The Honorable Commission did not call or convene a Public Hearing with and among
stakeholders, including the KBP and/or its members during the formulation/deliberations of the
subject Resolution 9615. Consequently, Movants pray that the Honorable Commission call for a
Public Hearing on the matter with invitation to all stakeholders also pursuant to its rule making
powers.
I. THE MOVANTS
Other Movant broadcast networks are parties in interest being broadcasting companies
that own and operate television and radio stations and who, therefore, stand to be liable for
violation of the subject COMELEC Resolution No. 9615, pursuant to Section 264 of the Omnibus
Election Code (Batasan Pambansa 881).
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If there is a political activity that epitomizes the essence of a democratic society, it is the
election process. It is because of this that a wide latitude should be given to the exercise of the
Constitutional rights of the freedom of expression, speech, freedom of the press, and the right
of the people to information that will allow them to make an informed choice. Consequently,
stringent restrictions and curtailment of rights and freedoms should be the exception rather
than the rule.
Even the interpretation of laws, rules and regulations should lean towards liberality that
favors the respect and observance of the peoples and candidates’ constitutional rights and
freedoms. That there are responsibilities is undeniable and should likewise be imposed
provided that the laws, rules and regulations imposing responsibilities are reasonable and do
not curtail constitutional rights and freedoms. The curtailment of constitutional rights have so
far, been only justified for reasons of a clear and present danger to national security, public
order and public safety and such curtailment have been narrowly interpreted.
While respecting and recognizing the power and authority of the Honorable Commission
on Elections to ensure a free, honest and clean election process, it is submitted that the
exercise by the Commission of its powers should be in consonance, and consistent with, the
observation of constitutional rights and freedoms precisely because an election is the ultimate
expression of freedom and democracy.
History shows that there is always a tendency of those in power or authority, even in a
democratic society, to use authority to push and pursue their advocacy by curtailing
constitutional freedoms, almost always of which are the freedoms of expression, speech and of
the press. History will also bear witness that it is through a vigilant and vibrant press/media
that abuse of power and the curtailment of rights are put into check. It is in this perspective
that the KBP is submitting this prayer for reconsideration by the Honorable Commission of its
Resolution 9615 lest the Honorable Commission overlooked constitutional and legal rights, as
well as practical realities, in its honest and legitimate desire for a free, honest and clean
election, the advocacy of which KBP is an ally.
It is further humbly submitted that among the objectives of adopting Rules and
Regulations in connection with the implementation of laws is to put in practical and detailed
terms the enforcement of the purposes/objectives of the law. A law’s Implementing Rules and
Regulations must create order, not chaos. It must clarify not obscure. It must facilitate rather
than complicate implementation. Implementing Rules and Regulations must, therefore, be
interpreted in the context of the laws’ practical implementation, among others.
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The above cited provision requires that prior approval of the Commission is secured for
a guesting, news interview, documentary, newscast, or appearance involving a political
candidate in order that the guesting, interview etc. can be treated as “bona fide” news.
Strangely, while the provision is premised on the “bona fide” exercise of press freedom,
the provision goes on to create a presumption against the “bona fide” nature of news. There is
created a burden of proving the bona fide exercise of press freedom before it is even
exercised! The presumption in favor of the exercise of a primary Constitutional freedom should
be the rule not the exception. The exercise of the freedom of expression and of the press in a
democratic society should be encouraged, not curtailed, if we want democracy to flourish. This
is especially so in the context of an essential democratic exercise: during the election by the
people of their representatives!
This requirement for prior approval of COMELEC has a chilling effect and clearly constitutes
prior restraint/censorship on the exercise of press freedom.
With due respect, we submit that the rule adopted by the Honorable Commission is
unconstitutional for being in violation of the freedom of expression the curtailment of which is
not by reason of a clear and present danger to national security, public order or public safety.
SECTION 14. Right to Reply. - All parties and bona fide candidates shall
have the right to reply to charges published or aired against them. The reply shall
be given publicity by the newspaper, television, and/or radio station which first
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printed or aired the charges with the same prominence or in the same page or
section, or in the same time slot as the first statement.
Candidates may invoke the right to reply by submitting a formal, verified, claim
against the media outlet to the COMELEC, through the appropriate Regional
Election Director, or in the case of the NCR, the EID. The claim shall include a
detailed enumeration of the circumstances and occurrences which warrant the
invocation of the right to reply.
The COMELEC shall, within 24 hours of receipt of the claim, endorse the same to
the media outlet involved, which shall, within 24 hours, submit a report to the
COMELEC, through the appropriate Regional Election Director, or in the case of
the NCR, the EID, on the action it has taken to address the claim.
The KBP has always taken the position, and herein likewise submits, that the provision on
the Right to Reply is unconstitutional as it impinges on the editorial prerogative of media. What
is ethically required of media is a balanced and fair reporting.
B. Legal Issue: The Resolution expands or amends the law and creates criminal liability of
Movants and the potential loss of their Congressional Franchise for acts of third
parties
The Penal provisions in COMELEC Resolution 9615 for Broadcast Networks or stations that
violate the provisions of the Fair Election Act and/or its Implementing Rules and Regulations are
as follows:
Section 35. Election Offense. - Any violation of RA 9006 and these Rules
shall constitute an election offense punishable under the first and second
paragraph of Section 264 of the Omnibus Election Code in addition to
administrative liability, whenever applicable. Any aggrieved party may file a
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verified complaint for violation of these Rules with the Law Department of the
Commission.
Discussion on the impact of providing for an aggregated time for political advertisement on
television and radio in connection with the above penal provisions:
While it may be argued (and in fact has been announced) that broadcast stations would
not be held liable for airing political advertisements in excess of the allowable limits, such
exemption from liability has no basis in the law and is not found in the subject Resolution.
The exemption cannot definitely be created by mere pronouncements because the law is
clear on the matter.
This situation is in fact one of the rationale for the limits being imposed on a per
station basis. In this case, the station would DEFINITELY know whether it is airing campaign
propaganda in excess of the allowable limits.
C. LEGAL ISSUE: Candidates are held liable for actions they have not authorized and/or
have no control over
The concerns raised in the previous discussions are further magnified or highlighted
when we consider a provision that was not found in previous Resolutions (for previous
elections) and is newly introduced in the subject Resolution, to wit:
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The serious implications of this provision can be illustrated when we take it in relation to
the definition of “political advertisement” or “election propaganda”, to wit:
Political advertising includes matters, not falling within the scope of personal
opinion, that appear on any Internet website, including, but not limited to, social
networks, blogging sites, and micro-blogging sites, in return for consideration, or
otherwise capable of pecuniary estimation.
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1. Where a political advertisement or a candidate features the logo and/or color (e.g. as a
backdrop) of the Party to which he belongs, will the political advertisement be counted
against the allowable airtime and expenditure of the Party?
2. Conversely, where the political advertisement of the Party features the pictures of its
candidates, will the airtime be counted against each of the candidates?
Again we submit that by the same logic of interpretation, the answer will be in the
affirmative. Thus a candidate will be prejudiced by the media placement of the
candidates’ own party!
We submit that the interpretation of the Resolution results to no other response than to
answer the question is in the affirmative. The “opponent’s” airtime and allowable
expense will be credited even for an advertisement that is intended to discredit him!
While arguments have been forwarded that such will not be the interpretation given,
that is what the Resolution plainly provides. This matter of proper interpretation could
become complicated if we consider that an election related complaint is adversarial. If
such was not the intention of the Commission in the formulation of the Rules, then the
rules should plainly say so. Otherwise, “dura lex sed lex”
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4. What is the mechanism or procedure for crediting the airtime and expense against a
candidate who was featured in a political advertisement whether for or against him?
In all of the above scenarios, a candidate is made responsible or liable for the actions of
another candidate or a third party even if he has not consented to the same. Why
should this be so? How will the affected candidate/party report the election
expenditure? What is the mechanism for accounting on the side of the Commission or
even on the side of an affected candidate? Unfortunately the Resolution does not
provide the answers thus creating more ambiguity than clarity. The Resolution is
creating more chaos than order.
More of a legal infirmity is that the questioned new provision expands or extends the
coverage of the law as these situation(s) are not contemplated nor provided for in the
Fair Election Act. The Honorable Commission in introducing the new provision has, we
humbly submit, gone beyond the scope of its rule making authority.
D. LEGAL ISSUE: The requirement of publishing surveys expands the coverage of the
Resolution as the same is not required by RA 9006
SECTION 26. Election Surveys. - During the election period, any person,
whether natural or juridical, candidate or organization may conduct an election
survey. The survey shall be published and shall include the following
information:
Various organizations or parties conduct surveys for internal guidance and information. Even
political parties and candidates do so. In these instances, the results are intended to be
confidential/internal. Section 26 of the Resolution require even these surveys to be published.
We submit that providing for the requirement of publication is ultra vires in relation to the Fair
Election Act, RA 9006, that does not have such requirement
We reiterate that television and radio stations operate within a defined geographical
area not only physically but also in so far as their signals are propagated. This is a
condition that is imposed by the National Telecommunications Commission based on
the laws of physics.
Thus, national candidates will be deprived of effectively reaching a greater mass of the
voting population because of the airtime limits as currently provided in the Resolution.
The placement of advertisements in one station effectively limits the ability to place in
another station even while the population in the second area is different from the
population in the first area.
Election of officials is one of the significant ways of exercising political rights. However,
such exercise of political rights is significant only if it is done with discernment and by a
voting population that is informed.
Aside from the matter of geographical reach (signal propagation) there is the matter of
the fragmented nature of audiences. Even within the same area, each television/radio
station have their own unique viewers/listeners. One excludes the other, meaning that
at a given time, the viewer/listener of television/radio station “A” is necessarily not the
viewer/listener of station “B”.
We should also consider that the Philippines is an archipelago with hundreds of dialects.
Thus, there is the need to reach an audience in a dialect/language best understood by
them for the message to effectively reach them. Local stations are the most effective
and efficient means to achieve this objective. /the limits on allowable airtime curtails
this ability.
C. The implications of some regulations affecting the broadcast and cable industries have
not been considered.
It is observed that for purposes of the Resolution, cable television is considered akin to a
television station. Thus, under the Resolution, placements of political advertisements in
free television, if already using the airtime limit, should necessarily exclude placements
on cable television.
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Under the “Must Carry” requirement, cable operators within a broadcast area are
required to carry in their transmissions (or channels) the free to air television stations in
their authorized service area. This means that the programs of free television stations
are simultaneously aired on cable. Thus a candidate who may be judiciously observing
the airtime limits in so far a television placements are concerned, could be in potential
violation of the Resolution because the candidate’s advertising material is being shown
both on television and on cable and would result to a double count because they are
technically in two “television” stations.
The circumstance, therefore, also potentially exposes a cable operator to penalties for
violating the election law, but complying with a cable/broadcast industry regulatory
requirement, because strictly speaking, it is the cable operator that is airing the “excess”
minutes!
Convergence of Platforms
The “must carry” requirement is just but one example of a “convergence” scenario that
renders the implementation of the subject Resolution, as promulgated, impractical. But
convergence happens in various media and telecommunications platforms and the
convergence effectively creates a multiplier effect for advertising placements. Where is
the line drawn on responsibilities or liabilities?
What about the convergence of broadcast and the internet platform? How do we treat
the streaming of a broadcast in the internet? Will this result to counting the airtime
used in the internet streaming also against the candidate? If we were to interpret the
Resolution in the context of the intention or objective to “limit airtime exposure” in
order to “level the playing field”, then there is going to be a multiplier effect (on
broadcast airtime) that results to a violation of the Resolution.
To avoid a very likely violation of the Resolution if the same is implemented in its
current wordings, a media network is practically compelled to undo years of work,
negotiations, and millions of investment put into developing a seamless convergent
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The absence for provisions in the Resolution covering these situations creates a
Sword of Damocles on media entities using various platforms. On the part of a
candidate, he would hesitate to exploit the various platforms.
We also again call the attention of the Commission to the following provision:
The said provision gives reason for concern of the broadcast industry that has
converged with different platforms (or that other platforms have converged into, with
or without consent of the broadcast network) because streaming or internet-casting of a
broadcast station’s programs is capable of pecuniary estimation. This means that even if
a broadcast station does not charge a candidate for the fact that its programs are
streamed in the internet or carried by other platforms, such streaming, or carriage in
other platforms, are capable of pecuniary estimation. What then are the rules of
engagement that cover such situation?
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New Media
Technology has also caused the emergence of “New Media”. How will these be
treated and what rules govern them if used in election propaganda. If persons engage
in internet casting i.e. streaming programs and other content in the internet akin to
“broadcasting” but in the internet, will this internet casting “stations” be considered in
counting airtime exposure? Obviously, the cost of advertising placement by a candidate
in the said internet “broadcast” will be counted. But what about the “internet airtime”
exposure?
We submit that the focus on traditional media without addressing situations created by
technology for “new media” and aspects of “convergent media” subjects the Resolution to the
issue of “class legislation” against “traditional media”.
SUMMATION
The broadcast industry has been asked the question on why it is taking an interest on
the matter of COMELEC Resolution No 9615 when other parties in interest, such as Political
Parties and Candidates, are not taking as keen an interest.
The KBP, as the representative of the majority of franchise grantees in the broadcast
media has, among its missions, the protection of the freedoms and rights enshrined in the
Constitution particularly the freedoms of EXPRESSION, SPEECH and the PRESS. Where such
freedoms and rights are curtailed, the KBP has the moral duty to take a stand against such
curtailment. As shown in the above submittals and discussions, there are constitutional and
legal issues that need to be addressed.
It must not be lost in the fray of discussions that the KBP advocates, and is a partner of
the Honorable Commission on Elections in the pursuit of a free, honest, orderly and clean
election process. The KBP has, in fact, been designated by law as the media representative.
The pursuit of a free, honest, orderly and clean election, noble and necessary as they may be
should never be justification to curtail constitutionally guaranteed rights and freedoms
especially in a political exercise that should showcase the essence of a democratic society. . .
the election by the people of their representatives.
There are also practical considerations that should be addressed if an orderly election is
to be held. The ambiguities, absence of provisions governing real and highly potential
scenarios, and possible mixed interpretations, create serious complications and implications
that can subject broadcast media outlets to sanctions and even loss of their Congressional
Franchise. That verbal assurance is made to the effect that the provisions will not be
interpreted in the manner that we have raised concern and issues about, this does not make
what is clearly written in the subject Resolution and different. In fact, that the assurances are
necessary simply indicate that the concern and/or issues are real.
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With the pronouncements and the explanations that have in fact been made by
Honorable Members of the Commission, it is clear that the definitive restriction is on election
spending and that there is a need to provide the proper mechanisms to track and regulate the
same.
It is in the context of curbing election spending that the new limits on allowable airtime
are being imposed. It is further argued that allowing more airtime is not needed or logical
because the cost of a lot of airtime is beyond the allowable election spending. The fallacy of
the argument, we submit, is the assumption that a candidate will place advertising minutes
with all stations.
The result of aggregating the airtime for political propaganda, however, has also the
effect of limiting the ability of a candidate to effectively make placements in areas where he
considers should matter. The aggregation does not also consider that the cost of television and
radio airtime in the areas outside of Metro Manila is substantially cheaper. However, the
current restriction compels a candidate or political party to focus placements in Metro Manila.
This situation also results in depriving voters in the provinces of their right to information.
WHEREFORE, premises considered, it is most respectfully and urgently prayed that the
Honorable Commission reconsider the provisions of COMELEC Resolution 9615 thereby
promulgating Resolutions modifying, amending or clarifying the same taking into consideration
the Constitutional, legal, technical and practical concerns and issues brought forward.
Movants further pray that a Public Hearing, with stakeholders invited, be conducted in
the formulation of amendatory or clarifying Resolutions.
GIVING AND GRANTING such other measures for relief and remedies just and equitable
under the premises.
RESPECTFULLY SUBMITTED
And also as President of Manila Broadcasting And also as Vice President of Bombo Radyo
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ASSISTED BY: