In Ejercito v. COMELEC, the Supreme Court affirmed the disqualification of Emilio Ramon “E.R.” P. Ejercito from holding the office of Provincial Governor of Laguna due to campaign overspending during the 2013 elections. The Court clarified that election laws limit not only a candidate’s direct expenses but also contributions from supporters made with the candidate’s consent. This ruling underscores the importance of adhering to campaign finance regulations to ensure fair and equitable elections, reinforcing that exceeding expenditure limits can lead to disqualification, regardless of whether the overspending is directly incurred by the candidate or through authorized third parties.

When Does a Supporter’s Generosity Sink a Candidate’s Campaign?

The case of Emilio Ramon “E.R.” P. Ejercito v. Commission on Elections (COMELEC) and Edgar “Egay” S. San Luis revolves around the disqualification of Ejercito as the Provincial Governor of Laguna. Private respondent San Luis filed a petition for disqualification against Ejercito, alleging that the latter distributed “Orange Cards” to influence voters and exceeded campaign expenditure limits during the 2013 elections. The COMELEC First Division and subsequently the COMELEC En Banc granted the petition, leading Ejercito to seek recourse before the Supreme Court. The central legal question is whether Ejercito violated election laws by overspending, and whether contributions from third parties should be included in the candidate’s total allowable expenses.

The facts of the case reveal that San Luis filed the disqualification petition just days before the 2013 National and Local Elections, citing two primary causes of action. First, Ejercito allegedly distributed “Orange Cards” intending to influence voters. Second, he purportedly exceeded the authorized campaign expenditure limit, spending more than the allowed P4,576,566.00, especially on television campaign commercials. San Luis presented evidence of advertising expenses with ABS-CBN amounting to P20,197,170.25, in addition to advertisements with GMA 7. The COMELEC First Division found that Ejercito had indeed accepted a donation of P20,197,170.25 in the form of television advertisements. This amount significantly exceeded the legal limit, leading to the resolution to disqualify Ejercito.

Ejercito countered by arguing procedural and substantive irregularities, contending that the petition was essentially a complaint for election offenses that should have been filed with the COMELEC Law Department. He also argued that his proclamation as Governor rendered the petition moot and academic. The COMELEC En Banc, however, affirmed the First Division’s decision, emphasizing that the petition was indeed for disqualification under Section 68 of the Omnibus Election Code (OEC). The COMELEC argued that it had the power to disqualify a candidate who violated campaign spending limits, and Ejercito’s proclamation did not affect the COMELEC’s jurisdiction to continue hearing the action.

In its analysis, the Supreme Court underscored that a special civil action for certiorari is available only when there is grave abuse of discretion. Grave abuse of discretion arises when a lower court or tribunal violates the Constitution, the law, or existing jurisprudence, amounting to a lack of jurisdiction. The Court found that the COMELEC did not commit grave abuse of discretion, as the petition filed by San Luis was indeed for Ejercito’s disqualification and prosecution for election offenses. The court observed that the allegations in San Luis’ petition relied on Section 68 (a) and (c) of the OEC, which enumerate the grounds for disqualification.

Furthermore, the Supreme Court addressed the argument that a preliminary investigation was required before disqualification. The Court stated that in disqualification cases, the COMELEC may designate officials to hear the case, emphasizing that the electoral aspect of a disqualification case can be determined in a summary administrative proceeding. This administrative aspect is separate from the criminal proceeding, where the guilt or innocence of the accused is determined through a full-blown hearing. The Court also ruled that the COMELEC properly considered the Advertising Contract dated May 8, 2013, as evidence, despite it not being formally offered. The Court emphasized that election cases are not strictly governed by the Rules of Court and that the COMELEC has the power to take judicial notice of its own records, including advertising contracts submitted by broadcast stations.

Addressing Ejercito’s claim that the advertising contracts were executed without his knowledge or consent, the Court dismissed this argument, stating that it was raised for the first time in the petition for certiorari. The Court reiterated that factual findings of administrative bodies like the COMELEC are afforded great weight and should not be disturbed. Turning to Ejercito’s reliance on the US Supreme Court case Citizens United v. Federal Election Commission, the Court distinguished that the US case pertains to “independent expenditures,” a concept not applicable in the Philippines, where written acceptance of a candidate for donated advertisements is required.

The Supreme Court examined the legislative history of Sections 100, 101, and 103 of the OEC, noting that the intent of lawmakers has consistently been to regulate the election expenses of candidates and their contributors. The Court reasoned that the phrase “those incurred or caused to be incurred by the candidate” sufficiently covers expenses contributed or donated on the candidate’s behalf. This interpretation ensures that all contributions, made with the candidate’s consent, are included in the aggregate limit of election expenses. The Court also emphasized that including donor contributions within the allowable limit does not infringe on the free exercise of voters’ rights but ensures equality among candidates, aligning with constitutional objectives promoting equitable access to public service.

Moreover, the Court noted that Ejercito did not provide sufficient evidence to support his claims that the advertising contracts were executed without his knowledge or that his signatures were forged. The COMELEC’s findings, based on evidence such as advertising contracts and the signatures of Ejercito, were deemed credible and binding. Ejercito’s claim that the documents were forgeries was seen as a belated attempt to introduce new factual issues, which is not permissible in a Rule 65 petition.

The Court held that Ejercito should be disqualified for spending in his election campaign an amount exceeding what is allowed by the OEC. By affirming the COMELEC’s decision, the Supreme Court reinforced the importance of complying with campaign finance regulations. The Court clarified that exceeding expenditure limits, whether directly or through authorized third parties, constitutes a violation of election laws and can result in disqualification. The verdict serves as a reminder to all political candidates about the need for transparency, accountability, and adherence to the regulations governing campaign finance, ensuring a level playing field and promoting the integrity of the electoral process.

FAQs

What was the key issue in this case?	The key issue was whether Emilio Ramon “E.R.” P. Ejercito exceeded the campaign expenditure limit during the 2013 elections, thereby warranting his disqualification as Provincial Governor of Laguna. The case also addressed whether contributions from third parties should be included in a candidate’s total allowable expenses.
What were the grounds for Ejercito’s disqualification?	Ejercito was disqualified for violating Section 68(c) of the Omnibus Election Code (OEC) due to campaign overspending. The COMELEC found that he accepted and benefited from television advertising contracts that exceeded the authorized expenditure limit.
Did the Supreme Court consider the advertising contracts as valid evidence?	Yes, the Supreme Court upheld the COMELEC’s decision to consider the advertising contracts as valid evidence, even though they were not formally offered in court. The Court recognized the COMELEC’s authority to take judicial notice of its own records.
Were third-party contributions included in Ejercito’s campaign expenses?	Yes, the Supreme Court affirmed that contributions from third parties, made with the candidate’s consent, are included in the candidate’s total allowable campaign expenses. The Court also established that this aligns with the intent of election laws.
What was Ejercito’s defense regarding the overspending allegations?	Ejercito argued that the advertising contracts were executed without his knowledge or consent and that his signature on the contracts was forged. The Court dismissed this argument as it was raised for the first time in the petition for certiorari and lacked sufficient evidence.
How did the Court address the issue of free speech?	The Court held that the inclusion of donor contributions within the allowable limit does not infringe on the free exercise of voters’ rights of speech and expression. The goal is to ensure equality among candidates and promote equitable access to public service.
What is the significance of Section 68 of the Omnibus Election Code?	Section 68 of the Omnibus Election Code (OEC) enumerates the grounds for disqualification of a candidate. These grounds include giving money or material consideration to influence voters, committing acts of terrorism, and exceeding campaign expenditure limits.
What is the difference between the criminal and electoral aspects of an election offense?	The criminal aspect involves determining the guilt or innocence of the accused, which requires a full-blown hearing and proof beyond reasonable doubt. The electoral aspect involves determining whether the offender should be disqualified from office, which is done through a summary administrative proceeding requiring only a clear preponderance of evidence.
What was the US Supreme Court case Citizens United v. Federal Election Commission used for?	The US Supreme Court case was used to argue that spending for advertisements is a form of free speech, but this was dismissed by the Philippine Supreme Court. This ruling is not applicable to Philippine law, which requires written consent from a candidate for advertisements.

The Ejercito v. COMELEC decision emphasizes the critical need for candidates and their campaigns to strictly adhere to campaign finance regulations. The decision underscores that contributions and expenditures by third parties authorized by the candidate will be counted toward the candidate’s expenditure limit. The ruling highlights the commitment of the Philippine legal system to ensuring fair and equitable elections through the strict enforcement of campaign finance laws.

For inquiries regarding the application of this ruling to specific circumstances, please contact ASG Law through contact or via email at frontdesk@asglawpartners.com.

Disclaimer: This analysis is provided for informational purposes only and does not constitute legal advice. For specific legal guidance tailored to your situation, please consult with a qualified attorney.
Source: Ejercito v. COMELEC, G.R. No. 212398, November 25, 2014