STATUTORY CONSTRUCTION

Universidad de Manila
A.Y. 2019-2020
Atty. Denise Anne V. Sales

I. INTRODUCTION

A. Definition of Statutory Construction

- Caltex v. Palomar, G.R. No. L-19650, 29 September 1966.

B. When Construction is Necessary; Purpose of Statutory Construction

- People v. Mapa, G.R. No. L-22301, 30 August 1967
- Daoang v. Municipal Judge, G.R. No. L-34568, March 28, 1988.

1. Determine legislative intent

- Nitafan v. CIR, G.R. No. 78780, 23 July 1987
- People v. Concepcioin, 44 Phil. 126 (29 November 1922)

2. Limit power of courts to construe the law

- Tanada v. Yulo, G.R. No. 43575, 31 May 1935
- Floresca v. Philex, G.R. No. L-30642, April 30, 1985

C. Characteristics of Statutory Construction

1. Necessary when legislative intent cannot be readily ascertained

from the words used in the law as applied under a set of facts
- Alonzo v. IAC, G.R. No. 72873, 28 May 1987
2. Judicial function
- Endencia v. David, G.R. Nos. L-6355-56, 31 August 1953.

D. Related legal principles

1. Separation of Powers (1987 Constitution)

2. Checks and balances (1987 Constitution)
3. Hierarchy of laws (Civil Code, Art. 7)
4. Stare decisis (Civil code, Art. 8)

II. SUBJECT MATTER OF CONSTRUCTION

A. Subject of Construction; Types of Laws

1. Constitution
2. Statutes
3. Executive Issuances
4. Ordinances
 B. Parts of a Statute

1. Title
- Art. VI, Sec. 26(1), 1987 Constitution
- Government of the Phil. Islands v. HSBC, G.R. No. 44257,
22 November 1938.
2. Preamble
- Eugenio v. Drilon, G.R. No. 109404, 22 January 1996

3. Enacting Clause
4. Body
5. Repealing Clause
6. Separability Clause
- Antonio v. Miranda, G.R. No. 135869, 22 September 1999
- Tatad v. DOE, G.R. No. 124360, 3 December 1997
7. Effectivity Clause
- Tañada v. Tuvera, G.R. No. 63915, 24 April 1985
- Tañada v. Tuvera, G.R. No. L-63915, 29 December 1986

III. LEGISLATIVE INTENT; VERBA LEGIS AND RATIO LEGIS

A. Verba Legis v. Ratio Legis

1. Verba legis; literal interpretation

- Globe-Mackay Cable and Radio Corporation v. NLRC and Salazar,
G.R. No. 82511, 3 March 1992;
- Salaria v. Buenviaje, G.R. No. L-45642, 28 February 1978.

2. Ratio legis; spirit of the law

- Salvacion v. Central Bank, G.R. No. 94723, 21 August 1997;
- People v. Purisima, G.R. No. L-42050-66, 20 November 1978;
- Matabuena v. Cervantes, G.R. No. L-28771, 31 March 1971;
- Lacson v. Roque, G.R. No. L-6225, 10 January 1953;
- Victoria v. Comelec, G.R. No. 109005, 10 January 1994.

B. When is construction necessary?

- Del Mar v. PAGCOR et. al., G.R. No. 138298, 29 November 2000
- People v. Nazario, G.R. No. L-44143, 31 August 1988
- In re Allen, G.R. No. 1455, 29 October 1903.

C. Clerical error
- Lopez & Sons, Inc. v. Court of Tax Appeals, G.R. No. L-9274; 1
February 1957
 D. Partial validity
- Barrameda v. Moir, G.R. No. L-7927, 8 August 1913;
- Tatad v. Department of Energy, G.R. No. 124360 (supra);
- Dumlao v. Comelec, G.R. No. L-52245, 22 January 1980.

IV. PRINCIPLES OF CONSTRUCTION

A. General Policies on Construction

- Philippines American Drug Co., v. CIR, L-13032, 31 August 1959
- NAPOLCOM v. De Guzman, G.R. No. 106724, 9 February 1994
- Tanada v. Tuvera, 146 SCRA 446 (supra)
- City of Naga v. Agna, G.R. No. L-36049, 31 May 1976

B. General Principles/Presumptions on the Interpretation of Certain

Statutes

1. Penal Laws
- U.S. v. Estapia, G.R. No. L-12891, 19 October 1917;
- People v. Purisima, G.R. No. L-42050-66, 20 November 1978;
- Gaanan v. IAC, G.R. No. L-69809, 16 October 1986.

2. Probation Laws
- Pablo v. Castillo, G.R. No. 124108, 3 August 2000

3. Tax Laws
- Marinduque Iron Mines v. Municipal Council, G.R. No. L-18924, 30
June 1964;
- Manila Railroad Co. v. Insular Collector of Customs, G.R. No. L-
30264, 12 March 1929;
- Commissioner of Internal Revenue v. Court of Appeals, G.R. No.
115349, 18 April 1997.

- Tax Exemption/Amnesty
 Misamis Oriental Association of Coco Traders v.
Department of Finance Secretary, G.R. No. 108524, 10
November 1994;
 Mactan Cebu International Airport Authority v. Marcos,
G.R. No. 120082, 11 September 1996.

4. Social Legislation
- International Pharmaceuticals, Inc. v. Secretary, G.R. No. 92981, 9
January 1992
 - Labor Laws
 A.L. Ammen Transp. Co., Inc. v. Borja, G.R. No. L-17750;
 Corporal v. Employees’ Compensation Commission, G.R. No.
86020, 5 August 1994
- Agrarian Laws
 Estolas v. Mabalot, G.R. No. 133706, 7 May 2002

5. Rules of Court
- Tejero v. Rosete, G.R. No. L-55102, 19 June 1985;
- Sigueriza v. Court of Appeals, G.R. No. 77154, 30 June 1987;
- D.M. Wenceslao v. City of Parañaque, G.R. No. 170728, 31 August
2011.

6. Law on adoption
- Duncan v. Court of First Instance, G.R. No. L-30576, 10 February
1976

7. Local Government/Local Autonomy

- San Juan v. CSC, G.R. No. 92299, 19 April 1991

8. Wills

- Ajero v. Court of Appeals, G.R. No. 106720, 15 September 1994;

- Abangan v. Abangan, G.R. No. L-13431, 12 November 1919.

9. Naturalization
- Tan Chu Keng v. Republic, G.R. No. 13139, 24 May 1961;
- Ong Chia v. Republic, G.R. No. 127240, 27 March 2000.

10. Insurance
- Bigornia v. Court of Appeals, G.R. No. 173017, 17 March 2009;
- National Power Corporation v. Court of Appeals, G.R. No. L-43706,
14 November 1986

11. Computation of Time

- Viray v. Court of Appeals, G.R. No. L-25290, 18 March 1966;
- Namarco v. Tecson, G.R. No. L-29131, 27 August 1969;
- Primetime Property Group, Inc. v. Commissioner of Internal
Revenue, G.R. No. 157801, 8 June 2005

12. Corporations
- Home Insurance Co. v. Eastern Shipping Lines, G.R. No. L-34382,
20 July 1983

13. Constitution
 - Manila Prince Hotel v. GSIS, G.R. No. 122156, 3 February 1997;
- Francisco v. House of Representatives, G.R. No. 160261, 10
November 2003;
- David v. Senate Electoral Tribunals; G.R. No. 221538, 20
September 2016.

V. INTRINSIC AIDS OF CONSTRUCTION

A. Law construed as a whole and in relation to other laws

- Caudal v. CA, G.R. No. 83414, 31 July 1989;
- PRC v. De Guzman, G.R. No. 144681, 21 June 2004;
- Fertilizer and Pesticides Authority v. Manila Pest Control, G.R. No.
161594, 8 February 2007.

B. Title of the law

- City of Baguio v. Marcos, G.R. No. 26100, 28 February 1969

C. Preamble
- People v. Purisima, G.R. No. 42050, 20 November 1978

D. Punctuation marks
- Florentino v. PNB, G.R. No. L08782, 28 April 1956

E. Headnotes or epigraphs
- People v. Yabut, G.R. No. 39085, 27 September 1933

F. Conflicting provisions
- Manila Railroad Co. v. Collector, G.R. No. L-30264, 12 March 1929

G. Meaning of word qualified by purpose of the statute

- David v. CA, G.R. No. L-57719-21, 6 May 1988

H. Words construed in their ordinary sense

- Collector v. Manila Lodge No. 761, G.R. No. L-11176, 29 June 1957.

I. General words construed generally

- Gatchalian v. COMELEC, G.R. No. 32560, 22 October 1970

J. Use of generic words include things that arise after enactment of the
law – progressive interpretation
- Geotina v. CA, G.R. No. 33500, 30 August 1971

K. Words and phrases construed in relation to other provisions

- Claudio v. COMELEC, G.R. No. 140560, 4 April 2000
L. Where the law does not distinguish
- Pilar v. COMELEC, G.R. No. 115245, 11 July 1995;
- Colgate Palmolive Phil., Inc. v. Gimenez, G.R. No. L-14787, 28 January
1961;
- Guevara v. Inocentes, G.R. No. L-25577, 15 March 1966;
- Phil. British Assurance Co. v. IAC, G.R. No. 72005, 29 May 1987.

M. Use of technical terms

- Manila Herald Publishing v. Ramos, G.R. No. L-4268, 18 January 1951

N. Use of associated words

- Buenaseda v. Secretary Flavier, G.R. No. 106719, 21 September 1991
(see however, Ledesma v. CA, G.R. No. 161529, 29 July 2005);
- Mutuc v. COMELEC, G.R. No. 32717, 26 November 1970;
- Cagayan Valley Enterprises v. CA, G.R. No. 78413, 8 November 1989
- Eusdem Generis
 Go Tiaco v. Union Insurance Society of Canton, G.R. No. 13983, 1
September 1919;
 Roman Catholic Archbishop of Manila v. Social Security
Commission, G.R. No. L-15045, 20 January 1961;
 PNOC Shipping and Transport Corporation v. Court of Appeals,
G.R. No. 107518, 8 October 1998
- Noscitur a sociis
 Oil and Natural Gas Commission v. Court of Appeals, G.R. No.
114323, 23 July 1998;
 Magtajas v. Pryce Properties Corp., Inc., G.R. No. 111097, 20 July
1994.

O. Express mention and implied exclusion

- Sarmiento III v. Mison, 156 SCRA 549 (1987);
- People v. Macarandang, G.R. No. L-12088, 23 December 1959;
- People v. Mapa, G.R. No. L-22301, 30 August 1967;
- People v. Santayana, G.R. No. L-22291, 15 November 1976;
- Malinias v. Comelec, G.R. No. 146943, 4 October 2002;
- Canet v. Decena, G.R. No. 155344, 20 January 2004

P. Necessary implication
- Pepsi Cola Products Phils., Inc. v. Secretary of Labor, G.R. No. 96663,
10 August 1999).

Q. When ambiguity is caused by one party

- Reyes v. dela Cruz, G.R. No. L-12729, 30 March 1959;
- Ildefonso v. Sibal, G.R. No. L-12181, 30 September 1959;
- Rizal Commercial Banking Corporation vs. Court of Appeals, G.R. No.
133107, 25 March 1999;
 - Benguet Corporation vs. Cabildo, G.R. No. 151402, 22 August 2008.

R. In favor of validity
- JMM Promotions and Management Inc. v. NLRC, G.R. No. 109835, 22
November 1993;
- Moreno v. Private Management Office, G.R. No. 159373, 16 November
2006.

S. Cassus Omissus
- People v. Manantan, G.R. No. 14129, 13 July 1962

T. Each to each
- People v. Tamani, G.R. No. 22160, 21 January 1974

U. Relative and qualifying terms

- Mapa v. Arroyo, G.R. No. 78585, 5 July 1989

V. Context and related clauses

- Paras v. COMELEC, G.R. No. 123169, 4 November 1996

W. Use of punctuation marks

- U.S. v. Hart, G.R. No. L-8848, 21 November 1913

X. Words and Phrases

1. Proviso
- Mercado et.al. v. NLRC, G.R. No. 79869, 5 September 1991.

2. Including
- Sterling Selections Corporation v. LLDA, G.R. No. 171427, 30
March 2011.

3. Negative vs. affirmative words

- In re McGee v. Republic, G.R. No. L-5387, 29 April 1954.

4. Mandatory v. permissive v. prohibitive

- Director of Lands v. Court of Appeals, G.R. No. 102858, 28 July
1997;
- Bersabal v. Salvador, G.R. No. L-35910, 21 July 1978;
- Diokno v. Rehabilitation Finance Corp., G.R. No. L04712, 11 July
1952;
- Marcelino v. Cruz, G.R. No. L-42428, 18 March 1983;
- Brehm v. Republic, G.R. No. L-18566, 30 September 1963; and
- Lokin Jr. v. Comelec, G.R. Nos. 179431-32, 22 June 2010.
 5. and/or
- RMBSA v. HDMF, G.R. No. 131082, 19 June 2000
- Microsoft Corporation v. Manansala, G.R. No. 166391, 21 October
2015.

6. Plural v. Singular
- In re The Intestate Estate of Pedro Satillon, G.R. No. L-19281, 30
June 1965.

VI. EXTRINSIC AIDS OF CONSTRUCTION

A. Contemporaneous Circumstances
- Manila Jockey Club, Inc. v. GAB, G.R. No. L-12727, 29 February 1960; and
- Lagman et.al. v. Medialdea, et.al., G.R. No. 231658, 4 July 2017.

B. Legislative History
- Commissioner v. Esso, G.R. No. L-28329, 7 August 1975; and
- Filipinas Life Assurance Company v. Court of Tax Appeals, G.R. No. L-
21258, 31 October 1967.

C. Legislative Debates and Committee Reports

- Manila Jockey Club, Inc. v. GAB, G.R. No. L-12727, 29 February 1960;
- Astorga v. Villegas, G.R. No. L-23475, 30 April 1974;
- Gaanan v. IAC, G.R. No. L-69809, 16 October 1986; and
- Statements of Individual Legislator
 CASCO Phil. Chemical Co. v. Gimenez, G.R. No. L-17931, 28
February 1963.

D. Executive/Contemporaneous Construction
- Bengzon v. Secretary of Justice, G.R. No. L-42821, 18 January 1936;
- Philippine Global Communications, Inc. v. Relova, G.R. No. L-60548, 10
November 1986;
- Enrique v. Court of Appeals, G.R. No. 79072, 10 January 1994; and
- Peralta v. Civil Service Commission, G.R. No. 95832, 10 August 1992.

E. Reference to other statutes

- Escosura v. San Miguel Brewery, Inc., G. R. No. L-16696, 31 January 1962;
- Co v. Civil Register of Manila, G.R. No. 138496, 23 February 2004
(Statutes in Pari Materia).

F. Statutes borrowed from foreign jurisdictions

- United States v. De Guzman, G.R. No. L-9144, 27 March 1915.

VII. CONSTRUCTION OF CONFLICTING STATUTES/CONFLICTING

PROVISIONS.
 A. Special Law v. General Law
- Gordon v. Veridiano II, G.R. No. L-55230, 8 November 1988;
- Lopez Jr. v. Civil Service Commission, G.R. No. 87119, 16 April 1991.

B. Substantive Law v. Procedural Law

- Philippine National Bank v. Asuncion, G.R. No. L-46095,23 November
1977.

C. Proviso v. body
- Arenas v. City of San Carlos, G.R. No. L-34024, 5 April 1978

VIII. AMENDMENT AND REPEAL

- Mecano v. COA, G.R. No. 103982, 11 December 1992

- Philippine National Bank v. Cruz, G.R. No. 80593, 18 December 1989
(latter statute prevails)
- People v. Palma, G.R. No. L-44113, 31 March 1977 (general law cannot
impliedly repeal a special law); however, see contra Bagatsing v. Ramirez,
G.R. No. L-41631, 17 December 1976
- Gaerlan v. Catubig, G.R. No. L-23964, 1 June 1966;
- City of Manila v. Teotico, G.R. No. L-23052, 29 January 1968; and
- Philippine National Bank v. Gancayco, G.R. No. L-18343, 30 September
1965.

IX. PROSPERITY AND RETROACTIVITY

- Universal Corn Products, Inc. et.al. v. Rice and Corn Board; G.R. No. L-
21013, 17 August 1967;
- Senarillos v. Hermosisima, G.R. No. L-10662, 14 December 1956;
- Espiritu v. Cipriano, G.R. No. L-32743, 15 February 1974;
- Tamayo v. Manila Hotel, G.R. No. L-8975, 29 June 1957.

X. INTERPRETATION OF CONTRACTS

- Arts. 1370 to 1379 of the Civil Code (Rules on Interpretation of

Contracts)
- Rule 130, Secs. 10 to 19 of the Rules of Court;
- Abad v. Goldloop, G.R. No. 168108, 13 April 2007;
- NIA v. Gamit, G.R. No. 85869, 6 November 1992.