR., NORBERTO TEPACE, GAVINO S. ASOTES, RENE P.
ESTERNON, MILAGROS M. ABELLAR, PUNZALAN, JAIME G. ALCANTARA, MAGBUTAY, NICOLAS C. UY, JR., JESUS
ALICIA T. MOJICA, ELVIRA E. BAYBAY, ERNESTO VILLANUEVA, ESTANISLAO B. LAVA, SENORA C. CALAGOS, RAFAEL
PRICILLA P. GOLFO, ELISEA M. HIERCO, SANCHEZ, ADORACION L. PINEDA, A. PAYOD, MACARIO L. CIEGO,
TERESITA L. DIMACUHA, MYRNA LUCILA S. DUNGCA, ADELAIDA B. SALVADOR T. CRUZ, VIRGINIA V. BESAS,
GUILLERMO, GRACIANO R. SAMELA, JR., LAOIJINDANUM, ROLANDO A. BALUYUT, RAUL S. FIGUERDA, EDGAR R. DELOS
NIMFA M. LAGASCA, JOSEFINA P. FRANCISCO M. DAVID, LEONELLE S. REYES, TERESO R. ROSEL, JOSE J.
JARENO, NORMA V. ORDENES, MENDOZA, MA. LUZ A. BASILIO, NESTOR MABANGUE, PRIMO D. PALOMO, JOHN C.
FRANCISCO T. SERVANDO, VIOLETA M. J. TIMBANG, HILDA P. DIZON, EMMANUEL YANGZON, ROMULO D. JABON, FIDENCIO
ANONUEVO, ALFREDO O. BAYANI, MARIO E. IGNACIO, RAMON S. ABELLA, Z. LA TORRE, JR., LETICIA R.
J. RAMOS, EME FEROLINO, LEONIDES P. JOSELITO MATIAS, HEZEQUIAS B. MACARIOLA, CARLOS P. VARELA, JR.,
COMIA, MILAGROS E. GENEBLAZO, GALANG, ERLINDA C. ZAPATA, IMELDA R. ANTONIO L. PEDRAZA, SALVACION A.
LORNA L. MENORCA, REYNALDO DE LA MANALASTAS, PEDRO L. PALO, AURECIO LAMBAN, LINO L. JAPSON, EUNIA H.
CRUZ, ROMULO A. FAZ, LIMUEL G. GADO, C. TRASPE, JOSEPHINE GALANG, VACAL, ANTONIO F. VALDEZ, NATIVIDAD
REY G. FABELLA, DOMINGUITO G. FLORINDA R. MADULID, MAGDALENA W. E. PRADO, LORENZO C. MERKA,
TACASA, IMELDA R.B. ROTONI, TITA SADI, NYDIA V.A. BOLISAY, GAUDIOSO A. RUEGO, ETERIO Z.
FOJA, NOEMI F. CASTRO, LILIA B. PRESENTACION A. PALOM, ANTONIO B. ABOCEJO, DEMETRIA O. COROLLO,
CAWALING, ROBERT A. REYES, ANCHETA, MACARIO L. SADI, PACIFICO MARIA S. OBEN, ARTHUR V. LEYSON,
CONCEPCION H. PARRENO, SERAFIN L. E. GISAPON, FELICIANO C. CRUZ, PEDRO L. AVILA, DOMINADOR S.
OLMEDO, ADOLFO L. ALLAN, PROSPERO IMELDA A. QUIMEL, LINDA D. SANDOVAL, RODILLA, MARCIAL MAGPATOC,
D. CASTRO, ROSELLER C. GAPULAO, MARILOU R. ORTIZ, NORMA F. SANTOS, FEDERICO D. BARCELON, EVANGELINE
GLICERIO B. LAURENTE, BERNICE E. MAGPAYO V. ABESAMIS, BONIFACIO B. DELA ROSA, ELENO GIL, ARSENIA
BERNABE, ADINA L. FERNANDEZ, ANITA VILLAFLOR, DANIEL O. TABIOS, GARCIA, HUMILDA ALICUM, DIOSDADO
M. PAALAN, ROSA P. PINOON, CONSTANTE T. CATRIZ, JESUS E. CAS, ABRAHAM MASAOY, SAMUEL
INOCENCIA P. DANGUE, JULITA E. ALICANTE, FEDERICO SACLAYAN, JR., ORALLO, AMELIA OLORES, CANDIDO
MENDOZA, ELENA O. RAMOS, GENE BE NOLY G. UMINGA, FE FRAELI L. DE URBANO, LOURDES FRIAS, ROEL
BARTE, FLORENCIA Z. MAGANITO, GUZMAN, RODRIGO S. WYCOCO, JOVEN SORIANO, EMELDA AGUSTIN, PAQUITO
PABLO A. ARGA, PEDRO S. LUNA, HERMOGENES, RODOLFO D. BANAWA, SORIANO, GERMAN BALOLONG,
CARMELITA P. LAUREL, VICTORINO I. ABELARDO O. CAPANZANA, ERNESTO Q. BENJAMIN C. ROSARIO, EFREN BUYA,
MARASIGAN, ROMEO M. MENDOZA, TIONGSON, ROSANNA CRUZ, OSCAR C. LEONIDA LEGASPI, TOMAS ABELLA, JR.,
JUAN C. MALABANAN, MANUEL B. ONGOCO, CONSUELO A. KABIGTING, JOVENCIA CANTO, JUAN DACONO,
ABRELI, JOSEPH T. MACAHIYA, LEONOR JULITA V. PASTELERO, ARSENIA V. MIGUEL BAUTISTA, LORNA PASCUAL,
P. ARADA, JULIA G. PEREZ, MODESTO M. BONDOC, ISIDRO A. TOMAS, ANGELINA FERDINAND BRAGANZA, PRISCILLA
VILLADELREY, ARNULFO Y. FAJILAN, V. GARRIDO, CONSOLACION N. LABOG, PEREZ, ALMA LUZ SORIANO, JUAN
MARLON P. HERRERA, JAIME A. ELENITA A. RIVERA, SOCORRO NOCES, VALENCIA, JR., JULIAN APOSTOL,
BISCOCHO, MICHAEL D. CASTILLO, RODOLFO GALLARDO, CARMENCITA M. ROSARIO GUICO, BONITA VIDAL, GUIA
MILAGROS H. BAYLOSIS, ARSENIO T. ONGEO, CAMILO L. SEDURIFA, ARLEEN GARCIA, LEOCADIO GINEZ, CATALINA
GUSTE, ALFREDO V. ORAYANI, DANTE A. VIC B. OCHANDRA, EDGARDO E. BANEZ, VERONICA TABILIN, ELVIRA
PENAMANTE, ROMEO A. DE CHAVEZ, APOSTOL, CLOTILDE C. CANETE, CALSADO, ALIPIO LOPEZ, JOSEPHINE
MANUEL M. ILAGAN, ALFREDO O. ALEJANDRO B. DEL AGUA, PILAR R. MALANA, PIO ANONUEVO, ELMA DEL
MANZA, JR., DOMINGO B. GUNIO, FIDEL BUENO, TEODOICO C. MAGALLANES, ROSARIO, RUFINO FLORES, ANTONIO
V. PALERACIO, VICENTE V. DEL MORO, PETRONIO N. PIANGCO, JR., JOSE M. ORDONEZ, CARMEN CLAVERIA,
JUSTINO R. DEQUILLA, ERNESTO A. FLORENDO, BIBIANO A. CAGNAN, ALICIA ESTRELLA RAMOS, petitioners,
RUZOL, ROMEO D. DELGADO, ERLINDA A. TUBI, RODOLFO C. NATAN, JAIME B. vs.
P. MAGSINO, VERONICA R. MENDONEZ, EDILBERTO EDANG, COMMISSION ON ELECTIONS,
CAMBRONERO, NORMA A. DEQUINA, ROSENDA T. JENOVEVA, VEDASTO B. respondent.
WELLIE R. RAVINA, CORAZON T. LOPEZ, ELIZAN, JR., MILAGROS P. DE LUNA,
 DECISION IV 2. The classification must be
germane to the purpose of the
law;
PURISIMA, J.: SECTION 44 OF REPUBLIC ACT NO. 8189
UNDERMINES THE CONSTITUTIONAL
INDEPENDENCE OF COMELEC AND 3. The classification must not be
At bar is a petition for certiorari and
COMELEC’S CONSTITUTIONAL limited to existing conditions
prohibition with urgent prayer for the
AUTHORITY TO NAME, DESIGNATE AND only; and
issuance of a writ of preliminary injunction
APPOINT AND THEN REASSIGN AND
and temporary restraining order, assailing
TRANSFER ITS VERY OWN OFFICIALS
the validity of Section 44 of Republic Act No. 4. The classification must apply
AND EMPLOYEES;
8189 (RA 8189) otherwise known as "The equally to all members of the
Voter’s Registration Act of 1996". same class.4
V
RA 8189 was enacted on June 10, 1996 and After a careful study, the ineluctable
approved by President Fidel V. Ramos on SECTION 44 OF REPUBLIC ACT NO. 8189 conclusion is that the classification under
June 11, 1996. Section 44 thereof provides: CONTRAVENES THE BASIC Section 44 of RA 8189 satisfies the
CONSTITUTIONAL PRECEPT [Article VI, aforestated requirements.
SECTION 26(1), Phil. Constitution] THAT
"SEC. 44. Reassignment of Election Officers .
EVERY BILL PASSED BY CONGRESS
- No Election Officer shall hold office in a The singling out of election officers in order
SHALL EMBRACE ONLY ONE SUBJECT
particular city or municipality for more than to "ensure the impartiality of election officials
WHICH MUST BE EXPRESSED IN THE
four (4) years. Any election officer who, by preventing them from developing
TITLE THEREOF; and
either at the time of the approval of this Act familiarity with the people of their place of
or subsequent thereto, has served for at assignment" does not violate the equal
least four (4) years in a particular city or VI protection clause of the Constitution.
municipality shall automatically be
reassigned by the Commission to a new
SECTION 44 OF REPUBLIC ACT NO. 8189 In Lutz vs. Araneta,5 it was held that "the
station outside the original congressional
IS VOID FOR FAILURE TO COMPLY WITH legislature is not required by the Constitution
district."
THE CONSTITUTIONAL REQUIREMENT to adhere to a policy of ‘all or none’". This is
[ARTICLE VI, SECTION 26 (2)] OF THREE so for underinclusiveness is not an argument
By virtue of the aforequoted provision of law, READINGS ON SEPARATE DAYS AND against a valid classification. It may be true
the Commission on Elections (COMELEC) DISTRIBUTION OF PRINTED COPIES IN that all the other officers of COMELEC
promulgated Resolution Nos. 97-00021 and ITS FINAL FORM THREE DAYS BEFORE referred to by petitioners are exposed to the
97-06102 for the implementation thereof. ITS PASSAGE. same evils sought to be addressed by the
Thereafter, the COMELEC issued several statute. However, in this case, it can be
directives3 reassigning the petitioners, who discerned that the legislature thought the
Petitioners’ contentions revolve on the pivotal
are either City or Municipal Election Officers, noble purpose of the law would be
issue, whether Section 44 of RA 8189 is valid
to different stations. sufficiently served by breaking an important
and constitutional.
link in the chain of corruption than by
breaking up each and every link thereof.
Aggrieved by the issuance of the aforesaid
The petition is barren of merit. Section 44 of Verily, under Section 3(n) of RA 8189,
directives and resolutions, petitioners found
RA 8189 enjoys the presumption of validity, election officers are the highest officials or
their way to this Court via the present petition
and the Court discerns no ground to authorized representatives of the COMELEC
assailing the validity of Section 44 of RA
invalidate it. in a city or municipality. It is safe to say that
8189, contending that:
without the complicity of such officials, large
scale anomalies in the registration of voters
Petitioners theorize that Section 44 of RA
I can hardly be carried out.
8189 is violative of the "equal protection
clause" of the 1987 Constitution because it
SECTION 44 OF REPUBLIC ACT NO. 8189 singles out the City and Municipal Election Moreover, to require the COMELEC to
VIOLATES THE ‘EQUAL PROTECTION Officers of the COMELEC as prohibited from reassign all employees (connected with the
CLAUSE’ ENSHRINED IN THE holding office in the same city or municipality registration of voters) who have served at
CONSTITUTION; for more than four (4) years. They maintain least four years in a given city or municipality
that there is no substantial distinction would entail a lot of administrative burden on
between them and other COMELEC officials, the part of the COMELEC.
II
and therefore, there is no valid classification
to justify the objective of the provision of law
Neither does Section 44 of RA 8189 infringe
SECTION 44 OF REPUBLIC ACT NO. 8189 under attack.
the security of tenure of petitioners nor
VIOLATES THE CONSTITUTIONAL unduly deprive them of due process of law.
GUARANTEE ON SECURITY OF TENURE
The Court is not persuaded by petitioners’ As held in Sta. Maria vs. Lopez.6
OF CIVIL SERVANTS;
arguments. The "equal protection clause" of
the 1987 Constitution permits a valid
"xxx the rule that outlaws unconsented
III classification under the following conditions:
transfers as anathema to security of tenure
applies only to an officer who is appointed -
SECTION 44 OF REPUBLIC ACT NO. 8189 1. The classification must rest on not merely assigned - to a particular station.
CONSTITUTES A DEPRIVATION OF substantial distinctions; Such a rule does not pr[o]scribe a transfer
PROPERTY WITHOUT DUE PROCESS OF carried out under a specific statute that
LAW; empowers the head of an agency to
periodically reassign the employees and
officers in order to improve the service of the titles gave no information, and In determining the constitutionality of a
agency. xxx" (italics supplied) which might therefore be statute dubbed as defectively titled, the
overlooked and carelessly and presumption is in favor of its validity.10
unintentionally adopted; and
The guarantee of security of tenure under the
Constitution is not a guarantee of perpetual As regards the issue raised by petitioners -
employment.1âwphi1 It only means that an 3. To fairly apprise the people, whether Section 44 of RA 8189 was enacted
employee cannot be dismissed (or through such publication of in accordance with Section 26 (2), Article VI
transferred) from the service for causes other legislative proceedings as is of the 1987 Constitution, petitioners have not
than those provided by law and after due usually made, of the subjects of convincingly shown grave abuse of discretion
process is accorded the employee. What it legislation that are being on the part of Congress. Respect due to co-
seeks to prevent is capricious exercise of the considered, in order that they equal departments of the government in
power to dismiss. But, where it is the law- may have opportunity of being matters entrusted to them by the
making authority itself which furnishes the heard thereon by petition or Constitution, and the absence of a clear
ground for the transfer of a class of otherwise if they shall so desire.7 showing of grave abuse of discretion suffice
employees, no such capriciousness can be to stay the judicial hand.11
raised for so long as the remedy proposed to
Section 26(1) of Article VI of the
cure a perceived evil is germane to the
1987 Constitution is sufficiently WHEREFORE, the petition is DISMISSED;
purposes of the law.
complied with where, as in this and the constitutionality and validity of
case, the title is comprehensive Section 44 of RA 8189 UPHELD. No
Untenable is petitioners’ contention that enough to /embrace the general pronouncement as to costs.
Section 44 of RA 8189 undermines the objective it seeks to achieve,
authority of COMELEC to appoint its own and if all the parts of the statute
SO ORDERED.
officials and employees. As stressed upon by are related and germane to the
the Solicitor General, Section 44 establishes subject matter embodied in the
a guideline for the COMELEC to follow. Said title or so long as the same are Davide, Jr., C.J., (Chairman), Bellosillo,
section provides the criterion or basis for the not inconsistent with or foreign to Melo, Puno, Vitug, Kapunan, Mendoza,
reassignment or transfer of an election officer the general subject and title.8 Panganiban, Quisumbing, Buena, Gonzaga-
and does not deprive the COMELEC of its Section 44 of RA 8189 is not Reyes, Ynares-Santiago, and De Leon, Jr.,
power to appoint, and maintain its authority isolated considering that it is JJ., concur.
over its officials and employees. As a matter related and germane to the Pardo, J., no part.
of fact, the questioned COMELEC subject matter stated in the title
resolutions and directives illustrate that it is of the law. The title of RA 8189
still the COMELEC which has the power to is "The Voter’s Registration Act
reassign and transfer its officials and of 1996" with a subject matter
employees. But as a government agency enunciated in the explanatory
tasked with the implementation and note as "AN ACT PROVIDING
enforcement of election laws, the COMELEC FOR A GENERAL
is duty bound to comply with the laws passed REGISTRATION OF VOTERS,
by Congress. ADOPTING A SYSTEM OF
CONTINUING REGISTRATION,
PRESCRIBING THE
The independence of the COMELEC is not at
PROCEDURES THEREOF AND
issue here. There is no impairment or
AUTHORIZING THE
emasculation of its power to appoint its own
APPROPRIATION OF FUNDS
officials and employees. In fact, Section 44
THEREFOR." Section 44, which
even strengthens the COMELEC’s power of
provides for the reassignment of
appointment, as the power to reassign or
election officers, is relevant to
transfer is within its exclusive jurisdiction and
the subject matter of registration
domain.
as it seeks to ensure the integrity
of the registration process by
Petitioners’ contention that Section 44 has an providing a guideline for the
isolated and different subject from that of RA COMELEC to follow in the
8189 and that the same is not expressed in reassignment of election officers.
the title of the law, is equally untenable. It is not an alien provision but
one which is related to the
conduct and procedure of
The objectives of Section 26(1), Article VI of continuing registration of voters.
the 1987 Constitution, that "[e]very bill In this regard, it bears stressing
passed by the Congress shall embrace only that the Constitution does not
one subject which shall be expressed in the require Congress to employ in
title thereof", are: the title of an enactment,
language of such precision as to
1. To prevent hodge-podge or mirror, fully index or catalogue,
log-rolling legislation; all the contents and the minute
details therein.9
2. To prevent surprise or fraud
upon the legislature by means of
provisions in bills of which the