Matibag vs Benipayo

Matibag vs Benipayo Facts: President Gloria Macapagal Arroyo appointed Respondent Alfredo Benipayo as ad interim COMELEC Cairman! and Respondents Res"rreccion Borra and Florentino  #"ason  #"ason as COMELEC Commissioners$ Commissioners$ Benipayo! Benipayo! Borra! and #"ason #"ason too% teir oat oat of o&ce and ass"med teir respective positions in COMELEC$  #e O&ce of te President s"bmitted to te Commission on Appointments 'COA( 'COA( te ad interim appointments of Benipayo! Borra and #"ason for con)rmation$ *o+ever! te COA did not act on said appointments$ President Arroyo ten rene+ed te ad interim appointments of Benipayo! Borra and #"ason to te same positions and for te same term$ #ey too% teir oats of o&ce o&ce for for a seco second nd time time$$ #e #e O&ce O&ce of te te Pres Presid iden entt tran transm smit itte ted d tei teirr appointments to te Commission on Appointments Appointments for con)rmation$ con)rmation$ *o+ever! Congress ad,o"rned ad,o"rned before COA co"ld act on teir appointments$ #"s! President President Arroyo rene+ed teir ad interim appointments for a second time to te same positions$ #e O&ce of te President s"bmitted teir appointments for con)rmation$ -n is capacity as COMELEC Cairman! Benipayo iss"ed a Memorand"m dated April ..! /00. addressed to petitioner Angelina Matibag as 1irector -2 of te Ed"cation and -nformation 1epartment 'E-1( and to respondent 2elma Cinco as 1irector --- also of te E-1! designating Cinco O&cer3in3Carge of te E-1 and reassigning reassigning petitioner to te La+ 1epartment$ Bac%gro"nd: o -n .444! te COMELEC en banc appointed petitioner Matibag as 5Acting 1irector -25 of te E-1$ o -n /000! ten Cairperson *arriet 1emetrio" rene+ed te appointment of  petitioner as 1irector -2 of E-1 in a 5#emporary5 capacity$ o -n /00.! Commissioner R")no 6avier rene+ed again te appointment of  petitioner to te same position in a 5#emporary5 capacity$ COMELEC COMELEC E-1 Commissio Commissioner ner3in3C 3in3Car arge ge Meol 7adain 7adain ob,ected ob,ected to petition petitioner8s er8s reass eassig ignm nmen entt in a Memo Memora rand nd"m "m addr addres esse sed d to te te COME COMELE LEC C en banc banc$$ 7peci)cally! Commissioner 7adain 9"estioned Benipayo8s fail"re to cons"lt te Commissioner3in3Carge of te E-1 in te reassignment of petitioner$ Petitioner ten re9"ested Benipayo to reconsider er relief as 1irector -2 of te E-1 E-1 and and er er reass eassig ignm nmen entt to te te La+ La+ 1epa 1epart rtme ment nt$$ Petit etitio ione nerr cite cited d C7C C7C Memorand"m Circ"lar! reminding reminding eads of government o&ces tat 5transfer and detail of employees are proibited d"ring te election period beginning 6an"ary / "ntil 6"ne .! /00.$5 Benipayo denied er re9"est for reconsideration$ Petitioner ten appealed te denial of er re9"est for reconsideration to te COMELEC en banc$ Petit Petition ioner er also also )led )led an admini administr strati ative ve and crimin criminal al compl complain aintt +it +it te La+ 1epartment against Benipayo! alleging tat er reassignment violated 7ection /;. '( of te Omnib Omnib"s "s Elect Election ion Code! Code! COMELE COMELEC C Resol"t esol"tion ion!! Civil Civil 7ervic 7ervice e Memorand"m Circ"lar! and oter pertinent administrative and civil service la+s! r"les and reg"lations$ 1"ring te pendency of er complaint before te La+ 1epartment! petitioner )led te instant petition 9"estioning te appointment and te rigt to remain in •

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o&ce of Benipayo! Borra and #"ason! as Cairman and Commissioners of te COMELEC! respectively$ Petitioner claims te follo+ing:  #at te ad interim appointments of Benipayo! Borra and #"ason violate te o constit"tional provisions on te independence of te COMELEC! as +ell as on te proibitions on temporary appointments and reappointments of its Cairman and members$ o  #at er removal as 1irector -2 of te E-1 and er reassignment to te La+ 1epartment is illegal$ 7im"ltaneo"sly! petitioner callenges te designation of Cinco as O&cer3in3Carge of te E-1$ #at tere is illegality in te disb"rsements made by COMELEC Finance 7ervices 1epartment O&cer3in3 Carge Gideon 1e G"$ #ey all too% teir oats of o&ce ane+$

-ss"es: -s te ad interim appointment by Benipayo! Borra and #"ason amo"nts to a temporary appointment proibited by 7ection . '/(! Article -?3C of te Constit"tion@ O$

*eld: FIRST ISSUE

 #e ad interim appointment by Benipayo! Borra and #"ason does not amo"nt to a temporary appointment proibited by 7ection . '/(! Article -?3C of te Constit"tion$ Petitioner arg"es tat an ad interim appointment to te COMELEC is a temporary appointment tat is proibited by 7ection . '/(! Article -?3C of te Constit"tion! +ic provides as follo+s: 5#e Cairman and te Commissioners sall be appointed by te President +it te consent of te Commission on Appointments for a term of seven years +ito"t reappointment$ -n no case sall any Member be appointed or designated in a temporary or acting capacity$5 Petitioner posits te vie+ tat an ad interim appointment can be +itdra+n or revo%ed by te President at er pleas"re! and can even be disapproved or simply by3passed by te Commission on Appointments$ For tis reason! petitioner claims tat an ad interim appointment is temporary in caracter and conse9"ently proibited by te Constit"tion$ Petitioner interprets te last sentence of 7ection . '/( of Article -?3C to mean tat te ad interim appointee cannot ass"me o&ce "ntil is appointment is con)rmed by te Commission on Appointments for only ten does is appointment become permanent and no longer temporary in caracter$  #e rationale beind petitioner8s teory is tat only an appointee +o is con)rmed by te Commission on Appointments can g"arantee te independence of te COMELEC$ A con)rmed appointee is beyond te •

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in"ence of te President or members of te Commission on Appointments since is appointment can no longer be recalled or disapproved$ Prior to is con)rmation! te appointee is at te mercy of bot te appointing and con)rming po+ers since is appointment can be terminated at any time for any ca"se$ An ad interim appointment is a permanent appointment beca"se it ta%es eect immediately and can no longer be +itdra+n by te President once te appointee as 9"ali)ed into o&ce$  #e fact tat it is s"b,ect to con)rmation by COA does not alter its permanent caracter$  #e Constit"tion itself ma%es an ad interim appointment permanent in caracter by ma%ing it eective "ntil disapproved by COA or "ntil te ne=t ad,o"rnment of Congress$ o  #e second paragrap of 7ection .;! Article 2-- of te Constit"tion provides as follo+s: 5#e President sall ave te po+er to ma%e appointments d"ring te recess of te Congress! +eter vol"ntary or comp"lsory! b"t s"c appointments sall be eective only "ntil disapproval by te Commission on Appointments or "ntil te ne=t ad,o"rnment of te Congress$5  #"s! te ad interim appointment remains eective "ntil s"c disapproval or ne=t ad,o"rnment! signifying tat it can no longer be +itdra+n or revo%ed by te President$ #e fear tat te President can +itdra+ or revo%e at any time and for any reason an ad interim appointment is +ito"t basis$ •

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More tan alf a cent"ry ago! in 7"mmers vs O
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 #e Constit"tion imposes no condition on te eectivity of an ad interim appointment! and t"s an ad interim appointment ta%es eect immediately$  #e appointee can at once ass"me o&ce and e=ercise! as a de ,"re o&cer! all te po+ers pertaining to te o&ce$ -n Pacete vs 7ecretary of te COA! te Co"rt elaborated on te nat"re of an ad interim appointment as follo+s: o A distinction is t"s made bet+een te e=ercise of s"c presidential prerogative re9"iring con)rmation by te Commission on Appointments +en Congress is in session and +en it is in recess$ o -n te former! te President nominates! and only "pon te consent of te Commission on Appointments may te person t"s named ass"me o&ce$ •

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-t is not so +it reference to ad interim appointments$ -t ta%es eect at once$ #e individ"al cosen may t"s 9"alify and perform is f"nction +ito"t loss of time$ *is title to s"c o&ce is complete$ -n te lang"age of te Constit"tion! te appointment is eective D"ntil disapproval by te Commission on Appointments or "ntil te ne=t ad,o"rnment of te Congress$

Petitioner cites Blac%8s La+ 1ictionary +ic de)nes te term 5ad interim5 to mean 5in te meantime5 or 5for te time being$5 *ence! petitioner arg"es tat an ad interim appointment is "ndo"btedly temporary in caracter$ #is arg"ment is not ne+ and +as ans+ered by tis Co"rt in Pamantasan ng L"ngsod ng Maynila vs -ntermediate Appellate Co"rt! +ere te Co"rt e=plained tat: 7"c is not te meaning nor te "se intended in te conte=t of Pilippine la+$  #e term! alto"g not fo"nd in te te=t of te Constit"tion! as ac9"ired a de)nite legal meaning "nder Pilippine ,"rispr"dence$  #e term is not descriptive of te nat"re of te appointments given to im! tat is! it is not indicative of +eter te appointment is temporary or in an acting capacity$ Rater! it is "sed to denote te manner in +ic said appointments +ere made! tat is! done by te President of te Pamantasan in te meantime! +ile te Board of Regents! +ic is originally vested by te niversity Carter +it te po+er of appointment! is "nable to act$  #"s! te term 5ad interim appointment!5 means a permanent appointment made by te President in te meantime tat Congress is in recess$ -t does not mean a temporary appointment tat can be +itdra+n or revo%ed at any time$ An ad interim appointee +o as 9"ali)ed and ass"med o&ce becomes at tat moment a government employee and terefore part of te civil service$ *e en,oys te constit"tional protection tat 5nHo o&cer or employee in te civil service sall be removed or s"spended e=cept for ca"se provided by la+$5  #"s! an ad interim appointment becomes complete and irrevocable once te appointee as 9"ali)ed into o&ce$  #e +itdra+al or revocation of an ad interim appointment is possible only if  it is comm"nicated to te appointee BEFORE te moment e 9"ali)es! and any +itdra+al or revocation tereafter is tantamo"nt to removal from o&ce$ Once an appointee as 9"ali)ed! e ac9"ires a legal rigt to te o&ce +ic is protected not only by stat"te b"t also by te Constit"tion$ *e can only be removed for ca"se! AF#ER notice and earing! consistent +it te re9"irements of d"e process$ •

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An ad interim appointment can be terminated for t+o ca"ses speci)ed in te Constit"tion$  #e )rst ca"se is te disapproval of is ad interim appointment by te COA$  #e second ca"se is te ad,o"rnment of Congress +ito"t te COA acting on is appointment$  #ese t+o ca"ses are resol"tory conditions e=pressly imposed by te Constit"tion on all ad interim appointments$  #ese resol"tory conditions constit"te! in eect! a 7+ord of 1amocles over te eads of ad interim appointees$ • •

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o one! o+ever! can complain beca"se it is te Constit"tion itself tat places te 7+ord of 1amocles over te eads of te ad interim appointees$

Iile an ad interim appointment is permanent and irrevocable e=cept as provided by la+! an appointment or designation in a temporary or acting capacity can be +itdra+n or revo%ed at te pleas"re of te appointing po+er$ A temporary or acting appointee does not en,oy any sec"rity of ten"re! no matter o+ briey$  #is is te %ind of appointment tat te Constit"tion proibits te President from ma%ing to te tree independent constit"tional commissions! incl"ding te COMELEC$  #"s! in Brillantes vs Jorac! te Co"rt str"c% do+n as "nconstit"tional te designation by ten President Cora
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-n te instant case! te President did in fact appoint permanent Commissioners to )ll te vacancies in te COMELEC! s"b,ect only to con)rmation by te Commission on Appointments$ Benipayo! Borra and #"ason +ere e=tended permanent appointments d"ring te recess of Congress$  #ey +ere not appointed or designated in a temporary or acting capacity$  #e ad interim appointments of Benipayo! Borra and #"ason are e=pressly allo+ed by te Constit"tion +ic a"tori
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Iile te Constit"tion mandates tat te COMELEC 5sall be independent!5 tis provision so"ld be armoni
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 #e reinstatement of te provisions of te .4K Constit"tion in te present Constit"tion regarding ad interim appointing po+er of te President +as for te p"rpose of avoiding interr"ptions in vital government services tat oter+ise +o"ld res"lt from prolonged vacancies in government o&ces! incl"ding te tree constit"tional commissions$ -n is conc"rring opinion in G"evara vs -nocentes! decided "nder te .4K Constit"tion! 6"stice Roberto Concepcion! 6r$ e=plained te rationale beind ad interim appointments in tis manner: 5o+! +y is te lifetime of ad interim appointments so limited@ Beca"se! if  tey e=pired before te session of Congress! te evil so"gt to be avoided  interr"ption in te discarge of essential f"nctions  may ta%e place$ Beca"se te same evil +o"ld res"lt if te appointments ceased to be eective d"ring te session of Congress and before its ad,o"rnment$ pon te oter and! once Congress as ad,o"rned! te evil aforementioned may easily be con,"red by te iss"ance of oter ad interim appointments or reappointments$5 •

 #e po+er to ma%e ad interim appointments is lodged in te President to be e=ercised by er in er so"nd ,"dgment$ nder te second paragrap of 7ection .;! Article 2-- of te Constit"tion! te President can coose eiter of t+o modes in appointing o&cials +o are s"b,ect to con)rmation by te Commission on Appointments$ First! +ile Congress is in session! te President may nominate te prospective appointee! and pending consent of te Commission on Appointments! te nominee cannot 9"alify and ass"me o&ce$ 7econd! d"ring te recess of Congress! te President may e=tend an ad interim appointment +ic allo+s te appointee to immediately 9"alify and ass"me o&ce$ Ieter te President cooses to nominate te prospective appointee or e=tend an ad interim appointment is a matter +itin te prerogative of te President beca"se te Constit"tion grants er tat po+er$  #is Co"rt cannot in9"ire into te propriety of te coice made by te President in te e=ercise of er constit"tional po+er! absent grave ab"se of  discretion amo"nting to lac% or e=cess of ,"risdiction on er part! +ic as not been so+n in te instant case$  #e President8s po+er to e=tend ad interim appointments may indeed briey p"t te appointee at te mercy of bot te appointing and con)rming po+ers$ #is sit"ation! o+ever! is only for a sort period 3 from te time of  iss"ance of te ad interim appointment "ntil te Commission on Appointments gives or +itolds its consent$ •

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 #is sit"ation! o+ever! does not compromise te independence of te COMELEC as a constit"tional body$  #e vacancies in te COMELEC are precisely staggered to ins"re tat te ma,ority of its members old con)rmed appointments! and not one President +ill appoint all te COMELEC members$ -n te instant case! te COA ad long con)rmed fo"r of te inc"mbent COMELEC members! comprising a ma,ority! +o co"ld no+ be removed from •

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o&ce only by impeacment$ #"s! te special constit"tional safeg"ards tat ins"re te independence of te COMELEC remain in place$ SECOND ISSUE

 #e rene+als of ad interim appointments are valid and constit"tional$ Petitioner also arg"es tat ass"ming te )rst ad interim appointments and te )rst ass"mption of o&ce by Benipayo! Borra and #"ason are constit"tional! te rene+al of te teir ad interim appointments and teir s"bse9"ent ass"mption of o&ce to te same positions violate te proibition on reappointment "nder 7ection . '/(! Article -?3C of te Constit"tion$ •

An ad interim appointee disapproved by COA can no longer be e=tended a ne+ appointment$ #e disapproval is a )nal decision of COA in te e=ercise of its cec%ing po+er on te appointing a"tority of te President$ A disapproved ad interim appointment cannot be revived by anoter ad interim appointment beca"se te disapproval is )nal "nder 7ection .;! Article 2-- of te Constit"tion! and not beca"se a reappointment is proibited "nder 7ection . '/(! Article -?3C of te Constit"tion$  #e disapproval is a decision on te merits! being a ref"sal by COA to give its consent after deliberating on te 9"ali)cations of te appointee$ 7ince te Constit"tion does not provide for any appeal from s"c decision! te disapproval is )nal and binding on te appointee as +ell as on te appointing po+er$ -n tis instance! te President can no longer rene+ te appointment not beca"se of te constit"tional proibition on reappointment! b"t beca"se of a )nal decision by te Commission on Appointments to +itold its consent to te appointment$ •

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An ad interim appointment tat is by3passed beca"se of lac% of time or fail"re of te Commission on Appointments to organi
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*ence! "nder te R"les of te Commission on Appointments! a by3passed appointment can be considered again if te President rene+s te appointment$

 #e prase 5+ito"t reappointment5 applies only to one +o as been appointed by te President and con)rmed by COA! +eter or not s"c person completes is term of o&ce$ An ad interim appointment tat as lapsed by inaction of COA does not constit"te a term of o&ce$  #e period from te time te ad interim appointment is made to te time it lapses is neiter a )=ed term nor an "ne=pired term$  #o old oter+ise +o"ld mean tat te President by is "nilateral action co"ld start and complete te r"nning of a term of o&ce in te COMELEC +ito"t te consent of te Commission on Appointments$  #is interpretation renders in"tile te con)rming po+er of te Commission on Appointments$  #ere m"st be a con)rmation by COA of te previo"s appointment before te proibition on reappointment can apply$  #o old oter+ise +ill lead to abs"rdities and negate te President8s po+er to ma%e ad interim appointments$ •

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THIRD ISSUE

Benipayo is te de ,"re COMELEC Cairman! and conse9"ently e as f"ll a"tority to e=ercise all te po+ers of tat o&ce for so long as is ad interim appointment remains eective$ nder 7ection  'N(! Capter /! 7"btitle C! Boo% 2 of te Revised Administrative Code! te Cairman of te COMELEC is vested +it te follo+ing po+er: 7ection $ Cairman as E=ec"tive O&cer Po+ers and 1"ties$ #e Cairman! +o sall be te Cief E=ec"tive O&cer of te Commission! sall: Ma%e temporary assignments! rotate and transfer personnel in accordance +it te provisions of te Civil 7ervice La+$  #e Cairman! as te Cief E=ec"tive of te COMELEC! is e=pressly empo+ered on is o+n a"tority to transfer or reassign COMELEC personnel in accordance +it te Civil 7ervice La+$ -n te e=ercise of tis po+er! te Cairman is not re9"ired by la+ to sec"re te approval of te COMELEC en banc$ •

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Petitioner8s appointment papers indisp"tably so+ tat se eld er 1irector -2 position in te E-1 only in an acting or temporary capacity$ Petitioner is not a Career E=ec"tive 7ervice 'CE7( o&cer! and neiter does se old Career E=ec"tive 7ervice Eligibility! +ic are necessary 9"ali)cations for olding te position of 1irector -2 as prescribed in te "ali)cations 7tandards 'Revised .4>( iss"ed by te Civil 7ervice Commission$ Obvio"sly! petitioner does not en,oy sec"rity of ten"re as 1irector -2$ •

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*aving been appointed merely in a temporary or acting capacity! and not possessed of te necessary 9"ali)cations to old te position of 1irector -2! er appointment can be +itdra+n or revo%ed at te pleas"re of te appointing po+er$

E=tra Bac%gro"nd:  #e timely application of te last sentence of 7ection .;! Article 2-- of te Constit"tion barely avoided te interr"ption of essential government services in te May /00. national elections$ Follo+ing te decision of te Co"rt in Gaminde vs Commission on Appointments! te terms of o&ce of constit"tional o&cers )rst appointed "nder te Constit"tion +o"ld ave to be co"nted starting Febr"ary /! .4>! te date of rati)cation of te Constit"tion! regardless of te date of teir act"al appointment$ By tis rec%oning! te terms of o&ce of tree Commissioners of  te COMELEC! incl"ding te Cairman! +o"ld end on Febr"ary /! /00.$  #en COMELEC Cairperson *arriet 1emetrio" +as appointed only on 6an"ary ..! /000 to serve! p"rs"ant to er appointment papers! "ntil Febr"ary .K! /00/! te original e=piry date of te term of er predecessor! 6"stice Bernardo Pardo! +o +as elevated to tis Co"rt$  #e original e=piry date of te term of Commissioner #eresita 1y3Liacco Flores +as also Febr"ary .K! /00/! +ile tat of Commissioner 6"lio F$ 1esamito +as ovember ! /00.$  #e original e=piry dates of te terms of o&ce of Cairperson 1emetrio" and Commissioners Flores and 1esamito +ere terefore s"pposed to fall after te May /00. elections$ 7"ddenly and "ne=pectedly! beca"se of te Gaminde r"ling! tere +ere tree vacancies in te seven3person COMELEC! +it national elections looming less tan tree and one3alf monts a+ay$  #o teir credit! Cairperson 1emetrio" and Commissioner Flores vacated teir o&ces on Febr"ary /! /00. and did not 9"estion any more before tis Co"rt te applicability of te Gaminde r"ling to teir o+n sit"ation$ -n a Manifestation )led +it tis Co"rt in te Gaminde case! Cairperson 1emetrio" stated tat se +as vacating er o&ce on Febr"ary /! /00.! as se believed any delay in coosing er s"ccessor migt create a 5constit"tional crisis5 in vie+ of te pro=imity of te May /00. national elections$ Commissioner 1esamito cose to )le a petition for intervention in te Gaminde case b"t tis Co"rt denied te intervention$ #"s! Commissioner 1esamito also vacated is o&ce on Febr"ary /! /00.$ 1"ring an election year! Congress normally goes on vol"ntary recess bet+een Febr"ary and 6"ne considering tat many of te members of te *o"se of  Representatives and te 7enate r"n for re3election$ -n /00.! te Elevent Congress ad,o"rned from 6an"ary 4! /00. to 6"ne ! /00.$ Concededly! tere +as no more time for Benipayo! Borra and #"ason! +o +ere originally e=tended ad interim appointments only on Marc //! /00.! to be con)rmed by te Commission on Appointments before te May .N! /00. elections$ -f Benipayo! Borra and #"ason +ere not e=tended ad interim appointments to )ll "p te tree vacancies in te COMELEC! tere +o"ld only ave been one •

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division f"nctioning in te COMELEC instead of t+o d"ring te May /00. elections$ Considering tat te Constit"tion re9"ires tat 5all election cases sall be eard and decided in division!5 te remaining one division +o"ld ave been s+amped +it election cases$ Moreover! since "nder te Constit"tion motions for reconsideration 5sall be decided by te Commission en banc!5 te mere absence of one of te fo"r remaining members +o"ld ave prevented a 9"or"m! a less tan ideal sit"ation considering tat te Commissioners are e=pected to travel aro"nd te co"ntry before! d"ring and after te elections$  #ere +as a great probability tat disr"ptions in te cond"ct of te May /00. elections co"ld occ"r beca"se of te tree vacancies in te COMELEC$  #e s"ccessf"l cond"ct of te May /00. national elections! rigt after te t"m"lt"o"s E17A -- and E17A --- events! +as certainly essential in safeg"arding and strengtening o"r democracy$