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In short
Charter change is possible under the 1987 Constitution for President Marcos Jr., but only through the mechanisms provided by the Constitution. The President cannot unilaterally propose amendments or revisions; instead, these may be proposed by Congress, by a constitutional convention, or by the people through initiative, and must be ratified by a majority of votes cast in a plebiscite. During the Marcos Sr. era, the Supreme Court recognized that the incumbent President had discretion on when to convene the interim legislature that could propose constitutional amendments under the transitional provisions of the 1973 Constitution, but any amendment still had to follow the constitutional amendment and ratification requirements. For the current President Marcos, only the procedures in the 1987 Constitution apply.
Explanation
Charter change (constitutional amendment) is possible only through the amendment routes and ratification requirements the Constitution (or the applicable transitional constitutional rules) set, and the President’s role depends on which constitutional regime applies.
- Check which constitutional regime applies. The 1987 Constitution takes effect after ratification and “shall supersede all previous Constitutions,” so the earlier amendment rules apply only to efforts done before that supersession. (1987 Constitution, Article XVIII, Section 27)
- Under the 1987 Constitution, the President is not listed as the proposer. Amendments or revisions may be proposed by Congress (three-fourths vote) or a constitutional convention, or directly by the people through initiative. (1987 Constitution, Article XVII, Section 1; 1987 Constitution, Article XVII, Section 2)
- Under the 1987 Constitution, ratification in a plebiscite is required for validity. Validity requires majority approval in a plebiscite held within the specified 60-to-90 day windows, using the proper start point depending on whether the proposal was under Section 1 or Section 2. (1987 Constitution, Article XVII, Section 4)
- For the Marcos period discussed in the transition cases, charter change could be triggered through the transitional amendment mechanism. In the transition period, the interim National Assembly had the amending power, and it could propose amendments when called under the transitional rule. (Sanidad v. Commission On Elections, G.R. No. L-44640 (1976-10-12))
- During that transition, the President had discretion over the initial convening time. The Court recognized that the incumbent President had discretion on when to initially convene the interim National Assembly, which is part of how the amending process could be set in motion during that period. (Sanidad v. Commission On Elections, G.R. No. L-44640 (1976-10-12))
- Even in the transitional procedure, ratification rules still control effect/validity. Amendments proposed through the interim body still take effect only when ratified according to the amendment provisions, including the plebiscite requirement and time limit described in the amendment framework quoted in the cases. (Sanidad v. Commission On Elections, G.R. No. L-44640 (1976-10-12); Occena v. Commission On Elections, G.R. No. L-56350 (1981-04-02))
- The voting standard differs when the interim legislature sits as a constituent body. The case record explains that when the interim legislature is acting as a constituent body to propose amendments, only a majority vote is needed for the proposal. (Occena v. Commission On Elections, G.R. No. L-56350 (1981-04-02))
So, charter change was possible for President Marcos in the sense that the Court recognized his discretionary power over convening the transitional interim amending body, but the actual amendment still had to follow the constitutional proposal-and-ratification requirements under the applicable constitutional amendment framework.
“Any amendment to, or revision of, this Constitution may be proposed by: The Congress, upon a vote of three-fourths of all its Members; or A constitutional convention.”
This sets who can propose amendments or revisions under the 1987 Constitution: it is Congress (with a three-fourths vote) or a constitutional convention, not the President by himself.
“Amendments to this Constitution may likewise be directly proposed by the people through initiative upon a petition of at least twelve per centum of the total number of registered voters, of which every legislative district must be represented by at least three per centum of the registered voters therein.”
This is another proposal route under the 1987 Constitution: the people can propose amendments through initiative, with the petition threshold and district representation the rule specifies.
“No amendment under this section shall be authorized within five years following the ratification of this Constitution nor oftener than once every five years thereafter.”
This means the people’s initiative route has timing limits under the 1987 Constitution; the law does not allow the initiative proposal to be used too soon after ratification or too often.
“Any amendment to, or revision of, this Constitution under Section 1 hereof shall be valid when ratified by a majority of the votes cast in a plebiscite which shall be held not earlier than sixty days nor later than ninety days after the approval of such amendment or revision.”
This requires that, even after a proper proposal, the amendment (under the Section 1 proposal route) becomes valid only after ratification by a majority in a plebiscite held within the 60-to-90 day window.
Section 4 of Article XVII of the 1987 Constitution provides that any amendment under Section 2 shall be valid when ratified by a majority of the votes cast in a plebiscite held within the period specified after the sufficiency of the petition is certified by the Commission on Elections.
This separately confirms that, for amendments proposed by people’s initiative (Section 2), validity depends on majority ratification in a plebiscite, again within the 60-to-90 day window, counted from the COMELEC certification of petition sufficiency.
“This Constitution shall take effect immediately upon its ratification by a majority of the votes cast in a plebiscite held for the purpose and shall supersede all previous Constitutions.”
This explains that the 1987 Constitution replaced earlier constitutional regimes, so the specific amendment powers in earlier constitutions would control any charter-change effort during the Marcos period only if it happened before the 1987 Constitution took over.
“Article XVI of the 1973 Constitution on Amendments ordains: SECTION 1. (1) Any amendment to, or revision of, this Constitution may be proposed by the National Assembly upon a vote of three-fourths of all its Members, or by a constitutional convention. (2) The National Assembly may, by a vote of two-thirds of all its Members, call a constitutional convention or, by a majority vote of all its Members, submit the question of calling such a convention to the electorate in an election. SECTION 2. Any amendment to, or revision of, this Constitution shall be valid when ratified by a majority of the votes cast in a pleb…
This shows the basic amendment framework under the 1973 Constitution: proposal through the National Assembly (with the required voting standard) or a constitutional convention, and validity through majority ratification in a plebiscite held not later than three months after approval.
“In the present period of transition, the interim National Assembly instituted in the Transitory Provisions is conferred with that amending power.”
This clarifies that, during the transition at issue in that case, the “interim National Assembly” had the amending power rather than the normal system being applied the same way.
“Section 15 of the Transitory Provisions reads: SECTION 15. The interim National Assembly, upon special call by the interim Prime Minister, may, by a majority vote of all its Members, propose amendments to this Constitution. Such amendments shall take effect when ratified in accordance with Article Sixteen hereof.”
This provides the key transitional mechanism: the interim National Assembly could propose amendments by a majority vote when properly called, and the amendments still take effect only if ratified according to the constitutional amendment rules.
The Supreme Court in Sanidad v. Commission On Elections explained that the incumbent President had discretion as to when to initially convene the interim National Assembly during the constitutional transition.
This means the Court treated the incumbent President’s power as discretionary as to timing for convening the interim National Assembly during that transition period, which is relevant to whether charter change could be triggered during Marcos’s incumbency.
“The Constitutional Convention intended to leave to the President the determination of the time when he shall initially convene the interim National Assembly, consistent with the prevailing conditions of peace and order in the country.”
This confirms that, under the constitutional transition rules discussed in the case, the President’s role included deciding when to initially convene the interim National Assembly.
“(W)hen the Delegates to the Constitutional Convention voted on the Transitory Provisions, they were aware of the fact that under the same, the incumbent President was given the discretion as to when he could convene the interim National Assembly; it was so stated plainly by the sponsor, Delegate Yaneza; as a matter of fact, the proposal that it be convened 'immediately', made by Delegate Pimentel (V) was rejected.”
This supports that the discretion was not automatic “immediate convening,” so convening (and thus triggering the interim National Assembly’s transitional amending role) depended on the President’s timing decision within the transition framework.
The Supreme Court in Occena v. Commission On Elections stated that the Interim Batasang Pambansa, when acting as a constituent body, could propose amendments by a majority vote.
This explains that when the interim legislature is acting as a constituent body for proposing amendments under the transitional system, the proposal vote standard is majority, not the higher legislative proposal vote that would apply in a different setting.
“There is no ambiguity to the applicable provision: "Any amendment to, or revision of, this Constitution shall be valid when ratified by a majority of the votes cast in a plebiscite which shall be held not later than three months after the approval of such amendment or revision."
The Court in Occena v. Commission On Elections explained that under the 1973 Constitution, an amendment or revision becomes valid only when ratified by a majority of the votes cast in a plebiscite held not later than three months after approval (see Occena v. Commission On Elections, G.R. No. L-56350 (1981-04-02)).
[PAST CONSTITUTIONS] “This Constitution shall take effect immediately upon its ratification by a majority of the votes cast in a plebiscite held for the purpose and shall supersede all previous Constitutions.” (1987 Constitution, Article XVIII, Section 27)
This means that the earlier constitutional amendment procedure applied only before the 1987 Constitution took effect, as stated in Article XVIII, Section 27 of the 1987 Constitution.
Laws retrieved
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- Section 1, The 1987 Constitution of the Republic of the Philippines
- Section 2, The 1987 Constitution of the Republic of the Philippines
- Section 4, The 1987 Constitution of the Republic of the Philippines
- Section 27, The 1987 Constitution of the Republic of the Philippines
The Supreme Court in Sanidad v. Commission On Elections recognized that the incumbent President had the discretion to determine when to initially convene the interim National Assembly during the transition period.
This reflects the Supreme Court's recognition that, during the constitutional transition, the incumbent President had discretion over when to initially convene the interim National Assembly, which allowed the transitional amending body to be set in motion (Sanidad v. Commission On Elections, G.R. No. L-44640 (1976-10-12)).
“Speaking for the majority opinion in that case, Justice Makasiar said: "The Constitutional Convention intended to leave to the President the determination of the time when he shall initially convene the interim National Assembly, consistent with the prevailing conditions of peace and order in the country."”
This means that, according to the Supreme Court, the timing of convening the interim National Assembly was within the President's discretion during the transition period described in the case.
“The language of the Constitution supplies the answer to the above questions. The _Interim_ Batasang Pambansa, sitting as a constituent body, can propose amendments. In that capacity, only a majority vote is needed.”
This means that, as explained in Occena v. Commission On Elections, when the interim legislature acts as a constituent body to propose amendments, only a majority vote is needed under the transitional procedure.
Cases retrieved
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