REPUBLIC OF THE PHILIPPINES SUPREME COURT EN BANC JACINTO V. PARAS, PETITIONER, VERSUS GR.No. MIRIAM CORONEL FERRER, SENEN C. BACANI, YASMIN BUSRAN-LAO, MEHOL K. SADAIN, AND TERESITA DELES, RESPONDENTS. PETITION‘THE HEREIN PETITIONER JACINTO V. PARAS, for and on his own behalf, and to the Honorable Supreme Court, he respectfully petitions for the issuance of the writ of certiorarl directed against the COMPREHENSIVE AGREEMENT ON THE BANGSAMORO, with focus on the FRAMEWORK AGREEMENT ON THE BANGSAMORO and its corresponding ANNEXES, negotiated and approved by the herein respondents (with the Moro Islamic Liberation Front) in violation of the pertinent provisions of the 1987 CONSTITUTION, the pertinent laws, and applicable jurisprudence. By allowing a violation of the CONSTITUTION, the law, and the settled jurisprudence, respondents acted in excess of its jurisdiction or with grave abuse of discretion amounting to lack of jurisdiction, For this reason, their questioned acts may be annulled in an appropriate judicial proceeding for certiorari (Aldover v. Court of Appeals, 706 SCRA 188 [2013] PREFATORY STATEMENT ‘The CONSTITUTION of the Philippines is the fundamental and supreme law of the land ~ no official of the government, whether elected or appointed, may violate its provisions, even in the guise of upholding the national interest. All laws and executive acts must conform to its mandate, and all persons, including the highest officials of the nation, including the President, must defer to its commands (Sabio v. Gordon, 504 SCRA 704 [2006}), Chief Justice John Marshall in the landmark decision of Marbury v. Madison 6 U.S. 137) (1803) said, “To what purpose are powers limited, and to what purpose is that limitation committed to wring, if these limits may, at any time, be passed by those intended to be restrained?......” The Philippines is a democratic and republican State. Sovereignty resides in the people and all government authority emanates from them, The power and authority of the people are exercised through the three branches of government namely, the Executive, the Legislative and the Judiciary, ‘These three branches interact with each other in accordance to the principles of separation of Power and checks and balances. Separation of powers Is said to be an attribute of Tepublicanism, in that, among other reasons, it seeks to concentration of power to one branch or a person ot group Prevent monopoly or of persons and thereby 2forestalls dictatorship or despotism. And checks and balances are no more than means to prevent actions of o to impede other branches from trespassing or seizing the power vested in others, such that they are induced to share power ‘On many occasions, the Executive branch headed by the President has been found to have exceeded its bounds in the exercise of its power or where its acts are found to be not in accord with the fundamental law, and this has been curtailed by the judiciary. Accordingly, acts of officials of the executive department must conform to the CONSTITUTION. Constitutionalism demands that it cannot be the other way around (Province of North Cotabato v. Government of the Republic of the Philippines, 568 SCRA 402 [2013}). Premises considered, itis the humble belief of herein petitioner that the President of the Philippines acting through herein respondents has exceeded its authority and did acts not in accord with the Constitution. It has usurped the powers of Congress by making a deal with the MILF to sign an agreement embodied in the so called COMPREHENSIVE AGREEMENTS ON THE BANGSAMORO which contains many provisions that are unconstitutional. The said agreement also imposed upon Congress to adopt such unconstitutional provisions into a proposed legislation. Not only that, the President has also created a body, the Transition Commission to propose amendments and guaranteeing that these amendments be made thereby usurping the powers of Congress as a Constituent Assembly, the delegates in a Constitutional Convention or the people directly in a People’s initiative. It is in this respect that the Honourable Supreme Court is called upon to check on these excesses of the Executive Branch. deed this is timely in consideration of the speech of the Chief Justice, Maria Lourdes Sereno emphasizing that the Honorable Court should look at the Constitution intently. She said that the Constitution is not being considered very seriously in the discussions of other branches of government and that it is the Honorable Court's duty that everything that comes out is always in accordance to the Constitution.( Philippine Daily Inquirer report, page A2 dated June 13, 2015) NATURE OF THE PETITION This PETITION is a special civil action for certiorari file led with th Supreme Court under Section 1, Rule 65 of the RULES OF COURT. It ¢ Sacre + aland independent action (Sang-an v. Equator Knights Detective and Securlty Agency Inc. 690 SCRA 534 [2013}) ‘The writ of certiorar! is soug) having been negotiated and signed in violation of numerous provisions of the 1987 CONSTITUTION, of pertinent laws and applicable jurisprudence, the COMPREHENSIVE AGREEMENT ON THE BANGSAMORO (signed in 2014), more specifically the FRAMEWORK AGREEMENT ON THE BANGSAMORO (signed in 2012) and its corresponding ANNEXES, which are integral parts of the COMPREHENSIVE AGREEMENT ON THE BANGSAMORO, by petitioner for the purpose of annulling, for As the record indicates, the COMPREHENSIVE AGREEMENT ON THE BANGSAMORO was negotiated by herein respondents with leaders of the Moro Islamic Uberation Front. It also bears the tacit approval of the herein respondent Teresita Deles and of President Benigno Aquino III inasmuch as the same was signed in their presence at Malacafiang Palace. Petitioner respectfully manifests that this PETITION raises purely legal issues, and that there is no appeal, nor any plain speedy, and adequate remedy available to petitioner in the ordinary course of law, other than to pursue the instant PETITION before the Honorable Supreme Court (Dy-coco v. Court of Appeals, 702 SCRA 566 [2013)). JURISDICTIONAL ALLEGATIONS THE PETITION Section 5(1), Article Vill of the 1987 CONSTITUTION vests in the Supreme Court original jurisdiction over petitions for certiorari. Likewise, there is Section 4, Rule 65 Of the RULES OF COURT which provides that a special civil action for certiorari may Be with the Supreme Court (Dagan v. Office of the Ombudsman, 709 SCRA 681 Any alleged violation of the fundamental law of the land is a proper matter for the Republic of the indents are attended ion amounting to lack roper. Judicial review (Province of North Cotabato v. Government of Philippines. infra). ince the questioned acts of the herein respor with either excess of jurisdiction or with grave abuse of discreti Of jurisdiction, resort to the special civil action for certiorars prTHE PARTIES ‘THE PETITIONER, The herein petitioner JACINTO V. PARAS is a Filipino citizen of legal age, @ taxpayer, and a member ofthe Philippine Bar. He was also Member of the House of Representatives of the Congress of the Philippines, representing the first district of Negros Oriental, from 1998 to 2007. Petitioner represents himself in the instant proceedings pursuant to Section 34, Rule 138 of the RULES OF COURT. Notices and other processes may be served upon petitioner at his current address located at No. 331 Robinson Circle, Robinson Village, Hillcrest Drive (now called Henry T. Javier Street) Barangay Oranbo, Pasig ity, Metropolitan Manila ‘THE RESPONDENTS The herein respondents Miriam Coronel Ferrer, Senen C. Bacani, Yasmin Busran- Lao, and Mehol K. Sadain are representatives of the President in the Government Peace Negotieting Panels (GPNP) which negotiated and signed on March 27, 2014 the COMPREHENSIVE AGREEMENT ON THE BANGSAMORO and its corresponding Annexes. They are all appointees of President Benigno C. Aquino Il, Respondent Teresita Deles holds public office as the Presidential Adviser on the Peace Process (PAP). She Is also an appointee of President Benigno C. Aquino Ill. Section 5 of Executive Order No.3. Series of 2001 states that the PAPP shall be charge with the management and supervision of the comprehensive peace process. The COMPREHENSIVE AGREEMENT ON THE BANGSAMORO and the FRAMEWORK AGREEMENT ON THE BANGSAMORO. an ANNEXES were negotiated and signed with the Moro Isla under her auspices. id_its corresponding mic Liberation Front Until otherwise offically represented by counsel, all of t! served with notices and other processes through the O! Adviser on the Peace Process, Agustin | Building, Center, Pasig City, Metropolitan Manila, the respondents may be fice Of the Presidential Francisco Ortigas Jr. Road, OrtigasTHE QUESTIONED COMPREHENSIVE AGREEMENT ON THE BANGSAMORO AND RELATED DOCUMENTS ‘An official compilation of the COMPREHENSIVE AGREEMENT ON THE BANGSAMORO, which includes the FRAMEWORK AGREEMENT ON THE BANGSAMORO and its corresponding Annexes, offically published by OPAPP-GPH Peace Negotiating Panel and obtained by petitioner from the office of Chairman Miriam Coronet Ferrer is attached to this original copy of this PETITION as Annex “A and the same is made an integral part of this pleading. Photocopies thereof are attached to the other copies of this pleading, and in electronic as well, as required by the Supreme Court BRIEF STATEMENT OF THE MATERIAL FACTS OF THE CASE In the 1970s, President Ferdinand Marcos saw a need to settle the Muslim Insurgency problem in Mindanao through diplomacy and negotiations. Multi-party negotiations ultimately led to the signing of the 1976 Tripoli Agreement which became the blue print for peace in Mindanao, The blue print called for autonomy, not independence, in Muslim Mindanao. Sections 15 to 21, Article X of the 1987 CONSTITUTION call for the establishment of an autonomous region in Muslim Mindanao. Under Section 19 thereof, the first Congress elected under the CONSTITUTION shall, within 18. months from the time of organization of both Houses, pass the organic acts for the autonomous regions in Muslim Mindanao and the Cordilleras. Thus, the Autonomous Region in Muslim Mindanao was established (ARMM). In 1989, during the administration of President Corazon Aquino, the first Congress, enacted Republic Act No. 6734 - the Organic Act of the ARMM. This took effect on August 1, 1989. Later on, the sald Organic Act was amended by Congress ‘on several occasions and the last was Republic Act No. 9054, On September 15, 1993, President Fidel V. Ramos issued Executive Order No. 125 (series of 1993) calling for a “comprehensive, integrated and holistic peace process with Muslim rebels” in Mindanao, and creating the Office of the Presidential Peace Process (which has the rank of a Cabinet secretary). Thereafter, : hostilities ceased temporarily. The hostilities resumed during the administration of President J Joseph Este administration was short-lived. ey aeOn Febrary 28, 2001, President Gloria Macapagal-Arroyo Issued EXECUTIVE ORDER NO. 3 (SERIES of 2001) defining the policy and administrative structure for the “comprehensive peace efforts” of the government. Attention is invited to the first WHEREAS clause of EXECUTIVE ORDER NO.3 which emphasizes on the Importance of obtaining peace with Muslim rebels under the rule of law and “in accordance with constitutional processes,” to wit- “WHEREAS, a primary objective of the government Is the attainment of a just, comprehensive and enduring peace under the rule of law and in accordance with constitutional processes; which is the basic foundation for sustainable economic and human development and national prosperity.” (Underscoring supplied.) Under EXECUTIVE ORDER NO. 3, all peace talks with the Muslim rebels shall be undertaken under the auspices and supervision of the Presidential Adviser on the Peace Process. A peace panel of the Government of the Republic of the Philippines (GRP Peace Panel) which was created pursuant to EXECUTIVE ORDER NO. 3 entered into negotiations with representative of the Moro Islamic Liberation Front (MILF), an armed. revolutionary Muslim separatist group desirous of establishing a separate Islamic state in Mindanao. The negotiations were aimed at recognizing a specified area in Muslim Mindanao as the ancestral domain of the Bangsamoro- the term many Muslim Filipinos use in identifying themselves as a distinct people, and the creation of a Bangsamoro Juridical Entity. Eventually, the negotiations led to the preparation of the now-infamous MEMORANDUM OF AGREEMENT ON ANCESTRAL DOMAIN (MOA-AD). ‘The MOA-AD had controversial features, including a provision which speaks of the “assodative relationship” between the Republic of the Philippines and the Bangsamoro Juridical Entity. It also contained amendments to the 1987 CONSTITUTION to did not conduct any public consultations bet MOAAD. Provisions which virtually guaranteed suit the agreement. GRP Peace Panel fore it prepared the final draft of the Because it had so many Provisions which were not in accord. with the 198: CONSTITUTION, and considering that the FILIPINO People were oy Heh consulted before the negotiations on the MOA-AD were undertaken, th constitutionality of the MOA-AD was challenged in th, °‘On October 14, 2008, the Supreme Court en banc declared the MOA-AD ‘unconstitutional (Province of North Cotabato v. Government of the Republic of the Philippines, 568 SCRA 402 [2008}). Here are the salient points of that landmark ruling The case was ripe for adjudication even if the MOA-AD was unsigned by the GRP Peace Panel, and since the issue Involved was of transcendental importance to the people, the petitioners who sued as taxpayers had locus standl; nent units or ‘The fallure of the GRP Peace Panel to consult the local govern communities affected by the MOA-AD constitutes a departure from Its mandate under EXECUTIVE ORDER NO.3, and violates the REPUBLIC ACT NO. 7160, otherwise known as the LOCAL GOVERNMENT CODE; The failure of the GRP Peace Panel to consult the people on the MOA-AD Is a violation of the people’s constitutional rights to information on matters of public ‘concern under Section 7, Article Ill of the 1987 CONSTITUTION. In tur, this failure ‘means that the Presidential Adviser on the Peace Process committed a grave abuse of discretion; ‘The MOA-AD as designed and crafted runs contrary to and in excess of the legal authority given to the GRP Peace Panel under EXECUTIVE ORDER NO. 3, and amounts to a whimsical, capricious, oppressive, arbitrary and despotic exercise thereof. What happened is a gross evasion of positive duty and a virtual refusal on the part of the GRP Peace Panel to perform the duty imposed upon it; and. ‘The GRP Peace Panel exceeded its authority by the mere act of guaranteeing ‘amendments to the Constitution to sult the stipulations in the MOA-AD; ‘The MOA-AD cannot be reconciled with the 1987 CONSTITUTION and Philippine laws. Among those violations is the provision therein which speaks of the “associative relationship” between the Republic of the Philippines and the Bangsamoro Juridical Entity (BIE). Such relationship is unconstitutional because it implies that the BJE is on its way to independence. {In 2011, Congress enacted REPUBLIC ACT NO. 10153 which synchronized the ARMM polls with the May 2013 election, This law authorized President Benigno Aquino Ill to appoint offcers-in-charge to run the ARMM from August 2011 to May 2013. During this period, President Aquino was all praises for the ARMM. The validity of REPUBLIC ACT NO. 10153 was upheld by the Supreme Court in Kida v. Senate of the Philippines (659 SCRA 270 [2011). Sometime on June, 2011, President Aquino held a meeting with Murad Ibrahim, the Chief of the MILF in Japan. Many called the meeting as secret meeting due to thy fallure of the Palace to reveal the detalls of that meeting. For reasons undisclosed, President Aquino eventually changed his mind about the ARMM and in October of 2012, he called the ARMM “a felled experiment.” Eventually, the government eae 2panel, with lawyer Marvic Leonen representing the government, and one Mohagher Igbal representing the MILF, on October 15, 2012, signed what is aalled the FRAMEWORK AGREEMENT ON THE BANGSAMORO. Further negotiations led to the signing of four (4) ANNEXES together FRAMEWORK AGREEMENT ON THE BANGSAMORO, to wit ANNEX ON TRANSITIONAL ARRANGEMENTS AND MODALITIES; ANNEX ON REVENUE GENERATION AND WEALTH SHARING (AND ADDENDUM ON BANGSAMORO WATERS AND ZONES OF JOINT COOPERATION) ANNEX ON POWER SHARING; and ANNEX ON NORMALIZATION ‘The foregoing ANNEXES form a AGREEMENT ON THE BANGSAMORO. Integral part of the COMPREHENSIVE ‘The FRAMEWORK AGREEMENT ON THE BANGSAMORO also called for the eation of a Transition Commission that will prepare a BANGSAMORO BASIC LAW. (BBL) for the approval of Congress, and to propose constitutional amendments to suit the BBL ‘On December 12, 2012, President Benigno Aquino issued Executive Order No. 120 creating the Transition Commission, In December 2012, he appointed Atty. Marvic Leonen as Associate Justice of the Supreme Court, He was succeeded in the government peace panel by herein respondent Miriam Coronel Ferrer, a political science professor of the University of the Philippines. later on, The FRAMEWORK AGREEMENT ON THE BANGSAMORO and its corresponding Annexes were integrated and called the COMPREHENSIVE ‘AGREEMENT ON THE BANGSAMORO. On March 27, 2014, the COMPREHENSIVE AGREEMENT was signed for and on behalf of the govemment by herein ea Miriam Coronel Ferrer, Senen Bacani, Yasmin Busran-Lao and Mehol adain. The herein respondents including respondent Deles dic id not conduct consultation with local government units or communities conc ei emed in drafting and 8eventually signing what It is now called the COMPREHENSIVE AGREEMENT ON THE BANGSAMORO. Senator Ferdinand Marcos Jr. the Chairman of the Senat Committee conducting hearings on the on-going proposed peace negotiations wi readily attest to the absence of any such consultation required by law to be done by herein respondents. A statement made by Senator Marcos to herein petit recorded by the latter attesting to the fact of no consultation can easily be presented if required by the Honorable Court. Furthermore, Senator Marcos may t on this mat summoned by the Supreme Court to shed lig Another member of Congress, Representative Celso Lobregat of Zamboanga C hes likewise told herein petitioner that the herein respondents did not conduct any consultation to stakeholders as required by Executive Order No. 3 and the March I 2001 Memorandum of Instructions from the President. Representative Lobregat has assured the herein petitioner that he will appear to this Honorable Court when Invited to attest to this fact. Likewise, the the COMPREHENSIVE AGREEMENT ON THE BANGSAMORO, particulary the FRAMEWORK AGREEMENT ON The BANGSAMORO and it corresponding Annexes, embodies provisions which are not in accord with or are manifestly incompatible to certain provisions of the 1987 CONSTITUTION. Details in this regard are discussed herein below in the Petition under the heading ARGUMENTS AND DISCUSSION. ‘The Transition Commission eventually finished a draft of the BBL and submitted the same to President Aquino for his approval. After some amendments thereto were made in Malacanang, President Aquino had it submitted to both houses of Congress for appropriate action. For the record, the draft BBL contains provisions lifted verbatim from the COMPREHENSIVE AGREEMENT ON THE BANGSAMORO. As of this writing, the BBL or Bangsamoro Basic Law which actually is 2 misnomer to call it a law because it is not yet a law but merely a proposed bill, remains pending in both Houses of Congress, and as reported on June 12, 2015 by media, the BBL faced a temporary setback dué|jts many unconstitutional issues. 10THE POSITION TAKEN BY PETIONER, The petitioner has taken the position that the COMPREHENSIVE AREEMENT ON THE BANGSAMORO, particularly the FRAMEWORK AGREEMENT ON THE BANGSAMORO and its corresponding ANNEXES, contain provisions which are in patent violation of the provisions of the 1987 CONSTITUTION, pertinent laws and applicable jurisprudence as mentioned earlier and as discussed herein below. It is precisely for this reason that petitioner invokes the power of judicial review of the Supreme Court. Ultimately, petitioner prays after due proceedings, the Supreme Court will declare the COMPREHENSIVE AGREEMENT ON THE BANGSAMORO, inclusive of the FRAMEWORK AGREEMENT ON THE BANGSAMORO and its corresponding ‘ANNEXES, null and void for having been negotiated, approved and signed in excess Of jurisdiction or with grave abuse discretion amounting to lack of jurisdiction, on the part of the herein respondents responsible for the same. THE ISSUES Petitioner respectfully submits that the issue raised in the instant PETITION IS WHETHER OR NOT THE COMPREHENSIVE AGREEMENT ON THE BANGSAMORO, particularly its. FRAMEWORK AGREEMENT ON THE BANGSAMORO and its corresponding ANNEXES, which was negotiated, approved, and signed by the herein respondents on behalf of the Government of the Republic of the Philippines, violates provisions of the 1987 CONSTITUTION, the pertinent laws and applicable jurisprudence. If so, then the respondents acted in excess of their jurisdiction or with grave abuse of discretion amounting to lack of jurisdiction as members of the government peace panel and respondent Deles as PAPP, For that reason, the Supreme Court is authorized by the 1987 CONSTITUTION to declare the acts of the herein respondents null and void, It is respectfully submitted by petitioner that th: certain provisions of the 1987 CONSTITUTION, Jurisprudence, ere is, indeed a violation of Pertinent laws and applicable nuARGUMENTS AND DISCUSSION Petitioner has loaus stand to file the instant case. Petitioner filed the instant PETITION, a public interest suit actually, in his capacity as a taxpayer. ‘The activities of the herein respondents a e undertaken under the auspices and supervision of the Office of the Presidential Adviser on the Peace Process. Public funds are spent in pursuit of their activities. Those public funds come from taxpayers like the herein petitioner. For this reason, petitioner has /ocus standi to file the instant case, thas also been held that a tax payer suit is allowed where the petitioner Is able to craft an issue of transcencental importance or sig ¥. Philiopine Truth Commission, 637 SCRA 78 [1997)). cance to the people (Biraogo Petitioner respectfully submits that since the issue in this case involves a wholesale disregard, by a panel created by the President of the Philippines, of humerous provisions of the 1987 CONSTITUTION, the pertinent laws, and the applicable jurisprudence, and since violations of the Charter should never be countenanced, the issue set forth in this PETITION raises an issue of transcendenal importance or public concern specially when the unconstitutionality involves the sell ut of sovereignty and territorial integrity of the Republic of the Philippines which directly affect the lives ofthe Filipino people. The Issue ratsed in this case ‘is ripe for adjuciation, Petitioner is aware that the draft Bangsamoro Basic Law (BBL) submitted to Congress embodies provisions found in the questioned COMPREHENSIVE AGREEMENT ON THE PANGSAMORO, particularly its FRAMEWORK ‘AGREEMENT ON THE BANGSMORO and is corresponding ANNEXES, and that the said BBL is, as Of this writing, pending approval by Congress, Petitioner submits that these drcumstances the instant PETITION was prematurely filed, ripe for adjudication. In Province of North C¢ alone do not warrant the view that or that the issue raised herein is not yet Otabato v. Government of the Republic 2of the Philippines (568 SCRA 402 [2008}), the Supreme Court entertained numerous petitions questioning the constitutionality of the MOA-AD even if the said document ‘was not even signed by the government peace panel which negotiated and drafted ft with the MILF. There is more reason why this instant PETITION. be given due course by the Honorable Court because the agreements that are subject of constitutional questions herein namely the COMPREHENSIVE AGREEMENTS ON. THE BANGSAMORO, THE FRAMEWORK AGREEMENT ON THE BANGSAMORO and Its ANNEXES have already been signed and subsequently implemented by the herein respondents and the MILF. Iti fait accompll. For instance, the ANNEX on Normalization signed by herein respondents and the MILF containing provisions on disarmament, and is part of the COMPREHENSIVE AGREEMENT ON THE BANGSAMORO that is subject of this PETITION is about to be implemented through the symbolic turn over of a few firearms by about 145 MILF members and no other than the President of the Philippines in attendance, the implementation being done even prior to any law Passed by Congress on the purported agreements, Hence, there is indeed reason why this PETITION is ripe for adjudication by the Honorable Court. In the earlier mentioned case, Province of North Cotabato v. GRP Panel, the Supreme Court established four principles that justified its giving due course to the petitions. It sald that, “Contrary to the assertion of respondents that the non-signing of the MOA-AD and the eventual dissolution of the GRP Peace Panel mooted the present petitions, the Court finds that the present petitions provide for an exception to the moot and academic principle in view of the of a). the grave violation of the Constitution involved; b) the exceptional character and paramount Public interest; c) the need to formulate controlling principles to guide the bench, the bar and the public; and) the fact that the case is capable of repetition yet evading review. “These principles are exactly applicable in the instant case because the principal "sue herein involves grave violation of the CONSTITUTION such as the attempt on the part of herein respondents (government peace panel) to virtually sell-out. the sovereignty and territorial integrity of the Republic of the Philippine: to the MILF. Second, the issues Involved have exceptional character and is of great public concern and Thi, the fear that the issues involved in the MOA-AD are capable of repetition is Indeed true because that specter Is now resurrected by the herein responcients in thelr signing with the MILF the COMPREHENSIVE AGREEMENT ON THE BANGSMORO, the FRAMEWORK AGREEMENT ON THE BANGSAMORO and its pda ANNEXES which contain many unconstitutional provisions, As in the MOA.AD. Based on the above, there is absolutely no reason win y the Hi should not give due course to the instant petition, aes coat aThe COMPREHENSIVE AGREEMENT ON THE BANGSAMORO, particularty its FRAMEWORK AGREEMENT ON THE BANGSAMORO and its corresponding ANNEXES are not in accord with the applicable Jurisprudence. VIOLATION OF CONSULTATION REQUIREMENT UNDER EXECUTIVE ORDER NO. 3 AND MEMORANDUM OF INSTRUCTIONS OF THE PRESIDENT In Province of North Cotabato v. Goverment of the Republic of the Philippines (568 SCRA 402 [2008}), the Supreme Court said that the government peace panel organized pursuant to EXECUTIVE ORDER NO. 3 (SERIES OF 2001) and operating Under the auspices and supervision of the Presidential Adviser on the Peace Process by reason of the same executive order, is required under EXECUTIVE ORDER NO. 3 to conduct consultations with the people affected by the MOA-AD. The Memorandum of Instructions by the President issued March 1, 2001 also mandated the GRP Panel and the PAPP to conduct consultation. Since no such consultation took place, the Supreme Court said that the government peace panel departed from its mandate under EXECUTIVE ORDER NO. 3 and the Memorandum of Instructions Of the President and violated the constitutional right of the people to information on matters of public concern under Section 7, Article Ill of the 1987 CONSTITUTION. Ultimately, the Supreme Court ruled that in drafting the MOA-AD, the government panel exercised its authority in a “whimsical”, capricious, oppressive, arbitrary, and despotic” manner, which ultimately meant that government peace Panel committed a grave abuse of discretion, amounting to lack of jurisdiction. The COMPREHENSIVE AGREEMENT ON THE BANGSAMORO, particularly its FRAMEWORK AGREEMENT ON THE BANGSAMORO and its corresponding annexes {s similarly situated to the MOA-AD voided in Province of North Cotabato. {It was negotiated by a government peace panel created pursuant to the same Executive Order No. 3 and Memorandum of instructions of the President issued on March 1, 2001. Under these regulations, the herein respondents are mandated to conduct consultations among the local and national levels and must involve all Filipinos as one community. Executive Order No, 3, series of 2001 under section 4 par. (b) thereof states: Section 4 par (b) states: Consensus-Building And Empowerment For Peace. This component includes ‘Centioulng consultations on both national and local levels to bulld consensus for a upeace agenda and process, and the mobilization and facilitation of people's participation in the peace process. (Underscoring supplied). ‘And, Section 3 par. (a) states: ‘The comprehensive peace process shall continue to be governed by the following underlying principles: ‘a. A comprehensive peace process should be community-based, reflecting the sentiments, values and principles important to all Filipinos. Thus, it shall be defined not by 1 government alone, nor by the different contending groups only. but by all Filipinos as one community. (Underscoring Supplied) ‘And the March 1, 2001 Memorandum of Instructions from the President prescribes the guidelines for the GRP Panel in negotiating with the MILF which states: 4. The general approach to the negotiations shall include the following: ‘Consultation with affected communities and sectors. (Underscoring Supplied) Clearly, the GRP Panel and the PAPP failed to do their mandate to conduct consultation as provided in Section 4 Par (b) of EO No 3, and these must be made to all Filipino as provided in EO No.3 Section 3 par (a). This duty of the GRP Panel members and the PAPP was reiterated in the Memorandum of Instructions of the President under Section 4 Par. (c) as stated above. ‘The Supreme Court in the Province of North Cotabato case said “The imperative of a public consultation, as a species of the right to information, is evident in the marching orders to respondents. The mechanics for the duty to disclose information and_to_conduct_publ n_regarding the peace agenda and process manifestly provided by EO. No. 3. The preambulatory clause of EO. No. 3 Geclares that there isa need to further enhance the contribution of dvil society to the See er een rr, tothtionaltzng! "the pecplirs Participation."(Underscoring supplied) like the MOA-AD, the COMPREHENSIVE AGREEMENT ON THE BANSAMORO, particularly its FRAMEWORK AGREEMENT ON THE BANGSAMORO aand its corresponding ANNEXES, were negotiated and signed without any public consultation. Pursuant to the doctrine established in Province of North Cotabato, this means that the herein respondents acted In » whimsical, @pricious, oppressive arbitrary, and despotic manner when they negotiated and caused the signing of the COMPREHENSIVE AGREEMENT ON THE BANGSAMORO Particularly its FRAMEWORK AGREEMENT ON THE BANGSAMORO and its 8Jr. told the herein petitioner that in As earlier stated, Senator Ferdinand Marcos ae aes the course of his conducting hearings In various places In the country and also a ting various sectors suck ate, he dlicovered that resource persons invited representing various sectors such as the Indigenous people. the Lumads and different musi tribes, the loss government officals an even the representative of the Sultan of Sulu.they all say w the GRP Panel same thing, that no consultations were made ‘The same thing happened in the House of Representatives as told to herelr petitioner by Representative Gelso Lobregat of Zamb ' sked the herein petitioner that he was willing to appear to this Honorable Court if to attest to these facts On this ground of no consultation alone, the COMPREHENSIVE AGREEMENT ON THE BANGSAMORO, particularly Its FRAMEWORK AGREEMENT ON THE BANSAMORO and its corresponding annexes, should be voided by the Supreme Court. GUARANTY OF CONSTITUTIONAL AMENDMENTS Another reason why the Supreme Court voided the MOA-AD in Province of North Cotabato case is that the government peace panel which drafted the MOA ‘AD exceeded Its authority under EXECUTIVE ORDER NO. 3 by guaranteeing that certain provisions of the 1987 CONSTITUTION will be amended to sult the provisions of the MOA-AD. That guaranty is likewise found in Section 4(b). Article Vil of the FRAMEWORK AGREEMENT ON THE BANGSAMORO, viz “To work on proposals to amend the Philippine Constitution for the purpose of accommodating and entrenching in the constitution the agreements ofthe Parties whenever necessary without derogating from any prior peace agreements.” Accordingly, petitioner respectfully submits that the hi thelr authority under EXECUTIVE ORDER NO. 3 when they guaranteed th, Provisions of the 1987 constitution will be amended to suit the provis capri COMPREHENSIVE AGREEMENT ON THE BANGSAMORO. eaten, a FRAMEWORK AGREEMENT ON THi Beis IE BANGSAMORO and its corresponding rein respondents exceeded 16Proposal to amend the Constitution by the President acting through the yn to accommodate the unconstitutional provisions of the its Transition Commi Ee COMPREHENSIVE AGREEMENT ON THE BANGSAMORO, particularly FRAMEWORK AGREEMENT ON THE BANGSAMORO and its corresponding ‘ANNEXES constitutes usurpation of the powers of Congress and the people, ‘The Supreme Court in the concurring opinion of Asiodate Justice Antonio Carpio said “The intaled MOA-AD between the Government of the Republic of the Philippines (GRP) and the Moro Islamic Liberation Front (MILF) is patently unconstitutional. The Executive branch's commitment under the MOA-AD to amend the Constitution to conform to the MOA-AD violates Sections 1 and 4, Article XVII of the Constitution. The Executive branch usurps the sole discretionary power of Congress to propose amendments to the Constitution as well as the exclusive power of the sovereign people to approve or disapprove such proposed amendments. Sections 1 and 4, Article XVII of the Constitution provide: Section 1. Any amendment to, or revsion of, this Constitution may be proposed by: (2) The Congress, upon a vote of three-fourths of all its Members; or (2) A constitutional convention, Section 4, Any amendment to, or revision of, this Constitution under Section 1 hereof shall bo 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, Indisputably, the Executive branch has no power to commit to the MILF that the Constitution shall be amended to conform to the MOA-AD. Such commitment is a grave abuse of discretion amounting to lack or excess of jurisdiction.” Petitioner also respectfully submits that when the herein respondents guaranteed {o the MILF that certain provisions of the 1987 Constitution will be amended to suit the provisions of the COMPREHENSIVE AGREEMENT ON THE BANGSAMORO, Particularly its FRAMEWORK AGREEMENT ON THE BANGSAMORO and ity corresponding ANNEXES, that guaranty amounts to a tacit admission on their part that what they agreed upon in the name of the Government of the Republic of the Philippines is unconditional. In view of the foregoing, petitioner res it pectfully sub; COMPREHENSIVE AGREEMENT ON THE BANGSAMORO,_ ae FRAMEWORK AGREEMENT ON THE BANSAMORO and its ANNEXES, should be voided by the Supreme Court the Particularly its corresponding ASYMMETRIC RELATIONSHIP OF THE BANGSAMORO GOVERMENT AND THE CENTRAL GOVERMENT vI tadedsmau aures 8LV 28ed Uo paysyqnd UIUINONI inne AP Sa1eYS “ey feuonminsuo[ uy ¥ S10Z “OL YaseW ay) Jo HAMVG ANIdartHtd yp 0} s9191 sty uy xaia auses edxe Buypaay e ‘ezopuawy 9 anuooya aonsny (@eu~a:mburuojido Ajeweu AUVG ANIdNIHa “paBuey2Un, UL «QV-VOW parepy HS stueM Ns 1 “‘av-voW. Ploo\R Ut 2An “paduep rou sey sun sip Jo 2uewian08 os 05 wonesse 2159 aun “ALOR, 2orx /uDUIJOGS OJoWIesSuEg 242 Jo SfOMod antsNEX® pe se}oumadiuos ses Wouiuon09 Teaw9 UL, gg ays Jo a2uaRNeS \OUe WOH 9) 95 urouiuse, DS9P PIOM ayn YBnoys,, ~spiom (2) omy oun ueanioq aouaroyyp Aue Aypuey 5) asoys aewp skes ‘panes mou ‘uequedueg orureuy Sonsnt J914> ‘me o[Seq O1owesBueg ain Jo AmeuORNNsUD BUA Uo Aesse Ue u) ‘SAOgE UI pasn se ,21NaUWASE, LD} a4) SOUY9p YOIUM ‘SaXGNNY Burpuodse1io> 31 Pue OYOWVSNYA 3H NO INJINI3¥DY XYOMAWVA SH Aven ed OUOWSNVa 3HL NO INaI33¥DV 3AISNIHIUAWOD ay uy) SuNpOU s1 as04, uNoUNLASE 94 leys auoulusono9 axowesueg ayn yum uBUHUaAOD JesWU9D ay3 vBoMIog diysuE}e|O! aL, UBUILUENOE jex}UaD,, ayy se JuDUILEADB. auiddiniyd 242 © pauaya pur .rUNaWASSE, UUD ax YM ,diysuoNE;D! aayeposse, aseayd oun pareidan Ajua|uenuo> oxowesdueg ay) UO JUAWIDeIBy oMoUIeL4 a4) JO 1 aPIY “p UoR29s “o1eqeI0> YON Jo aduInoig uj Buys ayy o} aoULA;Ep Ul ‘ouapuadapu 0} Aen i} Uo s1, fa ay) 2e\R saitdus] yy asne2oq jeuornmsuosun 41 diysuonejea yons ey pies pue “av-VOW Alp Ut Pareiduiaiuod (ara) Aynu jeoIpun ouowesBuieg ay) pue waUIUiEV08 aulddiiyg ay) uaeMaq .diysuone|a1 anyeposte,, uuiay an 01 uondaoxe >00 uno> awasdns aun ‘1eqeI09 yLIOW Jo a>UIAay UIjuindanao. etc., they are indeed “When the Moros call themselves Maranaw. Tausog. Maguind: a Just like the Kapampangan or Bisaya calling themselves longo. Cebuano or Waray. They are simply giving themselves an ethnic identity.” “But when Magindanaon, Maranaw, Tausug, and other Moro ethnic groups start to call themselves Bangsamoro, they are giving themselves a national identity. And when, in Addition, they claim a defined territory, with Its own territorial sea, a5 their ‘ancestral homeland! by birth, assert the ‘right to sef-determination to chart their political future’ and self governance to “pursue thelr economic, social and cultural development,’ when they seek to have government of their own organized differently from the established pattern of local ‘governments in the country and when they want their relation to the central government to be ‘asymmetric’, one can only conclude that they are seeking independence. Of course, the word ‘independence’ is notin the proposed Bangsamoro Basic Law (BBL), it I In fact studiously avoided. ..." (Vicente V. Mendoza, BBL Is Clear: Bangsamoro is After [néspendence (Letter to the Editor), PHILIPPINE DAILY INQUIRER, March 20, 2015 page Als) (A copy of the letter BBL ls Clear: Bangsamoro is After Independence unitten by former justice Vicente V. Mendoza and published in the March 20, 2015 issue of the PFITLIPPINE DAILY INQUIRER can be seen online at the newspaper's wel namely, pinion. inquirer.net) Evidently, there is no substantial difference between the term “associative felationship” as used In the MOA“AD and the term “asymmetric” employed in section 4, Article 1 of the FRAMEWORK AGREEMENT ON THE BANGSAMORO. Cor this reason, petitioner invokes the doctrine established in Provinee of North Cotabato and asks that the questioned COMPREHENSIVE AGREEMENT ON THE BANGSAMORO, particularly its. FRAMEWORK AGREEMENT ON THE BANGSAMORO and its corresponding ANNEXES, be declared unconstitutional THE COMPREHENSIVE AGREEMENT ON THE BANGSAMORO, particularly its FRAMEWORK AGREEMENT ON THE BANGSAMORO and ity corresponding ANNEXES are not in accord with provisions of the 1987 CONSTITION, BANGSAMORO CORE TERRITORY Section‘The foregoing provisions are unconstitional. First, the term territory Is an element of statehood, Article X of the 1987 CONSTITUTION allows only the creation of an autonomous region in Muslim e X does not use the term ‘Mindanao, not a separate state or sub-state, In fact, Artic territory; it uses the term territorial jurisdiction, which means a specific area over which the legal authority may be exercised. And also, the reference to the new autonomous region called Bangsamoro as a “teritory” as provided in Article 1, Section 3 of the FRAMEWORK AGREEMENT ON THE BANGSAMORO Is contrary to the CONSTUTUTION which considers the ‘autonomous region provided in Article X, Section 15, to be a part of the Philippine Archipelago. Territory is defined in Balck’s Law Dictionary as a part of a country Separated from the rest and subject to a particular jurisdiction. Geographical area under the jurisdiction of another country or sovereign power. Just like the Philippines prior to its independence was called unincorporated territory of the United States. Hence, to call the Autonomous Region in Muslim Mindanao as the Bangsamoro territory is to consider it as a separate part of the Philippines although under its jurisdiction. This violates the provision on the territorial integrity of the Republic ofthe Philippines enshrined in the CONSTITUTION Second, Article X of the 1987 CONSTITUTION vests the power to decide which provinces, cities, municipalities, and geographical areas shall be covered by the autonomous region in Muslim Mindanao exclusively in Congress, which is mandated by the same Article X to enact the required organic act. This power may not be exercised by any other entity. Because Sections 1 and 3, Article V of FRAMEWORK AGREEMENT ON THE BANGSAMORO contemplate @ power which belongs exclusively to the Congress, both sections amount to a usurpation by the President exercised through herein respondents of the legislative power of Congress and Is therefore, unconstitutional (Pelaez v. Auditor General, 15 SCRA 569 [1969]) Alo, allowing mere ten percent (10%) of the population of an area to dictate the political future of the remaining ninety percent (90%) of the same area is not in accord with the democratic character of the Philippines, and is, therefore, a violation of Section 1, Article Il of the 1987 CONSTITUTION which states that “the Philippines is a democratic .. state.” It will also have the effect of allowing a mere fen percent (10%) of the population of an area amend an Act of Congress, Only the Gearcie of the legislative power of Congress may validly amend the organic a f the autonomous regions mentioned in Article X of the 1987 CONSTITUTION, 20BANGSAMORO TERRITORIAL WATERS Section 4, Article V of the FRAMEWORK AGREEMENT ON THE. BANGSAMORO mentions the phrase “territorial waters” covered by the Bangsamoro concept of territory In Section 5 also of Article V. The “territorial waters” of the Bangsamoro is likewise mentioned in the ANNEXES covering wealth sharing and power sharing, and more specifically in the ADDENDUM on the Bangsamoro Waters and Zones of Joint Cooperation. The foregoing provisions relating to the so-called “territorial waters” of the Bangsamoro are unconstitutional because the autonomous region in Muslim Mindanao contemplated in Article X of the 1987 CONSTITUTION do not allow any Provisions for territorial waters. Moreover, the existence of “territorial waters” Suggests the existence of a “territory,” which Is an element of statehood. To repeat, Article X of the 1987 CONSTIUTION does not allow the creation of a Bangsamoro state or sub-state, PARLIAMENTARY GOVERNMENT Section 2, Article I of the FRAMEWORK AGREEMENT ON THE BANGSAMORO Provides that “the government of the Bangsamoro shall have ministerial form.” This terms means a parliamentary form of government. The foregoing provisions is unconstitutional, 'n a parliamentary structure of government, there is a merger of the executive and legislative branches of the government. Members of the legislature ( called Members of Parliament) choose from among themselves who shall head the executive department (called the Prime Minister). This type of government Is sulted for the national level, Iti the type of government obtaining in the United Kingdom and ite former colonies. Section 18 . Article X of the 1987 CONSTITUTION categorically mandates that the organic act for elther the autonomous regions the in the Corailleras or in Muslim Mindanao shall establish a local government “consisting of the executive department and legislative assembly both of which shall be elective and Fepresentative of the constituent politcal units.” The language of Section 18 above readily indicates that the head of the executive department must be elected by the er by the constituent political A parliamentary government is headed by a Prime minister ( (or chief mi elected by members of Parliament from among themselves. He is not elected a constituent political unit. Undoubtedly, therefore, Section 18, Article X of the He 2CONSTITUTION contemplates a structure of government that is anything except a parliamentary government. Since the Republic of the Philippines was never under a parliamentary form of ‘government, even under the 1987 CONSTITUTION (Free Telephone Workers Union v. The Minister of Labor and Employment, 108 SCRA 757 [1981]), the Filipino people who ratified the 1987 CONSTITUTION could not have contemplated allowing a parliamentary form of government in the country ~ to hold sway in the autonomous region in Muslim Mindanao. BANGSAMORO IDENTITY Artie 1 section 5 of the FRAMEWORK AGREEMENT ON THE BANGSAMORO, states that “the parties recognize the Bangsamoro identity. Those Who at the at the time of conquest and colonization are considered natives or original inhabitants of Mindanao and the Sulu archipelago and its adjacent islands including Palawan, and their descendants whether of mixed or of full blood shall have the right to identify themselves as Bangsamoro by ascription or self-ascription. Spouses and their descendants are classified as Bangsamoro. The freedom of choice of other indigenous peoples shall be respected.” This provision was lifted verbatim from the provision of Paragraph 1 of the MOA-AD which was declared unconstitutional by the Supreme Court in 2008. Certainly it follows that this provision is unconstitutional. In the Province of North Cotabato case which was cited earlier, Honorable Associate Justice Antonio Carpio, said, “the recognition of the Bangsamoro identity is a violation of the rights of the Lumads. He continued “Under the MOA-AD, the Executive branch also commits to incorporate al the Lumads in Mindanao, who are non-Muslims, into the Bangsamoro people who are ‘Muslims. There are 18 distinct Lumad groups in Mindanao with their own ancestral domains and their own indigenous customs, traditions and beliefs. The Lumads have lived in ‘Mindanao long before the arrival of Islam and Christianity. For centuries, the Lumads have resisted Islam, a foreign religion like Christianity. To this day, the Lumads proudly continue to practice their own indigenous customs, traditions and beliefs. Suddenly, without the knowledge and consent of the Lumads, the Executive has erased their identity as separate and distinct indigenous peoples. The MOMAD in paragraph 1 on Concepts and Principles, provides: 4 It is the birthright of all Moros and all Indigenous peoples of Mindai identi themselves and be accepted as "Bangsamoros". The Bangsamoro. people refer to those a are natives or original Inhabitants of Mindanao and its adjacent islands including Palowen and the Sulu archipelago at the time of conquest or colonization and theit descendants ee ces el ne blood. Spouses and their descendants are classified a }oro. The f choice of the indigenous people shall be : respected. (Emphasis ‘The declaration that it isthe "birthright of x x x all Indigenous peoples of Mindana to dently themselves and be accepted as ‘Bangsarnoros” Is ulursl genocide. eaecineg mere declaration the identities, culture, customs, traditions and belies of 18 separate dndisting indigenous groups in Mindanao. The “freedom of choice” given to the Lumads Is an empty formality because offidally from birth they are already identified as Bangsamoros, ‘The Lumads may freely stll Identified and known as The MOA-AD divests the Lumads of thelr ancestral domains and hands over Possession, ownership and jurisdiction of thelr ancestral domains to the BJE. After defining the Bangsamoro people to Include all the Lumads, the MOA-AD then defines the ancestral domain of the Bangsamoro people as the ancestral domain of all the Bangsamoros, which now Includes the ancestral domains of all the Lumads. The MOA-AD declares that exclusive ownership over the Bangsamoro ancestral domain belongs to the Bangsamoro people. The MOA-AD vests Jurisdiction and authority over the Bangsamoros' ‘ancestral domain in the BJE. Thus, the Lumads lost not only thelr separate identities but also their ancestral domains to the Bangsamoros and the BIE. The Incorporation of the Lumads as Bangsamoros, and the transfer of thelr ancestral domains to the BJE, without the Lumads' knowledge and consent violate the Constitutional Suarantee that the “State recognizes and promotes the rights of indigenous cultural communities within the framework of national unity and development." The incorporation also violates the Constitutional guarantee that the "State, subject to the provisions of this Constitution and national development policies and programs, shall protect the rights of Indigenous cultural minorities to their ancestral lands to ensure thelr economic, social, and ‘cultural well-being." jrhese Constitutional guarantees, as implemented in the Indigenous Peoples’ Rights Act of 1997, grant the Lumads "the right to participate fully, if they so chose, at all levels of Cecislon-making in matters which may affect thelr rights, lives and destinies." Since the Fxecutive branch kept the MOA-AD confidential until its publication in the Philippine Daily ‘The incorporation of the Lumads, and their ancestral domains, into the Bangsamoro violates the Constitutional and legislative guarantees recognizing and protecting the Lumads' distinct cultural identities as well as thelr ancestral domains, ‘The violatwon ot these uarantees makes the MOA-AD patently unconstitutional.” Based on the concurring opinion of Justice Carpio, the definition of the Bangsamoro people as provided in Article| section 5 of the Framework Agreement on the Bangsamoro connotes that Moros are distinct from the Filipi Constitution. in its Preamble, used the word sovereign Filipino Moro people, Christians. the Lumads and other indigenous group irrespectiv o religion, dialects or aspirations. Hence, the identification of defined in the Framework Agreement is not consistent with the Further, from the said definition, it means that the descendants of Mindanao, Sulu Archipelago and its adjacent islands Palawan who are Cheistians, Lumads, and other tribal people may rave be classified Rr considered as Bangsamoro people. The above provision wodkdArchipelago and Palawan. This provision in the Framework Agreement on the Bangsamoro would be injudicious as it deprives the Christians and other indigenous people not covered within the Bangsamoro definition of their separate identity and distinct classification, where in fact they are all Filipinos as pointed in the Constitution, This is an injustice, most especially to the people of Palawan who are in included as Bangsamoro, when in fact they had rejected to be included in the ARMM in several plebiscites. Palawan cannot be compelled to be identified as Bangsamoro people without their approval. Clearly, the herein respondents having agreed and surrendered to the MILF by allowing them this concession where the Indigenous people or the Lumads are being absorbed and Identified as part of the Bangsamoro people thereby losing their own Identity without their consent and approval is a grave abuse of discretion amounting to lack of jurisdiction or excess of jurisdiction. Such assimilation and absorption of the identity of these people is contrary to the Constitution and existing law, hence the Framework Agreement on the Bangsamoro is null and void. Lastly, the above provision found in Article | section 5 of the FRAMEWORK AGREEMENT ON THE BANGSAMORO also violates international law, such that it is violative of the CONSTITUTION, Article Il, Section 2 of the CONSTITUTION states that the Philippines adopts the generally accepted principles of internation law as part of the law of the land, On September 13, 2007, the UN General Assembly adopted the United Nations Declaration on the Rights of Indigenous Peoples (UN DRIP) through General Assembly Resolution 61/295. The Philippines voted in favor of the said Resolution and is bound to follow its provisions. The Declaration clearly recognized the right of indigenous peoples specifically Section 8 of the Dedlaration which states: Article 8. 2. States shall provide effective mechanisms for prevention of, and redress for: (@) Any action which has the aim or effect of depriving them of their integri i Peoples, or of their cultural values or ethnic identities; oe. 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