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of the
House By Maricel V. Cruz
T
He House of Representatives of the Republic of the Philippines is considered the Fourth Hierarchy in the bureaucracy. It is deemed an important component in the government as it is the lawmaking body that works hand in hand with the Senate to realize the pieces of legislation being pushed by the Palace and to address the needs of the Filipino people. Currently, the Lower Chamber is composed of 297 lawmakers: 237 district and 60 party-list representatives.
The 1987 Constitution mandates that on the fourth Monday of July of every year, Congress, meaning the House and the Senate, shall convene for their regular session, signifying the start of another year of law making. The opening of Congress is an important event, marked by the President’s annual State of the Nation Address.
Congress holds session from Mondays to Wednesdays; while the rest of the week is devoted to what the legislators call ‘constituency’ work. In case of urgent matters or emergencies, the President may call special sessions. Under the 1935 Constitution, Congress holds session for only 100 days.
WHo CoMPoSeS THe HoUSe:
House Speaker:
Bastion of Leadership THe HeAd of the House of Representatives, called Speaker, is the presiding officer and the highest-ranking official of the House, and the fourth highest government official. The Speaker is elected by a majority of all House members. The Speaker is the third in the line of succession for the presidency, after the Vice President and Senate President. The Speaker presides over the session; decides on all questions of order, subject to appeal by any member; signs all acts, resolutions, memorials, writs, warrants and subpoenae issued by or upon order of the House; appoints, suspends, dismisses or disciplines House personnel; and exercises administrative functions. A Speaker may be removed from office by majority of the members of the Chamber, or by death or resignation. In some cases, a Speaker may be compelled to resign at the middle of a Congress’ session if he loses the support of the majority of congressmen; in that case, an election for a new Speaker is held. Despite being a partisan official, the Speaker (or whoever is presiding) does not vote unless in breaking ties in accordance with the Rules of the House of Representatives. The first Speaker was Sergio Osmena in 1907. The current Speaker is former President Gloria Macapagal Arroyo who represents the second district of Pampanga. Arroyo was elected to the Speakership on July 23, 2018, and is the first woman and 21st person to serve as Speaker. DEPUTY SPEAKERS
House Speaker Gloria Macapagal-Arroyo
The deputy Speakers are the second highest-ranking officials of the House. In the absence of the Speaker, one of the deputy Speakers is tasked to preside during sessions. There used to be only one deputy Speaker since the Lower House was first established in 1907 – the official was called Speaker ProTempore. It was only in 1995 (or during the 10th Congress) when the position of Speaker Pro Tempore was renamed to deputy Speakers. originally, there was one deputy Speaker for each island group of Luzon, Visayas and Mindanao. Then, in 2001 during the 12th Congress, a deputy Speaker “at large” was created. In the next Congress, another “at large” deputy speakership was created, along with a deputy Speaker for women. In the 15th Congress starting in 2010, all six deputy speakers were “at large.” In the current 17th Congress, a number of deputy Speakers has been maintained. They are: Reps. Rose Marie Arenas of Pangasinan, Mercedes Alvarez of Negros occidental, Fredenil Castro of Capiz, Raneo Abu of Batangas, Prospero Pichay, Jr. of Surigao del Sur, Mylene Garcia-Albano of davao City, Arthur Yap of Bohol, Pia Cayetano of Taguig, Sharon Garin of AAMBISoWA party-list, Munir Arbison of Sulu, Ferdinand Hernandez of South Cotabato, Frederick Abueg of Palawan, evelina escudero of Sorsogon and Linabelle Ruth Villarica of Bulacan. The growing number of deputy Speakers can be attributed to the increasing number of House mem-
On her leadership style: The keywords are hard work, selectively hands-on—and you’ve seen that in regard to the priority legislative agenda of the President—strict but hopefully, fair and open-minded. With your help and support, I see a productive year for the House under my watch.” —House Speaker Gloria Macapagal-Arroyo
bers through the years. Based on the House Rules, deputy Speakers perform the following functions: -- to assume the duties and powers of the Speaker when so chosen by a majority vote or by lot among themselves, as the case may be, in cases of absence or temporary incapacity of the Speaker, until such time that the Speaker returns to office and resumes work; and, in case of resignation, removal, permanent incapacity or death of the Speaker, until such time that a new Speaker is elected and qualified; -- to preside over the session when, even if present, the Speaker does not preside, or has not designated any other Member as temporary presiding officer; -- to monitor, coordinate and facilitate action on measures filed, requests, and other concerns of Members representing constituencies to which they may be assigned by the Speaker; -- to recommend to the Speaker appropriate policies, strategies and programs of action to improve the process of legislation and the quality of legislative measures, and to effectively address concerns of Members on matters affecting them, their constituencies, and the overall operat i ons
and integrity of the House; -- to appoint personnel of the House when so authorized by the Speaker; and -- to perform such other duties and functions as may be assigned or delegated to them by the Speaker. MAJORITY LEADER The Majority Leader is considered to be the “enforcer” in the House. The Speaker and the Majority Leader are the “Batman and Robin” in the Chamber so to speak. The Majority Leader is elected in a caucus of the majority bloc. His primary function, aside from being the spokesman for the majority bloc, is to direct the deliberations on the floor. In practice however, the Speaker chooses a trusted representative as Majority Leader. In most cases in the past Congresses, a Majority Leader has been a lawyer. Camarines Sur Rep. Rolando Andaya, Jr. is the current majority leader. A lawyer, he served as Speaker Arroyo’s Budget Secretary during her presidency. MINORITY LEADER The Minority Leader is the acknowledged spokesman for the so-called minority bloc. But it does not necessarily follow that he is also the leader of a party because the minority bloc in the House may be composed of one or more political groups. Like the Majority Leader, the Minority Leader is elected in caucus of all Members of the House belonging to the minority. He is an ex-officio member of all standing Committees. The Minority Leader is not necessarily a hardcore oppositionist. His job is more to ensure check and balance in the Chamber. Presently, Quezon Rep. danilo Suarez, who considers himself as a “constructive oppositionist” is the Minority Leader prompting observers to quip that Suarez belongs more to the “loyal opposition,” having worked closely with Arroyo when she was still President. The Minority Leader also works with the Majority Leader, like being co-author to specific administration measures which the latter believes will be for the good of the Filipino people.
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Pillars Working
of the
House
Majority Leader:
Strategist and consensus-builder
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Rep. Rolando Andaya
By Peter Paul Duran
n the House of Representatives, the Majority Floor Leader (also known as the Majority Leader) is the dominant representative and delegate of the majority party. The position is second-in-command within the hierarchy of the committee, following the Speaker and followed by the Minority Floor Leader. The Majority Leader is chosen by the majority bloc of the House of Representatives in an effort to select the primary leader of the body. The role’s principal tasks are to administer, conduct and produce a consensus on the floor regarding relevant matters to the Rules of the House. As part of a Working House, the Majority Leadership is a key pillar in making the House of Representatives the quintessential body of lawmaking in the country.
History
Appointment
The nature of the position is firmly rooted in the country’s history and traditional beliefs. When the Philippines was under the rule of the United States (1898-1935), its legislative body was known as the Philippine Commission. The members of the Philippine Commission were chosen by the president of the United States at the time, President William Mckinley. With the Philippine Commission functioning as the Upper House and the Philippine Assembly functioning as the Lower House, the formation of a bilateral Philippine Legislature was established with the aid of the existing Philippine Bill of 1902. By 1907, the official legislature was instituted under the leadership of the country’s Floor Leader, President Manuel Quezon. By 1916, the Jones Law, a constitution that declared the United States’ intent to granting autonomy and independence to the Philippines with the mandate of a stable government, was implemented. This led to an alteration in the legislation of the state. The Philippine Commission was terminated. To make way for the new rule of law, the Philippine Legislature then consisted of a Senate and a House of Representatives. By 1940, the 1935 Constitution paved the way for yet another legislation change and created a bilateral Congress of the Philippines, continuously upholding a Senate and a House of Representatives. Through the years, the legislative system underwent many modifications until the final and current revision: the 1987 Constitution. To this day, these Houses play a major role in the inner workings and functions of a secure government process.
The Majority Leader is appointed during a party caucus, a meeting where house members discuss policies and regulations while designating candidates to apply for roles in the party. The position is simultaneous with the duty of being the Chairman of the Committee on Rules. The Philippines’ current Majority Leader is Rolando Andaya Jr., representing the first district of Camarines Sur. He was appointed on July 30, 2018, replacing former Majority Leader Rodolfo C. Fariñas of the first district of Ilocos Norte.
Duties and Responsibilities The responsibilities of the Majority Leader mainly focus on the processes, methods, and activities that are displayed on the floor. The position entails steady planning for the scheduling of legislation meetings and agendas on a constant basis, allotting assemblies daily, weekly, monthly and annually. In the present set-up of the House, the Majority Leader is concurrently the Chairman of the Committee on Rules. As such, all matters relevant to the Rules of the House, specifically the calendar of bills, preparation of Order of Business and Calendar of Business are his responsibilities. Strategy plays a large role in the duties of a Majority Leader. During floor debates and discussions, it is fundamental that the Majority Leader perceives manipulative maneuvers in the opposing party. These observations prove to be beneficial during important consultations within the party regarding appropriate directions toward an ultimately successful outcome.
Secretary-General and Sergeant-at-Arms:
Keepers of Order
THE Secretary-General of the House of Representatives carries out and enforces orders and decisions of the House; keeps the Journal of each session; and notes all questions of order together with the decisions thereon. He also completes the printing and distribution of the Records of the House and submits to the Speaker all contracts and agreements approval, and acts as the custodian of the property and records of the House and all other government property in its premises. Subject to the supervisory control of the Speaker, the Secretary General is the immediate chief of the personnel of the House and is responsible for the faithful and proper performance of their official duties. Like the Speaker, the Secretary General is elected by a majority vote of all the Members at the commencement of each Congress.
Dante Roberto P. Maling is the Acting Secretary-General of the 17th Congress. Sergeant-at-Arms THE Sergeant-At-Arms is responsible for the maintenance of order in the House of Representatives Building Complex, enforcement of House Rules, and protection of the lives of the Officers and Members of the House, its personnel and guests as well as its properties. Like the Secretary General, the Sergeant-at-Arms is elected by a majority vote of all the Members at the commencement of each Congress. Retired Armed Forces Major General Romeo C. Prestoza is the current Sergeant-at-Arms of the 17th Congress.
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Minority Leader:
T
Constructive critic, vigilant defender of minority rights
HE Minority Floor Leader of the House of Representatives is the leader elected by the minority bloc of the House of Representatives of the Philippines that serves as their official leader in the body. He also manages the business of the minority party in the Senate.
The Minority Leader is expected to be alert and vigilant in defense of the minority’s rights. It is his function and duty to criticize constructively the policies and programs of the majority, and to this end employ parliamentary tactics and give close attention to all proposed legislation. The Minority Leader is also the acknowledged spokesman of the minority party in the House. But it does not necessarily follow that he is also the leader of the party because the minority party in the House may be composed of one or more political groupings. Rep. Danilo E. Suarez of the 3rd Dis-
trict of Quezon Province is the current Minority Leader. He is also Chairman of the House Committee on Oversight and a member of the Committee on Rules. Like the Majority Leader, the Minority Leader is elected in party caucus of all Members of the House in the minority party. He is an ex-officio member of all standing Committees. While the second placer in the election for the speakership is usually named as the minority leader, the rules were amended for the 17th Congress, where the minority bloc elects their minority leader among themselves. Peter Paul Duran Rep. Danilo Suarez
Symbols of Power and Authority The Seal On September 23, 2015, the House of Representatives adopted a new seal through House Resolution No. 233, which is reflective of the character and tradition of the institution. The Seal is in circular form with the National Coat-ofArms of the Republic of the Philippines but without the scroll and the inscription in the center. below the escutcheon representing the year the First Philippine Assembly was inaugurated. Eighty-one (81) Stars surround and guide the blazon representing the current number of provinces comprising the Republic. Surrounding the whole is a double marginal circle within the lower part. These phrases are separated by two small five-pointed stars.
The Gavel The Gavel is the symbol of authority of the Speaker during sessions; and, in his absence, by the Deputy Speaker or any member designated to perform the duties of the Presiding Officer. The Gavel is rapped to declare the regular session open, call the House to order, direct everybody to rise, declare a quorum, suspend session, resume session, approve a motion, approve a bill or resolution on second or third reading, and instruct/direct the Secretary-General to take specific actions. The Gavel is also used to direct the Sergeant-atArms to impose order/discipline in the Hall, refer bills and resolutions to appropriate committees, refer committee reports to the Committee on Rules, send communications to the Archives, inform the body that voting will be conducted, declare approval of a bill or resolution on second and third reading, and call for attention, silence, order in the House.
The Mace The Mace of the House is a symbol of authority, which is displayed at Rostrum whenever the House is in session. It serves as the warrant for the Sergeant-at-Arms in enforcing order in the House upon instruction of the Speaker. The Mace is in the custody of the Sergeantat-Arms.
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Deputy Speakers:
Keeping the House a resolute lawmaking body
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By Peter Paul Duran and Ciara Alarcon
ITH 297 congressional seats, the House of Representatives needs several officials with their own duties and powers to keep the institution running. They include the Deputy Speakers, currently made up of 14 honorable men and women from different districts of the Philippines. It is important to note the role of the Deputy Speakers as the second highest-ranking officials of the House, in making the chamber a resolute body of lawmaking for the Republic. Duties and Responsibilities
Rep. Rosemarie Arenas
Rep. Arthur Yap
Rep. Fredenil Castro
Rep. Pia Cayetano
Rep. Ferdinand Hernandez
Rep. Linabelle Villarica
Rep. Mylene Garcia-Albano
Rep. Raneo Abu
Rep. Frederick Abueg
Rep. Mercedes Alvarez
Rep. Munir Arbison
Rep. Evelina Escudero
Evolution of the Philippine Legislative System
The Deputy Speakers assume the duties and powers of the Speaker when so chosen by a majority vote or by lot among themselves, as the case may be, in cases of absence or temporary incapacity of the Speaker. This continues until such time that the Speaker returns to office and resumes work; and, in case of resignation, removal, permanent incapacity or death of the Speaker, until such time that a new Speaker is elected and qualified. They also preside over the session when, even if present, the Speaker does not preside, or has not designated any other Member as temporary presiding officer. The Deputy Speakers also monitor, coordinate and facilitate action on measures filed, requests, and other concerns of Members representing constituencies to which they may be assigned by the Speaker. They also recommend to the Speaker appropriate policies, strategies and programs of action to improve the process of legislation and the quality of legislative measures, and to effectively address concerns of Members on matters affecting them, their constituencies, and the overall operations and integrity of the House. They also have the power to appoint personnel of the House when so authorized by the Speaker and perform other duties and functions as may be assigned or delegated to them by the Speaker. In addition, they are tapped to address matters concerning the overall operations and integrity of the House. In the 17th Congress of the Philippines, as the Duterte administration eyes to shift the government system from a unitary to a federal system of government, the House now has a total of 14 Deputy Speakers, up from the traditional five to six. The current Deputy Speakers of the House include: • • • • • • • • • • • • • •
Rep. Sharon Garin
Rep. Mercedes Alvarez of the 6th District of Negros Occidental; Rep. Fredenil Castro of the 2nd District of Capiz; Rep. Raneo Abu of the 2nd District of Batangas; Rep. Linabelle Villarica of the 4th District of Bulacan; Rep. Pia Cayetano of Taguig; Rep. Sharon Garin of the AAMBIS-OWA Partylist; Rep. Mylene Garcia-Albano of the 2nd District of Davao City; Rep. Munir Arbison of the 2nd District of Sulu; Rep. Ferdinand Hernandez of the 2nd District of South Cotabato; Rep. Frederick Abueg of the 2nd District of Palawan. Rep. Prospero Pichay Jr. of the 1st District of Surigao del Sur; Rep. Arthur Yap of the 3rd District of Bohol; Rep. Rosemarie Arenas of the 3rd District of Pangasinan; Rep. Evelina Escudero of the 1st District of Sorsogon;
Rep. Prospero Pichay
HOR’s Legislative History
The Philippine legislative system has undergone a series of evolutions that reflected the sociopolitical conditions of the times and the level of political maturity of society. It began with the unicameral Malolos Congress of the short-lived Philippine Republic of 18981899, followed by the Philippine Commission of 1901, a colonial legislative system composed of all-American appointees. This body then evolved into a bicameral, predominantly elective, Filipino-controlled legislature by virtue of the Jones Act of 1916, and lasted until November 1935 when the semi-independent Commonwealth Government was inaugurated. A unicameral National Assembly replaced the bicameral body after the 1935 Philippine Constitution was ratified. In 1941, the Constitution was amended, again restoring the bicameral legislature that came to be called the Congress of the Philippines. Except during the Japanese-sponsored Philippine Republic from 1942-1945, the Congress func- and proclaimed by President Ferdinand Marcos on tioned as the national legislature until September January 17, 1973 amidst widespread protest and 1972 when President Ferdinand E. Marcos placed controversy. the country under martial law. With the proclamation of a new Constitution, the presidential form of government was changed to a modified parliamentary form. Congress was abolThe Batasang Pambansa ished and was replaced by an elected unicameral - A Unicameral Legislature National Assembly, known as Batasang Pambansa. The Batasang Pambansa was made up of a When martial law was declared, the Constitutional Convention, by virtue of an Act of Congress maximum of 200 members elected from different in 1971, was in the process of drafting a new Con- provinces with their component cities, highly urstitution. The final draft was adopted by the Con- banized cities and districts of Metropolitan Manila, vention on November 29, 1972. This was ratified appointed representatives from various sectors
from both ends of the political spectrum, forged a new government, triggering a chain of events that dramatically changed the political landscape of the country and signaled the rebirth of democracy. These political changes were: the abolition of the Batasang Pambansa following the proclamation of a new revolutionary government; the organization of a Constitutional Commission that drafted a new charter which, in turn, was ratified in February 1987; the rebirth of the old bicameral system; and the election of members to the new Congress.
The New Congress
such as the youth, agricultural and industrial labor sectors, and those chosen by the President from the members of the Cabinet. The members had a term of six years.
The Present Philippine Congress The February 1986 People Power Revolution The world-renowned bloodless coup of February 22-25, 1986 ushered in a new political regime. President Corazon Aquino, backed by a coalition of forces
Photos by Perfecto Camero
The new Congress has the biggest membership and is probably the most powerful among its predecessor legislatures. The Constitutional Commission (ConCom) clothed it with vast powers to perform a wider and more dynamic role. This fact is partly reflected in the Charter itself, which devotes 32 sections to the legislative department compared with only 23 for the executive and 16 for the judicial departments. The new bicameral Congress consists of the Senate and the House of Representatives. The upper chamber or the Senate is composed of 24 Members elected at-large by the qualified voters of the Philippines. On the other hand, the lower chamber or the House of Representatives is composed of “not more than 250 Members, who are elected from legislative districts apportioned among the provinces, cities and the Metropolitan Manila area in accordance with the number of inhabitants, and on the basis of a uniform and progressive ratio and those, as provided by law, elected through a party-list system of registered national, regional and sectoral parties or organizations”. [Sec. 5(1), Art. VI, 1987 Philippine Constitution]