STATUTORY CONSTRUCTION

CHAPTER I
STATUTORY CONSTRUCTION DEFINED
Statutory Construction the art or process of isco!erin" an e#pounin"
the $eanin" an intention of the authors of the %a& &ith respect to its
app%ication to a "i!en case' &here that intention is renere ou(tfu%' a$on"
others' (y reason of the fact that the "i!en case is not e#p%icit%y pro!ie for
in the %a&)
*ustice +artin efines statutory construction as the art of see,in" the
intention of the %e"is%ature in enactin" a statute an app%yin" it to a "i!en
state of facts)
A -uicia% function is re.uire &hen a statute is in!o,e an ifferent
interpretations are in contention)
Difference (et&een -uicia% %e"is%ation an statutory construction/
0here %e"is%ature atte$pts to o se!era% thin"s one &hich is in!a%i' it $ay
(e iscare if the re$ainer of the act is &or,a(%e an in no &ay epens
upon the in!a%i portion' (ut if that portion is an inte"ra% part of the act' an
its e#cision chan"es the $anifest intent of the act (y (roaenin" its scope to
inc%ue su(-ect $atter or territory &hich &as not inc%ue therein as enacte'
such e#cision is 1-uicia% %e"is%ation2 an not 1statutory construction2)
CONSTRUCTION AND INTERPRETATION' DISTIN3UISHED
Construction is the ra&in" of conc%usions &ith respect to su(-ects that are
(eyon the irect e#pression of the te#t' &hi%e interpretation is the process of
isco!erin" the true $eanin" of the %an"ua"e use)
Interpretation is %i$ite to e#p%orin" the &ritten te#t) Construction on the
other han is the ra&in" of conc%usions' respectin" su(-ects that %ie (eyon
the irect e#pressions of the te#t)
SITUS OF CONSTRUCTION AND INTERPRETATION
In our syste$ of "o!ern$ent/
4e"is%ati!e po&er is !este in the Con"ress of the Phi%ippines the Senate
an the House of the Representati!es
E#ecuti!e po&er is !este in the Presient of the Repu(%ic of the Phi%ippines
5Art) 6II' Sec)7' Phi%) Const)8
*uicia% po&er is !este in one Supre$e Court an in such %o&er courts as
$ay (e esta(%ishe (y %a&) 5Art 6III' Sec) 7' Phi%) Const)8
4e"is%ati!e $a,es the %a&
E#ecuti!e 9 e#ecutes the %a&
*uicia% interprets the %a&
Si$p%y state' the situs of construction an interpretation of &ritten %a&s
(e%on" to the -uicia% epart$ent)
It is the uty of the Courts of *ustice to sett%e actua% contro!ersies in!o%!in"
ri"hts &hich are %e"a%%y e$ana(%e an enforcea(%e' an to eter$ine
&hether or not there has (een a "ra!e a(use of iscretion a$ountin" to %ac,
or e#cess of -urisiction on the part of any (ranch or instru$enta%ity of the
"o!ern$ent)
Supre$e Court is the one an on%y Constitutiona% Court an a%% other %o&er
courts are statutory courts an such %o&er courts ha!e the po&er to construe
an interpret &ritten %a&s)
DUTY OF THE COURTS TO CONSTRUE AND INTERPRET THE 4A0:
RE;UISITES
9There $ust (e an actua% case or contro!ersy'
9There is a$(i"uity in the %a& in!o%!e in the contro!ersy)
A$(i"uity e#ists if reasona(%e persons can fin ifferent $eanin"s in a
statute' ocu$ent' etc)
A statute is a$(i"uous if it is a$issi(%e of t&o or $ore possi(%e $eanin"s)
If the %a& is c%ear an une.ui!oca%' the Court has no other a%ternati!e (ut to
app%y the %a& an not to interpret)
Construction an interpretation of %a& co$e on%y after it has (een
e$onstrate that app%ication is i$possi(%e or inae.uate &ithout the$)
DIFFERENT <INDS OF CONSTRUCTION AND INTERPRETATION
Her$eneutics the science or art of construction an interpretation)
4e"a% her$eneutics is the syste$atic (oy of ru%es &hich are reco"ni=e
as app%ica(%e to the construction an interpretation of %e"a% &ritin"s)
Dr) 4ie(er in his &or, on Her$eneutics "i!es the fo%%o&in" c%assification of
the ifferent ,ins of interpretation/
C%ose interpretation aopte if -ust reasons connecte &ith the character
an for$ation of the te#t inuce as to ta,e the &ors in the narro&est
$eanin") This is "enera%%y ,no&n as 1literal2 interpretation)
E#tensi!e interpretation a%so ca%%e as %i(era% interpretation' it aopts a
$ore co$prehensi!e si"nification of the &ors)
E#tra!a"ant interpretation su(stitutes a $eanin" e!ient%y (eyon the true
one) It is therefore not "enuine interpretation)
Free or unrestricte interpretation procees si$p%y on he "enera% princip%es
of interpretation in "oo faith' not (oun (y any specific or superior princip%e)
4i$ite or restricte interpretation 9 inf%uence (y other princip%es than the
strict%y her$eneutic ones)
Preestine interpretation ta,es p%ace &hen the interpreter' %a(orin" uner
a stron" (ias of $in' $a,es the te#t su(ser!ient to his preconcei!e !ie&s
an esires)
SU>*ECTS OF CONSTRUCTION AND INTERPRETATION
78 Constitution
?8 Statutes &hich inc%ue orinances
@8 Reso%ution
A8 E#ecuti!e orers
B8 Depart$ent circu%ars)
CHAPTER II STATUTES
4E3IS4ATI6E PROCEDURES
The po&er to $a,e %a&s is %o"e in the %e"is%ati!e epart$ent of the
"o!ern$ent)
A statute starts &ith a (i%%)
>i%% is the raft of a propose %a& fro$ the ti$e of its introuction in a
%e"is%ati!e (oy throu"h a%% the !arious sta"es in (oth houses) It is enacte
into %a& (y a !ote of the %e"is%ati!e (oy) An 1Act2 is the appropriate ter$ for
it after it has (een acte on an passe (y the %e"is%ature) It then (eco$es
a statute' the &ritten &i%% of the %e"is%ature so%e$n%y e#presse accorin" to
the for$ necessary to constitute it as the %a& of the state)
1Statute 4a&2 is a ter$ often use interchan"ea(%y &ith the &or 1statute2)
Statute 4a&' ho&e!er' is (roaer in $eanin" since it inc%ues not on%y
statute (ut a%so the -uicia% interpretation an app%ication of the enact$ent)
HO0 DOES A >I44 >ECO+ES A 4A0 STEPS
A (i%% (efore it (eco$es a %a& $ust pass the strict constitutiona%
re.uire$ents e#p%icit (oth in the 7CD@ Constitution an the 7CED
Constitution)
Passa"e of a (i%% in a par%ia$entary syste$ 5unica$era% asse$(%y8/
a8 A $e$(er of the Nationa% Asse$(%y $ay introuce the propose (i%%
to the Secretary of the Nationa% Asse$(%y &ho &i%% ca%enar the sa$e
for the first reain")
(8 In the first reain"' the (i%% is rea (y its nu$(er an tit%e on%y)
c8 After the first reain"' the (i%% is referre (y the Spea,er to the
appropriate co$$ittee for stuy) At this sta"e' the appropriate
co$$ittee &i%% conuct pu(%ic hearin"s) Then after the pu(%ic hearin"s'
the co$$ittee sha%% ecie &hether or not to report the (i%% fa!ora(%y or
&hether a su(stitute (i%% shou% (e consiere) Shou% there (e an
unfa!ora(%e report of the co$$ittee' then the propose (i%% is ea)
8 Upon fa!ora(%e action (y the co$$ittee' the (i%% is returne to the
Nationa% Asse$(%y an sha%% (e ca%enare for the secon reain")
e8 In the secon reain"' the (i%% is rea in its entirety)
f8 I$$eiate%y after the secon reain"' the (i%% is set for open e(ates
&here $e$(ers of the asse$(%y $ay propose a$en$ents an
insertions to the propose (i%%)
"8 After the appro!a% of the (i%% in its secon reain" an at %east three
5@8 ca%enar ays (efore its fina% passa"e' the (i%% is printe in its fina%
for$ an copies thereof istri(ute to each of the $e$(ers)
h8 The (i%% is then ca%enare for the thir an fina% reain") At this
sta"e' no a$en$ent sha%% (e a%%o&e) On%y the tit%e of the (i%% is rea
an the Nationa% Asse$(%y &i%% then !ote on the (i%%) Uner the present
7CED( Constitution' after the thir an fina% reain" at one House &here
the (i%% ori"inate' it &i%% "o to the other House &here it &i%% uner"o the
sa$e process)
i8 After the (i%% has (een passe' it &i%% (e su($itte to the Pri$e +inister
5Presient8 for appro!a%) If he isappro!es' he sha%% !eto it an return
the sa$e &ith his o(-ections to the Nationa% Asse$(%y 5House &here it
ori"inate8' an if appro!e (y t&o9thirs of a%% its $e$(ers' sha%%
(eco$e a %a&) Uner the present set9up' if the ori"inatin" house &i%%
a"ree to pass the (i%%' it sha%% (e sent' to"ether &ith the o(-ections to the
other house (y &hich it sha%% (e %i,e&ise (e consiere an $ust (e
appro!e (y t&o9thirs of the !otes) E!ery (i%% passe (y Con"ress
sha%% (e acte upon (y the Presient &ithin thirty 5@F8 ays fro$ receipt
thereof) Other&ise' it sha%% (eco$e a %a&)
CONSTITUTIONA4 TEST IN THE PASSA3E OF A >I44
Three 5@8 !ery i$portant constitutiona% re.uire$ents in the enact$ent of
statute/
E!ery (i%% passe (y Con"ress sha%% e$(race on%y one su(-ect &hich sha%% (e
e#presse in the tit%e thereof) The purposes of this constitutiona%
re.uire$ents are/
To pre!ent ho"e9po"e or %o"9ro%%in" %e"is%ation:
To pre!ent surprise or frau upon the %e"is%ature: an
To fair%y apprise the peop%e' throu"h such pu(%ications of %e"is%ati!e
proceein"s as is usua%%y $ae' of the su(-ects of %e"is%ation that are (ein"
consiere' in orer that they $ay ha!e opportunity of (ein" hear thereon
(y petition or other&ise' if they sha%% so esire)
No (i%% passe (y either House sha%% (eco$e %a& un%ess it has passe three
reain"s on separate ays' an printe copies thereof in its fina% for$ ha!e
(een istri(ute to each $e$(er three ays (efore its passa"e)
E!ery (i%% passe (y the Con"ress sha%%' (efore it (eco$es a %a&' (e
presente to the Presient) The e#ecuti!e appro!a% an !eto po&er of the
Presient is the thir i$portant constitutiona% re.uire$ent in the $echanica%
passa"e of a (i%%)
PARTS OF STATUTE
Tit%e the heain" on the pre%i$inary part' furnishin" the na$e (y &hich the
act is ini!iua%%y ,no&n) It is usua%%y prefi#e to the statute in the (rief
su$$ary of its contents)
Prea$(%e part of statute e#p%ainin" the reasons for its enact$ent an the
o(-ects sou"ht to (e acco$p%ishe) Usua%%y' it starts &ith 1&hereas2)
Enactin" c%ause part of statute &hich ec%ares its enact$ent an ser!es to
ientify it as an act of %e"is%ation proceein" fro$ the proper %e"is%ati!e
authority) 1>e enacte2 is the usua% for$u%a use to start this c%ause)
>oy the $ain an operati!e part of the statute containin" its su(stanti!e
an e!en proceura% pro!isions) Pro!isos an e#ceptions $ay a%so (e
foun)
Repea%in" C%ause 9 announces the prior statutes or specific pro!isions &hich
ha!e (een a(ro"ate (y reason of the enact$ent of the ne& %a&)
Sa!in" C%ause restriction in a repea%in" act' &hich is intene to sa!e
ri"hts' penin" proceein"s' pena%ties' etc) fro$ the annihi%ation &hich &ou%
resu%t fro$ an unrestricte repea%)
Separa(i%ity C%ause pro!ies that in the e!ent that one or $ore pro!isions
or unconstitutiona%' the re$ainin" pro!isions sha%% sti%% (e in force)
Effecti!ity C%ause announces the effecti!e ate of the %a&)
<INDS OF STATUTES
3enera% 4a& affects the co$$unity at %ar"e) That &hich affects a%% peop%e
of the state or a%% of a particu%ar c%ass)
Specia% 4a& esi"ne for a particu%ar purpose' or %i$ite in ran"e or
confine to a prescri(e fie% of action on operation)
4oca% 4a& re%ates or operates o!er a particu%ar %oca%ity instea of o!er the
&ho%e territory of the state)
Pu(%ic 4a& a "enera% c%assification of %a&' consistin" "enera%%y of
constitutiona%' a$inistrati!e' cri$ina%' an internationa% %a&' concerne &ith
the or"ani=ation of the state' the re%ations (et&een the state an the peop%e
&ho co$pose it' the responsi(i%ities of pu(%ic officers of the state' to each
other' an to pri!ate persons' an the re%ations of state to one another)
Pu(%ic %a& $ay (e "enera%' %oca% or specia% %a&)
Pri!ate 4a& efines' re"u%ates' enforces an a$inisters re%ationships
a$on" ini!iua%s' associations an corporations)
Re$eia% Statute pro!iin" $eans or $etho &here(y causes of action
$ay (e affectuate' &ron"s reresse an re%ief o(taine)
Curati!e Statute a for$ of retrospecti!e %e"is%ation &hich reaches (ac, into
the past to operate upon past e!ents' acts or transactions in orer to correct
errors an irre"u%arities an to rener !a%i an effecti!e $any atte$pte
acts &hich &ou% other&ise (e ineffecti!e for the purpose intene)
Pena% Statute efines cri$ina% offenses specify corresponin" fines an
punish$ents)
Prospecti!e 4a& app%ica(%e on%y to cases &hich sha%% arise after its
enact$ent)
Retrospecti!e 4a& %oo,s (ac,&ar or conte$p%ates the past: one &hich is
$ae to affect acts or facts occurrin"' or ri"hts occurrin"' (efore it ca$e into
force)
Affir$ati!e Statute irects the oin" of an act' or ec%ares &hat sha%% (e
one in contrast to a ne"ati!e statute &hich is one that prohi(its the thin"s
fro$ (ein" one' or ec%ares &hat sha%% not (e one)
+anatory Statutes "eneric ter$ escri(in" statutes &hich re.uire an not
$ere%y per$it a course of action)
CONCEPT OF 6A3UE STATUTES
Statues or act $ay (e sai to (e !a"ue &hen it %ac,s co$prehensi(%e
stanars those $en 1of co$$on inte%%i"ence $ust necessari%y "uess at its
$eanin" an iffer as to its app%ication)
Statute is repu"nant to the Constitution in t&o 5?8 respects/
It !io%ates ue process for fai%ure to accor persons fair notice of conuct to
a!oi: an
It %ea!es %a& enforcers un(ri%e iscretions)
The Supre$e Court he% that the 1!a"ueness2 octrine $ere%y re.uires a
reasona(%e e"ree of certainty for the statute to (e uphe%999 not a(so%ute
precision or $athe$atica% e#actitue) F%e#i(i%ity' rather than $eticu%ous
specificity' is per$issi(%e as %on" as the $etes an (ouns of the statute are
c%ear%y e%ineate
REPEA4S OF STATUTE +AY >E EGPRESSED OR I+P4IED
E#press repea% is the a(ro"ation or annu%%in" of a pre!ious%y e#istin" %a&
(y the enact$ent of a su(se.uent statute &hich ec%ares that the for$er %a&
sha%% (e re!o,e an a(ro"ate)
I$p%ie repea% &hen a %ater statute contains pro!isions so contrary to
irreconci%a(%e &ith those of the ear%ier %a& that on%y one of the t&o statutes
can stan in force)
The repea% of a pena% %a& epri!es the court of -urisiction to punish persons
char"e &ith a !io%ation of the o% pena% %a& prior to its repea%)
On%y a %a& can repea% a %a&)
The intention to repea% $ust (e c%ear an $anifest' other&ise' at %east' as a
"enera% ru%e' the %ater act is to (e construe as a continuation of' an not a
su(stitute for' the first act)
T&o 5?8 cate"ories of repea% (y i$p%ication/
0here pro!ision in the t&o acts on the sa$e su(-ect $atter are in an
irreconci%a(%e conf%ict:
If the %ater act co!ers the &ho%e su(-ect of the ear%ier one an is c%ear%y
intene as a su(stitute to (e a co$p%ete an perfect syste$ in itse%f)
ORDINANCE
Orinance an act passe (y the %oca% %e"is%ati!e (oy in the e#ercise of its
%a&9$a,in" authority)
TEST OF 6A4ID ORDINANCE
+ust not contra!ene the Constitution or any statute:
+ust not (e unfair or oppressi!e:
+ust not (e partia% or iscri$inatory:
+ust not prohi(it (ut $ay re"u%ate trae:
+ust (e "enera% an consistent &ith pu(%ic po%icy: an
+ust not (e unreasona(%e)
REASON 0HY AN ORDINANCE SHOU4D NOT CONTRA6ENE A
STATUTE
4oca% counci%s e#ercise on%y e%e"ate %e"is%ati!e po&ers conferre on the$
(y Con"ress as the nationa% %a& $a,in" (oy)
The e%e"ate cannot (e superior to the principa%)
RO4E OF FOREI3N *URISPRUDENCE
Phi%ippine %a&s $ust necessari%y (e construe in accorance &ith the
intention of its o&n %a& $a,ers an such intent $ay (e euce fro$ the
%an"ua"e of each %a& an the conte#t of other %oca% %e"is%ation re%ate
thereof)
CHAPTER III
>ASIC 3UIDE4INES IN THE CONSTRUCTION AND INTERPRETATION
OF 4A0S
4E3IS4ATI6E INTENT
The o(-ect of a%% interpretation an construction of statutes is to ascertain the
$eanin" an intention of the %e"is%ature' to the en that the sa$e $ay (e
enforce)
4e"is%ati!e intent is eter$ine principa%%y fro$ the %an"ua"e of the statute)
6ER>A 4E3IS
If the %an"ua"e of the statute is p%ain an free fro$ a$(i"uity' an e#press a
sin"%e' efinite' an sensi(%e $eanin"' that $eanin" is conc%usi!e%y
presu$e to (e the $eanin" &hich the %e"is%ature intene to con!ey)
STATUTES AS A 0HO4E
A carina% ru%e in statutory construction is that %e"is%ati!e intent $ust (e
ascertaine fro$ a consieration of the statute as a &ho%e an not $ere%y of
a particu%ar pro!ision) A &or or phrase $i"ht easi%y con!ey a $eanin"
&hich is ifferent fro$ the one actua%%y intene)
A statute shou% (e construe as a &ho%e (ecause it is not to (e presu$e
that the %e"is%ature has use any use%ess &ors' an (ecause it is an"erous
practice to (ase the construction upon on%y a part of it' since one portion $ay
(e .ua%ifie (y other portions)
SPIRIT AND PURPOSE OF THE 4A0
0hen the interpretation of a statute accorin" to the e#act an %itera% i$port
of its &ors &ou% %ea to a(sur or $ischie!ous conse.uences' or &ou%
th&art or contra!ene the $anifest purpose of the %e"is%ature in its enact$ent'
it shou% (e construe accorin" to its spirit an reason' isre"arin" or
$oifyin"' so far as $ay (e necessary' the strict %etter of the %a&)
0hen the reason of the %a& ceases' the %a& itse%f ceases)
Doctrine of necessary i$p%ications) 0hat is i$p%ie in a statute is as $uch a
part thereof as that &hich is e#presse)
CASUS O+ISSUS
0hen a statute $a,es specific pro!isions in re"ar to se!era% enu$erate
cases or o(-ects' (ut o$its to $a,e any pro!ision for a case or o(-ect &hich
is ana%o"ous to those enu$erate' or &hich stans upon the sa$e reason'
an is therefore &ithin the "enera% scope of the statute' an it appears that
such case or o(-ect &as o$itte (y ina!ertence or (ecause it &as
o!er%oo,e or unforeseen' it is ca%%e a 1casus o$issus2) Such o$issions or
efects cannot (e supp%ie (y the courts)
The ru%e of 1casus o$issus pro o$isso ha(enus est2 can operate an app%y
on%y if an &hen the o$ission has (een c%ear%y esta(%ishe)

STARE DECISIS
It is the octrine that' &hen court has once %ai o&n a princip%e' an app%y it
to a%% future cases' &here facts are su(stantia%%y the sa$e' re"ar%ess of
&hether the parties an properties are the sa$e)
Stare Decisis) Fo%%o& past preceents an o not istur( &hat has (een
sett%e) +atters a%reay ecie on the $erits cannot (e re%iti"ate a"ain
an a"ain)
Stare decisis et non quieta movere 5fo%%o& past preceents an o not
istur( &hat has (een sett%e)
CHAPTER I6
CONSTRUCTION AND INTERPRETATION OF 0ORDS AND PHRASES
0HEN THE 4A0 DOES NOT DISTIN3UISH' COURTS SHOU4D NOT
DISTIN3UISH
0hen the %a& oes not istin"uish' courts shou% not istin"uish) The ru%e'
foune on %o"ic' is a coro%%ary of the princip%e that "enera% &ors an
phrases of a statute shou% orinari%y (e accore their natura% an "enera%
si"nificance)
The courts shou% a$inister the %a& not as they thin, it ou"ht to (e (ut as
they fin it an &ithout re"ar to conse.uences)
If the %a& $a,es no istinction' neither shou% the Court)
EGCEPTIONS IN THE STATUTE
0hen the %a& oes not $a,e any e#ception' courts $ay not e#cept
so$ethin" un%ess co$pe%%in" reasons e#ist to -ustify it)
3ENERA4 AND SPECIA4 TER+S
3enera% ter$s in a statute are to recei!e a "enera% construction' un%ess
retraine (y the conte#t or (y p%ain inferences fro$ the scope an purpose of
the act)
3enera% ter$s or pro!isions in a statute $ay (e restraine an %i$ite (y
specific ter$s or pro!isions &ith &hich they are associate)
Specia% ter$s in a statute $ay so$eti$es (e e#pane to a "enera%
si"nification (y the consieration that the reason of the %a& is "enera%)
3ENERA4 TER+S FO44O0IN3 SPECIA4 TER+S 5E*USDE+ 3ENERIS8
It is a "enera% ru%e of statutory construction that &here "enera% &ors fo%%o&
an enu$eration of persons or thin"s' (y &ors of a particu%ar an specific
$eanin"' such "enera% &ors are not to (e construe in their &iest e#tent'
(ut are to (e he% as app%yin" on%y to persons or thin"s of the sa$e "enera%
,in or c%ass as those specifica%%y $entione) >ut this ru%e $ust (e
iscare &here the %e"is%ati!e intention is p%ain to the contrary)
This ru%e is co$$on%y ca%%e the 1e-use$ "eneris2 ru%e' (ecause it teaches
us that (roa an co$prehensi!e e#pressions in an act' such as 1an a%%
others2' or 1any others2' are usua%%y to (e restricte to persons or thin"s 1of
the sa$e ,in2 or c%ass &ith those specia%%y na$e in the precein" &ors)
Ru%e of ejusdem generis $ere%y a too% of statutory construction resorte to
&hen %e"is%ati!e intent is uncertain)
EGPRESS +ENTION AND I+P4IED EGC4USION
It is a "enera% ru%e of statutory construction that the e#press $ention of one
person' thin"' or conse.uence is tanta$ount to an e#press e#c%usion of a%%
others) Expressio unius est exclusio alterius.
E#cept/
0hen there is $anifest of in-ustice
0hen there is no reason for e#ception)
ASSOCIATED 0ORDS 5NOSCITUR SOCIIS8
0here a particu%ar &or is e.ua%%y suscepti(%e of !arious $eanin"s' its
correct construction $ay (e $ae specific (y consierin" the co$pany of
ter$s in &hich it is foun or &ith &hich it is associate)
USE OF NE3ATI6E 0ORDS
Ne"ati!e &ors an phrases re"are as $anatory &hi%e those affir$ati!e
are $ere irectory)
The &or 1sha%%2 e$phasi=es $anatory character an $eans i$perati!e'
operatin" to i$pose a uty &hich $ay (e enforce)
THE USE OF THE 0ORD 1+AY2 AND 1SHA442 IN THE STATUTE
Use of the &or 1$ay2 in the statute "enera%%y connotes a per$issi(%e thin"'
an operates to confer iscretion &hi%e the &or 1sha%%2 is i$perati!e'
operatin" to i$pose a uty &hich $ay (e enforce)
The ter$ 1sha%%2 $ay (e either as $anatory or irectory epenin" upon a
consieration of the entire pro!ision in &hich it is foun' its o(-ect an
conse.uences that &ou% fo%%o& fro$ construin" it one &ay or the other)
USE OF THE 0ORD 1+UST2
The &or 1$ust2 in a statute %i,e 1sha%%2 is not a%&ays i$perati!e an $ay (e
consistent &ith an e#ercise iscretion)
THE USE OF THE TER+ 1AND2 AND THE 0ORD 1OR2
1An2 $eans con-unction connectin" &ors or phrases e#pressin" the iea
that the %atter is to (e ae or ta,en a%on" &ith the first)
1Or2 is a is-uncti!e partic%e use to e#press as a%ternati!e or to "i!e a choice
of one a$on" t&o or $ore thin"s) It is a%so use to c%arify &hat has a%reay
(een sai' an in such cases' $eans 1in other &ors'2 1to &it'2 or 1that is to
say)2
CO+PUTATION OF TI+E
0hen the %a&s spea, of years' $onths' ays or ni"hts' it sha%% (e unerstoo
that years are of three hunre si#ty fi!e ays each: $onths of thirty ays:
ays of t&enty four hours: an ni"hts fro$ sunset to sunrise)
If $onths are esi"nate (y their na$e' they sha%% (e co$pute (y the
nu$(er of ays &hich they respecti!e%y ha!e)
In co$putin" a perio' the first ay sha%% (e e#c%ue' an the %ast ay
inc%ue 5Art) 7@' Ne& Ci!i% Coe8)
A 1&ee,2 $eans a perio of se!en consecuti!e ays &ithout re"ar to the
ay of the &ee, on &hich it (e"ins)
FUNCTION OF THE PRO6ISO
Pro!iso is a c%ause or part of a c%ause in the statute' the office of &hich is
either to e#cept so$ethin" fro$ the enactin" c%ause' or to .ua%ify or restrain
its "enera%ity' or to e#c%ue so$e possi(%e "roun of $isinterpretation of its
e#tent)
1Pro!ie2 is the &or use in introucin" a pro!iso)
CHAPTER 6
PRESU+PTIONS IN AID OF CONSTRUCTION AND INTERPRETATION
PRESU+PTIONS
In construin" a ou(tfu% or a$(i"uous statute' the Courts &i%% presu$e that it
&as the intention of the %e"is%ature to enact a !a%i' sensi(%e an -ust %a&'
an one &hich shou% chan"e the prior %a& no further than $ay (e
necessary to effectuate the specific purpose of the act in .uestion)
PRESU+PTION A3AINST UNCONSTITUTIONA4ITY
4a&s are presu$e constitutiona%) To -ustify nu%%ification of %a&' there $ust
(e a c%ear an une.ui!oca% (reach of the constitution)
The theory is that' as the -oint act of the %e"is%ati!e an e#ecuti!e authorities'
a %a& is suppose to ha!e (een carefu%%y stuie an eter$ine to (e
constitutiona% (efore it &as fina%%y enacte)
A%% %a&s are presu$e !a%i an constitutiona% unti% or un%ess other&ise ru%e
(y the Court)
PRESU+PTION A3AINST IN*USTICE
The %a& shou% ne!er (e interprete in such a &ay as to cause in-ustice as
this ne!er &ithin the %e"is%ati!e intent)
0e interpret an app%y the %a& in consonance &ith -ustice)
*u"es o not an $ust not unfee%in"%y app%y the %a& as it is &ore'
yie%in" %i,e ro(ots to the %itera% co$$an &ithout re"ar to its cause an
conse.uence)
PRESU+PTION A3AINST I+P4IED REPEA4S
The t&o %a&s $ust (e a(so%ute%y inco$pati(%e' an c%ear finin" thereof $ust
surface' (efore the inference of i$p%ie repea% $ay (e ra&n)
In the a(sence of an e#press repea%' a su(se.uent %a& cannot (e construe
as repea%in" a prior %a& un%ess an irreconci%a(%e inconsistency an
repu"nancy e#ists in ter$s of the ne& an o% %a&s)
PRESU+PTION A3AINST INEFFECTI6ENESS
In the interpretation of a statute' the Court shou% start &ith the assu$ption
that the %e"is%ature intene to enact an effecti!e statute)
PRESU+PTION A3AINST A>SURDITY
Statutes $ust recei!e a sensi(%e construction such as &i%% "i!e effect to the
%e"is%ati!e intention so as to a!oi an un-ust an a(sur conc%usion)
Presu$ption a"ainst unesira(%e conse.uences &ere ne!er intene (y a
%e"is%ati!e $easure)
PRESU+PTION A3AINST 6IO4ATION OF INTERNATIONA4 4A0
Phi%ippines as e$ocratic an repu(%ican state aopts the "enera%%y
accepte princip%es of internationa% %a& as part of the %a& of the %an an
aheres to the po%icy of peace' e.ua%ity' -ustice' freeo$' cooperation' an
a$ity &ith a%% nations) 5Art) II' Sec) ?' Phi%) Constitution8)
CHAPTER 6I
INTRINSIC AIDS IN CONSTRUCTION AND INTERPRETATION
INTRINSIC AIDS
The ter$ 1intrinsic2 $eans interna% or &ithin) Intrinsic ais' therefore' are
those ais &ithin the statute)
Intrinsic ais are resorte to on%y if there is a$(i"uity) In resortin" to intrinsic
ais' one $ust "o (ac, to the parts of the statute/ the tit%e' the prea$(%e'
conte#t or (oy' chapter an section heain"s' punctuation' an
interpretation)
CHAPTER 6II
EGTRINSIC AIDS IN CONSTRUCTION AND INTERPRETATION
EGTRINSIC AIDS
These are e#istin" ais fro$ outsie sources' $eanin" outsie of the four
corners of the statute) If there is any ou(t as to the $eanin" of the statute'
the interpreter $ust first fin that out &ithin the statute)
E#trinsic ais therefore are resorte to after e#haustin" a%% the a!ai%a(%e
intrinsic ais an sti%% there re$ain so$e a$(i"uity in the statute)
E#trinsic ais resorte to (y the courts are history of the enact$ent of the
statute: opinions an ru%in"s of officia%s of the "o!ern$ent ca%%e upon to
e#ecute or i$p%e$ent a$inistrati!e %a&s: conte$poraneous construction (y
e#ecuti!e officers: actua% proceein"s of the %e"is%ati!e (oy: ini!iua%
state$ents (y $e$(ers of con"ress: an the author of the %a&)
Other sources of e#trinsic ais can (e the reports an reco$$enations of
%e"is%ati!e co$$ittees: pu(%ic po%icy: -uicia% construction: an construction
(y the (ar)
CHAPTER 6I
INTRINSIC AIDS IN CONSTRUCTION AND INTERPRETATION
INTRINSIC AIDS
The !ery ter$ 1intrinsic2 $eans interna% or &ithin)
Intrinsic ais' therefore' are those ais &ithin the statute)
If the %an"ua"e of the statute is c%ear an une.ui!oca%' there is no nee to
resort to intrinsic ais)
In resortin" to intrinsic ais' one $ust "o (ac, to the parts of the statute)
THE TIT4E OF THE 4A0 IS A 6A4UA>4E INTRINSIC AID IN
DETER+ININ3 4E3IS4ATI6E INTENT
TEGT OF THE STATUTE AS INTRINSIC AID
Su(tit%e of the statute as intrinsic ai in eter$inin" %e"is%ati!e intent)
PREA+>4E AS INTRINSIC AID
The intent of the %a& as cu%%e fro$ its prea$(%e an fro$ the situation'
circu$stances an conitions it sou"ht to re$ey' $ust (e enforce)
Prea$(%e use as a "uie in eter$inin" the intent of the %a&$a,er)
CHAPTER 6II
EGTRINSIC AIDS IN CONSTRUCTION AND INTERPRETATION
EGTRINSIC AIDS
E#trinsic ais are e#istin" ais fro$ outsie sources' $eanin" outsie fro$
the four corners of the statute)
E#trinsic ais are resorte to after e#haustin" a%% the a!ai%a(%e intrinsic ais
an sti%% there re$ain so$e a$(i"uity in the statute)
E#trinsic ais resorte to (y the courts are/
History of the enact$ent of the statute:
Opinions an ru%in"s of officia%s of the "o!ern$ent ca%%e upon to e#ecute or
i$p%e$ent a$inistrati!e %a&s:
Conte$poraneous construction (y e#ecuti!e officers char"e &ith
i$p%e$entin" an enforcin" the pro!isions of the statutes un%ess such
interpretation is c%ear%y erroneous:
Actua% proceein"s of the %e"is%ati!e (oy:
Ini!iua% state$ents (y $e$(ers of con"ress: an
The author of the %a&
Other sources of e#trinsic ais are/
Reports an reco$$enations of %e"is%ati!e co$$ittees:
Pu(%ic po%icy:
*uicia% construction: an
Construction (y the (ar
It is a &e%%9accepte princip%e that &here a statute is a$(i"uous' courts $ay
e#a$ine (oth the printe pa"es of the pu(%ishe Act as &e%% as those
e#trinsic $atters that $ay ai in construin" the $eanin" of the statute' such
as the history of its enact$ent' the reasons of the passa"e of the (i%% an
purposes to (e acco$p%ishe (y the $easure)
Ini!iua% state$ents (y $e$(ers of Con"ress on the f%oor o not
necessari%y ref%ect %e"is%ati!e intent)
The (est interpreter of the %a& or any of its pro!isions is the author of the
%a&)
CHAPTER 6III
STRICT AND 4I>ERA4 CONSTRUCTION AND INTERPRETATION OF
STATUTES
3ENERA4 PRINCIP4ES
If a statute shou% (e strict%y construe' nothin" shou% (e inc%ue &ithin the
scope that oes not co$e c%ear%y &ithin the $eanin" of the %an"ua"e use)
>ut the ru%e of strict construction is not app%ica(%e &here the $eanin" of the
statute is certain an una$(i"uous ' for uner these circu$stances' there is
no nee for construction)
On the other han' there are $any statutes &hich &i%% (e %i(era%%y construe)
The $eanin" of the statute $ay (e e#tene to $atters &hich co$e &ithin
the spirit or reason of the %a& or &ithin the e!i%s &hich the %a& see,s to
suppress or correct)
4i(era% interpretation or construction of the %a& or ru%es' ho&e!er' app%ies
on%y in proper cases an uner -ustifia(%e causes an circu$stances) 0hi%e
it is true that %iti"ation is not a "a$e of technica%ities' it is e.ua%%y true that
e!ery case $ust (e prosecute in accorance &ith the prescri(e proceure
to insure an orer%y an speey a$inistration of -ustice)
PENA4 STATUTES
Pena% %a&s are to (e construe strict%y a"ainst the state an in fa!or of the
accuse) Hence' in the interpretation of a pena% statute' the tenency is to
su(-ect it to carefu% scrutiny an to construe it &ith such strictness as to
safe"uar the ri"ht of the accuse)
If the statute is a$(i"uous an a$its of t&o reasona(%e (ut contraictory
constructions' that &hich operates in fa!or of a party accuse uner its
pro!isions is to (e preferre)
TAG 4A0S
Ta#ation is a estructi!e po&er &hich interferes &ith the persona% an
property ri"hts of the peop%e an ta,es fro$ the$ a portion of their property
for the support of the "o!ern$ent)
Accorin"%y' in case of ou(t' ta# statutes $ust (e construe strict%y a"ainst
the "o!ern$ent an %i(era%%y in fa!or of the ta#payer' for ta#es' (ein"
(urens' are not to (e presu$e (eyon &hat the app%ica(%e statute
e#press%y an c%ear%y ec%ares)
Any c%ai$ for e#e$ption fro$ a ta# statute is strict%y construe a"ainst the
ta#payer an %i(era%%y in fa!or of the state)
NATURA4IHATION 4A0
Natura%i=ation %a&s shou% (e ri"i%y enforce an strict%y construe in fa!or
of the "o!ern$ent an a"ainst the app%icant)
INSURANCE 4A0
Contracts of Insurance are to (e construe %i(era%%y in fa!or of the insure
an strict%y a"ainst the insurer) Thus' a$(i"uity in the &ors of an insurance
contract shou% (e interprete in fa!or of its (eneficiary)
4A>OR AND SOCIA4 4E3IS4ATIONS
Dou(ts in the interpretation of 0or,$enIs Co$pensation an 4a(or Coe
shou% (e reso%!e in fa!or of the &or,er) It shou% (e %i(era%%y construe to
attain their %aua(%e o(-ecti!e' i)e)' to "i!e re%ief to the &or,$an anJor his
epenents in the e!ent that the for$er shou% ie or sustain in an in-ury)
The sy$pathy of the %a& on socia% security is to&ars its (eneficiaries an
the %a& (y its o&n ter$s' re.uires a construction of ut$ost %i(era%ity in their
fa!or)
RETIRE+ENT 4A0S
Retire$ent %a&s are %i(era%%y interprete in fa!or of the retiree (ecause the
intention is to pro!ie for the retireeIs sustenance an co$fort' &hen he is
no %on"er capa(%e of earnin" his %i!e%ihoo)
E4ECTION RU4ES
Statute pro!iin" for e%ection contests are to (e %i(era%%y construe to the en
that the &i%% of the peop%e in the choice of pu(%ic officer $ay not (e efeate
(y $ere technica% o(-ections)
RU4ES OF COURT
Ru%e of court sha%% (e %i(era%%y construe in orer to pro$ote their o(-ecti!e of
securin" a -ust' speey an ine#pensi!e isposition of e!ery action an
proceein")
CHAPTER IG
PROSPECTI6E AND RETROSPECTI6E STATUTES
3ENERA4 PRINCIP4ES
Prospective statute is a statute &hich operates upon acts an transactions
&hich ha!e not occurre &hen the statute ta,es effect' that is' &hich
re"u%ates the future)
Retrospective or retroactive law is one &hich ta,es a&ay or i$pairs !este
ri"hts ac.uire uner e#istin" %a&s' or creates ne& o(%i"ations an i$poses
ne& uties' or attaches ne& isa(i%ities in respect of transaction a%reay
past)
A soun canon of statutory construction is that statutes operate
prospecti!e%y on%y an ne!er retrospecti!e%y' un%ess the %e"is%ati!e intent to
the contrary is $ae $anifest either (y the e#press ter$s of the statute or (y
necessary i$p%ication)
The Ci!i% Coe of the Phi%ippines fo%%o&s the a(o!e ru%e thus/ 4a&s sha%%
ha!e no retroacti!e effect' un%ess the contrary is pro!ie)
Retroacti!e %e"is%ation is %oo,e upon &ith isfa!or' as a "enera% ru%e an
proper%y so (ecause of its tenency to (e un-ust an oppressi!e)
PENA4 STATUTES
Pena% statutes as a ru%e are app%ie prospecti!e%y) Fe%onies an
$ise$eanors are punishe uner the %a&s in force at the ti$e of their
co$$ission) 5Art) @KK' RPC8)
Ho&e!er' as an e#ception' it can (e "i!en retroacti!e effect if it is fa!ora(%e
to the accuse &ho is not a ha(itua% cri$ina%) 5Art) ??' RPC8)
PROCEDURA4 4A0S ARE RETROSPECTI6E
Statutes re"u%atin" the proceure of the Court &i%% (e construe as
app%ica(%e to actions penin" an uner$ine at the ti$e of their passa"e)
Ho&e!er' Ru%es of Proceure shou% not (e "i!en retroacti!e effect if it
&ou% resu%t in "reat in-ustice an i$pair su(stanti!e ri"ht)
Proceura% pro!isions of the 4oca% 3o!ern$ent Coe are retrospecti!e)
CURATI6E STATUTES
They are those &hich unerta,e to cure errors an irre"u%arities an
a$inistrati!e proceein"s' an &hich are esi"ne to "i!e effect to
contracts an other transactions (et&een pri!ate parties &hich other&ise
&ou% fai% of proucin" their intene conse.uences (y reason of so$e
statutory isa(i%ity or fai%ure to co$p%y &ith so$e technica% re.uire$ent)
They are thereore retroactive in their character.
CHAPTER G
CONF4ICTIN3 STATUTES
EFFECT SHOU4D >E 3I6EN TO THE ENTIRE STATUTE
It $ay happen that in a statute' conf%ictin" c%auses an pro!isions $ay arise)
If such situation $ay occur' the statute $ust (e construe as a &ho%e)
STATUTES IN PARI +ATERIA
Statutes that re%ate to the sa$e su(-ect $atter' or to the sa$e c%ass of
persons or thin"s' or ha!e the sa$e purpose or o(-ect)
Statutes in pari materia are to (e construe to"ether: each %e"is%ati!e act is
to (e interprete &ith reference to other acts re%atin" to the sa$e $atter or
su(-ect)
Ho&e!er' if statutes of e.ua% theoritica% app%ication to a particu%ar case
cannot (e reconci%e' the statute of %ater ate $ust pre!ai% (ein" a %ater
e#pression of %e"is%ati!e &i%%)
3ENERA4 AND SPECIA4 STATUTES
So$eti$es &e fin statutes treatin" a su(-ect in "enera% ter$s an another
treatin" a part of the sa$e su(-ect in particu%ar%y etai%e $anner)
If (oth statutes are irreconci%a(%e' the "enera% statute $ust "i!e &ay to the
specia% or particu%ar pro!isions as an e#ception to the "enera% pro!isions)
This is so e!en if the "enera% statute is %ater enact$ent of the %e"is%ature an
(roa enou"h to inc%ue the cases in specia% %a& un%ess there is $anifest
intent to repea% or a%ter the specia% %a&)
STATUTE AND ORDINANCE
If there is conf%ict an orinance an a statute' the orinance $ust "i!e &ay)
It is a &e%%9sett%e ru%e that a su(stanti!e %a& cannot (e a$ene (y a
proceura% %a&)
A "enera% %a& cannot repea% a specia% %a&)
In case of conf%ict (et&een a "enera% pro!ision of a specia% %a& an a
particu%ar pro!ision of a "enera% %a&' the %atter &i%% pre!ai%)
0hen there is irreconci%a(%e repu"nancy (et&een a pro!iso an the (oy of
a statute' the for$er pre!ai%s as %atest e#pression of %e"is%ati!e intent)
The enact$ent of a %ater %e"is%ation &hich is "enera% %a& cannot (e
construe to ha!e repea%e a specia% %a&)
A statute is superior to an a$inistrati!e circu%ar' thus the %ater cannot repea%
or a$en it)
0here the instru$ent is suscepti(%e of t&o interpretations' one &hich &i%%
$a,e it in!a%i an i%%e"a% an another &hich &i%% $a,e it !a%i an %e"a%' the
%atter interpretation shou% (e aopte)
In case of conf%ict (et&een an a$inistrati!e orer an the pro!isions of the
Constitutions' the %atter pre!ai%s)
CHAPTER GI
CONSTRUCTION AND INTERPRETATION OF THE CONSTITUTION
A constitution is a syste$ of funa$enta% %a& for the "o!ernance an
a$inistration of a nation) It is supre$e' i$perious' a(so%ute' an
una%tera(%e e#cept (y the authority fro$ &hich it e$anates)
Uner the octrine of constitutiona% supre$acy' if a %a& or contract !io%ates
any nor$ of the constitution' that %a& or contract &hether pro$u%"ate (y the
%e"is%ati!e' or (y the e#ecuti!e (ranch or entere into (y pri!ate persons for
pri!ate purposes is nu%% an !oi an &ithout any force or effect)
A44 PRO6ISIONS OF THE CONSTITUTION ARE SE4F9EGECUTIN3:
EGCEPTIONS
So$e constitutions are $ere%y ec%arations of po%icies) Their pro!isions
co$$an the %e"is%ature to enact %a&s an carry out the purposes of the
fra$ers &ho $ere%y esta(%ish an out%ine of "o!ern$ent pro!iin" for the
ifferent epart$ents of the "o!ern$enta% $achinery an securin" certain
funa$enta% an ina%iena(%e ri"hts of citi=ens)
Thus a constitutiona% pro!ision is se%f9e#ecutin" if the nature an e#tent of
the ri"ht conferre an the %ia(i%ity i$pose are fi#e (y the constitution
itse%f)
Un%ess it is e#press%y pro!ie that a %e"is%ati!e act is necessary to enforce a
constitutiona% $anate' the presu$ption no& is that a%% pro!isions of the
constitution are se%f9e#ecutin")
In case of ou(t' the Constitution shou% (e consiere se%f9e#ecutin" rather
than non9se%f9e#ecutin"' un%ess the contrary is c%ear%y intene)
Non9se%f9e#ecutin" pro!isions &ou% "i!e the %e"is%ature iscretion to
eter$ine &hen' or &hether' they sha%% (e effecti!e' su(orinate to the &i%%
of the %a&9$a,in" (oy)
PROHI>ITORY PRO6ISIONS 3I6EN 4ITERA4 AND STRICT
INTERPRETATION
3uie%ines in construction an interpretation of the constitution are stresse/
The Court in construin" a Constitution shou% (ear in $in the o(-ect sou"ht
to (e acco$p%ishe (y its aoption' an the e!i%s' if any' sou"ht to (e
pre!ente or re$eie)
One pro!ision of the Constitution is to (e separate fro$ a%% the others' to (e
consiere a%one' (ut that a%% pro!isions (earin" upon a particu%ar su(-ect are
to (e (rou"ht into !ie& an to (e interprete as to effectuate the "reat
purposes of the instru$ent)
The proper interpretation of the Constitution epens $ore on ho& it &as
unerstoo (y the peop%e aoptin" it than the fra$erIs unerstanin"
thereof)
THE CONSTITUTIONA4 PRO6ISION ON NATURA49>ORN CITIHENS OF
THE PHI4IPPINES 3I6EN RETROACTI6E EFFECT
Uner THE 7CD@ Constitution' those (orn of Fi%ipino fathers an those (orn
of Fi%ipino $others &ith an a%ien father &ere p%ace on e.ua% footin") They
&ere (oth consiere as natura%9(orn citi=ens)
The constitutiona% pro!ision is curati!e in nature)
THE CONSTITUTION +UST >E CONSTRUED IN ITS ENTIRETY AS ONE'
SIN34E DOCU+ENT
4I>ERA4 CONSTRUCTION OF ONE TIT4E OF ONE SU>*ECT
A %i(era% construction of the 1one tit%e9one su(-ect2 ru%e has (een in!aria(%y
aopte (y the court so as not to cripp%e or i$pee %e"is%ation)
The tit%e e#presses the "enera% su(-ect an a%% the pro!isions are "er$ane to
the "enera% su(-ect)
RESI3NATION OF THE PRESIDENT UNDER THE 7CED CONSTITUION IS
NOT 3O6ERNED >Y ANY FOR+A4 RE;UIRE+ENT AS TO FOR+) IT
CAN >E ORA4) IT CAN >E 0RITTEN) IT CAN >E EGPRESS) IT CAN >E
I+P4IED)
SPECIA4 PRO6ISION PRE6AI4S O6ER A 3ENERA4 ONE
!ex specialis derogant generali
SUPRE+A 4EG
It is ti$e9honore that the Constitution is the Supre$e 4a& of the %an) It is
the %a& of a%% %a&s) Hence' if there is conf%ict (et&een a statute an the
Constitution' the statute sha%% yie% to the Constitution)
STARE DECISIS
The ru%e of preceents)
*uicia% ecisions app%yin" or interpretin" the %a&s or the Constitution sha%%
for$ part of the %e"a% syste$ of the Phi%ippines)
CONC4USION
The funa$enta% princip%e of constituitona% construction is to "i!e effect to
the intent of the fra$ers of the or"anic %a& an of the peop%e aoptin" it)
CHAPTER GII
RECENT CASES ON STATUTORY CONSTRUCTION
The ter$ 1$ay2 is inicati!e of a $ere possi(i%ity' an opportunity or an
option)
An i$p%ie repea% is preicate on a su(stantia% conf%ict (et&een the ne&
an prior %a&s)
The a(ro"ation or repea% of a %a& cannot (e assu$e: the intention to re!o,e
$ust (e c%ear an $anifest)
0hen the %a& spea,s in c%ear an cate"orica% %an"ua"e' there is no occasion
for interpretation)
Pena% %a&s $ust (e construe strict%y) Such ru%e is foune on the
tenerness of the %a& for the ri"hts of ini!iua%s an on the p%ain princip%e
that the po&er of punish$ent is !este in the Con"ress' not in the *uicia%
epart$ent)
0here a re.uire$ent is $ae e#p%icit an una$(i"uous ter$s' no iscretion
is %eft to the -uiciary) It $ust see to it that the $anate is o(eye)
Statutes that are re$eia%' or that o not create ne& or ta,e a&ay !este
ri"hts' o not fa%%L
*uicia% %e"is%ation ta,es p%ace &hen a court steps in to craft $issin" parts or
to fi%% in the "aps in %a&s or &hen it o!ersteps its iscretiona% (ounaries an
"oes (eyon the %a& to coin octrines or princip%es &here none &as (efore)