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Remedy of courts in case of ambiguity. ILLUSTRATIVE CASE: FEDERATION OF FREE FARMERS V CA, G.R.
- Construe statute No. 41161 Sept 10, 1981
- Give it meaning
- In accord with legislative intent Section 1 of RA 809, Sugar Act of 1952 provides:
“in the absence of written milling agreements between the
Purpose of construction. majority of planters and the millers of sugarcane in any milling
- Ascertain district in the Philippines xxx shall be divided between them”
- And give effect Issues:
- Legislative intent - What is the meaning of “in the absence of written milling
agreements?
Construction distinguished from interpretation - Does RA 809 apply even if there is a written milling
- Interpretation: meaning of words, Construction: reads agreement different from the sharing proportion provided
between the lines by it?
Legislative intent, defined.
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- Does the phrase “any increase in participation granted EXEGESIS: application
under this Act” exclude written agreement?
Held: Different kinds of interpretation.
- RA 809 applies with or without written milling Close interpretation. - literal
agreements between the planter and the mill, even if its Extensive interpretation. - liberal
literal interpretation says otherwise. Extravagant interpretation. – departs from the true meaning
- Legislative intent in enacting RA 809: Free or unrestricted interpretation. – based on general principles of
In the 1950’s, planters staged a strike and interpretation in good faith
threatened not to plant sugar cane unless they Limited or restricted interpretation. –influenced by other principles
were given bigger share in the sugar industry and Predestined interpretation. –biased
sugar quota commitment.
To remedy the problem, Congress enacted RA 809 Who has authority to construe law.
to force planters to plant, centrals to mill and even - Judiciary
allowing the government to take over planting and
milling. Limitations on power to construe.
The evil sought to be avoided by Congress is the Judicial legislation –when a court, under the guise of
exploitation of laborers or “sacada” in terms of interpretation, modifies, amends, remodels or rewrites a statute
wages and benefits. Illustrative case:
To make the Act operative with or without the CANET V DECENA G.R. No. 155344, January 20, 2004
written milling agreement.
- Legislative purpose in enacting RA 809 – to compel FACTS: A businessman applied for permit to operate and maintain a
continuous sugar production & grant laborer’s share in cockpit. But the mayor refused because there is no ordinance
the increased planter’s participation in the sugar produce. empowering her to do so.
- Legislative meaning in enacting RA 809: Although
not clearly disclosed in the language of the Act, it Contention of the businessman: He invokes a resolution
however indicates that the laborers should receive their authorizing him to operate a cockpit and a municipal tax ordinance
share for as long as sugar is produced and planters providing for issuance of a mayor’s permit to operate businesses.
receive increase participation.
- Thus, to literally interpret these phrases is to defeat Contention of the mayor: The mayor refused. Under the Local
legislative intent and purpose, which is to grant laborers Government Code of 1991, the authority to give licenses for the
fair share in sugar produce. establishment, maintenance and operation of cockpits pertains to
the Sanggunian. Also, there is no ordinance authorizing her to do
Legal hermeneutics, defined. so.
- Branch of science establishes principle and rules of
statutory construction ISSUE:
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Can the municipal mayor be compelled to issue business permit in For a long as laws do not violate the constitution, the court
the absence of ordinance empowering her to do so? are limited to interpret and apply them, whether or not they
are wise or salutary.
HELD:
No. While there is a resolution allowing her to operate a Judicial non-interference on question of legislative
cockpit, there is no ordinance giving her similar authority. wisdom.
The municipal tax ordinance contains general provisions for - Courts cannot pass upon questions of wisdom, justice or
issuance of business permits but it is a short on specifics expediency of legislation.
prescribing reasonable fees for cockpit operation. - For as long as laws do not violate constitution, the courts
The ordinance providing these specifics was withdrawn by are limited to interpret and apply them, whether or not
the Sanggunian. they are wise and salutary.
Otherwise, to compel the mayor to issue permit not only
violates Section 447 of the Local Government Code but also When to construe law.- (When does a court construe a law)
encroaches on the mayor’s administrative prerogatives. - Existence of case before it
Since cockpit operation was not enumerated in the - Actual case or controversy
ordinance, it is excluded. - Ambiguity
The legislature would not have enumerated those covered if
it did not intend to limit. Requisites for statutory construction.
Express mention of one thing, person, act or consequence
exclude the others: Expressio unius est exclusion alterius.
What is expressed puts an end to what is implied. Executive construction of statutes.
Expressium facit cessare tocitum - Persuasive but not binding upon the courts
An omission at the time of enactment, whether careless o
calculated, cannot be judicially supplied even if wisdom Construction of a partly void statute.
recommends it. - Valid portion may stand and be enforced if:
If there is a legislative gap caused by omission, the Separable
judiciary cannot fill that gap. Otherwise, it results in judicial Independent
legislation. Sufficient to make a complete, intelligible and
valid statute which carries out the legislative
intent
QUESTION OF LEGISLATIVE WISDOM: Effects of rules of construction upon courts.
Courts cannot pass upon questions of wisdom, justice or - Not mandatory
expediency of legislation. - Unless expressly provided by statutes.
- But judicial decisions interpreting laws form part of our
legal system.
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Unless provided by statutes. principle that prevails in the “administration of its government until
Examples: it has become an understood part of its system, to which obedience
- Article 10, Civil Code: is expected and habitually yielded.” (Cooley, 1868)
In case of doubt in the interpretation or application of
laws, it is presumed that the lawmaking body Strong (1963) summarizes the definition of constitution by saying
intended right and justice to prevail. that:
- Section 4, Labor Code:
All doubts in the implementation and interpretation of A constitution may be said to be a collection of principles according
the provisions of this Code, including its implementing to which the powers of the government, the rights of the governed,
rules and regulations, shall be resolved in favor of and the relations between the two are adjusted. The constitution
labor. may be a deliberate creation on paper; it may be found in one
document which itself is altered or amended as time and growth
demand; or it may be a bundle of separate laws given special
PART II. SUBJECTS OF CONSTRUCTION authority as the laws of the constitution. Or, again, it may be that
the bases of the constitution are fixed in one or two fundamental
1. CONSTITUTION laws while the rest of it depends for its authority upon the force of
2. STATUTES custom. (p. 11)
3. ORDINANCES
4. RESOLUTIONS Philippine Constitution, defined.
5. EXECUTIVE ORDERS
6. DEPARTMENT CIRCULARS “a written instrument by which the fundamental powers of the
government are established, limited and defined, and by which
Constitution, defined. those powers are distributed among the several departments for
The fundamental law, written or unwritten, that establishes the their safe and useful exercise and for the benefit of the body
character of a government by defining the basic principles to which politic.” (Malcolm and Laurel, 1936 as cited by Suarez, 2008)
a society must conform; by describing the organization of the
government and regulation, distribution, and limitations on the -Fundamental law of the land
functions of different government departments; and by prescribing -body of rules and maxims
the extent and manner of the exercise of its sovereign powers. -where powers of sovereignty are habitually exercised
A legislative charter by which a government or group derives its -Written instrument
authority to act. - Fundamental powers of the government are established, limited
and defined
A constitution is “that body of rules and maxims in accordance with - By which these powers are distributed among several departments
which the powers of sovereignty are habitually exercised.” Broadly -For their safe and useful exercise
speaking, every state has some kind of a constitution—a leading -For the benefit of the body politic
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Nature of Constitution. and its powers,” and define the electorate. (De Leon and De
Leon)
Nature of Constitution can be defined as the relationship of the
government and its people. Each State have their own version of 2. Constitution of liberty—its provisions should set forth the
their Preamble and Articles which makes their constitutions unique. “fundamental rights of the
It is not acceptable for a State to exist without a Constitution
defining the relationship of the people governing the State and the people” and impose “certain limitations o the powers of the
people who completes the State. Recognizes and declares inherent government as a means of
rights and prerogative of a free people.
securing the enjoyment of these rights.” (De Leon and De
Constitution distinguished from statute. Leon)
Note: Strong (1963) argues that classifying constitutions as written special machinery more cumbrous than the ordinary
and unwritten is a false distinction. This is so because “there is no legislative process” (Strong, n.d. as cited by De Leon and De
constitution which is entirely unwritten and no constitution entirely Leon). In short, Strong (1963) says, “the constitution which
written. cannot be bent without being broken is a rigid constitution.”
his subjects like the Constitution of Japan in 1889” (De Leon and De Statute, defined.
Leon). By being enacted, this means that a constitution is the result
of a legal action of a body of persons whose task is to make laws. Statute is an act of legislature as an organized body expressed in
As for the Japanese Constitution of 1889, this law is “largely the the form, passed according to the procedure, required to constitute
handiwork of the genro (elder statesman) Itō Hirobumi, [who] called it as part of the law of the land.
for a bicameral parliament (the Diet) with an elected lower house
and a prime minister and cabinet appointed by the emperor.” (Meiji, A statute is a written law passed by a legislature on the state or
2012, para. 1) federal level. It may forbid a certain act, direct a certain act, make a
declaration or set forth a governmental action to aid society. A
b. Cumulative or evolved—“is a product of growth or a long statute begins as a bill and after it is passed by both houses and by
period of development originating in customs, traditions, judicial the executive officer, the bill becomes a law.
decisions, etc. rather from a deliberate and formal enactment.” An
example of this is the English Constitution. (De Leon and De Leon) Written will of the legislature, a public will and people’s mandate
expressed through their representatives.
Stare Decisis. Follow past precedents and do not disturb what has It is the power to make, alter, and repeal laws.
been settled. Matters already decided on the merits cannot be
relitigated again and again. “Stare decisis et non quieta movere” Scope of legislative power.
(follow past precedents and do not disturb what has been settled. 1) Under the 1973 and freedom constitution, the president
exercised legislative power which remained valid until
Statutes, classified. repealed.
2) LGU can enact ordinances within their jurisdiction, but such
TYPES OF STATUTES: laws are inferior and subordinate to the laws of the state.
(Primcias vs. Urdaneta)
A. Passed by the Philippine Legislature
3) Administrative or executive officer can make rules and
�1) Philippine Commission
regulations to implement specific laws.
�2) Philippine Legislature
Essential feature of the legislative function is the
�3) Batasang Pambansa
determination of the legislative policy and its formulation and
�4) Congress of the Philippines
promulgation as a defined and binding rule of conduct.
B. Made by the president
Embraces all subjects, extends to matters of general concern or
1) Presidential decrees (1973
common interest, unless limited by the Constitution
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not originate exclusively in the lower house because it merely
Constitutional basis for legislative power of Congress. consolidated 2 distinct bills from the lower and upper houses. This
Section 1, Article VI of the 1987 Constitution. violates the clear mandate of “originate” which was even qualified
“Section 1. The legislative power shall be vested in the Congress of by the word “exclusively”.
the Philippines which shall consist of a Senate ad a House of
Representatives, except to the extent reserved to the people by the HELD: It is not the law, but the revenue bill, which is required by
provision on initiative and referendum.” the Constitution to originate exclusively in the House of
Representatives. A bill originating in the lower house may undergo
Bill, defined. extensive changes in the Senate that may result in the rewriting of
A bill is a proposed legislative measure introduced by a member of the entire bill. To insist the revenue statute must be substantially
Congress for enactment into law, signed by the author/s, filed with the same as the house bill would be to deny the Senate’s power not
the House Secretary. only to “concur with amendments” but also to “propose
amendments”.
Bill – is the draft of a proposed law from the time of its introduction For indeed, what the Constitution simply means is that the initiative
in a legislative body through all the various stages in both houses. It for filing revenue bill must come from the House of Representatives.
is enacted into law by a vote of the legislative body. An “Act” is the This is based on the theory that since they are elected by their
appropriate term for it after it has been acted on and passed by the districts, they are expected to be more sensitive to the local needs
legislature. It then becomes a statute, the written will of the and problems.
legislature solemnly expressed according to the form necessary to Thus, while it is true that a revenue bill must originate
constitute it as the law of the state. exclusively in the House of Representatives, the Senate can
propose amendments that re-writes the entire bill or
Origin of bill. substitute it with an entirely separate and distinct bill.
A bill may originate in the lower or upper house except
appropriation, revenue or tariff bills, bills authorizing increase of How a bill becomes a law.
public debt, bills of local application, private bills, which shall
originate exclusively in the House of Representatives. HOW DOES A BILL BECOMES A LAW – STEPS
Tolentino v Secretary of Finance, 235 SCRA 630 (1994) A bill before it becomes a law must pass the strict constitutional
FACTS: Several bills were introduced in the House of requirements explicit both in the 1973 Constitution and the 1987
Representatives to expand the tax base of the Value Added Tax Constitution.
(VAT) system and enhance its administration by amending the
National Internal Revenue Code (NIRC). Passage of a bill in a parliamentary system (unicameral assembly):
These were referred to the House and Ways Committee a. A member of the National Assembly may introduce the
which consolidated a bill and recommended its approval. proposed bill to the Secretary of the National Assembly who will
After approval, it went to the Senate and referred to its calendar the same for the first reading. Filing- with the House
Committee on Ways and Means. Thus, petitioners argue that it did Secretary. Secretary reports the bill for the 1st Reading.
8
b. In the first reading, the bill is read by its number and title bill is read and the National Assembly will then vote on the bill.
only. Under the present 1987 Constitution, after the third and final
c. After the first reading, the bill is referred by the Speaker reading at one House where the bill originated, it will go to the other
to the appropriate committee for study. At this stage, the House where it will undergo the same process.
appropriate committee will conduct public hearings. Then after the (Final vote for yeas and nays shall be taken and entered in the
public hearings, the committee shall decide whether or not to report Journal)
the bill favorably or whether a substitute bill should be considered. i. After the bill has been passed, it will be submitted to the
Should there be an unfavorable report of the committee, then the Prime Minister (President) for approval. If he disapproves, he shall
proposed bill is dead. veto it and return the same with his objections to the National
d. Upon favorable action by the committee, the bill is Assembly (House where it originated), and if approved by two-thirds
returned to the National Assembly and shall be calendared for the of all its members, shall become a law. Under the present set-up, if
second reading. the originating house will agree to pass the bill, it shall be sent,
Composition - experts in the subjects under their together with the objections to the other house by which it shall be
jurisdiction. likewise be considered and must be approved by two-thirds of the
What happens in the Committee Stage? – It may hold public votes. Every bill passed by Congress shall be acted upon by the
hearings on the proposed measure. Bill comes under sharpest President within thirty (30) days from receipt thereof. Otherwise, it
scrutiny. Committee may approve or reject the bill, with or without shall become a law.
amendments, re-write the bill entirely, report it favorably or without
recommendation. Committee reports and recommends for calendar Section 26 (2) Article VI, 1987 Constitution
for second reading. Tolentino v Secretary of Finance, 235 SCRA 630 (1994)
“No bill passed by either House shall become a law unless it has
e. In the second reading, the bill is read in its entirety. (in passed three readings on separate days, and printed copies thereof
full with the amendments proposed by the Committee, if any. in its final form have been distributed to its Members three days
Unless copies were distributed before and such reading is dispensed before its passage, except when the President certifies to the
with. The bill will be subjected to debates, motions and necessity of its immediate enactment to meet a public calamity or
amendments. After the amendments have been acted upon, the bill emergency. Upon the last reading of a bill, no amendment thereto
will be voted on second reading) shall be allowed, and the vote thereon shall be taken immediately
f. Immediately after the second reading, the bill is set for thereafter, and the yeas and nays entered into the Journal.”
open debates where members of the assembly may propose
amendments and insertions to the proposed bill. Constitutional Reqts for the bill to pass. Article VI, Section 26
g. After the approval of the bill in its second reading and at (2):
least three (3) calendar days before its final passage, the bill is It has passed 3 readings on separate days
printed in its final form and copies thereof distributed to each of the Printed copies in final form distributed to its members
members. 3 days before its passage.
h. The bill is then calendared for the third and final reading.
At this stage, no amendment shall be allowed. Only the title of the
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EXCEPT : when the President certifies it as urgent to new provision not found in either bills. Thus, political scientists call
meet public calamity or emergency. the Conference Committee a third body of the legislature.
But the factual basis of the presidential certification of
bills may not be subjected to judicial review. It merely a. A Conference Committee is constituted and is composed of
dispenses with the procedural requirements designed Members from each House of Congress to settle, reconcile or
to insure that bills are duly considered by members. thresh out differences or disagreements on any provision of
the bill.
(?) Contention of Petitioners: The certification of the bill is b. The conferees are not limited to reconciling the differences in
invalid because there was no emergency. The justification of the bill but may introduce new provisions germane to the
“growing budget deficit” is not an unusual condition in this country. subject matter or may report out an entirely new bill on the
HELD: The presidential certification dispenses not only printing and subject.
distribution of the copy of the bill but also the reading on separate c. The Conference Committee prepares a report to be signed by
days. The phrase “except when the President certifies to the all the conferees and the Chairman.
necessity of its immediate enactmentxxx” qualifies the 2 stated d. The Conference Committee Report is submitted for
conditions before a bill becomes a law. The “unless” clause must be consideration/approval of both Houses. No amendment is
read in relation to the “except” clause because they are coordinate allowed.
clauses of the same sentence. To construe the “except” clause as
simply dispensing the printing and distribution not only offends Illustrative case: Tolentino v Secretary of Finance, 235
grammar but also negates the very premise of the “except” clause. SCRA 630 (1994)
The necessity of securing the immediate enactment of the bill which FACTS: The Conference Committee consolidated the House and
is certified in order to meet a public calamity or emergency. Senate versions closed doors which resulted in an entirely different
The factual basis of presidential certification of bills is not version.
subject to judicial review pursuant to the principle of CONTENTION OF PETITIONERS: The House Committee Report
separation of powers as it merely involves doing away with included provisions not found in either version and these were
procedural requirements. A law may not be declared secretly inserted into it closed doors.
unconstitutional when what is violated in its passage are mere HELD: There is nothing wrong about closed door executive sessions.
internal rules of procedure. Unlike the sufficiency of the factual basis Often, when only the conferences are present, it is the only way to
of the suspension of the privilege of the writ of habeas corpus which harmonize conflicting provisions. The incomplete sentences in the
threaten individual rights hence subject to judicial review. transcripts may be attributed to the stenographer’s own limitations
or incoherence of statements.
Amendment in the nature of a substitute by the Conference
Conference Committee – it is a mechanism to harmonize Committee resulting in a third version is allowed provided it
differences between both Houses in the passage of the bill into law. is germane to the subject of both versions.
But it can deal generally with the subject matter. It may produce
results beyond its mandate. The rules do not limit it to consider
conflicting provisions only. It is empowered to include an entirely
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approved, the bill officially becomes a law.
12
Practice of including in one statute or constitutional amendment and valid are inseparable, the nullity of one vitiates the other. ( go
more than one proposition, inducing voters to vote for all, back to PREAMBLE)
notwithstanding they might not have voted for all if amendments or a) A statute whose title does not conform to the one title-
statutes had been submitted separately. subject or is not related to its subject is null and void
Lambino v COMELEC, G.R. No. 174153, October 25, b) If subject matter of statute is not sufficiently expressed in its
2006 title, only the unexpressed subject matter is void leaving the
FACTS: In 2006, the group led by Raul Lambino and Enrico rest in force
Aumentado gathered signatures nationwide as people’s initiative to
amend the Constitution by shifting from Bicameral-Presidential to Date of effectivity
Unicameral-Parliamentary form of government. It asked the people When laws take effect.
this proposition: DO YOU APPROVE THE AMENDMENT OF ARTICLES Article 2, Civil Code
VI AND VII OF THE 1987 CONSTITUTION, CHANGING THE FORM OF “Laws take effect after 15 days following completion of publication in
GOVERNMENT FROM THE PRESENT BICAMERAL-PRESIDENTIAL TO A the Official Gazette, unless otherwise provided”
UNICAMERAL-PARLIAMENTARY SYSTEM, AND PROVIDING ARTICLE Section 18, Chapter 5, Book I, 1987
XVIII AS TRANSITORY PROVISIONS FOR THE ORDERLY SHIFT FROM Administrative Code
ONE SYSTEM TO THE OTHER? “Laws take effect after 15 days following completion of publication in
HELD: For sure, the great majority of the 6.3 million Filipinos who the Official Gazette or in a newspaper of general circulation, unless
signed the signature sheets did not see the full text of the it is otherwise provided.
proposition. They could have not known the nature and effect of the
proposed changes: 1. The term limits will be lifted and thus Completion of publication – from which the date the period of
members of the Parliament can be re-elected indefinitely. 2. The publication will be counted, refers to the dte of release of the O.G.
interim Parliament can continue to function indefinitely until its or newspaper for circulation and not to its date, unless the two
members, who are almost all the present members of Congress, dates coincide.
decide to call for new parliamentary elections. 3. Within 45 days
from the ratification of the proposed changes, the interim
Parliament shall convene to propose further amendments or Tañada v Tuvera, 146 SCRA 446 (1986)
revisions to the Constitution. Philippine Veterans Bank v Vega, G.R. No.
The subject matter of this proposed transitory provision is 105364, June 28, 2001
totally unrelated to the shift from presidential-bicameral to Effectivity of presidential issuances, rules and
unicameral-parliamentary system. This is logrolling. It places the regulations. – The requirement of publication also applies to
people in a dilemma since they can answer only either yes or no to Presidential Issuances. Exceptions: those which are merely
the entire proposition, which contains 2 subjects, one of which they interpretative or internal in nature not concerning the public.
may find unacceptable. Presidential issuances, basis.
Effectivity of Internal Rules and
Effects of insufficiency of title. Bill is void insofar as the Regulations (IRR)
subject matter not expressed in the title is concerned. But id void
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Nature of administrative, rules & When local ordinances take effect.
regulations Local ordinance shall take effect after 10 days from the date a copy
a. Whose purpose is to implement or enforce existing law thereof is posted in the bulletin board at the entrance of the
pursuant to a valid delegation or to fill in the details of a provincial capitol or city, municipal, or barangay hall, as the case
statute; whether they are penal or non-penal; this requires may be, and in at least two other conspicuous places in the local
publication. government unit.
b. Those which are merely interpretative in nature or merely The Secretary of the sanggunian shall cause the posting of
internal in character not concerning the public, does not need the ordinance within 5 days after its approval.
publication. The gist of all ordinances with penal sanctions shall be
published in a newspaper of general circulation, within the province
In addition, the 1987 Administrative Code provide that- where the local legislative body concerned belongs.
a. Every agency shall file with the U.P. Law Center three copies In case of highly-urbanized and independent component
of every rule adopted by it. Rules in force on the date of cities, the main feature of the ordinance or resolution duly enacted
effectivity of this Code which are not filed within 3 months or adopted shall, in addition to being posted, be published once in a
from that date shall not be the basis of any sanction against local newspaper of general circulation within the city.
any party or persons. Unless a statute is by its provisions for a limited period only,
b. Each rule shall become effective 15 days from the date of it continues in force until changed or repealed by the legislature.
filing as above provided unless a different date is fixed by Law once established continues until changed by some competent
law, or specified in the rule in cases of imminent danger to legislative power. It is not changed by change of sovereignty.
public health, safety and welfare.
Publication and filing requirements are indispensable to the Manner of computing time.
effectivity or rules and regulations, except when the law Where a statute requires the doing of an act within a
authorizing its issuance dispenses the filing requirements. specified number of days, such as 10 days, from notice, it means 1o
Types of administrative rules & calendar days and not working days. Where the word “week” is used
regulations as a measure of time and without reference to the calendar, it
IRR- enforces the law means a period of seven consecutive days without regard to the day
LOI – interprets the rule of the week from which it begins (PNB Vs CA).
Rule-making power of a public administrative agency – a. Year: 365 days
delegated legislative power. b. Month: 30 days except if the months are designated
Test of validity of administrative rules and c. Days: 24 hours
regulations (Test of validity of delegation of rule-making d. Night: from sunrise to sunset
power) e. Week: a period of 7 consecutive days without regard to the
The law must be : complete in itself, fix a standard standard, the day of the week from which it begins.
limits are sufficiently determinate or determinable, in case of Civil Code adopts the 365 day year and the 30-day month
discrepancy between statute and IRR, the statute prevails. and not the
calendar year nor the solar month.
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The exclude – the- first and include the last day rule governs Local councils exercise only delegated legislative powers conferred
the computation of a period. IF the last day falls on a Sunday or on them by Congress as the national law making body.
legal holiday, the act can still be done the following day. The
principle does not apply to the computation of the period of The delegate cannot be superior to the principal.
PRSECRIPTION OF CRIME, in which the rule is that if the last days in
the period of prescription of a felony falls on a Sunday or legal Barangay ordinance, authority to pass and review.
holiday, the information concerning said felony cannot be filed on Sanggniang barangay: smallest legislative body; may pass an
the next working day, as the offense has been by then already ordinance affecting a barangay by a majority vote of all its
prescribed. members. Its ordinance is subject to review by sangguniang bayan
or panlungsod, to determine if it is in accordance with municipal or
Garvida v Sales, G.R. No. 124893, April 18, 1997 city ordinance. Sangguniang Bayan or panlungsod shall take action
FACT: Proclamation of a duly elected SK Chair was suspended by on the ordinance within 30 days from submission.
the COMELEC because she is overaged. The law says candidates Municipal ordinance, authority to pass, veto and
should “not be more than 21 years old on the day of election”. The review.
SK Chair however argued she is still 21 years, 10 months and 25 Sangguniang Bayan: affirmative vote of a majorirty of the members
days old, not 22 years old. of the sangguniang bayan, there being a quorum. Ordinance is then
HELD: The LGC speaks of years, not months or days and a year submitted to the municipal mayor, who within 10 days from the
consists of 365 days. In computing years, first year is reached after receipt shall return it with his approval or veto. The ordinance is
completing first 365 days. So, 21 is 21 cycles of 365 days. Not then submitted to sangguniang panlalawigan for review, who within
more than 21 years old is not the same as less than 22 years 30 days may invalidate it in whole or in part.
old. City ordinance, authority to pass, veto & review.
Sangguniang panlungsod: affirmative vote of a majority of the
Ordinance, defined. members of the sangguniang bayan, there being a quorum.
Ordinance – an act passed by the local legislative body in the Approved ordinance shall be submitted to the mayor, who within 10
exercise of its law-making authority. days shall return it with approval or his veto. The Sanggunian may
repass a vetoed ordinance. If the city is a component city, the
TEST OF VALID ORDINANCE approved ordinance is submitted to the Sangguniang panlalawigan,
who shall act within 30 days.
1. Must not contravene the Constitution or any statute; 2. Must not Provincial ordinance, authority to pass and veto.
be unfair or oppressive;3. Must not be partial or discriminatory;4. Sangguniang panlalawigan: by a vote of a majority of the members
Must not prohibit but may regulate trade; 5. Must be general and present, there being a quorum, enact ordinance that will affect the
consistent with public policy; and 6. Must not be unreasonable. province. The ordinance is forwarded to the governor who. Within
15 days shall return it with his approval or veto. A vetoed ordinance
REASON WHY AN ORDINANCE SHOULD NOT CONTRAVENE A may be repassed by two-thirds vote.
STATUTE Resolution, defined.
The determination or decision, in regard to its opinion or intention,
15
of a deliberative or legislative body, public assembly, town council, resolution is not considered by the other chamber and is not sent to
board of directors or the like. Also a motion or formal proposition the President for his signature. Like a concurrent resolution, it has
offered for adoption by such a body. In legislative practice. The term no effect and force of a law. Simple resolutions are used
is usually employed to denote the adoption of a motion, the subject- occasionally to express the opinion of a single house on a current
matter of which would not properly constitute a statute; such as a issue. Oftentimes, it is also used to call for a congressional action on
mere expression of opinion; an alteration of the rules ; a vote of an issue affecting national interest.
thanks or of censure, etc. In practice. The judgment of a court. In Concurrent.
the civil law. The cancellation or annulling, by the act of parties or A concurrent resolution is usually designated in the Senate as
judgment of a court, of an existing contract which was valid and S. Ct. Res. It is used for matters affecting the operations of both
binding, in consequence of some cause or matter arising after the houses and must be passed in the same form by both of them.
making of the agreement, and not in consequence of any inherent However, they are not referred to the President for his signature,
vice or defect, which, invalidating the contract from the beginning, and they do not have the force of law. Concurrent resolutions are
would be ground for rescission. used to fix the time of adjournment of a Congress and to express
Law Dictionary: What is RESOLUTION? definition of RESOLUTION the “sense of Congress” on an issue.
(Black's Law Dictionary) Joint.
A joint resolution, like a bill, requires the approval of both houses
Resolutions convey principles and sentiments of the Senate or the and the signature of the President. It has the force and effect of a
House of Representatives. These resolutions can further be divided law if approved. There is no real difference between a bill and a joint
into three different elements: resolution. The latter generally is used when dealing with a single
a. joint resolutions — require the approval of both chambers of item or issue, such as a continuing or emergency appropriations bill.
Congress and the signature of the President, and have the Joint resolutions are also used for proposing amendments to the
force and effect of a law if approved. Constitution.
b. concurrent resolutions — used for matters affecting the
operations of both chambers of Congress and must be Validity of statute.
approved in the same form by both houses, but are not Every statute passed by legislature is presumed to be valid because
transmitted to the President for his signature and therefore the legislature is supposed to have considered the question of its
have no force and effect of a law. validity before approving it. In cases of doubt, the court resolves in
c. simple resolutions — deal with matters entirely within the favor of its validity. Presumption of constitutionality, in deference to
prerogative of one chamber of Congress, are not referred to the wisdom, integrity and patriotism of the legislature, all
the President for his signature, and therefore have no force reasonable doubts are ruled in favor of constitutionality. To doubt is
and effect of a law. to sustain.
Kinds of resolutions.
Simple. Presumption of constitutionality.
It is usually designated with P. S. Res. A simple resolution deals The presumption is always in favor of constitutionality. However, if
with matters entirely within the prerogative of one house of the statute is really
Congress, such as adopting or receiving its own rules. A simple unconstitutional, the courts are not only authorized but must
16
declare its unconstitutionality. The the House Committee on Justice which ruled that it was sufficient in
court must see to it that the other departments have not exceeded form but dismissed it for not being sufficient in substance. But the
their constitutional authority. (Essence of Separation of Powers and Committee Report was not sent to the House in plenary. In October
System of Check and Balance) 2003, a second impeachment complaint was filed against CJ Davide.
Trial Courts have jurisdiction to initially decide the issue of CONTENTION OF RESPONDENTS: The Supreme Court is without
constitutionality of a law in appropriate cases. jurisdiction to hear, much less prohibit or enjoin the lower house to
perform its constitutionally mandate duty to initiate impeachment
Article VIII, Section 4 (2), 1987 Constitution – Supreme Court en proceedings, it being a co-equal and independent branch of the
banc, concurrence of majority of its members who actually took part government. The Senate has the sole power, authority and
in the deliberations and voted jurisdiction to try and decide impeachment cases. The petition are
premature, no justiciable issue has been presented before it since
Essential requisites for judicial review. its constitutional duty to constitute itself as impeachment court
1. Existence of an appropriate case/actual case commences only upon receipt of the Articles of Impeachment, which
(controversy) it had not.
2. An interest personal and substantial by the party raising ISSUE: Whether the essential requisites for the exercise of judicial
the constitutionality (Locus standi/legal standing) review have been fulfilled?
3. The plea that the function be exercised at the earliest In answering the issue, the Supreme Court addressed the
opportunity/ Raised at the earliest opportunity following requisites for the exercise of judicial review:
4. The necessity that the constitutional question to be LOCUS STANDI, RIPENESS, POLITICAL QUESTION/JUSTICIABILITY/
passed upon in order to decide the case (lis mota) JUDICIAL RESTRAINT.
LIS MOTA : Courts will deal with constitutionality issue only if it is
unavoidable, very crux of the controversy LOCUS STANDI, DEFINED. Personal or substantial interest in the
case such that the party has sustained or will sustain direct injury.
Illustrative case: Francisco Jr., v House of Representatives,
G.R. No. 160261, Nov 10, 2003 CONTENTION OF SORIANO: Only the Chief Justice has sustained
or will sustain injury (?)
FACTS: In June 2003, Joseph Estrada filed an impeachment
complaint against CJ Davide and 7 other associate judges for CONTENTION OF PETITIONERS: They sue in their respective
culpable violation of the Constitution, betrayal of public trust and capacities as taxpayers, citizens, voters, legislator, association. As
other high crimes. It was endorsed by 3 legislators are referred to such, they stand to suffer injury.
17
POLITICAL QUESTION, DEFINED: Refers to those questions
WHAT TO SHOW IF YOU PETITION AS A CITIZEN: The law or which, under the Constitution, are to be decided by the people in
government act is invalid, sustains or is in imminent danger to their sovereign capacity, or in regard to which full discretionary
sustain direct injury as a result of its enforcement, interest must be authority has been delegated to the legislature or executive branch
direct and personal, if it is an assertion of a public right, the mere of the government. It is a question of policy, concerned with wisdom
fact that he or she is a citizen satisfies the requirement. and not legality.
EXCEPT: Grave abuse discretion amounting to lack or excess of
WHAT TO SHOW IF YOU PETITION AS A TAXPAYER: Sufficient jurisdiction.
interest in preventing illegal expenditure of public funds, sustains DETERMINATION OF IMPEACHABLE OFFENSE: Purely political
direct injury as a result of the enforcement of the invalid law, public question left to the sound discretion of the legislature.
funds are either illegally disbursed, deflected to any improper LIS MOTA, DEFINED: Courts will touch the issue of
purpose, wasted through enforcement of an invalid or constitutional constitutionality unless it is unavoidable or is the very crux of the
law. controversy. Whether Section 15 or 16 of Rule 5 of the House
Impeachment Rules are unconstitutional for violating Section 3,
WHAT TO SHOW IF YOU PETITION AS LEGISLATOR: Article XI of the Constitution?
Infringement of prerogatives as legislator, Standing to maintain - Whether, as a result, the second impeachment is
inviolate prerogatives, powers and privileges vested by the barred under
Constitution in his office. Section 3 (5), Article XI of the Constitution?
CONTENTION OF SALONGA: There is no urgent need for the - Under Section 16, impeachment proceedings are
Constitution to act right away. Anyway, it is the final arbiter of “deemed
questions on constitutionality. All remedies in the House and Senate initiated” on the day the House Committee on Justice finds that the
should first be exhausted. verified complaint is sufficient in substance.
POSITION OF DEAN PANGALANGAN: The Supreme Court should CONTENTION OF RESPONDENTS: Since the first impeachment
take judicial of on-going attempts to encourage signatories to complaint was dismissed for being insufficient in substance, it was
withdraw their endorsement. House Impeachment Rules afford its not deemed initiated hence the second impeachment complaint is
members opportunity to raise constitutionality issues when the allowed. “Initiate” does not mean “to file”.
Articles of Impeachment are presented to the Senate. Even if the HELD: “Initiate” means filing of the impeachment complaint and
Articles of Impeachment are transmitted to the Senate, the Chief referral to the House Committee on Justice or filing by at least 1/3
Justice may still move to dismiss on ground of constitutional of the House of Representatives with the Secretary General of the
infirmity. House. Once initiated, no other impeachment complaint shall be
HELD: The withdrawal of signatures neither cures the House filed against the same official for a period of one year.
Impeachment Rules of its Constitutional defect nor obliterates the JUDICIAL RESTRAINT:
questioned second impeachment complaint. It is useless to seek CONTENTION OF PIMENTEL: The SC should exercise judicial
remedies from either the lower or upper house because it has no restraint because the Senate, as an impeachment court, has the
jurisdiction to the rule on the issue of constitutionality. sole power to hear and decide all impeachment cases.
18
CONTENTION OF DE VENECIA: There is a moral compulsion for the (OVERBREADTH DOCTRINE : Doctrine of overbreadth. Consti. Law. [A]n
Supreme Court to not assume jurisdiction because its members are exception to the prohibition against third-party standing, [the doctrine] permits
subject to the impeachment. a person to challenge a statute on the ground that it violates the [free speech]
HELD: The power of judicial review includes the power to review rights of third parties not before the court, even though the law is constitutional
justiciable issues in impeachment proceedings.SC together with all as applied to that defendant. In other words, the overbreadth doctrine provides
other courts has long held and been entrusted with the judicial that: “Given a case or controversy, a litigant whose own activities are
power to resolve conflicting legal rights regardless of the unprotected may nevertheless challenge a statute by showing that it
substantially abridges the [free speech] rights of other parties not before the
personalities involved in the suits or actions.
court.” [Chemerinsky, Consti. Law, p. 86, 2nd Ed. (2002)]. Compare with
Doctrine of void for vagueness.
Test of constitutionality of statutes.
19
Article 7, Civil Code. SEPARABILITY CLAUSE: intent of separability, rather than complete
Operative fact. nullity. The presence of separability clause creates the presumption
An unconstitutional law confers no right, is not a law, imposes no that the legislature intended separability, rather than complete
duties, affords no protection; in legal contemplation, it is nullity of the statute.
inoperative, as if it had not been passed.
Tatad v Secretary of Department of Energy, 281 SCRA 330
Article 7, Civil Code: (1997) (Separability Clause)
Operative Fact Doctrine: As a general rule, the nullification FACTS: The Supreme Court declared unconstitutional 3 provisions of
of an unconstitutional law or act carries with it the illegality of its RA 8180 or An Act Deregulating the Downstream Oil Industry—the
effects. However, in cases where the nullification of its effects ill provisions on 4% tariff differential, minimum inventory and
result in inequity and injustice, the operative fact doctrine may predatory pricing which were declared anti-competition. These
apply, and the effects of the unconstitutional act will have to be provisions are the key provisions of RA 8180.
recognized. Existence of statute prior to nullity, is an operative fact ISSUE: Whether the nullity (striking down) of the 3 provisions of the
that must be recognized, statute was in force and complied with and law infect the entire law even with the presence of the Separability
so parties have already acted under it. Clause?
HELD: YES. Because to decree partial unconstitutionality of RA 8180
(2) Modern view. will bring about absurdity. Separability Clause is not binding with
The court in passing upon the question of constitutionality does not the Supreme Court. Separability clause only creates a presumption
annul or repeal the statute if it is unconstitutional, it simply refuses of that the act is severable. It is merely an aid in statutory
to recognize it and determines the rights of the parties just as if the construction. IT is not an inexorable command. A separability clause
statute had no existence. It does not repeal, supersede, revoke or does not clothe the valid parts with immunity from the invalidating
annul the statute. The parties to the suit are concluded by the effect the law gives to the inseparable blending of the bad with the
judgment, but no one else is bound. good. The Separability clause cannot also be applied if it will
produce an absurd result. In sum, if the separation of the statute
Partial invalidity. will defeat the intent of the legislature, separation will not take place
despite the inclusion of a separability clause in the
The general rule is that where part of a statute is void as repugnant
to the Constitution, while another part is valid, the valid portion if
separable from the invalid, may stand and be enforced must be
complete and intelligible to enforce legislative intent.
20
MIDTERMS
22
according to the letter of a statute, which recognizes nothing that is is liberal construction and is a legitimate exercise of judicial power.
not expressed, takes the language used in its exact meaning, and The latter is judicial legislation forbidden by the tripartite division of
admits no equitable consideration. It does not mean giving a statute powers among the three departments of government, the executive,
its narrowest meaning of which it is susceptible. Nor does it mean the legislative and the judicial. A statute may not be liberally
that words shall be so restricted as not to have their full meaning. construed to read into it something which its clear and plain
Scope of statute shall not be extended or enlarged by implication, language rejects.
intendment, or equitable consideration beyond the literal meaning of
Statutes in derogation of common rights, how construed.
its terms.
Statutes in derogation of rights.People in republican state enjoy
Liberal construction, defined.Liberal constructions means such certain rights, which are either inherent or guaranteed by the
equitable construction constitution or protected by law; rights are not absolute, and the
state, in the exercise of its police power, may enact legislations
as will enlarge of a statute to accomplish its intended purpose, carry curtailing or restricting their enjoyment. As these statutes are in
out its intent, or promote justice. It does not mean enlargement of derogation of common or general rights, they are generally strictly
a provision which is clear, unambiguous and free from doubt, for a construed and rigidly confined to cases clearly within their scope or
statute which is plain and clear is not subject to construction. Liberal purpose.; two reasonably possible constructions, one which would
construction is that construction which expands the meaning of a diminish or restrict fundamental right of the people and the other of
statute to meet cases which are clearly within the spirit or reason which would not do so, the latter construction must be adopted so
thereof or within the evil which the statute was designed to remedy, as to allow full enjoyment of such fundamental right.
or which give the statute its generally accepted meaning to the end
that the most comprehensive application thereof maybe accorded, In case of doubt, strictly construed against the law in favor of
common rights.
without being inconsistent with its language or doing violence to any
of its terms. Liberal construction means that the words should
receive a fair and reasonable interpretation, so as to attain the Common rights, examples.
intent, spirit and purpose of the law. Personal liberty, property, freedom of contract, exercise of
any trade or profession
Liberal construction applied, generally.The literal meaning of the
Statutes prescribing formalities of wills, how construed.
words used may be rejected
Statutes prescribing formalities of will.Statutes prescribing the
if the result of adopting said meaning would be to defeat purpose of formalities to be observed in the execution of wills are strictly
the law. Liberal interpretation so as to save the statute from construed, ; a will must be executed in accordance with the
obliteration, ut res magis valeat quam pereat. Construction by this statutory requirements, otherwise it is entirely void. ; apply the
nature and the act of the court in engrafting upon a law something intent of the legislators and not that of the testator, and the latter‘s
which its believes ought to have been embraced therein. The former intention is frequently defeated by the non-observance of what the
23
statute requires. exemptions from taxation. Laws granting tax exemptions are thus
construed strictissmi juris against the taxpayer and liberally in favor
In case of doubt, strictly construed against the validity of the will of the taxing authority. Taxation is the rule and exemption is
since the testator is already dead. “Dead men tell no tale”. Failure theexception. The burden of proof rests upon the party claiming
to comply with required written formalities. Fatal. The will cannot be exemption to prove that it is in fact covered by the exemption so
admitted to probate. claimed. Statutes granting tax exemptions are construed strictissimi
juris against the taxpayer and liberally in favor of the taxing
Naturalization laws, how construed.
authority. Basis – to minimize the different treatment and foster
Laws on naturalization are strictly construed against an applicant for
impartiality, fairness and equality of treatment among taxpayers.
citizenship and rigidly followed and enforced. ; right of an alien to
For exemptions from taxation are not favored in law, nor are they
become a citizen by naturalization is a statutory rather that a
presumed. They must be expressed in the clearest and most
natural one, and it does not become vested until he files a petition
unambiguous language and not left to mere implications.
and establishes by competent and satisfactory evidence that he has
―exemptions are never presumed, the burden is on the claimant to
all the qualifications and none of the disqualifications specified by
establish clearly his right to exemption and an alleged grant of
law.
exemption will be strictly construed and cannot be made out by
inference or implications but must be beyond reasonable doubt. In
In case of doubt, strictly construed in favor of the government
other words, since taxation is the rule and exemption the intention
against the applicant. Requirements for naturalization must be
to make an exemption ought to be expressed in clear and
complied to the letter to ensure that undesirable aliens are not
unambiguous terms.
naturalized.
Stature conferring the right of eminent domain, how In case of doubt, strictly against the taxpayer. Taxation is the
construed. lifeblood of the government.
In case of doubt, against the government. It derogates private Prospective and retrospective interpretation, distinguished.
rights to property and ownership. Prospective- applies to such facts and causes after its enactment.
Retrospective – applies to such facts and causes before its
Statutes granting rights to laborers, how construed. enactment.
General rule: statutes are construed prospectively unless clearly
In case of doubt, liberally construed in favor of labor, Labor law is stated otherwise in the statute.
social legislation.
In case of doubt, resolved against retrospective effect, in favor of
Statutes granting tax exemptions, how construed. prospective construction.
Statutes granting tax exemptions.Taxes are what the people pay for Prospective statute – is a statute which operates upon acts and
civilized society; lifeblood of the nation. The law frowns against
24
transactions which have not occurred when the statute takes effect, RPC).
that is, which regulates the future.
PROCEDURAL LAWS ARE RETROSPECTIVE
Retrospective or retroactive law – is one which takes away or
impairs vested rights acquired under existing laws, or creates new Statutes regulating the procedure of the Court will be construed as
obligations and imposes new duties, or attaches new disabilities in applicable to actions pending and undermined at the time of their
respect of transaction already past. passage. However, Rules of Procedure should not be given
retroactive effect if it would result in great injustice and impair
A sound canon of statutory construction is that statutes operate substantive right.
prospectively only and never retrospectively, unless the legislative
intent to the contrary is made manifest either by the express terms Procedural provisions of the Local Government Code are
The Civil Code of the Philippines follows the above rule thus: Laws CURATIVE STATUTES
PENAL STATUTES reason of some statutory disability or failure to comply with some
25
- Creates new obligations.
- Imposes new duties. Test whether prohibition against ex post facto clause is
- Attaches disability in respect of transactions or violated.
consideration already past
- Does the retroactive application of the law take from
Ex post facto law. the accused any right that was regarded at that time
Rule: No ex post facto laws shall be enactedMakes an act done as vital for the protection of life and liberty?
before the passage of the law and which is innocent when done, and
punishes such act.Applies only to criminal or penal matters and not
to civil laws
26
- Amendatory statute which renders an illegal act prior Dura lex sed lex.
to enactment legal is generally given retroactive the law may be harsh, but it is still the law
effect unless it is expressly provide that such statute
The reason for the rule is that the legislature must be presumed to
will not apply retroactively
know the meaning of the words, to have used the words advisedly
-
and to have expressed its intent by the use of such words as are
found in the statute
Bill of Attainder, defined.
Legislative act which inflicts punishment without judicial trial Ratio legis.
Rule: No bill of attainder shall be enactedBill of attainder is a In construing a statute, the court looks into the spirit and reason of
legislative act, which inflicts punishment the law. If adherence to the letter of the law leads to absurdity,
injustice, contradictions or defeat the plain purpose of the law Ratio
without judicial trial.If a law is bill of attainder, it is an ex post facto legis applies.
law. If it is not an ex post facto law, it is not a bill of attainder. Apparent inaccuracies and mistakes in mere verbiage or
phraseology will be overlooked to give effect to the spirit of the law.
-Bills of pains and penalties – if the punishment be less WHAT IS WITHIN THE SPIRIT IS WITHIN THE LAW The spirit of the
than death. law controls the letter.Ratio legis – reason of the law
Courts look into the following: object to be accomplished, evils and Where a statute describes things of particular class or
mischief to be remedied. Purpose to be observed..
kind accompanied by words of a generic character, the
Statute liberally construed to serve its purpose even if its literal
interpretation says otherwise. When the language of a particular generic words will usually be limited to things of a kindred
provision of law admits of two interpretations, the one that gives nature with those particularly enumerated, unless there be
effect to the intent must be followed. something in the context of the statute to repel such
inference.
The courts look into the object to be accomplished, the evils and
mischief to be remedied or the purpose to be observed. The court Ejusdem generis, purpose.
should give the statute a reasonable or liberal construction which Gives effect – both specific ad general words. Particular words
will best effect its purpose rather than one which will defeat it even
indicate the class and the general includes all embraced in said class
though such construction is not within the strict literal interpretation
although not specifically named.
of the statute.
Purpose: give effect to both the particular and general words, by
The court should give the statute a reasonable or liberal treating the particular words as indicating the class and the general
construction which will best effect its purpose rather than one which
words as indicating all that is embraced in said class, although not
will defeat it.
specifically named by particular words.
Statutes must be construed to avoid injustice
This principle is based on the proposition that had the legislature
intended the general words to be used in their generic and
Ejusdem generis.
unrestricted sense, it would not have enumerated the specific
Where general term follows particular things, the general term is
words.
construed to include those things or persons of the same class as
those specifically enumerated. Example: Trustees, agents,
Application: where specific and generic terms of the same nature
attorneys-at-law and other persons.
are employed in the same act, the latter following the former.
“other persons” – only such persons in similar position o trust like
guardians
While general words or expressions in a statute are, as a rule, Reddendo singular singulis.
accorded their full, natural, and generic sense, they will not be given The variation of the doctrine of last antecedent is the rule of
such meaning if they are used in association with specific words or reddendo singular singulis. The maxim means referring each to
phrases. General rule is that where a general word or phrase follows each; referring each phrase or expression to its appropriate object,
an enumeration of particular and specific words of the same class or or let each be put in its proper place, that is, the words should be
where the latter follow the former, the general word or phrase is to taken distributively.
be construed to include, or to be restricted to, persons, things, or
cases akin to, resembling, or of the same kind or class as those Reddendo singular singulis requires that the antecedents and
28
consequences should be read distributively to the effect that each Expressum facit cessare tacitum
word is to be applied to the subject to which it appears by context
most appropriately related and to which it is most applicable. b. General expression followed by exceptions therefrom
implies that those which do not fall under the exceptions
Doctrine of collocation. come within the scope of the general expression.
Lacuna V Abes, 133 Phil. 770, 773-774 (1968) Exceptio firmat regulam in casibus non exceptis
Association between two words that are typically or
frequently used together where the sentence has several c. Expression of one or more things of a class implies the
antecedents and consequents, they are to be read exclusion of all not expressed, even though all would
distributively have been implies had none been expressed.
Antecedent – a word or phrase that a subsequent or
consequent word refers to. The rule expressio unius est exclusio alterius and its variations are
Consequent – a word or phrase that an antecedent word canons of restrictive interpretation.Basis: legislature would not have
precedes. made specified enumerations in a statute had the intention been not
Example: “Statutory Construction is an easy subject, but the
to restrict its meaning and confine its terms to those expressly
Professor somehow makes it difficult.”
mentioned. They are opposite the doctrine of necessary implication.
Distributive – refers to each member of the group
individually and separately
XIX. Negative-opposite doctrine
Examples of distributive words: “each”, “every” and “either”.
“Statutory Construction is an easy subject, but the Professor
The principle that what is expressed puts an end to that which is
somehow makes it difficult. Each student enrolled in the class may
implied is also known as negative-positive doctrine or argumentum
either pass or fail, without fear or favor.”
a contrario.
29
If a statute enumerates the things upon which it is to operate, Noscitur a sociis.
everything else must necessarily, and by implication, be excluded. Meaning of particular terms in a statute may be ascertained by
reference to words. Associated with or related to them in statute.
XXI. Limitations of rule
Casus omissus.
The rule expressio unius est exclusio alterius is not a rule of law. It Words or phrases may be supplied by the courts and inserted in a
is a mere tool of statutory construction or a means of ascertaining statute. Where it is necessary to eliminate repugnancy and
the legislative intent. inconsistency to complete the sense and give effect to the intent.
Used to supply omissions caused by clerical errors, by accident or
The rule, not being inflexible nor a mechanical or technical tool, inadvertence.
must yield to what is clearly a legislative intent. The rule of casus omissus pro omisso habendus est states that a
person, object or thing omitted from an enumeration must be held
It is no more than an auxiliary rule of interpretation to be ignored to have been omitted intentionally.
where other circumstances indicate that the enumeration was not
intended to be exclusive. Principle proceeds from a reasonable certainty that a particular
person, object or thing has been omitted from a legislative
It should applied only as a means of discovering legislative intent enumeration
and should not be permitted to defeat the plainly indicated purpose
The rule does not apply where it is shown that the legislature did
of the legislature.
not intend to exclude the person, thing, object from the
It will not apply where the enumeration is by way of example or to enumeration. If such legislative intent is clearly indicated, the court
may supply the omission if to do so will carry out the clear intent of
remove doubts only.
the legislature and will not do violence to its language.
It will not apply in case a statute appears upon its face to limit the
operation of its provisions to particular persons or things by
Casus omissus, conditions for application.
enumerating them, but no reason exists why other persons or
-only if palpable and the omitted words are plainly indicated
things not so enumerated should not have been included and
in the context or verifiable from other parts of the statute.
manifest injustice will follow by not including them.
Where the legislative intent shows that the enumeration is not “may”- permissive and operates to confer discretion
exclusive, the maxim does not apply. “shall” – imperative with a duty to enforce
30
Congress earmarked 86 billion for debt servicing and 27 billion for
Use of the word “may” in the statute generally connotes a
education. This was challenged s unconstitutional because Section
permissible thing, and operates to confer discretion while the word 5, Article XIV of the 1987 Constitution says:
“shall” is imperative, operating to impose a duty which may be “ The State shall assign the highest budgetary priority to education
xx”
enforced.
HELD:
While it is true that it mandates Congress to assign the highest
The term “shall” may be either as mandatory or directory depending budgetary priority to education, it does not follow that the hands of
upon a consideration of the entire provision in which it is found, its Congress are so hamstrung as to deprive it the power to respond to
the imperatives of national interest and for the attainment of other
object and consequences that would follow from construing it one
state policies or objectives.
way or the other. The use of the word “shall” is not always mandatory, it may be
construed as merely directory depending on legislative intent or
- Depending upon a consideration of the entire provision, its nature, when the provision involved is not self-executing.
its object, and the consequences that would follow from construing
it one way or the other, the convertibility of said terms either as Special or technical meaning.
mandatory or directory is a standard recourse in statutory Words and phrases having technical or special meaning are
construction. construed in their technical sense.
This applies to terms with established trade, business, commercial
- It is well-settled that the word ―may‖ should be read as ―shall‖
or professional significance.
where such construction is necessary to give effect to the apparent
Exception.
intention of the legislature.
When intended otherwise by Congress or it defeats legislative
intent.
- The word ―may‖ will, as a rule, be construed as ―shall‖ where a
statute provides for the doing of some act which is required by
Illustrative case: Asiatic Petroleum Co., v Collector, 30
justice or public duty, or where it vests a public body or officer with
Phil. 510
power and authority to take such action which concerns the public
FACTS:
interest or rights of individuals.
A tax law provides that “no tax shall be collected on such article
- The word ―shall‖ may be construed as ―may‖ when so required which before the taking effect of this Act, shall have been disposed
of to persons other than manufacturers or wholesale dealer.”
by the context or intention of the legislature. It shall be construed
HELD:
merely as permissive when no public benefit or private right
No. The oil was not “disposed of”. Had the legislature intended
requires that it be given an imperative meaning.
“disposed of” to mean “sold and delivered”, it would have used the
Guingona V Carague, GR No. 94571, April 22, 1991 latter phrase. The legislative evidently took into consideration the
FACTS: custom of merchants in using the phrase of “in its commercial and
not technical sense.”
31
Rules for language
Conjunctive “and” and disjunctive “or”. The system of rules by which words are formed and put together to
make sentences.
“And” means conjunction connecting words or phrases expressing
Grammar, what rules apply.
the idea that the latter is to be added or taken along with the first. Ordinary rules of grammar to determine legislative intent.
Conjunctive article. Grammar, limitation.
Not conclusive if it defeats legislative intent.
indicating an alternative.
32
law non-sensical. It must be corrected by the court as it is duty
Intrinsic aids are resorted to only if there is ambiguity. In resorting to intrinsic aids,
bound to give statute a sensible construction.
A man wrote a book entitled “How to Change your Life”. He was one must go back to the parts of the statute: the title, the preamble, context or body,
uncertain if it sells, since it appears predictable, as many other chapter and section headings, punctuation, and interpretation.
books of similar theme were already published prior to it. To his
surprise, 10 million copies were sold on the first week they were out
in the market. It turned out the title was inadvertently made “How GENERALLY : Where the meaning of a statute is ambiguous, the court may avail itself
to Change your Wife”. of all legitimate aids to construction in order that it can ascertain the true intent of
the statue.
Foreign language.
Revised Penal Code was approved in its Spanish text but translated
to English. In case of doubt, the Spanish prevails. Intrinsic aids, enumerated.
Context
FACTS: Punctuation and capitalization
Congress earmarked 86B for debt servicing and 27B for education. Language or lingual text
This was challenged as unconstitutional because Section 5, Article Title
XIV of the Constitution says “Congress is mandated to assign the Chapter, article and section headings
highest budgetary priority to education” in order to “ insure that Marginal notes
teachings will attract and retain its rightful share of the best Preamble
available talents through adequate remuneration and other means Legislative definitions and interpretative clauses
of job satisfaction and fulfillment,” it does not thereby follow that
Self-executing provisions: does not need an enabling law
PRE-FINALS:
Context
VI. INTRINSIC AIDS IN CONSTRUCTION The text surrounding word or passage. Words phrases or passages that come before
and after a particular word or passage in a speech or piece of writing and help
explain its full meaning.
Intrinsic aids, defined.
They must be taken as a whole and in relation to one another.
In the printed page of the statute itself, you always see them within the face of the
Reason for the rule: The statute is enacted as a whole and not in parts or sections.
statute
Purpose of the rule: To give proper emphasis to each provision and avoid giving
The term “intrinsic” means internal or within. Intrinsic aids, therefore, are those aids undue emphasis or effect to particular words, clauses, parts or group of words.
33
If context admits of two interpretations: The one which tends to give effect to the Coma – separate words
manifest object of the law should be adopted.
Semicolon – separate words, more pronounced, more emphatic than coma
Reason why construe the law in its entirety? Because the law was enacted also in its
entirety and it is not a piece by piece legislation Period – separates a sentence
Legislative intent should accordingly be ascertained from a consideration of the
Article VII, Section 16, 1987 Constitution
whole context of the stature and not from an isolated part of particular provision
“Section 16. The President shall nominate and, with the consent of the Commission
(Aboitiz Shipping Corp. v. City of Cebu).
on Appointments, appoint the heads of the executive departments, ambassadors,
other public ministers and consuls, or officers of the armed forces from the rank of
The best source from which to ascertain the legislative intent is the statute itself –
colonel or naval captain, and other officers whose appointments are vested in him
the words, phrases, sentences, sections, clauses, provisions – taken as a whole and in
in this Constitution. He shall also appoint all other officers whose appointments are
relation to one another. (Commissioner of Internal Revenue v. TMX Sales)
not otherwise provided by law, and those whom he may be authorized by law to
appoint. The Congress may, by law, vest the appointment of other officers lower in
Punctuation - aids of low degree and can never control the intelligible
rank in the President alone, in the courts, or in the heads of departments, agencies,
meaning of written words; may be used to clear ambiguities.
commissions, or boards.
The President shall have the power to make appointments during the recess
Punctuation marks are aids of low degree and can never control against the
of the Congress, whether voluntary or compulsory, but such appointments shall be
intelligible meaning of written word. The reason is that punctuation marks are not
effective only until disapproval by the Commission on Appointments or until the next
part of a stature; nor are they part of the English language (Feliciano v. Aquino). adjournment of the Congress.
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(b) But in case of ambiguity, omission, or mistake, the Spanish text may be WHEN THE TEXT OF THE STATUTE IS CLEAR AND FREE FROM DOUBT, IT IS
consulted to express the English text. IMPROPER TO RESORT TO ITS TITLE TO MAKE IT OBSCURE.
(c) If statute is officially promulgated in Spanish, English or in Filipino with
translations into other languages, the language in which it is written
(promulgated) prevails over its translation. Language of promulgation POE V COMELEC, G.R. No. 221697, March 8, 2016
prevails over language in translation.
(d) In the interpretation of a law administrative issuance promulgated in all Chapter, article and section headings
the official languages (Filipino), the English text shall control, unless
otherwise specifically provided. In case of ambiguity, omission or other Head Notes or epigraphs – convenient index to the content of its
mistake, the other texts may be consulted. For consultation only, provisions.
merely persuasive, not binding, only in case of doubt. (a) In case of doubt or ambiguity in the meaning of the
law or the intention of the legislature, they may be consulted in aid or interpretation.
Local ordinances should be translated in the vernacular (especially if it is penal in
character) because there is a requirement there so as not to violate due process so (b) They are not part of the law thus, they can never control the plain terms of the
that that it can be readily understood by the constituents and they cannot use it as a enacting clauses.
defense that they did not understand what was being posted with regard to the law
if it is written or promulgated in English. (c) When the text of the statute is clear and unambiguous, there is neither necessity
nor propriety to resort to headings and epigraphs for the interpretations of the text.
If promulgated both in English and Spanish language. English prevails.
(d)These secondary aids may be consulted to remove, but not to create, doubt nor to
limit or control the plain language of the law.
Title.
May resolve doubts as to its proper construction by extending or restraining its Marginal notes
purview or by correcting an obvious error. In case of doubt, resort may be had to the Marginal notes and heading summarize the effect of sections of an Act
title to determine legislative intent because it normally indicates it. where the wording of either marginal notes or headings seem to have a
contradictory meaning to the wording of the main body of an Act, the wording of the
Limitation: Not controlling, if the body of the statute is free from ambiguity, no resort main body of an Act should be followed. Marginal notes and headings are inserted
to the title. Need not be an index of contents of the law but it carries weight because when Act goes for printing during its progress through Parliament; so are a little
unreliable as an indication of Parliament’s will.
of the one title – one subject matter rule.
Notes written in a margin, usually handwritten and initialed.
1. It serves as aid in case of doubt in its language, to its construction and
ascertaining legislative will. Marginal notes, limitation: Resorted to only when such notes were in fact inserted
2. Used by the court to clear the obscurity. under the authority of the legislature (needs approval from Congress).
3. An aid when there is doubt as to the meaning of the law.
Preamble.
35
Introductory explanation. Not an essential part of the statute. May explain and still there remain some ambiguity in the statute.
ambiguities but not conclusive or controlling.
Extrinsic aids resorted to by the courts are history of the enactment of the statute;
opinions and rulings of officials of the government called upon to execute or
Preamble, purpose: The key to the statute. To open the minds of the makers as to
implement administrative laws; contemporaneous construction by executive officers;
the mischiefs to be remedied and objectives to be accomplished by the provision of actual proceedings of the legislative body; individual statements by members of
the statute. congress; and the author of the law.
1. That part of the statute written immediately after its title, which states the Other sources of extrinsic aids can be the reports and recommendations of legislative
purpose, reason or justification for the enactment of the law. committees; public policy; judicial construction; and construction by the bar.
2. Expressed in the ‘Whereas clause’
3. Usually omitted in statutes made by the congress. In its place, these an aid
in legislative bodies used the explanatory note to explain the reasons for the Extrinsic aids, where found.
enactment of statutes. Extraneous facts and circumstances outside the printed page of the statute
4. Not an essential part of a statute.
(a) Thus, where the meaning of a statute is clear and unambiguous, the Extrinsic aids, enumerated.
preamble can neither expand nor restrict its operation, much less History or realities existing at the time of the passage of the law
prevail over its text. Legislative proceedings
(b) It cannot be used as basis for giving a statute a meaning not apparent Changes in phraseology
on its face. Prior laws and judicial decisions
5. It may clarify ambiguities (thus it is the key of the statute) Contemporaneous and construction
6. It may express the legislative to make the law apply retroactively, in which Consequences of alternative interpretations
case the law has to be given retroactive effect, so as to carry out such intent Objects
(PNB v Office of the President) Purpose
Expediency
Legislative definitions and interpretative clauses. Occasion and necessity
Such definition or construction should be followed by the Courts. Statutory definition Remedy provided
supersedes the commonly accepted or a previous judicial definition. Conditions of the country to be affected
And other extrinsic matters
VII. EXTRINSIC AIDS IN CONSTRUCTION Resort to extrinsic aids, when.
Extrinsic aids are resorted to after exhausting all the available
Extrinsic aids, defined. intrinsic aids and still there remain some ambiguity in the statute.
These are existing aids from outside sources, meaning outside of the four corners of
If all the intrinsic aids have been availed/exhausted and the ambiguity
the statute. If there is any doubt as to the meaning of the statute, the interpreter
must first find that out within the statute. remains
Extrinsic aids therefore are resorted to after exhausting all the available intrinsic aids Extrinsic aids resorted to by the courts are:
36
a. History of the enactment of the statute; Contemporaneous construction is the construction placed upon the statute by an
b. Opinions and rulings of officials of the government called upon executive administrative officer called upon to execute or administer such statute.
to execute or implement administrative laws;
c. Contemporaneous construction by executive officers charged
with implementing and enforcing the provisions of the statutes Legislative history.
unless such interpretation is clearly erroneous; It is a well-settled rule of statutory construction that where a statute
d. Actual proceedings of the legislative body; is susceptible of several interpretations where there is ambiguity in
its language, there is no better means of ascertaining the will and
e. Individual statements by members of congress; and
intention of the legislature than that which is afforded by the history
f. The author of the law Other sources of extrinsic aids are: of the statute. Generally speaking, the history of a statute refers to
all its antecedents from its inception until its enactment into law. Its
Contemporaneous circumstances. history proper covers the period and the steps done from the time
Courts may resort to contemporaneous construction or that put upon it at the time the bill is introduced until it is finally passed by the legislature.
of its passage or soon afterwards and universally acquiesced in and acted upon.
WHERE A STATUTE IS SUSCEPTIBLE OF SEVERAL
INTERPRETATIONSOR WHERE THERE IS AMBIGUITY IN ITS
Facts and circumstances existing at the time of, and leading to the enactment of the LANGUAGE, THERE IS NO BETTER MEANS IF ASCERTAINING THE
statute such as: WILL AND INTENTION OF THE LEGISLATURE THAN THAT WHICH IS
History of the times AFFORDED BY THE HISTORY OFTHE STATUTE.
Contemporaneous customs
The state of the existing law Legislative History, scope.
Evils to be remedied
Covers introduction of the bill in the legislature up to its final
Remedy provided passage
Example: Riding in tandem ordinance wherein if you are looking from the
outside you can never understand the sense of banning two people riding in Legislative history, what it includes.
a motorcycle, unless you know the contemporaneous circumstance that led
to the enactment of that particular enactment President’s message
Explanatory note accompanying the bill
Committee reports of the legislative investigations and public hearings of the
Contemporary Construction subject of the bill
Definition: these are construction placed upon statutes at the time of, or after, their Sponsorship speech
enactment by the executive, legislature or judicial authorities, as well as those who, Debates and deliberations
because of their involvement in the process of legislation, are knowledgeable of the Amendments and changes in phraseology
intent and purpose of the law.
WHAT CONSTITUTES LEGISLATIVE HISTORY
Contemporanea exposition est optima et fortissimo in lege - the contemporary A. all antecedents from the statutes inception until its enactment
construction is strongest in law. (Contemporaneous construction, degree as aid.) into law.
37
(a) Includes the presidents message if bill was enacted in response donations from 3rd party donors are included to check if that candidate has overspent
thereto or underspent.
Reports & Recommendation of legislative committees. The opinion and views expressed by the legislators during floor deliberations of a bill
Lucrative source of information helpful in construction provided: they are recorded may not be given weight at all in any of the following instances:
in the journal (a) Where the circumstances indicating meaning of a statute other than
Limitation: Committee Reports are not controlling, may not be considered to clear an that expressed by the legislators
ambiguity. (b) Where the views expressed were conflicting
(c) Where the intent deducible from such views is not clear
Reports of commissions (d) Where the statute involved is free from ambiguity
(1) Commissions – are usually formed to compile or collate all laws on a
particular subject and to prepare the draft of the proposed code. WHERE TWO OR MORE STATUTES RELATING TO THE SAME SUBJECT MATTER WERE
(2) Special commissions were created to draft the text of the RPC and Civil ENACTED BY DIFFERENT ASSEMBLIES, NEITHER IS QUALIFIED TO SPEAK ABOUT THE
Code. INTENT OF THE OTHER.
Legislative debates, views and deliberations. Illustrative case: POE VS COMELEC, G.R. No. 221697, March 8, 2016
Useful in interpretation provided they show common agreement among the
members of the legislature as to the meaning of an ambiguous provision Public Policy
Policy which induced its enactment or which was designed to be promoted is a
Look into the end result, find out what the intent proper subject for consideration.
Adopted statuesThe general rule is that where local statues are
Legislative debates, limitation. pattered after or copied from those of another country, the decision
Not safe guides to ascertain the meaning and purpose of the law. They express only of the courts in such country construing those laws are entitled to
great weight in the interpretation of such local statues and will be
the views and opinions of the individual members of the legislature and do not
generally followed if found reasonable and in harmony with justice,
necessarily reflect the view of Congress as a whole.
public policy and other local statues on the subject.Example of such
Courts may avail themselves of the actual proceedings of the legislative body to statues:
assist in determining the construction of a statute of doubtful meaning. They may
resort to the legislative deliberation in the legislature on a bill which eventually was RULE: An Amendment of a statute indicates a change in meaning
enacted into law to ascertain the meaning of its provisions. Thus, where there is from that which the statute originally had.
doubt as to what provision of a statute means, that meaning which was put to the
(a) corporation law
provision during the legislative deliberation or discussion on the bill may be adopted.
(b) tax code
(c) labor laws
Legislative debate- may be resorted to when there is doubt as to what a provision of (d) naturalization law
a statute means. However, the views expressed by the legislators during (e) Rules of court
Limitations of the rule:where the local law and id the foreign statute
39
from which the former was patterned differ in some material aspects enactment creating or changing a governmental agency, the action of the agency
foreign construction is clearly erroneous or has not become settled would not be disturbed by the courts.
where the adopting state has given the statute its own
interpretation
Reason why contemporaneous construction is given much weight: it comes from the
Construction by executive officers. particular branch of government called upon to implement the law thus construed –
(Executive Construction) is the construction by an executive or administrative officer these same people are the drafters of the law they interpret.
directly called to implement the law. The opinions and rulings of officials of the
government called upon to execute or implement administrative laws command When to disregard Contemporaneous construction. CC is not binding upon the court.
much respect and weight. An interpretation embodied in a circular, directive or The court may disregard it:
regulation is an expressed interpretation. 1. Where there is no ambiguity in the law
2. Where the construction is clearly erroneous
Construction by executive officers, forms. 3. Where strong reason to the contrary exists
Executive and administrative officers are generally the very first official to interpret 4. Where the court has previously given the statue a different interpretation
the law. These interpretations are in the form of:
1. Rules and regulations If there is a error in implementation of the law, such error may be corrected. The
2. Circulars doctrine of estoppel does not apply.
3. Directives
4. Opinions and rulings As a rule, erroneous contemporaneous construction creates no vested right on the
part of those who relied and followed such construction. But this rule is not absolute.
Executive construction, kinds. There may be exceptions in the interest of justice and fair play (ex. Tax cases).
1. Construction by an executive or administrative officer directly called to
implement law which may be: Construction of executive officers, value.
(a) Expressed (ex. Interpretation embodied in circulars, directive or Considered and given weight if uniform, consistent, observed and acted on for long
regulation) period of time.
(b) Implied (a practice of enforcement of not applying the statute to certain
situtations) Opinions and rulings of officials tasked to enforce administrative laws command
2. Construction by the Secretary of Justice in his capacity as the chief legal much respect and weight. The duty to enforce the law, which devolves upon the
adviser of the government in the form of opinions. In the absence of the executive branch of the government necessarily calls for the interpretation of its
ruling of a president, the opinions of Sec. of Justice is controlling among ambiguous provisions. Thus, executive and administrative officers are generally the
administrative and executive officials. first officials to interpret the law, preparatory to its enforcement and such
3. Interpretation handed down in and adversely proceeding in the form of a interpretation comes in the form of rules and regulations, circulars, directives,
ruling by an executive office exercising quasi-judicial power. opinions and rulings.
Note: In the absence of error or abuse of power or lack of jurisdiction or grave abuse Executive construction, kinds.
Construction by an executive or administrative officer directly called to
of discretion clearly conflicting with either the letter or the spirit of a legislative
implement the law
40
May be expressed or implied D. The court may nonetheless resolve a moot case where public interest
Example of expressed or implied requires its resolution.
Example of expressed construction – circular, directive or regulation E. Laws are not interpreted in a vacuum, they are always decided based on
Example of implied construction – non-enforcement in certain situations, or facts. Thus, “LAWS ARE INTERPRETED ALWAYS IN THE CONTEXT OF THE
applying it in a particular manner
PECULIAR FACTUAL SITUATION OF EACH CASE. THE CIRCUMSTANCES OF
It is interpretation by usage or practice
TIME, PLACE, EVENT, PERSON AND PARTICULARLY ATTENDANT
Construction by the Secretary of Justice CIRCUMSTANCES SHOULD BE TAKEN IN THEIR TOTALITY SO THAT JUSTICE
In his or her capacity as chief legal adviser CAN BE RATIONALLY AND FAIRLY DISPENSED. (Philippines Today, Inc v NLRC)
Judicial construction
Executive construction, kinds. A judicial decision interpreting a statute is considered in construing similar
Construction by the Secretary of Justice- It is in the form of opinions issued subsequent statutes
upon request of administrative or executive officials who enforce the law.
Doctrine of STARE DECISIS.
Construction by an executive officer exercising quasi-judicial power -It is in 1. Stare decisis et non quieta movere – one should follow past precedents and
the form of a ruling in an adversary proceeding
should not disturb what has been settled.
Reason for such doctrine: the supreme court has a duty not only of interpreting and
Legislative construction.
applying the law but also in protecting the society from needless upheavals. Interest
Legslative interpretation – the legislature may provide an interpretation or
reipublicae ut sit finis litium – interest of then state demands that there be an end to
declaration clause in a statue but they cannot limit or restrict the power granted to
litigation.
courts.
2. A ruling in order to come within the doctrine of stare decision must be
1. While legislative interpretation is not controlling, courts may resort to it to
categorically stated in the issue expressly raised by the parties; must be a
clarify ambiguity in the language.
direct ruling.
2. Such legislative interpretation is entitled of respect especially if the
3. Rulings that are merely sub silencio are merely OBITER DICTUM.
executive department has similarly construed the statute.
4. This doctrine is not absolute because Supreme Court may change or
Legislative construction, form.
abandon a precedent enunciated by it.
Indicated by the language of the later enactments
May be considered, but not controlling. Doctrine of stare decises et non quieta movere.
One should follow precedents and should not disturb what has been settled
Judicial Construction.
Doctrine of stare decisis, when applied.
A. The power and duty to interpret or construe a statue or the Constitution
The ruling must be categorically stated on an issue expressly raised by the
belongs to the judiciary.
parties on an issue expressly raised by the parties
B. Supreme Court construes the applicable law in controversies which are ripe Must be a direct ruling on substantially the same facts.
for judicial resolution.
C. Moot and Academic cases- cases wherein:
1. Purpose has become stale OBITER DICTUM. –an opinion of the court upon some question of law which
2. Where no practical relief can be granted is not necessary to the decision of the case before it; not binding)
3. Which have no practical effect Obiter dictum or obiter dicta
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“other things said” Doctrine of necessary implication & inferences
a passing comment, an observation made by a judge incidental to the case That which is implied in the statute is much a part of it as that which is
being tried expressed
while authoritative, is not binding on future courts under the doctrine of
stare decisis Doctrine of necessary implication, purpose.
An opinion expressed by the court upon some question of law which is not It enables the court to draw inferences from legislative purpose and intent
necessary to the decision of the case before it In such a way as to determine whether certain minor or specific things are
It is not binding as a precedent covered by the general or broad terms used in the statute
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But a scholarship grant is neither necessary not indispensable to the
operation and maintenance of public schools.
Hence, the doctrine of necessary implication does not apply to it
Presumptions, basis.
Logic, experience and common sense.
Presumptions, examples.
Congress acted within the scope of its authority
Against violation of international law
Against extra-territorial operation of statutes
Against unconstitutionality
Against extra-territorial operation of statutes
Against unconstitutionality
Against inconsistency, injustice
Motive of Congress
In favor of beneficial operation of statutes
Against inconvenience, absurdity, and ineffectiveness of statutes
As to public policy
Against irrepealable laws, repeal, unnecessary changes in the laws, implied
repeals
Acquiescence to judicial construction
As to existing laws
As to jurisdiction of courts
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Specific sections or provisions sought to be amended
Example: a provision sought to be amended is quoted, followed by “is
hereby amended to read as follows:
Implied amendment
Does not specify sections or provisions but provides for a general phrase
Amendment, defined.
Amendment, when effective.
Change or modification by addition, deletion or alteration of a statute which survives
15 days following its publication of the OG or a newspaper of general circulation,
in its amended form. If transparent, construction is dispensed with.
unless another date is specified after publication
Express amendment
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Amendment, effect on vested rights. of or by virtue of any law or contract involving Filipino workers for overseas
Does not affect vested rights employment.”
Because it takes effect prospectively Despite E.O. 797, the Labor Arbiter heard the case and decided in favor of
the OFW.
Erectors appealed to thre NLRC but was denied, hence this petition for
special civil action for certiorari.
Contention of erectors: E.O. 797 divested the Labor Arbiter of jurisdiction
over cases arising from overseas employment contract.
Amendment, effect on jurisdiction.
It applies retroactively to affect pending cases pursuant to the ruling in
Jurisdiction over the subject matter is determined by the law in force at the Briad Agro Development Corp vs. Dela Cerna.
time Held: E.O. 797 did not divest the Labor Arbiter with jurisdiction claims
Of commencement of action arising from overseas employment contract.
Once acquired, it cannot be divested by amendatory Act and stays until Jurisdiction over the subject matter is determined by the law at the time of
decided the commencement of the action.
Unless: express prohibitive words or words of similar import are used Prior to the efficacy of E.O. 797, the laws in force were P.D. Nos. 1691 and
it applies to quasi-judicial bodies 1391 which vested the Labor Arbiter with original and exclusive jurisdiction
over these cases.
ERECTORS, INC. v NLRC , 256 SCRA 629 (1996) Laws should be applied prospectively unless the legislative intent to give
Illustrative case: Erectors, Inc. Vs. NLRC, G.R. No. 104215, May 8, 1996, 256 SCRA 629 them retroactive effect is expressly declared or is necessarily implied from
(1996) the language used.
Facts: erectors recruited an Overseas Filipino Worker (OFW) to work as The reliance on the ruling in Briad Agro Development Corp vs. Dela Cerna is
service contract driver in Saudi Arabia for 1 year with a salary of $165 and misplaced.
allowance of $165 a month plus $1,000 renewal bonus. In that case, E.O. 111 amended Article 217 of the Labor Code to widen the
But it was not implemented because the position of service driver was no workers’ access to the government for redress of griecances by giving the
longer available. regional directors and labor arbiters concurrent jurisdiction over money
Thus, they executed another 1 year contract, but for the position of helper/ claims.
laborer with a salary of $105 and allowance of $105 monthly. This amendment however crewated a situation where their jurisdiction
The OFW returned to the country and invoked his first contract, demanding overlapped.
for the difference in his salary and allowance plus contractual bonus for not As a remedy, R.A. 6715 delineated their respective jurisdiction.
availing of his vacation or home leave credits As such, E.O. 111 and R.A. 6715 are curative statutes which retroactive
But this was denied by Erectors. application is an exception to the general rule on prospective application of
On March 31, 1982, the OFW filed with the Labor Arbiter a complaint laws.
against Erectors for underpayment of wages and non-payement of overtime Curative statutes are enacted to cure the defects in a prior law or to validate
pay and contractual bonus. legal proceedings, instruments or acts of public authorities which would
On May 1, 1982 however, while the case was still in conciliation stage, E.O. otherwise be void for want of conformity with certain existing legal
No. 797 creating the Philippine Overseas Employment Administration requirements.
(POEA) took effect. E.O. 797 is not a curative statute. It was not intended to remedy any defect
It vested the POEA with “exclusive and original jurisdiction over all cases, in the law.
including money claims, involving employer-employee realtions arising out It should thus be applied prospectively and should not affect jurisdiction
over cases filed prior to its efficacy.
46
Insertion of new provisions – does not alter the construction of previous
Erectors, Inc. Vs. NLRC Acts unless otherwise clearly intended
Facts: A money claim arising out of overseas employment contract (OEC) Omission of old provisions – deemed repealed, unless the statute or code
was filed by an overseas Filipino worker with the Labor Arbiter. provides, expressly or impliedly
During pendency of the case however, a law was passed transferring But, the repeal by revision or codification of former laws is possible only if
jurisdiction over money claims arising out of OEC from the Labor Arbiter to the revised statute or code was intended to cover and perfect system itself
the POEA. When both intent and scope clearly evince the idea of repeal, all omitted
Held: Jurisdiction is determined by the law at the time of commencement of action. parts are deemed repealed.
Once acquired, court proceeds to hear and decide. It is not divested by subsequent MECANO v COMISSION ON AUDIT, 216 SCRA 500 (1992)
amendatory act unless it expressly provides or is curative statute which may be given Illustrative case: Mecano vs. Commission on Audit, 216 SCRA 500 (1992)
retroactive effect Facts: An NBI Director was confined for cholecystitis which coset him
hospital and medical expenses the he wants to be reimbursed.
He based his claim on Section 699 of the Revised Adminstrative Code (RAC)
Effect of nullity of prior or amendatory act.
of 1917 which affords civil servants allowances in case of injusry, death, or
If the prior Act is declared invalid, the amendatory Act is also invalid sickness incurred in the performance of duty but it was denied by the
If the amendatory Act is invalid, the prior Act stays Commission on Audit (CoA).
Contention of CoA: Section 699 of the RAC was omitted in the
Revision, defined. Administrative Code of 1987 hence deemed repealed.
Intends to re-examine the whole law, or of certain provisions which have Contention of CoA: Allowing Section 699 to remain in force argues against
over-all implications for the entire law the Adminstrative Code of 1987 itself which wheras clause says:
“the effectiveness of the Government will be enhanced by a new
Amendment and revision, distinguished. Administrative Code which incorporate in a unified document the major
Amendment alters one or a few specific and separable provisions whereas structural, functional and procedural principles and rules of governance.”
revision overhauls the entire law In effect, what is contemplated is only one code, the Administrative Code of
1987.
Codification, defined. Held: Section 699 of the Revised Administrative Code of 1987.
Enactment of various laws on the same subject matter into a single, Held: The repealing clause of the Administrative Code of 1987 says:
comprehensive statute “All laws, decrees, orders, rules and regulations, or portions thereof,
It is to be considered as such and not as a series of disconnected articles or inconsistent with this Code are hereby repealed or modified accordingly.”
provisions Since it did not specify the title or number of the law sought to be repeal,
which has two categories.
Revision and codification, purpose. One is where the provisions of the two laws on the same subject matter are
irreconcilable.
To restate into one statute
The other is where the enactment of a statute revising or codifying the
Similar subject found in various laws
former laws on the whole subject matter.
Simplify complicated provisions
But the second category is possible only if:
And make them accessible and easily found
The revised statute or code was intended to cover the whole subject to be a
complete and perfect system in itself
Revision and codification, effects. It revises the whole subject matter of the statute
Both intent and scope evince the idea of repeal
47
It is clear intent of the legislature to substitute the prior Act. Rearrangement of sections – does not change the operation, effect or meaning of
The Administrative Code of 1987 does not fall under this category, because statute unless changes are of such nature as to clearly manifest legislative intent to
the intent is clear that it covers the aspects of administration organization change old laws
and procedure only.
It also does not fall under the first category because there is no Repeal, defined.
irreconcilable conflict between the provisions of both laws. Recalling, revoking or abrogation of a statute by another.
Lastly, implied repeal is not favored.
The presumption is against repugnancy or inconsistency because the Repeal, who has authority.
legislature is presumed to know the existing laws on the subject and not to The legislature, subject to constitutional limitations
have enacted inconsistent or conflicting statues. Section 1, Article VI, the Legislative Department, 1987 Constitution.
Thus, even if Section 699 of the Revised Administrative Code of1917 was “The legislative power shall be vested in the Congress of the Philippines
omitted in the Administrative Code of 1987, it remains in force in the which shall consist of a Senate and a House of Representatives, except to
absence of irreconcilable inconsistency, apart from the fact that it was not the extent reserved to the people by the provision on initiative and
specifically identified for repeal. referendum.”
48
Government Code of 1991 that substitutes the declared policy of exemption Express – declaration in a repealing clause that a particular and specific law
from any and all taxes as an essential factor for the solvency of the fund. is sought to be repealed, by identifying the number or title
but the amendatory second paragraph in Section 33 introduced by P.D. 1981 Implied – all other repeals are deemed implied repeals
is fundamentally flawed. Failure to add the repealing clause indicated that there is not intent to
This unorthodox condition effectively imposes restrictions on the repeal any existing law
competency of Congress to enact future legislature on the taxability of GSIS. Unless there is irreconcilable inconsistency
This places undue restrain on the plenary power of Congress to amend or In which case it is deemed an implied repeal
repeal laws in violation of the prohibition against the passage of
irrepealable laws. Repeal, kinds of.
Irrepealable laws are prohibited because they deprive succeeding Even if there is a repealing clause but if fails to identify or specify the law
legislatures of the fundamental best senses carte blanche in crafting laws. sought to be repealed, it is still an implied repeal
Reynato S. Puno once said, “to be sure, there are no irrepealable laws just as Example: “All laws or parts thereof which are inconsistent with this Act are
there are no irrepealable Consitutions.” hereby repealed or modified accordingly.”
“Change is the predicate of progress and we should not fear change.” The intent is not to repeal any existing law on the matter, unless there is
Xxx irreconcilable inconsistency
it may be argued that section 33 does not preclude repeal of tax-exempt Laws are repealed only by the enactment of subsequent laws, not by
status of the GSIS, but merely imposes conditions for its validity. violation, non-observance, disuse of customs and contrary practice.
But if these conditions are honored, they have the precise effect of limiting
the power of Congress.
Thus, the same rationale for prohibiting irrepealable laws applies in Repeal by implication, conditions.
prohibiting restraints on future amendatory laws.
There must be sufficient revelation of the intent to repeal, which must be
The present legislature cannot bind future legislature to particular mode very clear.
of repeal. It cannot declare in advance the intent of subsequent
legislatures.
Repeal by implication, categories or modes.
Irreconcilable conflict between provisions of two Acts.
City of Davao vs. RTC
Conditions: two statutes cover the same subject matter and object
Facts: GSIS refused to any real property taxes to the local government unit
Clearly inconsistent and incompatible with each other
because of a prior exempting law setting two conditions for repeal which
That they cannot be harmonized
were not met by the subsequent law.
Both cannot be given effect
Held: the conditions set by the prior law place undue restraint on the
That is, that one law cannot be enforced without nullifying the other
plenary power of Congress to amend or repeal laws in violation of the
prohibition against passage of irrepealable laws.
Repeal by implication, categories or modes.
the present legislature cannot bind future legislature to a particular mode of
If the subsequent Act covers the whole subject of the prior Act and is
repeal. It cannot declare in advance the intent of future legislatures.
clearly intended as a substitute
Of the same subject matter but different objects, the two laws can stand
together, although they refer to the same subject matter
Repeal, kinds of.
Repeal, Kinds of.
Total – revokes the statute completely ILLUSTRATIVE CASES:
Partial – leaves unaffected portions in force
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The following standard of irreconcilability resulting in implied repeal must be
Aguejetas vs. CA, 261 SCRA 17 (1996) satisfied:
Facts: the members of the Provincial Board of Canvassers were convicted of 1. Both laws deal with thew same subject matter
the election offense under Section 231 of the Omnibus Election Code (OEC). 2. The latter law must be inconsistent with the earlier law.
This after they proclaimed the losing candidate as eighth elected board 3. Repugnancy is clear and convincing in character.
member. 4. The language used in the latter must be such that as to render it
Contention of the canvassers: irreconcilable with the prior law.
The election offense for which they were convicted is repealed by R.A. 6646
and R.A. 7166 which amended the OEC by deleting or adding certain An inconsistency that fally short of this standard does not suffice because implied
provisions. repeal is not favored.
Paragraph 2, Section 231 of the OEC states:
“The respective board of canvassers shall prepare a certificate of canvassers The presumption is against inconsistency and accordingly, against implied repeal
shall prepare a certificate of canvass duly signed and affixed with the imprint because Congress is presumed to know the existing laws on the same subject and not
of the thumb of the right hand of each member, supported by a statement to enact inconsistent statutes.
of the votes and received by each candidate in each polling place and, on
the basis thereof, shall proclaim as elected the candidtates who obtained Hagad vs. Gozo-Dadole, 251 SCRA 241 (1995)
the highest number of votes cast in the province, city municipality or Facts: Criminal and administrative complaint were filed against Mayor
barangay. Failure to comply with this requirement shall constitute an Alfredo Ouano and other members of the Sanguniang Panglungsod (SP)
election offence.” with the office of the Deputy Ombudsman for the Visayas for violation of
This was modified by Section 28 of R.A. 7166 by removing the specific the Revised Penal Code and R.A. 6713.
manned by which the winning candidates are proclaimed. the complainants moved to preventively suspend Mayor Ouano and other
Thus, it repealed the second paragraph, Section 231 of the OEC under which respondents.
they were convicted. Mayor Ouano opposed the motion ad moved to dismiss the complaint.
Held: Sec. 231 was not expressly repealed by the amending and repealing Contention of Mayor Ouano and other respondents:
clause of R.A. 7166 which says: The Deputy Ombudsman is without jurisdiction to try, hear and decide the
“Sec. 39. Amending and Repealing Clause. – Sections 107, 108 and 245 of administrative complaint.
the Omnibus Election Code are hereby repealed. x x x They argued that under Section 63 of the Local Government Code of 1991
x x x Likewise, the inclusion in Section 262 of the Omnibus Election Code of (LGC), the power to investigate and impose administrative sanctions,
the violations of Sections 105, 106, 107, 108, 109, 110, 111 and 112 as including preventive suspension against local officials, is now vested with
among election offenses is also hereby repealed. This repeal shall have the Office of the President (OP).
retroactive effect.” Under Secs.61 and 63 of the LGC, the OP, not the Office of the Ombudsman,
Neither is there implied repeal has jurisdiction over administrative complaints against any elective official of
While Sec. 231 of the OEC and Sec. 28 of R.A. 7166 pertains to the a province, highly urbanized city or independent component city.
canvassing by the Board of Canvassers, this fact along is not sufficient to Contention of complainants:
cause an implied repeal. The LGC could not have repealed, abrogated or otherwise modified the
While the two provisions differ in terms, neither is this fact sufficient to pertinent provisions of the power to investigate cases against elective local
cause repugnance. officials.
In order to effect implied repeal, the two statutes must be so irreconcilably The power of the Ombudsman to investigate local officials under the
repugnant and inconsistent with each other. Ombudsman Act is unaffected by the provisions of LGC.
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But the Deputy Ombudsman denied the motion to dismiss and even placed Between two irreconcilably inconsistent laws, the subsequent law prevails
mayor Ouano and other respondents under preventive suspension. because it is the latest expression of legislative will, and Congress is
Mayor Ouano and other respondents petitioned to prohibit and restrain the presumed to know the earlier law.
Deputy Ombudsman before the Regional Trial Court of Mandaue City which Legis posteriors priores contrarias abrogant – subsequent statute repeals
granted it. earlier law repugnant to it.
The respondent judge applied the rule of statutory construction that
endeavor to harmonize two laws to make each effective. Illustrative case: David vs. Comelec, G.R. No. 127116, April 8, 1997
Since the investigatory power of the Ombudsman Act is general, broad and
vague as opposed to the LGC which provides for well defined Contention of the Commission on Elections:
And specific grounds for administrative disciplinary action, the LGC could be The repealing clause of the LGC “includes all laws, whether general or
considered an exception to the authority and administrative power of the special, inconsistent with the provisions of the Local Government Code.”
Ombudsman to investigate local elective officials. David and Rillon cannot claim a term longer than 3 years because they were
Issue: whether the authority of the Ombudsman to investigate local elective elected under the aegis of the LGC which fixed the term of 3 years only.
officials under the ombudsman act of 1989 has been divested by virtue of Held: The legislative intent is very clear, shorten the term of office of
the subsequent enactment of the LGC of 1991. Barangay officials to 3 years only.
held: the petition is meritorious. First, the LGC was enacted later than R.A. 6679.
Sec. 21 of the Ombudsman Act says: Sec. 43© of the LGC fixed the term of office of barangay officials at 3 years
??? whereas Sec. 1 of R.A. 6679 fixes it at 5 years.
Sec. 24 grants the Ombudsman authority to “preventively suspend any Both laws refer to barangay officials elected on the second Monday of May
officer or employee under his authority pending an investigation x x x” 1994
Whereas Sec. 61(a) of the LGC provides: There being irreconcilable inconsistency between the two laws, implied
“A complaint against any elective official of a province, a highly urbanized repeal applies.
city, an independent component city or component city shall be filed before While it is true that R.A. 6679 is a special law and should prevail pursuant to
the Office of the President.” the doctrine of generalia specialibus non derogant, the LGC is not
Thus, respondent insist that conformably with Sec. 63(b), preventive necessarily a general law.
suspension can only be imposed by the President if the respondent is an The LGC is a codified set of laws that specifically applies to local government
official of a province, highly urbanized city or an independent component units.
city. Section 43(c) specifically fixes the term of office of elective barangay
Contention of the Solicitor-General: officials at 3 years, a special provision that applies only to those elected on
While the LGC may have conferred on the OP disciplinary authority over the second Monday of May 1994.
local elective officials, it is not exclusive. The Constitution did not expressly prohibit Congress from fisixng any term
The LGC did not withdraw the power of the Ombudsman to investigate local of office for barabgay officials.
elective officials vested by the Ombudsman Act conformable with a It merely left the determination of such term to the full discretion of the
constitutional mandate. law-making body in accordance with the exigencies of public service.
Indeed, the SC said, there is nothing in the LGC to indicate that it repealed, To strike down a law as unconstitutional, there must be a clear and
expressly or impliedly, the Ombudsman Act. unequivocal showing that what the Constitution prohibits, the statute
The two statutes on the specific matter in question are not so inconsistent permits.
or irreconcilable. They miserably failed to discharge this burden to show clearly the
Two laws on the same subject matter, which prevails. unconstitutionality they aver.
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Mecano v COA
David v COMELEC, GR No. 127116, April 8, 1997 General and special law, rule on repeal.
General law does not repeal a prior special law on the same subject matter
unless clearly intended by the legislature.
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Repeal, effect on contracts. Proviso, function.
Does not affect the terms of contract, nor impair the rights of parties. To create a condition precedent, to exempt, limit, restrict or qualify a
It applies even if the other contracting party is the government. statute, in whole or in part.
To limit the application of the law, and not to enlarge it s operation
Repeal, effect on tax laws.
Does not preclude collection of taxes assessed prior to the repeal, unless
otherwise provided. Exception, defined.
Enumeration of what should not be covered by the general rule.
Constitution, defined.
Proviso, defined. It is a written instrument where fundamental powers of the government are
Condition precedent. Generally introduced by the word “provided:” established , limited and defined, distributed among several departments for their
It is a clause on a preceding enactment to restrain or modify the enacting safe and useful exercise for the benefit of the body politic.
clause, or of excepting something from its operation which otherwise would Constitutional construction, primary purpose.
have been without it, or of excluding some possible ground of
To determine the intent of the framers as expressed in the language to assure its
misinterpretation of it, as by extending it to cases not intended by the
realization.
legislature to be brought within its prurview.
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Constitutional construction, applicability of rules of statutory construction. How do you construe the phrase “subsistence fishermen”? It should be construed in
(examples of applicable rules of statutory construction) its ordinary meaning
Verbal egis or the plain meaning rule Which is? It refers to those whose catch yields are just enough for their livelihood or
Ratio legis est anima or words are interpreted according to the intent subsistence.
Ut magis valeat pereat or the Constitution is to be interpreted as a whole. Ordillo v Commission on Elections, 192 SCRA 100 (1992)
Constitution, how construed. What are the facts of the case?
AS a whole, no provision is to be separated from all the others. Congress enacted RA 6766, an organic act for the Cordillera Autonomous Region
What if there are conflicting provisions? They should be harmonized. (CAR) to be composed of the provinces of Benguet, Mountain Province, Ifugao, Abra,
Liberally or strictly? Liberally, to accomplish its high objectives and carry out general Kalinga- Apayao and the City of Baguio. But it was overwhelmingly rejected by the
principles of government. people in a plebiscite called for the purpose, except for the province of Ifugao. Thus,
Is there an exception to liberal construction? Yes where it grants governmental Comelec resolved that the CAR was approved only by the people in Ifugao province.
powers in derogation of the inherent and natural rights of the people. Thus, Congress set the date of election. The keywords provinces, cities, municipalities
So, can we say it may be construed either way? Yes, since constitutional construction an geographical areas connote that “region” means two or more provinces. It should
is a question of intention. be construed according to its common use and ordinary meaning. The 13 regions into
Should we construe the Constitution according to the previling circumstances? No, it which the country is divided for administrative purposes are groupings of contiguous
should be construed uniformly. It should not change together with the fluctuations of provinces.
public sentiment. What about he provisions in RA 6766, do they reveal what is contemplated by the
Amendments to Constitution, how construed. term “region”?
They should be harmonized with the existing provions. YES, Section 2 contemplates development of provinces cities, municipalities whereas
What if they cannot harmonized, which prevails, the existing provisions or the Section 4 contemplates regional assembly districts
amendment? What is your one-liner for this case?
The amendent prevails. Words in the Constitution should be understood in their common use and ordinary
Language of Constitution, how construed. meaning, thus, the term ”region” as ordinarily used in the 13 regions in the country
They should be construed in their common use and ordinary meaning. refers to groupings of contiguous provinces.
Except? When technical terms are used The keyword provinces, cities, municipalities and geographical areas connote that
Why are they construed in their ordinary meaning? “region” means two or more provinces.
The Constitution is not primarily a lawyer’s document. It is the expression of
the sovereign will of the people. Between words with restricted and general meanings, which prevail.
The general meaning prevails
Except?
Illustrative provision:
If the context indicates that the limited sense is intended.
Section 7, Article XIII of the Constitution says:
What is the reason for this rule?
“the State shall protect the rights of subsistence fishermen, especially of
The Constitution is an organic law that deals with broader subjects
local communities, to the preferential use of the communal marine and fishing
What are the criticisms against the 1987 Constitution?
resources, both inland and offshore”
That it is excessively long and verbose
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It sounds like a political speech rather than a formal document stating only In applying history or realities, the SC said it is a matter of public record and common
basic precepts. public knowledge that the ConCom refers to incumbent President Corazon C. Aquino
It includes topics that have no place in the Constitution like sports, love, and Vice-President Salvador H. Laurel, and to no other persons.
drugs. And even advertising and rhythm and harmony of nature. What do proceedings of the convention include?
But worse, it uses tortuous language like the following masterpiece of They include debates, interpellations and opinions.
circumlocution: Can we resort to proceedings right away?
ARTICLE XVI, Section 10: No, resort to proceedings may only be had if other extrinsic aid fail.
“The State shall provide the policy environment for the full development of
Filipino capability and the emergence of communication structures suitable to Montejo v COMELEC, 242 SCRA (1995)
the needs and aspirations of the nation and the balanced flow of information FACTS:
into, out of, and across the country, in accordance with a policy that respects the The province of Leyte and the cities of Tacloban and Ormoc are composed of 5
freedom of speech and of the press.” legislative districts.
To this, Justice Isagani A. Cruz reacted: EXCUSE ME? So, what was the problem of the petitioner then?
Montejo, who is the representative of the first district of claimed that the transfer of
Intrinsic aid to constitutional construction. municipalities resulted in inequitable distribution of inhabitants and voters and
Language or words of the Constitution. violates the equality of representation ordained in the Constitution. He said that the
first district has 178k voters whereas the second district has 156k voters or a
Extrinsic aids to constitutional construction, enumerated. difference of 22k voters.
1. History or realities existing at the time of the adoption of the What did he want the COMELEC to do then?
Constitution He wanted the COMELEC to transfer Tolosa, which had 7k, from the first to the
2. Proceedings of the constitutional convention second district.
3. Changes in phraseology How did the Comelec defend its resolution?
4. Prior laws and judicial decisions Its adjustment of municipalities involved the least disruption of the territorial
5. Construction of US Constitutional provisions composition of each district.
6. Contemporaneous construction and writings IT complied with the constitutional requirement that each legislative district shall
7. Consequences of alternative construction comprise, as far as practicable, contiguous, compact and adjacent territory.
8. Construction given by executive officers Section 2 of the Ordinance appended to the Constitution authorizes it to make minor
adjustments in redistricting.
ILLUSTRATIVE CASE: (History or realities) How did the Supreme Court resolve the issue?
In re Bermudez, 145 SCRA 116, 162 (1986)
Article XVIII, Section 5 of the Constitution states that the six-year term of the Why?
incumbent President and Vice-President elected in the February 7, 1986 election is, The COMELEC is without jurisdiction to apportion legislative districts and the phrase
for purposes of synchronization of elections, hereby extended to noon of June 30, ”minor adjustments” refer to the instance where a municipality was omitted in the
1992. enumeration of those composing the legislative district.
Who is the incumbent president then? How did the SC construe “minor adjustments”?
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From the debates and interpellations of the Constitutional Commission. Is mere deletion of a word or phrase conclusive?
The question of who has authority to apportion legislative districts is clearly No, as it may have been omitted to avoid superfluity.
answered in the following deliberations: Example:
“MS . AQUINO. I have to object to the provision which will give mandate to the “no person shall be compelled in a criminal case to be a witness against himself”
COMELEC to do the redistricting. Redistricting is vitally linked to the baneful practices was changed to “no person shall be compelled to be a witness against himself”.
of cutting up areas or spheres of influence; in other words, gerrymandering. This What is the intent why the phrase “in a criminal case” was omitted?
Commission, being nonpartisan, a nonpolitical deliberative body is in the best The intent is to make it available in cases other than criminal.
possible situation under the circumstances to undertake that responsibility.XXX” Why are prior laws and judicial decisions considered extrinsic aids?
“ MR. OPLE. Xxx We know that the reapportionment of provinces and cities for the The Constitution is written in reference to existing statutory laws at the time.
purpose of redistricting is generally inherent in the constituent power or in the Why is the construction by the US Supreme Court of the US Constitutional
legislative power. Xxx” provisions available as extrinsic aids?
“Mr. SARMIENTO. May I move that this Commission do the reapportionment of Most provisions on police power, eminent domain, taxation and bill of rights were
legislative districts.” taken or patterned after the US Constitution.
How did the Constitutional Commission vote? When do we apply contemporaneous construction?
The results show 30 votes in favor and none against; the motion is approved.” When there is substantial doubt and ambiguity
But what is the extent of authority granted to Comelec the phrase “minor What is the value of the writings of Constitutional Convention delegates as
adjustments” in Section 2 of the appended Ordinance? extrinsic aid?
The Constitutional Commission deliberation show that it is limited to those omitted: They have persuasive effect.
“MR.DAVIDE.xxxThe authority conferred would be on minor corrections or What happens when a constitutional provision is susceptible of more than one
amendments, meaning to say, for instance, that we may have forgotten an interpretation?
intervening municipality in the enumeration, which ought to be included in one That construction which leads to absurd, impossible or mischievous circumstances
district. That we shall consider a minor amendment.” must be rejected.
“MR. DE CASTRO.xxxCan it be possible that one municipality in a district be
transferred to another district and call it a minor adjustment? Marcelino v Cruz, GR No. 42428, March 18, 1983. 121 SCRA 51
MR.DAVIDE.That cannot be done, Mr. Presiding Officer. Minor, meaning, that there What happened in this case?
should be no change in the allocations per district. However, it may happen that we Petitioner was charged with the crime of rape. ON August 4, 1975, he rested his case.
have forgotten a municipality in between which is still in the territory of one assigned On September 4, 1975, he submitted his Memorandum. On November 28, 1975, the
district or there may be an error in the correct name of a particular municipalityxxx” Judge submitted with the Deputy Clerk of Court his decision for promulgation.
“MR. DE CASTRO. So the minor adjustment which the Comelec cannot do is that, if, Notices of promulgation were sent to all parties involved.
for example, my municipality is in the first district of Laguna, they cannot put that in What was the ground for resting?
any other district.” The trial court lost jurisdiction over the case for failure to decide the case within 90
“MR. DAVIDE. That is not even a minor correction. It is a substantive one.” days from date of submission for resolution. The 3-month period prescribed by
Section 11 (1) of Article X of the 1973 Constitution, being a constitutional directive, is
What is the value of changes in phraseology as an extrinsic aid? mandatory in character. Section 11(1) of Article X says:
It may be inquired into to ascertain the intent of the provision as finally approved.
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“Upon the effectivity of this Constitution, the maximum period within which a case or Yes, provided that it has been construed for a considerable period of time.
matter shall be decided or resolved from the date of its submission, shall be eighteen
months for the Supreme Court, and, unless reduced by the Supreme Court, twelve Mandatory or directory character of constitutional provisions.
months for all inferior collegiate courts, and three months for all other inferior Are constitutional provisions mandatory or directory?
courts,” Generally, they are mandatory in nature.
Article VIII, Section 15 (1) of the 1987 Constitution says: What are the exceptions?
“All cases or matters filed after the effectivity of this Constitution must be decided or If expressly provided
resolved within twenty-four months from the date of submission for the Supreme By necessary implication
Court, and unless reduced by the Supreme Court, twelve months for all lower A different intention is manifested
collegiate courts and three months for all other lower courts. Why are they generally mandatory?
How did the Supreme Court resolve the issue of timeliness? It is the sovereign itself that speaks, laying down rules which for the time being
The case was submitted for decision on September 4, 1975 and the Judge rendered control both the government and the governed.
his decision on November 28,1975 hence only 85 days have lapsed. To hold that any of the constitutional provisions is to be obeyed or disregarded at the
How did the Supreme Court construe the constitutional provision prescribing time will or pleasure of the legislature is a dangerous doctrine.
to decide? It lowers the dignity befitting the fundamental law of the land.
It was construed as merely directory.
Why? Preamble and titles, how construed.
To make it mandatory would make judges lose jurisdiction over the cases if they fail How are preamble and title construed?
to decide on time, which consequence will cause greater injury to the public. They may furnish evidence of the meaning and intention of the Constitution, but they
Does it follow that litigants are powerless if the judge delays to resolve cases? are given little weight.
Not necessarily, the judge may be administratively liable.
What is your one-liner for this case? Constitutional prohibitions(?) , how construed.
Constitutional provisions are to be construed as mandatory, unless by express How are constitutional provisions construed?
provision or by necessary implication, a different intention is manifest, or if they They are construed positively and unequivocally.
relate merely to matter of procedure. Constitutional grant of power, how construed.
How is constitutional grant of power construed?
Poe v COMELEC, GR No. 221697, March 8, 2016 It is construed as a mandate, and not a mere direction.
What does such grant of power include?
IT includes all such particular and auxiliary powers necessary to make it effectual.
How do we know that a provision relates to matter of procedure? But what if the means for the exercise of a grant of power are specified in the
When the time prescribed to decide a case was incorporated for reasons of Constitution?
expediency, it is deemed merely procedural. All other means are deemed excluded.
Why is construction made by executive officers given weight? Prospective or retroactive application.
Because they are the first to interpret the law. How are constitutional provisions applied, prospectively or retroactively?
IS there a condition before it is given weight? Prospectively, unless otherwise intended.
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Self-executing provision, defined.
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