The Supreme Court ruled in Dano v. COMELEC that the Commission on Elections (COMELEC) committed grave abuse of discretion when it cancelled Juliet Dano’s Certificate of Candidacy (COC) for mayor. The COMELEC had concluded that Dano failed to meet the one-year residency requirement because of a four-month absence. The Court emphasized that the COMELEC should have considered Dano’s intent to establish residency, as evidenced by her actions, and afforded her the benefit of the doubt. This decision reinforces the principle that residency requirements should be interpreted in light of an individual’s intent and actions, not just continuous physical presence.

From Nurse in the U.S. to Mayor in Bohol: Did Absence Truly Disrupt Domicile?

Juliet Dano, a natural-born Filipino who became a U.S. citizen, sought to run for mayor in her hometown of Sevilla, Bohol. After reacquiring her Filipino citizenship, she filed her Certificate of Candidacy (COC). However, her COC was challenged by Marie Karen Joy Digal, the daughter of Dano’s political rival, who alleged that Dano had misrepresented her residency status. The core legal question was whether Dano, despite her reacquired citizenship and intention to reside in Sevilla, had truly met the one-year residency requirement given her intermittent absences.

The COMELEC initially sided with Digal, cancelling Dano’s COC. The COMELEC highlighted that even if she had reacquired her Filipino citizenship, registered as a voter in Sevilla, and executed her sworn renunciation, her prolonged absence resulted in her failure to reestablish her domicile in her hometown for the purpose of abiding by the one-year residence requirement:

[A] Filipino citizen who becomes naturalized elsewhere effectively abandons his domicile of origin. Upon reacquisition of Filipino citizenship pursuant to Republic Act No. 9225, he must still show, if running for public office, that he chose to establish his domicile in the Philippines through positive acts. The period of his residency shall be counted from the time he made it his domicile of choice and shall not retroact to time of his birth.

This decision sparked a legal battle, with Dano appealing to the Supreme Court, arguing that the COMELEC had erred in its interpretation of the residency requirement. Dano argued that she had demonstrated her intent to reside in Sevilla through various actions, including purchasing property, registering to vote, and winding up her affairs in the United States. She claimed that her absence was temporary and did not negate her established domicile.

The Supreme Court, in its analysis, emphasized the importance of both physical presence and intent (**animus manendi et revertendi**) in establishing domicile. While physical presence is undoubtedly a crucial element, the Court recognized that it does not necessitate unbroken continuity. Citing prior jurisprudence, the Court reiterated that the law does not require a candidate to remain perpetually within the locality to satisfy residency requirements. The absence from residence to pursue studies or practice a profession does not constitute loss of residence. It is only the intent to reside that must be there, supported by actions that clearly show such intent.

Building on this principle, the Court scrutinized the evidence presented by Dano to ascertain whether her actions substantiated her intent to establish residency in Sevilla. Her evidence included, among other things, the sale of her properties in the US, application for voter’s registration in Sevilla, and purchase of parcels of land in favor of petitioner executed. The Court found that Dano had adequately demonstrated her intention to establish residency in Sevilla, despite her temporary absences. COMELEC was also wrong in dismissively disregarding the affidavits of the punong barangay and a long-time resident of Sevilla for not being “substantiated by proof.” According to the punong barangay, petitioner expressed, on several occasions, the latter’s desire to come home. In this light, it should have been apparent to COMELEC that when petitioner returned in the first quarter of 2012, it was for good; and that when she left for the US on 10 May 2012, her purpose was to confirm her permanent abandonment of her US domicile.

This approach contrasts with the COMELEC’s rigid interpretation, which placed undue emphasis on continuous physical presence. The Court noted that the COMELEC had failed to appreciate Dano’s evidence fully, particularly the reasons for her absence from Sevilla. The Court also emphasized that any denial of due course to, or the cancellation of, a COC must be anchored on a finding that the candidate made a material representation that was false. The Court found that Dano had not intended to deceive the electorate, further undermining the COMELEC’s decision.

The Court highlighted that the COMELEC had committed grave abuse of discretion in cancelling Dano’s COC without determining whether she intended to deceive or mislead the electorate. According to the Court, a material misrepresentation must be done with the intention to gain an advantage by deceitfully claiming possession of all the qualifications and none of the disqualifications when, in fact, the contrary is true:

In the sphere of election laws, a material misrepresentation pertains to a candidate’s act done with the intention to gain an advantage by deceitfully claiming possession of all the qualifications and none of the disqualifications when, in fact, the contrary is true.

The Court ultimately granted Dano’s petition, underscoring the importance of balancing residency requirements with the constitutional rights of candidates. This decision serves as a reminder that residency requirements should not be applied in a manner that unduly restricts the right to seek public office, particularly when a candidate has demonstrated a genuine intent to reside in the locality. This case also demonstrates that the appreciation and evaluation of evidence by COMELEC is not ordinarily reviewed in a petition for certiorari, In exceptional cases, however, when the COMELEC’s action oversteps the limits of its discretion to the point of being grossly unreasonable, the Supreme Court is not only obliged, but constitutionally mandated to intervene.

FAQs

What was the key issue in this case?	The central issue was whether Juliet Dano met the one-year residency requirement to run for mayor in Sevilla, Bohol, despite her absences after reacquiring Filipino citizenship. The COMELEC had cancelled her COC, arguing she didn’t fulfill the residency rule.
What is the definition of ‘residence’ in election law?	In election law, ‘residence’ is synonymous with domicile, referring to a person’s permanent home where they intend to return whenever absent. Establishing domicile requires both physical presence and the intention to remain (animus manendi) and abandon the previous domicile (animus non revertendi).
What evidence did Dano present to prove her residency?	Dano presented evidence that she sold her properties in the US, applied for voter registration in Sevilla, purchased land in Sevilla, and executed a Sworn Renunciation of Any and All Foreign Citizenship. She also presented affidavits from residents attesting to her presence in Sevilla.
Why did the COMELEC initially cancel Dano’s COC?	The COMELEC cancelled Dano’s COC because they believed she had not met the one-year residency requirement due to her time spent in the United States after reacquiring Filipino citizenship. They focused on the physical presence aspect of residency.
What was the Supreme Court’s reasoning in overturning the COMELEC decision?	The Supreme Court held that the COMELEC committed grave abuse of discretion by not adequately considering Dano’s intent to reside in Sevilla. The Court emphasized that residency doesn’t require continuous physical presence, and Dano’s actions demonstrated her intent.
What is the importance of ‘animus manendi et revertendi’?	Animus manendi et revertendi refers to the intention to stay in a place permanently and to return to it even after periods of absence. This intent is crucial in establishing domicile and, consequently, satisfying residency requirements for elections.
Did the Supreme Court require continuous physical presence for residency?	No, the Supreme Court clarified that continuous physical presence is not required. The Court emphasized that the key is the intent to establish a permanent residence, supported by concrete actions, even with temporary absences.
What constitutes a material misrepresentation in a COC?	A material misrepresentation in a Certificate of Candidacy (COC) is a false statement about a candidate’s qualifications made with the intent to deceive the electorate. The misrepresentation must be about a crucial fact that would disqualify the candidate if known.
What is the effect of reacquiring Filipino citizenship under RA 9225 on residency?	Reacquiring Filipino citizenship under RA 9225 grants the right to reside in the Philippines. However, it does not automatically satisfy residency requirements for elective office, which still require demonstrating domicile in a particular locality.

The Supreme Court’s decision in Dano v. COMELEC underscores the importance of a nuanced approach to residency requirements, emphasizing the role of intent and concrete actions. This ruling offers guidance for candidates seeking public office, particularly those who have reacquired Filipino citizenship or have had periods of absence from their locality. It also serves as a check on the COMELEC’s discretion, ensuring that residency requirements are not applied in an overly restrictive manner.

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: Juliet B. Dano, vs. Commission On Elections and Marie Karen Joy B. Digal, G.R. No. 210200, September 13, 2016