604 Phil.

131

EN BANC

[ G.R. No. 179271, April 21, 2009 ]

ARANGAY ASSOCIATION FOR NATIONAL ADVANCEMENT AND

TRANSPARENCY (BANAT), PETITIONER, VS. COMMISSION ON
ELECTIONS (SITTING AS THE NATIONAL BOARD OF CANVASSERS),
RESPONDENT.

ARTS BUSINESS AND SCIENCE PROFESSIONALS, INTERVENOR.

AANGAT TAYO, INTERVENOR.

COALITION OF ASSOCIATIONS OF SENIOR CITIZENS IN THE

PHILIPPINES, INC. (SENIOR CITIZENS), INTERVENOR.

[G.R. NO. 179295]

BAYAN MUNA, ADVOCACY FOR TEACHER EMPOWERMENT THROUGH

ACTION, COOPERATION AND HARMONY TOWARDS EDUCATIONAL
REFORMS, INC., AND ABONO, PETITIONERS,VS. COMMISSION ON
ELECTIONS, RESPONDENT.

DECISION

CARPIO, J.: 

The Case

Petitioner in G.R. No. 179271 — Barangay Association for National Advancement and Transparency
(BANAT) — in a petition for certiorari and mandamus,[1] assails the Resolution[2] promulgated on 3
August 2007 by the Commission on Elections (COMELEC) in NBC No. 07-041 (PL). The
COMELEC's resolution in NBC No. 07-041 (PL) approved the recommendation of Atty. Alioden D.
Dalaig, Head of the National Board of Canvassers (NBC) Legal Group, to deny the petition of
BANAT for being moot. BANAT filed before the COMELEC En Banc, acting as NBC, a Petition to
Proclaim the Full Number of Party-List Representatives Provided by the Constitution.

The following are intervenors in G.R. No. 179271: Arts Business and Science Professionals (ABS),
Aangat Tayo (AT), and Coalition of Associations of Senior Citizens in the Philippines, Inc. (Senior
Citizens).

Petitioners in G.R. No. 179295 — Bayan Muna, Abono, and Advocacy for Teacher Empowerment
Through Action, Cooperation and Harmony Towards Educational Reforms (A Teacher) — in a
petition for certiorari with mandamus and prohibition,[3]  assails NBC Resolution No. 07-
60[4]  promulgated on 9 July 2007. NBC No. 07-60 made a partial proclamation of parties,
organizations and coalitions that obtained at least two percent of the total votes cast under the Party-
List System. The COMELEC announced that, upon completion of the canvass of the party-list results,
it would determine the total number of seats of each winning party, organization, or coalition in
accordance with Veterans Federation Party v. COMELEC[5] (Veterans).

Estrella DL Santos, in her capacity as President and First Nominee of the Veterans Freedom Party,
filed a motion to intervene in both G.R. Nos. 179271 and 179295.

The Facts

The 14 May 2007 elections included the elections for the party-list representatives. The COMELEC
counted 15,950,900 votes cast for 93 parties under the Party-List System.[6]

On 27 June 2002, BANAT filed a Petition to Proclaim the Full Number of Party-List Representatives
Provided by the Constitution, docketed as NBC No. 07-041 (PL) before the NBC. BANAT filed its
petition because "[t]he Chairman and the Members of the [COMELEC] have recently been quoted in
the national papers that the [COMELEC] is duty bound to and shall implement the  Veterans  ruling,
that is, would apply the Panganiban formula in allocating party-list seats."[7]  There were no
intervenors in BANAT's petition before the NBC. BANAT filed a memorandum on 19 July 2007.

On 9 July 2007, the COMELEC, sitting as the NBC, promulgated NBC Resolution No. 07-60. NBC
Resolution No. 07-60 proclaimed thirteen (13) parties as winners in the party-list elections, namely:
Buhay Hayaan Yumabong (BUHAY), Bayan Muna, Citizens' Battle Against Corruption (CIBAC),
Gabriela's Women Party (Gabriela), Association of Philippine Electric Cooperatives (APEC), A
Teacher, Akbayan! Citizen's Action Party (AKBAYAN), Alagad, Luzon Farmers Party (BUTIL),
Cooperative-Natco Network Party (COOP-NATCCO), Anak Pawis, Alliance of Rural Concerns
(ARC), and Abono. We quote NBC Resolution No. 07-60 in its entirety below:

WHEREAS, the Commission on Elections sitting  en banc  as National Board of

Canvassers, thru its Sub-Committee for Party-List, as of 03 July 2007, had officially
canvassed, in open and public proceedings, a total of fifteen million two hundred eighty
three thousand six hundred fifty-nine (15,283,659) votes under the Party-List System of
Representation, in connection with the National and Local Elections conducted last 14
May 2007;

WHEREAS, the study conducted by the Legal and Tabulation Groups of the National
Board of Canvassers reveals that the projected/maximum total party-list votes cannot go
any higher than  sixteen million seven hundred twenty three thousand one hundred
twenty-one (16,723,121) votes given the following statistical data:

Projected/Maximum Party-List Votes for May 2007 Elections

i. Total party-list votes already canvassed/tabulated 15,283,659

ii. Total party-list votes remaining uncanvassed/

1,337,032
untabulated (i.e. canvass deferred)

iii. Maximum party-list votes (based on 100%

outcome) from areas not yet submitted for canvass
102,430
(Bogo, Cebu; Bais City; Pantar, Lanao del Norte;
and Pagalungan, Maguindanao)

Maximum Total Party-List Votes 16,723,121

WHEREAS, Section 11 of Republic Act No. 7941 (Party-List System Act) provides in
part:

The parties, organizations, and coalitions receiving at least two percent (2%) of the total
votes cast for the party-list system shall be entitled to one seat each: provided, that those
garnering more than two percent (2%) of the votes shall be entitled to additional seats in
proportion to their total number of votes: provided, finally, that each party, organization, or
coalition shall be entitled to not more than three (3) seats.

WHEREAS, for the 2007 Elections, based on the above projected total of party-list votes,
the presumptive two percent (2%) threshold can be pegged at three hundred thirty four
thousand four hundred sixty-two (334,462) votes;

WHEREAS, the Supreme Court, in  Citizen's Battle Against Corruption (CIBAC) versus
COMELEC, reiterated its ruling in Veterans Federation Party versus COMELEC adopting
a formula for the additional seats of each party, organization or coalition receving more
than the required two percent (2%) votes, stating that the same shall be determined only
after all party-list ballots have been completely canvassed;

WHEREAS, the parties, organizations, and coalitions that have thus far garnered at
least three hundred thirty four thousand four hundred sixty-two (334,462) votes are as
follows:

PARTY/ORGANIZATION/ VOTES
RANK
COALITION RECEIVED
1 BUHAY 1,163,218
2 BAYAN MUNA 972,730
3 CIBAC 760,260
4 GABRIELA 610,451
5 APEC 538,971
6 A TEACHER 476,036
7 AKBAYAN 470,872
8 ALAGAD 423,076
9 BUTIL 405,052
10 COOP-NATCO 390,029
11 BATAS 386,361
12 ANAK PAWIS 376,036
13 ARC 338,194
14 ABONO 337,046

WHEREAS, except for Bagong Alyansang Tagapagtaguyod ng Adhikaing Sambayanan

(BATAS), against which an  URGENT PETITION FOR CANCELLATION/REMOVAL OF
REGISTRATION AND DISQUALIFICATION OF PARTY-LIST NOMINEE (With Prayer
for the Issuance of Restraining Order) has been filed before the Commission, docketed as
SPC No. 07-250, all the parties, organizations and coalitions included in the
aforementioned list are therefore entitled to at least one seat under the party-list system of
representation in the meantime.

NOW, THEREFORE, by virtue of the powers vested in it by the Constitution, the Omnibus
Election Code, Executive Order No. 144, Republic Act Nos. 6646, 7166, 7941, and other
election laws, the Commission on Elections, sitting  en banc  as the National Board of
Canvassers, hereby RESOLVES to PARTIALLY PROCLAIM, subject to certain
conditions set forth below, the following parties, organizations and coalitions participating
under the Party-List System:

1 Buhay Hayaan Yumabong BUHAY

2 Bayan Muna BAYAN MUNA
3 Citizens Battle Against CIBAC
Corruption
4 Gabriela Women's Party GABRIELA
5 Association of Philippine APEC
Electric Cooperatives
6 Advocacy for Teacher A TEACHER
Empowerment Through
Action, Cooperation and
Harmony Towards
Educational Reforms, Inc.
7 Akbayan! Citizen's Action AKBAYAN
Party
8 Alagad ALAGAD
9 Luzon Farmers Party BUTIL
10 Cooperative-Natco Network COOP-NATCCO
Party
11 Anak Pawis ANAKPAWIS
 12 Alliance of Rural Concerns ARC
13 Abono ABONO

This is without prejudice to the proclamation of other parties, organizations, or coalitions

which may later on be established to have obtained at least two percent (2%) of the total
actual votes cast under the Party-List System.

The total number of seats of each winning party, organization or coalition shall be
determined pursuant to  Veterans Federation Party versus COMELEC  formula upon
completion of the canvass of the party-list results.

The proclamation of Bagong Alyansang Tagapagtaguyod ng Adhikaing Sambayanan

(BATAS) is hereby deferred until final resolution of SPC No. 07-250, in order not to render
the proceedings therein moot and academic.

Finally, all proclamation of the nominees of concerned parties, organizations and coalitions
with pending disputes shall likewise be held in abeyance until final resolution of their
respective cases.

Let the Clerk of the Commission implement this Resolution, furnishing a copy thereof to
the Speaker of the House of Representatives of the Philippines.

SO ORDERED.[8] (Emphasis in the original)

Pursuant to NBC Resolution No. 07-60, the COMELEC, acting as NBC, promulgated NBC
Resolution No. 07-72, which declared the additional seats allocated to the appropriate parties. We
quote from the COMELEC's interpretation of the Veterans formula as found in NBC Resolution No.
07-72:

WHEREAS, on July 9, 2007, the Commission on Elections sitting en banc as the National
Board of Canvassers proclaimed thirteen (13) qualified parties, organization[s] and
coalitions based on the presumptive two percent (2%) threshold of 334,462 votes from the
projected maximum total number of party-list votes of 16,723,121, and were thus given
one (1) guaranteed party-list seat each;

WHEREAS, per Report of the Tabulation Group and Supervisory Committee of the
National Board of Canvassers, the projected maximum total party-list votes, as of July 11,
2007, based on the votes actually canvassed, votes canvassed but not included in Report
No. 29, votes received but uncanvassed, and maximum votes expected for Pantar, Lanao
del Norte, is 16,261,369; and that the projected maximum total votes for the thirteen (13)
qualified parties, organizations and coalition[s] are as follows:

Party-List Projected total

number of votes
1 BUHAY 1,178,747
2 BAYAN MUNA 977,476
3 CIBAC 755,964
4 GABRIELA 621,718
5 APEC 622,489
6 A TEACHER 492,369
7 AKBAYAN 462,674
8 ALAGAD 423,190
9 BUTIL 409,298
10 COOP-NATCO 412,920
11 ANAKPAWIS 370,165
12 ARC 375,846
13 ABONO 340,151

WHEREAS, based on the above Report, Buhay Hayaan Yumabong  (Buhay) obtained the
highest number of votes among the thirteen (13) qualified parties, organizations and
coalitions, making it the "first party" in accordance with Veterans Federation Party versus
COMELEC, reiterated in Citizen's Battle Against Corruption (CIBAC) versus COMELEC;

WHEREAS, qualified parties, organizations and coalitions participating under the party-
list system of representation that have obtained one guaranteed (1) seat may be entitled to
an additional seat or seats based on the formula prescribed by the Supreme Court
in Veterans;

WHEREAS, in determining the additional seats for the "first party", the correct formula as
expressed in Veterans, is:

Number of votes of first Proportion of votes of

party first
----------------- = party relative to total
---- votes for
Total votes for party-list
party-list system
system

wherein the proportion of votes received by the first party (without rounding off) shall
entitle it to additional seats:

Proportion of votes Additional seats

received

by the first party

Equal to or at least 6% Two (2) additional
seats
Equal to or greater than 4% One (1) additional
but less than 6% seat
Less than 4% No additional seat
WHEREAS, applying the above formula, Buhay obtained the following percentage:

1,178,747
= 0.07248 or
--------
7.2%
16,261,369

which entitles it to two (2) additional seats.

WHEREAS, in determining the additional seats for the other qualified parties,
organizations and coalitions, the correct formula as expressed in  Veterans  and reiterated
in CIBAC is, as follows:

No. of votes of
concerned party No. of
additional
Additional seats = ------------------- x seats
for  allocated to
a concerned party No. of votes of first party
first party

WHEREAS, applying the above formula, the results are as follows:

Party List Percentage Additional Seat

BAYAN MUNA 1.65 1
CIBAC 1.28 1
GABRIELA 1.05 1
APEC 1.05 1
A TEACHER 0.83 0
AKBAYAN 0.78 0
ALAGAD 0.71 0
BUTIL 0.69 0
COOP-NATCO 0.69 0
ANAKPAWIS 0.62 0
ARC 0.63 0
ABONO 0.57 0

NOW THEREFORE, by virtue of the powers vested in it by the Constitution, Omnibus

Election Code, Executive Order No. 144, Republic Act Nos. 6646, 7166, 7941 and other
elections laws, the Commission on Elections  en banc  sitting as the National Board of
Canvassers, hereby RESOLVED, as it hereby RESOLVES, to proclaim the following
parties, organizations or coalitions as entitled to additional seats, to wit:
 Party List Additional Seats
BUHAY 2
BAYAN MUNA 1
CIBAC 1
GABRIELA 1
APEC 1

This is without prejudice to the proclamation of other parties, organizations or coalitions

which may later on be established to have obtained at least two per cent (2%) of the total
votes cast under the party-list system to entitle them to one (1) guaranteed seat, or to the
appropriate percentage of votes to entitle them to one (1) additional seat.

Finally, all proclamation of the nominees of concerned parties, organizations and coalitions
with pending disputes shall likewise be held in abeyance until final resolution of their
respective cases.

Let the National Board of Canvassers Secretariat implement this Resolution, furnishing a
copy hereof to the Speaker of the House of Representatives of the Philippines.

SO ORDERED.[9]

Acting on BANAT's petition, the NBC promulgated NBC Resolution No. 07-88 on 3 August 2007,
which reads as follows:

This pertains to the Petition to Proclaim the Full Number of Party-List Representatives
Provided by the Constitution filed by the Barangay Association for National Advancement
and Transparency (BANAT).

Acting on the foregoing Petition of the Barangay Association for National Advancement
and Transparency (BANAT) party-list, Atty. Alioden D. Dalaig, Head, National Board of
Canvassers Legal Group submitted his comments/observations and recommendation
thereon [NBC 07-041 (PL)], which reads:

COMMENTS / OBSERVATIONS:

Petitioner Barangay Association for National Advancement and Transparency (BANAT),

in its Petition to Proclaim the Full Number of Party-List Representatives Provided by the
Constitution prayed for the following reliefs, to wit:

1. That the full number -- twenty percent (20%) -- of Party-List representatives as

mandated by Section 5, Article VI of the Constitution shall be proclaimed.

2. Paragraph (b), Section 11 of RA 7941 which prescribes the 2% threshold votes,

should be harmonized with Section 5, Article VI of the Constitution and with Section
12 of the same RA 7941 in that it should be applicable only to the first party-list
 representative seats to be allotted on the basis of their initial/first ranking.

3. The 3-seat limit prescribed by RA 7941 shall be applied; and

4. Initially, all party-list groups shall be given the number of seats corresponding to
every 2% of the votes they received and the additional seats shall be allocated in
accordance with Section 12 of RA 7941, that is, in proportion to the percentage of
votes obtained by each party-list group in relation to the total nationwide votes cast
in the party-list election, after deducting the corresponding votes of those which were
allotted seats under the 2% threshold rule. In fine, the formula/procedure prescribed
in the "ALLOCATION OF PARTY-LIST SEATS, ANNEX "A" of COMELEC
RESOLUTION 2847 dated 25 June 1996, shall be used for [the] purpose of
determining how many seats shall be proclaimed, which party-list groups are entitled
to representative seats and how many of their nominees shall seat [sic].

5. In the alternative, to declare as unconstitutional Section 11 of Republic Act No. 7941

and that the procedure in allocating seats for party-list representative prescribed by
Section 12 of RA 7941 shall be followed.

RECOMMENDATION:

The petition of BANAT is now moot and academic.

The Commission En Banc in NBC Resolution No. 07-60 promulgated July 9, 2007 re"In
the Matter of the Canvass of Votes and Partial Proclamation of the Parties, Organizations
and Coalitions Participating Under the Party-List System During the May 14, 2007
National and Local Elections" resolved among others that the total number of seats of each
winning party, organization or coalition shall be determined pursuant to the  Veterans
Federation Party versus COMELEC formula upon completion of the canvass of the party-
list results."

WHEREFORE, premises considered, the National Board of Canvassers RESOLVED, as it

hereby RESOLVES, to approve and adopt the recommendation of Atty. Alioden D. Dalaig,
Head, NBC Legal Group, to DENY the herein petition of BANAT for being moot and
academic.

Let the Supervisory Committee implement this resolution.

SO ORDERED.[10]

BANAT filed a petition for certiorari and mandamus assailing the ruling in NBC Resolution No. 07-
88. BANAT did not file a motion for reconsideration of NBC Resolution No. 07-88.

On 9 July 2007, Bayan Muna, Abono, and A Teacher asked the COMELEC, acting as NBC, to
reconsider its decision to use the Veterans formula as stated in its NBC Resolution No. 07-60 because
the Veterans formula is violative of the Constitution and of Republic Act No. 7941 (R.A. No. 7941).
On the same day, the COMELEC denied reconsideration during the proceedings of the NBC.[11]

Aside from the thirteen party-list organizations proclaimed on 9 July 2007, the COMELEC
proclaimed three other party-list organizations as qualified parties entitled to one guaranteed seat
under the Party-List System: Agricultural Sector Alliance of the Philippines, Inc. (AGAP),[12] Anak
Mindanao (AMIN),[13]  and An Waray.[14]  Per the certification[15]  by COMELEC, the following
party-list organizations have been proclaimed as of 19 May 2008:

Party-List No. of Seat(s)
1.1 Buhay 3
1.2 Bayan Muna 2
1.3 CIBAC 2
1.4 Gabriela 2
1.5 APEC 2
1.6 A Teacher 1
1.7 Akbayan 1
1.8 Alagad 1
1.9 Butil 1
1.10 Coop-Natco [sic] 1
1.11 Anak Pawis 1
1.12 ARC 1
1.13 Abono 1
1.14 AGAP 1
1.15 AMIN 1

The proclamation of Bagong Alyansang Tagapagtaguyod ng Adhikaing Sambayanan (BATAS),

against which an Urgent Petition for Cancellation/Removal of Registration and Disqualification of
Party-list Nominee (with Prayer for the Issuance of Restraining Order) has been filed before the
COMELEC, was deferred pending final resolution of SPC No. 07-250.

Issues

BANAT brought the following issues before this Court:

1. Is the twenty percent allocation for party-list representatives provided in Section

5(2), Article VI of the Constitution mandatory or is it merely a ceiling?

2. Is the three-seat limit provided in Section 11(b) of RA 7941 constitutional?

3. Is the two percent threshold and "qualifier" votes prescribed by the same Section
11(b) of RA 7941 constitutional?

4. How shall the party-list representatives be allocated?[16]

Bayan Muna, A Teacher, and Abono, on the other hand, raised the following issues in their petition:

I. Respondent Commission on Elections, acting as National Board of Canvassers,

committed grave abuse of discretion amounting to lack or excess of jurisdiction when
it promulgated NBC Resolution No. 07-60 to implement the First-Party Rule in the
allocation of seats to qualified party-list organizations as said rule:

A. Violates the constitutional principle of proportional representation.

B. Violates the provisions of RA 7941 particularly:

1. The 2-4-6 Formula used by the First Party Rule in allocating additional
seats for the "First Party" violates the principle of proportional
representation under RA 7941.

2. The use of two formulas in the allocation of additional seats, one for the
"First Party" and another for the qualifying parties, violates Section 11(b)
of RA 7941.

3. The proportional relationships under the First Party Rule are different
from those required under RA 7941;

C. Violates the "Four Inviolable Parameters" of the Philippine party-list system as

provided for under the same case of  Veterans Federation Party, et al. v.
COMELEC.

II. Presuming that the Commission on Elections did not commit grave abuse of
discretion amounting to lack or excess of jurisdiction when it implemented the First-
Party Rule in the allocation of seats to qualified party-list organizations, the same
being merely in consonance with the ruling in Veterans Federations Party, et al. v.
COMELEC, the instant Petition is a justiciable case as the issues involved herein are
constitutional in nature, involving the correct interpretation and implementation of
RA 7941, and are of transcendental importance to our nation.[17]

Considering the allegations in the petitions and the comments of the parties in these cases, we defined
the following issues in our advisory for the oral arguments set on 22 April 2008:

1. Is the twenty percent allocation for party-list representatives in Section 5(2), Article VI of the
Constitution mandatory or merely a ceiling?

2. Is the three-seat limit in Section 11(b) of RA 7941 constitutional?

3. Is the two percent threshold prescribed in Section 11(b) of RA 7941 to qualify for one seat
constitutional?

 4. How shall the party-list representative seats be allocated?

5. Does the Constitution prohibit the major political parties from participating in the party-list
elections? If not, can the major political parties be barred from participating in the party-list
elections?[18]

The Ruling of the Court

The petitions have partial merit. We maintain that a Philippine-style party-list election has at least four
inviolable parameters as clearly stated in Veterans. For easy reference, these are:

First, the twenty percent allocation — the combined number of all party-list congressmen
shall not exceed twenty percent of the total membership of the House of Representatives,
including those elected under the party list;

Second,  the two percent threshold — only those parties garnering a minimum of two
percent of the total valid votes cast for the party-list system are "qualified" to have a seat in
the House of Representatives;

Third,  the three-seat limit — each qualified party, regardless of the number of votes it
actually obtained, is entitled to a maximum of three seats; that is, one "qualifying" and two
additional seats;

Fourth, proportional representation — the additional seats which a qualified party is

entitled to shall be computed "in proportion to their total number of votes."[19]

However, because the formula in  Veterans  has flaws in its mathematical interpretation of the term
"proportional representation," this Court is compelled to revisit the formula for the allocation of
additional seats to party-list organizations.

Number of Party-List Representatives: The Formula Mandated by the Constitution

Section 5, Article VI of the Constitution provides:

Section 5. (1) The House of Representatives shall be composed of not more than two
hundred and fifty members, unless otherwise fixed by law, who shall be elected from
legislative districts apportioned among the provinces, cities, and the Metropolitan Manila
area in accordance with the number of their respective inhabitants, and on the basis of a
uniform and progressive ratio, and those who, as provided by law, shall be elected through
a party-list system of registered national, regional, and sectoral parties or organizations.

(2) The party-list representatives shall constitute twenty per centum of the total number of
representatives including those under the party-list. For three consecutive terms after the
ratification of this Constitution, one-half of the seats allocated to party-list representatives
shall be filled, as provided by law, by selection or election from the labor, peasant, urban
 poor, indigenous cultural communities, women, youth, and such other sectors as may be
provided by law, except the religious sector.

The first paragraph of Section 11 of R.A. No. 7941 reads:

Section 11.  Number of Party-List Representatives.  — The party-list representatives shall

constitute twenty per centum (20%) of the total number of the members of the House of
Representatives including those under the party-list.

xxx

Section 5(1), Article VI of the Constitution states that the "House of Representatives shall be
composed of not more than two hundred and fifty members, unless otherwise fixed by law." The
House of Representatives shall be composed of district representatives and party-list representatives.
The Constitution allows the legislature to modify the number of the members of the House of
Representatives.

Section 5(2), Article VI of the Constitution, on the other hand, states the ratio of party-list
representatives to the total number of representatives. We compute the number of seats available to
party-list representatives from the number of legislative districts. On this point, we do not deviate
from the first formula in Veterans, thus:

Number of seats
Number of seats available to
available to
x .20 party-list
legislative districts
= representatives
________________________
.80

This formula allows for the corresponding increase in the number of seats available for party-list
representatives whenever a legislative district is created by law. Since the 14th  Congress of the
Philippines has 220 district representatives, there are 55 seats available to party-list representatives.

220 x .20 = 55
________________________
.80

After prescribing the ratio of the number of party-list representatives to the total number of
representatives,  the Constitution left the manner of allocating the seats available to party-list
representatives to the wisdom of the legislature.

Allocation of Seats for Party-List Representatives: The Statutory Limits Presented by the Two
Percent Threshold and the Three-Seat Cap

All parties agree on the formula to determine the maximum number of seats reserved under the Party-
List System, as well as on the formula to determine the guaranteed seats to party-list candidates
garnering at least two-percent of the total party-list votes. However, there are numerous interpretations
of the provisions of R.A. No. 7941 on the allocation of  "additional seats"  under the Party-List
System.  Veterans  produced the First Party Rule,[20]  and Justice Vicente V. Mendoza's dissent
in Veterans presented Germany's Niemeyer formula[21] as an alternative.

The Constitution left to Congress the determination of the manner of allocating the seats for party-list
representatives. Congress enacted R.A. No. 7941, paragraphs (a) and (b) of Section 11 and Section 12
of which provide:

Section 11. Number of Party-List Representatives. — x x x

In determining the allocation of seats for the second vote,[22] the following procedure shall
be observed:

(a) The parties, organizations, and coalitions shall be ranked from the highest to the lowest
based on the number of votes they garnered during the elections.

(b) The parties, organizations, and coalitions receiving at least two percent (2%) of the
total votes cast for the party-list system shall be entitled to one seat each: Provided, That
those garnering more than two percent (2%) of the votes shall be entitled to
additional seats in proportion to their total number of votes:Provided, finally, That
each party, organization, or coalition shall be entitled to not more than three (3) seats.

Section 12.  Procedure in Allocating Seats for Party-List Representatives. — The

COMELEC shall tally all the votes for the parties, organizations, or coalitions on a
nationwide basis, rank them according to the number of votes received and allocate party-
list representatives proportionately according to the percentage of votes obtained by each
party, organization, or coalition as against the total nationwide votes cast for the party-list
system. (Emphasis supplied)

In G.R. No. 179271, BANAT presents two interpretations through three formulas to allocate party-list
representative seats.

The first interpretation allegedly harmonizes the provisions of Section 11(b) on the 2% requirement
with Section 12 of R.A. No. 7941. BANAT described this procedure as follows:

(a) The party-list representatives shall constitute twenty percent (20%) of the total
Members of the House of Representatives including those from the party-list groups as
prescribed by Section 5, Article VI of the Constitution, Section 11 (1st par.) of RA 7941
and Comelec Resolution No. 2847 dated 25 June 1996. Since there are 220 District
Representatives in the 14th Congress, there shall be 55 Party-List Representatives. All seats
shall have to be proclaimed.

(b) All party-list groups shall initially be allotted one (1) seat for every two per centum
(2%) of the total party-list votes they obtained; provided, that no party-list groups shall
have more than three (3) seats (Section 11, RA 7941).

(c) The remaining seats shall, after deducting the seats obtained by the party-list groups
 under the immediately preceding paragraph and after deducting from their total the votes
corresponding to those seats, the remaining seats shall be allotted proportionately to all the
party-list groups which have not secured the maximum three (3) seats under the 2%
threshold rule, in accordance with Section 12 of RA 7941.[23]

Forty-four (44) party-list seats will be awarded under BANAT's first interpretation.

The second interpretation presented by BANAT assumes that the 2% vote requirement is declared
unconstitutional, and apportions the seats for party-list representatives by following Section 12 of
R.A. No. 7941. BANAT states that the COMELEC:

(a) shall tally all the votes for the parties, organizations, or coalitions on a nationwide
basis; (b) rank them according to the number of votes received; and, (c) allocate party-list
representatives proportionately according to the percentage of votes obtained by each
party, organization or coalition as against the total nationwide votes cast for the party-list
system.[24]

BANAT used two formulas to obtain the same results: one is based on the proportional percentage of
the votes received by each party as against the total nationwide party-list votes, and the other is "by
making the votes of a party-list with a median percentage of votes as the divisor in computing the
allocation of seats."[25]  Thirty-four (34) party-list seats will be awarded under BANAT's second
interpretation.

In G.R. No. 179295, Bayan Muna, Abono, and A Teacher criticize both the COMELEC's original 2-4-
6 formula and the  Veterans  formula for systematically preventing all the party-list seats from being
filled up. They claim that both formulas do not factor in the total number of seats alloted for the entire
Party-List System. Bayan Muna, Abono, and A Teacher reject the three-seat cap, but accept the 2%
threshold. After determining the qualified parties, a second percentage is generated by dividing the
votes of a qualified party by the total votes of all qualified parties only. The number of seats allocated
to a qualified party is computed by multiplying the total party-list seats available with the second
percentage. There will be a first round of seat allocation, limited to using the whole integers as the
equivalent of the number of seats allocated to the concerned party-list. After all the qualified parties
are given their seats, a second round of seat allocation is conducted. The fractions, or remainders,
from the whole integers are ranked from highest to lowest and the remaining seats on the basis of this
ranking are allocated until all the seats are filled up.[26]

We examine what R.A. No. 7941 prescribes to allocate seats for party-list representatives.

Section 11(a) of R.A. No. 7941 prescribes the ranking of the participating parties from the highest to
the lowest based on the number of votes they garnered during the elections.

Table 1. Ranking of the participating parties from the highest to the lowest based on the
number of votes garnered during the elections.[27]

Votes Votes
Rank Party Rank Party
Garnered Garnered
 1 BUHAY 1,169,234 48 KALAHI 88,868
2 BAYAN MUNA 979,039 49 APOI 79,386
3 CIBAC 755,686 50 BP 78,541
4 GABRIELA 621,171 51 AHONBAYAN 78,424
5 APEC 619,657 52 BIGKIS 77,327
6 A TEACHER 490,379 53 PMAP 75,200
7 AKBAYAN 466,112 54 AKAPIN 74,686
8 ALAGAD 423,149 55 PBA 71,544
9 COOP-NATCCO 409,883 56 GRECON 62,220
10 BUTIL 409,160 57 BTM 60,993
11 BATAS 385,810 58 A SMILE 58,717
12 ARC 374,288 59 NELFFI 57,872
13 ANAKPAWIS 370,261 60 AKSA 57,012
14 ABONO 339,990 61 BAGO 55,846
15 AMIN 338,185 62 BANDILA 54,751
16 AGAP 328,724 63 AHON 54,522
17 AN WARAY 321,503 64 ASAHAN MO 51,722
18 YACAP 310,889 65 AGBIAG! 50,837
19 FPJPM 300,923 66 SPI 50,478
20 UNI-MAD 245,382 67 BAHANDI 46,612
21 ABS 235,086 68 ADD 45,624
22 KAKUSA 228,999 69 AMANG 43,062
23 KABATAAN 228,637 70 ABAY PARAK 42,282
24 ABA-AKO 218,818 71 BABAE KA 36,512
25 ALIF 217,822 72 SB 34,835
SENIOR
26 213,058 73 ASAP 34,098
CITIZENS
27 AT 197,872 74 PEP 33,938
28 VFP 196,266 75 ABA ILONGGO 33,903
29 ANAD 188,521 76 VENDORS 33,691
30 BANAT 177,028 77 ADD-TRIBAL 32,896
ANG
31 170,531 78 ALMANA 32,255
KASANGGA
AANGAT KA
32 BANTAY 169,801 79 29,130
PILIPINO
33 ABAKADA 166,747 80 AAPS 26,271
34 1-UTAK 164,980 81 HAPI 25,781
35 TUCP 162,647 82 AAWAS 22,946
 36 COCOFED 155,920 83 SM 20,744
37 AGHAM 146,032 84 AG 16,916
38 ANAK 141,817 85 AGING PINOY 16,729
ABANSE!
39 130,356 86 APO 16,421
PINAY
BIYAYANG
40 PM 119,054 87 16,241
BUKID
41 AVE 110,769 88 ATS 14,161
42 SUARA 110,732 89 UMDJ 9,445
BUKLOD
43 ASSALAM 110,440 90 8,915
FILIPINA
44 DIWA 107,021 91 LYPAD 8,471
45 ANC 99,636 92 AA-KASOSYO 8,406
46 SANLAKAS 97,375 93 KASAPI 6,221
47 ABC 90,058 TOTAL 15,950,900

The first clause of Section 11(b) of R.A. No. 7941 states that "parties, organizations, and coalitions
receiving at least two percent (2%) of the total votes cast for the party-list system shall be entitled to
one seat each." This clause guarantees a seat to the two-percenters. In Table 2 below, we use the first
20 party-list candidates for illustration purposes. The percentage of votes garnered by each party is
arrived at by dividing the number of votes garnered by each party by 15,950,900, the total number of
votes cast for all party-list candidates.

Table 2. The first 20 party-list candidates and their respective percentage of votes garnered
over the total votes for the party-list.[28]

Votes Garnered
Votes over Total Votes Guaranteed
Rank Party
Garnered for Party-List, Seat
in %
1 BUHAY 1,169,234 7.33% 1
2 BAYAN MUNA 979,039 6.14% 1
3 CIBAC 755,686 4.74% 1
4 GABRIELA 621,171 3.89% 1
5 APEC 619,657 3.88% 1
6 A TEACHER 490,379 3.07% 1
7 AKBAYAN 466,112 2.92% 1
8 ALAGAD 423,149 2.65% 1
COOP-
9 409,883 2.57% 1
NATCCO
10 BUTIL 409,160 2.57% 1
 11 BATAS[29] 385,810 2.42% 1
12 ARC 374,288 2.35% 1
13 ANAKPAWIS 370,261 2.32% 1
14 ABONO 339,990 2.13% 1
15 AMIN 338,185 2.12% 1
16 AGAP 328,724 2.06% 1
17 AN WARAY 321,503 2.02% 1
Total 17
18 YACAP 310,889 1.95% 0
19 FPJPM 300,923 1.89% 0
20 UNI-MAD 245,382 1.54% 0

From Table 2 above, we see that only 17 party-list candidates received at least 2% from the total
number of votes cast for party-list candidates. The 17 qualified party-list candidates, or the two-
percenters, are the party-list candidates that are "entitled to one seat each," or the guaranteed seat. In
this first round of seat allocation, we distributed 17 guaranteed seats.

The second clause of Section 11(b) of R.A. No. 7941 provides that "those garnering more than two
percent (2%) of the votes shall be entitled to additional seats in proportion to their total number of
votes." This is where petitioners' and intervenors' problem with the formula
in Veterans lies. Veterans interprets the clause "in proportion to their total number of votes" to be  in
proportion to the votes of the first party. This interpretation is contrary to the express language of
R.A. No. 7941.

We rule that, in computing the allocation of  additional seats, the continued operation of the two
percent threshold for the distribution of the additional seats as found in the second clause of Section
11(b) of R.A. No. 7941 is unconstitutional. This Court finds that the two percent threshold makes it
mathematically impossible to achieve the maximum number of available party list seats when the
number of available party list seats exceeds 50. The continued operation of the two percent threshold
in the distribution of the additional seats frustrates the attainment of the permissive ceiling that 20% of
the members of the House of Representatives shall consist of party-list representatives.

To illustrate: There are 55 available party-list seats. Suppose there are 50 million votes cast for the 100
participants in the party list elections. A party that has two percent of the votes cast, or one million
votes, gets a guaranteed seat. Let us further assume that the first 50 parties all get one million votes.
Only 50 parties get a seat despite the availability of 55 seats. Because of the operation of the two
percent threshold, this situation will repeat itself even if we increase the available party-list seats to 60
seats and even if we increase the votes cast to 100 million. Thus, even if the maximum number of
parties get two percent of the votes for every party, it is always impossible for the number of occupied
party-list seats to exceed 50 seats as long as the two percent threshold is present.

We therefore strike down the two percent threshold only in relation to the distribution of the additional
seats as found in the second clause of Section 11(b) of R.A. No. 7941. The two percent threshold
presents an unwarranted obstacle to the full implementation of Section 5(2), Article VI of the
Constitution and prevents the attainment of "the broadest possible representation of party, sectoral or
group interests in the House of Representatives."[30]

In determining the allocation of seats for party-list representatives under Section 11 of R.A. No. 7941,
the following procedure shall be observed:

1. The parties, organizations, and coalitions shall be ranked from the highest to the lowest based on
the number of votes they garnered during the elections.

2. The parties, organizations, and coalitions receiving at least two percent (2%) of the total votes
cast for the party-list system shall be entitled to one guaranteed seat each.

3. Those garnering sufficient number of votes, according to the ranking in paragraph 1, shall be
entitled to additional seats in proportion to their total number of votes until all the additional
seats are allocated.

4. Each party, organization, or coalition shall be entitled to not more than three (3) seats.

In computing the additional seats, the guaranteed seats shall no longer be included because they have
already been allocated, at one seat each, to every two-percenter. Thus, the remaining available seats
for allocation as "additional seats" are the maximum seats reserved under the Party List System less
the guaranteed seats. Fractional seats are disregarded in the absence of a provision in R.A. No. 7941
allowing for a rounding off of fractional seats.

In declaring the two percent threshold unconstitutional, we do not limit our allocation of additional
seats in Table 3 below to the two-percenters. The percentage of votes garnered by each party-list
candidate is arrived at by dividing the number of votes garnered by each party by 15,950,900, the total
number of votes cast for party-list candidates. There are two steps in the second round of seat
allocation. First, the percentage is multiplied by the remaining available seats, 38, which is the
difference between the 55 maximum seats reserved under the Party-List System and the 17 guaranteed
seats of the two-percenters. The whole integer of the product of the percentage and of the remaining
available seats corresponds to a party's share in the remaining available seats. Second, we assign one
party-list seat to each of the parties next in rank until all available seats are completely distributed. We
distributed all of the remaining 38 seats in the second round of seat allocation. Finally, we apply the
three-seat cap to determine the number of seats each qualified party-list candidate is entitled. Thus:

Table 3. Distribution of Available Party-List Seats

Rank Party Votes Votes Guaranteed Additional (B) plus Applying

Garnered Garnered Seat  Seats  (C), in the three
over Total


whole seat cap
Votes for (First (Second integers 

Party List, Round)  Round) 

in %


(E)


(B) (C) (D)
(A)
1 BUHAY 1,169,234 7.33% 1 2.79 3 N.A.
BAYAN
2 979,039 6.14% 1 2.33 3 N.A.
MUNA
3 CIBAC 755,686 4.74% 1 1.80 2 N.A.
4 GABRIELA 621,171 3.89% 1 1.48 2 N.A.
5 APEC 619,657 3.88% 1 1.48 2 N.A.
6 A Teacher 490,379 3.07% 1 1.17 2 N.A.
7 AKBAYAN 466,112 2.92% 1 1.11 2 N.A.
8 ALAGAD 423,149 2.65% 1 1.01 2 N.A.
COOP-
9[31] 409,883 2.57% 1 1 2 N.A.
NATCCO
10 BUTIL 409,160 2.57% 1 1 2 N.A.
11 BATAS 385,810 2.42% 1 1 2 N.A.
12 ARC 374,288 2.35% 1 1 2 N.A.
13 ANAKPAWIS 370,261 2.32% 1 1 2 N.A.
14 ABONO 339,990 2.13% 1 1 2 N.A.
15 AMIN 338,185 2.12% 1 1 2 N.A.
16 AGAP 328,724 2.06% 1 1 2 N.A.
17 AN WARAY 321,503 2.02% 1 1 2 N.A.
18 YACAP 310,889 1.95% 0 1 1 N.A.
19 FPJPM 300,923 1.89% 0 1 1 N.A.
20 UNI-MAD 245,382 1.54% 0 1 1 N.A.
21 ABS 235,086 1.47% 0 1 1 N.A.
22 KAKUSA 228,999 1.44% 0 1 1 N.A.
23 KABATAAN 228,637 1.43% 0 1 1 N.A.
24 ABA-AKO 218,818 1.37% 0 1 1 N.A.
25 ALIF 217,822 1.37% 0 1 1 N.A.
SENIOR
26 213,058 1.34% 0 1 1 N.A.
CITIZENS
27 AT 197,872 1.24% 0 1 1 N.A.
28 VFP 196,266 1.23% 0 1 1 N.A.
29 ANAD 188,521 1.18% 0 1 1 N.A.
30 BANAT 177,028 1.11% 0 1 1 N.A.
ANG
31 170,531 1.07% 0 1 1 N.A.
KASANGGA
32 BANTAY 169,801 1.06% 0 1 1 N.A.
33 ABAKADA 166,747 1.05% 0 1 1 N.A.
34 1-UTAK 164,980 1.03% 0 1 1 N.A.
35 TUCP 162,647 1.02% 0 1 1 N.A.
 36 COCOFED 155,920 0.98% 0 1 1 N.A.
Total 17 55

Applying the procedure of seat allocation as illustrated in Table 3 above, there are 55 party-list
representatives from the 36 winning party-list organizations. All 55 available party-list seats are filled.
The additional seats allocated to the parties with sufficient number of votes for one whole seat, in no
case to exceed a total of three seats for each party, are shown in column (D).

Participation of Major Political Parties in Party-List Elections

The Constitutional Commission adopted a multi-party system that  allowed all political parties to
participate in the party-list elections.  The deliberations of the Constitutional Commission clearly
bear this out, thus:

MR. MONSOD. Madam President, I just want to say that we suggested or proposed the
party list system because we wanted to open up the political system to a pluralistic society
through a multiparty system. x x x We are for opening up the system, and we would like
very much for the sectors to be there. That is why one of the ways to do that is to put
a ceiling on the number of representatives from any single party that can sit within
the 50 allocated under the party list system. x x x.

xxx

MR. MONSOD. Madam President, the candidacy for the 198 seats is not limited to
political parties. My question is this: Are we going to classify for example Christian
Democrats and Social Democrats as political parties? Can they run under the party list
concept or must they be under the district legislation side of it only?

MR. VILLACORTA. In reply to that query, I think these parties that the Commissioner
mentioned can field candidates for the Senate as well as for the House of
Representatives. Likewise, they can also field sectoral candidates for the 20 percent or
30 percent, whichever is adopted, of the seats that we are allocating under the party
list system.

MR. MONSOD. In other words, the Christian Democrats can field district candidates and
can also participate in the party list system?

MR. VILLACORTA. Why not? When they come to the party list system, they will be
fielding only sectoral candidates. 

MR. MONSOD. May I be clarified on that? Can UNIDO participate in the party list
system?

MR. VILLACORTA. Yes, why not? For as long as they field candidates who come from
the different marginalized sectors that we shall designate in this Constitution.

MR. MONSOD. Suppose Senator Tañada wants to run under BAYAN group and says that
he represents the farmers, would he qualify?

MR. VILLACORTA. No, Senator Tañada would not qualify.

MR. MONSOD. But UNIDO can field candidates under the party list system and say Juan
dela Cruz is a farmer. Who would pass on whether he is a farmer or not?

MR. TADEO. Kay Commissioner Monsod, gusto ko lamang linawin ito. Political parties,
particularly minority political parties, are not prohibited to participate in the party
list election if they can prove that they are also organized along sectoral lines.

MR. MONSOD. What the Commissioner is saying is that all political parties can
participate because it is precisely the contention of political parties that they represent the
broad base of citizens and that all sectors are represented in them. Would the
Commissioner agree?

MR. TADEO. Ang punto lamang namin, pag pinayagan mo ang UNIDO na isang political
party, it will dominate the party list at mawawalang saysay din yung sector. Lalamunin
mismo ng political parties ang party list system. Gusto ko lamang bigyan ng diin ang
"reserve." Hindi ito reserve seat sa marginalized sectors. Kung titingnan natin itong 198
seats, reserved din ito sa political parties.

MR. MONSOD. Hindi po reserved iyon kasi anybody can run there. But my question to
Commissioner Villacorta and probably also to Commissioner Tadeo is that under this
system, would UNIDO be banned from running under the party list system?

MR. VILLACORTA. No, as I said,  UNIDO may field sectoral candidates. On that
condition alone, UNIDO may be allowed to register for the party list system.

MR. MONSOD. May I inquire from Commissioner Tadeo if he shares that answer?

MR. TADEO. The same.

MR. VILLACORTA. Puwede po ang UNIDO, pero sa sectoral lines.

xxxx

MR. OPLE. x x x In my opinion, this will also create the stimulus for political parties and
mass organizations to seek common ground. For example, we have the PDP-Laban and the
UNIDO. I see no reason why they should not be able to make common goals with mass
organizations so that the very leadership of these parties can be transformed through the
participation of mass organizations. And if this is true of the administration parties, this
will be true of others like the Partido ng Bayan which is now being formed. There is no
question that they will be attractive to many mass organizations. In the opposition parties
to which we belong, there will be a stimulus for us to contact mass organizations so that
 with their participation, the policies of such parties can be radically transformed because
this amendment will create conditions that will challenge both the mass organizations and
the political parties to come together. And the party list system is certainly available,
although it is open to all the parties. It is understood that the parties will enter in the roll of
the COMELEC the names of representatives of mass organizations affiliated with them. So
that we may, in time, develop this excellent system that they have in Europe where labor
organizations and cooperatives, for example, distribute themselves either in the Social
Democratic Party and the Christian Democratic Party in Germany, and their very presence
there has a transforming effect upon the philosophies and the leadership of those parties.

It is also a fact well known to all that in the United States, the AFL-CIO always vote with
the Democratic Party. But the businessmen, most of them, always vote with the Republican
Party, meaning that there is no reason at all why political parties and mass organizations
should not combine, reenforce, influence and interact with each other so that the very
objectives that we set in this Constitution for sectoral representation are achieved in a
wider, more lasting, and more institutionalized way. Therefore, I support this [Monsod-
Villacorta] amendment. It installs sectoral representation as a constitutional gift, but at the
same time, it challenges the sector to rise to the majesty of being elected representatives
later on through a party list system; and even beyond that, to become actual political
parties capable of contesting political power in the wider constitutional arena for major
political parties.

x x x [32] (Emphasis supplied)

R.A. No. 7941 provided the details for the concepts put forward by the Constitutional Commission.
Section 3 of R.A. No. 7941 reads:

Definition of Terms.  (a) The party-list system is a mechanism of proportional

representation in the election of representatives to the House of Representatives from
national, regional and sectoral parties or organizations or coalitions thereof registered with
the Commission on Elections (COMELEC). Component parties or organizations of a
coalition may participate independently provided the coalition of which they form part
does not participate in the party-list system.

(b) A party means either a political party or a sectoral party or a coalition of parties.

(c) A political party refers to an organized group of citizens advocating an ideology or

platform, principles and policies for the general conduct of government and which, as the
most immediate means of securing their adoption, regularly nominates and supports certain
of its leaders and members as candidates for public office.

It is a national party when its constituency is spread over the geographical territory of at
least a majority of the regions. It is a regional party when its constituency is spread over
the geographical territory of at least a majority of the cities and provinces comprising the
region.

 (d) A sectoral party refers to an organized group of citizens belonging to any of the sectors
enumerated in Section 5 hereof whose principal advocacy pertains to the special interests
and concerns of their sector,

(e) A sectoral organization refers to a group of citizens or a coalition of groups of citizens

who share similar physical attributes or characteristics, employment, interests or concerns.

(f) A coalition refers to an aggrupation of duly registered national, regional, sectoral parties
or organizations for political and/or election purposes.

Congress, in enacting R.A. No. 7941, put the three-seat cap to prevent any party from dominating the
party-list elections.

Neither the Constitution nor R.A. No. 7941 prohibits major political parties from participating in the
party-list system. On the contrary, the framers of the Constitution clearly intended the major political
parties to participate in party-list elections through their sectoral wings. In fact, the members of the
Constitutional Commission voted down, 19-22, any permanent sectoral seats, and in the alternative the
reservation of the party-list system to the sectoral groups.[33] In defining a "party" that participates in
party-list elections as either "a political party or a sectoral party," R.A. No. 7941 also clearly intended
that major political parties will participate in the party-list elections. Excluding the major political
parties in party-list elections is manifestly against the Constitution, the intent of the Constitutional
Commission, and R.A. No. 7941. This Court cannot engage in socio-political engineering and
judicially legislate the exclusion of major political parties from the party-list elections in patent
violation of the Constitution and the law.

Read together, R.A. No. 7941 and the deliberations of the Constitutional Commission state that major
political parties are allowed to establish, or form coalitions with, sectoral organizations for electoral or
political purposes. There should not be a problem if, for example, the Liberal Party participates in the
party-list election through the Kabataang Liberal ng Pilipinas (KALIPI), its sectoral youth wing. The
other major political parties can thus organize, or affiliate with, their chosen sector or sectors. To
further illustrate, the Nacionalista Party can establish a fisherfolk wing to participate in the party-list
election, and this fisherfolk wing can field its fisherfolk nominees. Kabalikat ng Malayang Pilipino
(KAMPI) can do the same for the urban poor.

The qualifications of party-list nominees are prescribed in Section 9 of R.A. No. 7941:

Qualifications of Party-List Nominees.  — No person shall be nominated as party-list

representative unless he is a natural born citizen of the Philippines, a registered voter, a
resident of the Philippines for a period of not less than one (1) year immediately preceding
the day of the elections, able to read and write,  bona fidemember of the party or
organization which he seeks to represent for at least ninety (90) days preceding the day of
the election, and is at least twenty-five (25) years of age on the day of the election.

In case of a nominee of the youth sector, he must at least be twenty-five (25) but not more
than thirty (30) years of age on the day of the election. Any youth sectoral representative
 who attains the age of thirty (30) during his term shall be allowed to continue until the
expiration of his term.

Under Section 9 of R.A. No. 7941, it is not necessary that the party-list organization's nominee
"wallow in poverty, destitution and infirmity"[34] as there is no financial status required in the law. It
is enough that the nominee of the sectoral party/organization/coalition belongs to the marginalized and
underrepresented sectors,[35]  that is, if the nominee represents the fisherfolk, he or she must be a
fisherfolk, or if the nominee represents the senior citizens, he or she must be a senior citizen.

Neither the Constitution nor R.A. No. 7941 mandates the filling-up of the entire 20% allocation of
party-list representatives found in the Constitution. The Constitution, in paragraph 1, Section 5 of
Article VI, left the determination of the number of the members of the House of Representatives to
Congress: "The House of Representatives shall be composed of not more than two hundred and fifty
members, unless otherwise fixed by law, x x x." The 20% allocation of party-list representatives is
merely a ceiling; party-list representatives cannot be more than 20% of the members of the House of
Representatives. However, we cannot allow the continued existence of a provision in the law which
will systematically prevent the constitutionally allocated 20% party-list representatives from being
filled. The three-seat cap, as a limitation to the number of seats that a qualified party-list organization
may occupy, remains a valid statutory device that prevents any party from dominating the party-list
elections. Seats for party-list representatives shall thus be allocated in accordance with the procedure
used in Table 3 above.

However, by a vote of 8-7, the Court decided to continue the ruling in  Veterans  disallowing major
political parties from participating in the party-list elections, directly or indirectly. Those who voted to
continue disallowing major political parties from the party-list elections joined Chief Justice Reynato
S. Puno in his separate opinion. On the formula to allocate party-list seats, the Court is unanimous in
concurring with this ponencia.

WHEREFORE,  we  PARTIALLY GRANT  the petition. We  SET ASIDE  the Resolution of the
COMELEC dated 3 August 2007 in NBC No. 07-041 (PL) as well as the Resolution dated 9 July 2007
in NBC No. 07-60. We declare unconstitutional the two percent threshold in the distribution of
additional party-list seats. The allocation of additional seats under the Party-List System shall be in
accordance with the procedure used in Table 3 of this Decision. Major political parties are disallowed
from participating in party-list elections. This Decision is immediately executory. No pronouncement
as to costs.

SO ORDERED.