1.01. 1.02. 1.03. 1.04. 1.05. 1.06 1.07. 1.08. 1.09. 1.10. 1A. 1.12. 1.13, 114, 1.16 1.16. ik, 1.18, 1.19. TABLE OF CONTENTS Chapter I STATUTES A. IN GENERAL Laws, generally. Statutes, generally Permanent and temporary statutes. Other classes of statutes. Manner of referring to statutes.. B, ENACTMENT OF STATUTES Generally. Legislative power of Congress Procedural requirements in enacting a law, generally Steps in the passage il C. PARTS OF STATUTES Statutes generally contain. Meaning of certain bills originating from the lower House Enactment of budget and appropriations law Restrictions in passage of budget or revenue bills.. Rules and records of legislative proceedings... Power to issue its rules of proceedings Unimpeachability of legislative journals Enrolled bill . Withdrawal of authenticity, effect of Summary rules.. vii won RO ao 10 16 17 18 23 24 27 28 291.20. 1.21. 1.22. 1.23. 1.24, 1.25. 1.26. 1.27. 1.28. 1.29. 1.30. 131. 1.32, 1.33. 1.34. 1.35. 1.36. 1.87. 1.38. 1.39. 1.40. 141. 1.42. 1.43. 1.44. 1.45. 1.46, 2.01 D. ISSUANCES, RULES AND ORDINANCES Presidential issuance: Administrative rules and regulations Illustrative cases on validity of executive orders, rules and regulation: Administrative rule and interpretation distinguished .. Supreme Court rule-making power Legislative power of local government units.. Barangay ordinance Municipal ordinance . City ordinance Provincial ordinance E. VALIDITY OF STATUTE Presumption of constitutionality. Requisites for exercise of judicial power... Appropriate ease . Standing to sue. When to raise constitutionality.. Necessity of deciding constitutionality Summary of Essential Requisites for Judicial Review Test of constitutionality. Effects of unconstitutionality .. Invalidity due to change of conditions .. Partial invalidity.......... F. EFFECT AND OPERATION When laws take effect When Presidential issuances, rules and regulations take effect When local ordinance takes effect. Statutes continue in force until repealed Territorial and personal effect of statutes. Manner of computing time .. . Chapter II CONSTRUCTION AND INTERPRETATION A. NATURE AND PURPOSE Construction defined. viii 96 98 100 101 102 102 1042.02. 2.08. 2.04, 2.05. 2.06. 2.07, 2.08. 2.09. 2.10. 2.11, 2.12, 2.13. 2.14, 2.15. 2.16. 247. 2.18. 2.19. 2.20. 2.21. 2.22, 2.23. 3.01. 3.02. 3.03, 3.04, 3.05, 3.06. Construction and interpretation distinguished. Rules of construction, generally. Purpose or object of construction, Legislative intent, generally. Legislative purpose Legislative meaning. Graphical illustration Matters inquired into in construing a statute Where legislative intent is ascergained .. B. POWER TO CONSTRUE Construction is a judicial function Legislature cannot overrule judicial construction. When judicial interpretation may be set aside. When court may construe statute. Condition sine qua non before courts can construe statutes; ambiguity defined Court may not construe where statute is clear Verba legis or plain meaning rule Rulings of Supreme Court part of legal system Judicial rulings have no retroactive effect Only Supreme Court en bane can modify or abandon principle of law, not any division of the Court. Court may issue guidelines in construing statut C. LIMITATIONS ON POWER TO CONSTRUE Courts may not enlarge nor restrict statutes. Courts not to be influenced by questions of wisdom... Chapter II AIDS TO CONSTRUCTION A, IN GENERAL General Title . When resort to title not authorized. Preamble... Illustration of rule., Context of whole text 104 105 107 108 108 109 109 wt ut 120 121 123 123 124 126 130 139 140 145 147 151 155 157 157 160 160 161 1623.07. 3.08. 3.09. 3.10. 3.11. 3.12. 3.13. Bad. 3.15. 3.16. 3.17. 3.18. 3.19. 3.20. 3.21. 3.22. 3.23, 3.24, 3.25. 3.26. 3.27. 3.28. 3.29. 3.30, 3.31. 3.32. 3.33. 3.34, 3.35. 3.36. 3.37. 3.38. 3.39, 3.40. Punctuation marks . Mlustrative examples. Capitalization of letters. Headnotes or epigraphs. Lingual text Intent or spirit of law Policy of law. Purpose of law or mischief to be suppressed Dictionaries Consequences of various constructions. Presumptions .. B. LEGISLATIVE HISTORY Generally. ‘What constitutes legislative history President’s message to egislature Explanatory note. Legislative debates, views and deliberations Reporte of commissionz.. Prior laws from which statute is based.. Change in phraseology by amendments Amendment by deletion. Exceptions to the rule Adopted statutes... Limitations of rule. Principles of common law : Conditions at time of enactment... History of the times C. CONTEMPORARY CONSTRUCTION Generally... Executive construction, general Weight accorded to contemporaneous construction ....... Weight accorded to usage and practice... Construction of rules and regulations Reasons why contemporaneous construction is given much weight. When contemporaneous construction disregarded Erroneous contemporaneous construction does not preclude correction nor create rights; exceptions... 163 163 165 166 167 168 169 170 171 172 172 173 173 174 175 176 wT 178 181 182 185 185 186 188 188 189 190 190 191 194 194 195 196 197i 3.41, 3.42. 3.43. 3.44, 4.01. 4.02, 4.03. 4.04. 4.05, 4.06. 4.07. 4.08. 4.09. 4.10. 41. 4.12, 4.13, 4.14, 4.15. 4.16, 4.17. 4.18. 4.19, 4.20. 4.21 4.22. 4.23, 4.24, Legislative interpretation. Legislative approval Reenactment. Stare decisis Chapter IV ADHERENCE TO, OR. DEPARTURE FROM, LANGUAGE OF STATUTE A. LITERAL INTERPRETATION Literal meaning or plain-meaning rule .. Dura lex sed lex .. B. DEPARTURE FROM LITERAL INTERPRETATION Statute must be capable of interpretation, otherwise inoperative.. What is within the spirit is within the law Literal import must yield to intent. Intent of a statute is the law Limitation of rule Construction to accomplish purpose Illustration of rule... ‘When reason of law ceases, law itself ceases Supplying legislative omission Correcting elerical errors.. Illustration of rul Qualification of rule Construction to avoid absurdity. Construction to avoid injustic Construction to avoid danger to public interes Construction in favor of right and justic Surplusage and superfluity disregarded. Redundant words may be rejected Obscure or missing word or false description may not preclude construction. Exemption from rigid application of law Law does not require the impossible. Number and gender of words .. 198 199 200 202 206 208 210 213 215 216 218 219 225 230 232 232 233 235 235 243 247 248 250 251 251 252 253, 254495. 4.26. 4.27, 4.28. 4.29. 4.30. 4.31. 4.32, 4.34. 4.35, 4.36. 5.01. 5.02. 5.03. 5.04, 5.05. 5.06, 5.07. 5.08, 5.09. 5.10. 5.1L, 5.12, 5.13. 5.14. 5.15. 5.16. C. IMPLICATIONS Doctrine of necessary implication...... Remedy implied from a right Grant of jurisdiction. What may be implied from grant of jurisdiction Grant of power includes incidental power.. Grant of power excludes greater power What is implied should not be against the law Authority to charge against public funds may not be implied... legality of act implied from prohibition. Exceptions to the rule What cannot be done directly cannot be done indirectly. ‘There should be no penalty for compliance with law. Chapter V INTERPRETATION OF WORDS AND PHRASES A. IN GENERAL Generally . Statutory definition. Qualification of rule. Words construed in their ordinary sense.. General words construed generally Application of rule.... Generic term includes things that arise thereafter Words with commercial or trade meaning. Words with technical or legal meaning How identical terms in same statute construed... Meaning of word qualified by purpose of statute Word or phrase construed in relation to other provisions . : Meaning of term dictated by context Where the law does not distinguish Mlustration of rule.. Disjunctive and conjunctive ‘words. 254 257 259 259 261 263 264 265 265 266 267 268 269 270 272 273 276 277 277 278 279 281 282 283 288 289 992 299aT. 5.18. 5.19. 5.20. 5.21, 524. 5.25. 5.26, 5.27. 5.28. 5.29, 5.30. 531. 5.32. 5.33. 5.34, 5.35. 5.36. 5.37. 5.38. 5.39. 5.40. 6.01. 6.02. 6.03. 6.04, 6.05, B. ASSOCIATED WORDS Noscitur a sociis Application of rule Ejusdem generis Limitations of ejusdem generis Expressio unius est exclusio alterius Nogative-opposite doctrine... Application of expressio unius rule Limitations of rule .. Doctrine of casus omissus. Doctrine of last antecedent Ilustration of rule... Qualification of the doctrine. Reddendo singula singulis C. PROVISOS, EXCEPTIONS AND SAVING CLAUSES. Provisos, generally... Proviso may enlarge scope of law Proviso as additional legislation .. What proviso qualifies Exception to the rule. Repugnancy between proviso and main provision Exceptions, generall Exception and proviso distinguished . Ilustration of exceptio Saving clause... Chapter VI STATUTE CONSTRUED AS WHOLE AND. IN RELATION TO OTHER STATUTES A. STATUTE CONSTRUED AS WHOLE Generally. Intent ascertained from statute as whole. Purpose or context as controlling guide.. Giving effect to statute as a whole.. Apparently conflicting provisions reconciled 302 303 308 310 313 318 323 324 332 336 337 337 339 339 341 342 343 343 345, 345 346 347 347 350 351 356 359 359 3616.06. 6.07, 6.08. 6.09. 6.10. 6.11. 6.12. 6.13. 6.14. 6.15. 6.16, 6.17. 6.18. 6.19. 6.20. 6.21. 6.22. 6.23. 6.24. 6.25. 6.26. 6.27. 6.28. 7.01. 7.02. 7.03. 7.04. 7.08. 7.06. Special and general provisions in same statute Construction as not to render provision nugatory Reason for the rul Qualification of rule Construction as to give life to law. Construction to avoid surplusage. Application of rule... Statute and its amendments construed together. B, STATUTE CONSTRUED IN RELATION TO CONSTITUTION AND OTHER STATUTES Statute construed in harmony with the Constitution. Statutes in pari materia How statutes in pari materia construe Reasons why laws on same subject are reconciled ‘Where harmonization is impossibl Illustration of the rule ... General and special statutes... Reason for the rule... Qualifications of the rule Reference statutes. Supplemental statutes Reenacted statutes... Adoption of contemporaneous construction. Qualification of the rule Adopted statutes .. Chapter VII STRICT OR LIBERAL CONSTRUCTION A. IN GENERAL Generally... Strict construction, generall Liberal construction, defined Liberal construction applied, generally Construction to promote social justice. Construction taking int ennsideration general welfare or growth of civilization .. 364 364 365 365 367 369 370 372 373 376 376 379 380 380 384 387 388 388 389 390 391 392 392 393 393 394 394 395 396I i I [ 7.07. 7.08. 7.09. 7.10. TAL 7.12. 7.18. 714. 716: 7.16. 77 7.18. 7.19, 7.20. 721 7.22, 7.23, 7.24, 7.25. 7.26. 7.21. 7.28. 7.29. 7.30. 731. 7.32. 7.33, 7.34, 7.85. 7.36. 7.87. 7.38, B. STATUTES STRICTLY CONSTRUED Penal statutes, generally. Penal statutes strictly construed Reason why penal statutes are’strietly construed. Acts mala in se and mala prohibita. Application of rul Limitation of rule Statutes in derogation of rights Statutes authorizing expropriations Statutes granting privileges... Legislative grants to local government units Statutory grounds for removal of officials .. Naturalization laws ... Statutes imposing taxes and customs duties Statutes granting tax exemptions.. Qualification of rule... Statutes concerning the sovereign Statutes authorizing suits against the government. Statutes prescribing formalities of will Exceptions and provisos ... C. STATUTES LIBERALLY CONSTRUED General social legislation.. General welfare clause... Grant of power to local governments... Statutes granting taxing power Statutes preseribing prescriptive period to collect taxes ... Statutes imposing penalties for nonpayment of tax. Election laws Amnesty proclamations ‘Statutes prescribing prescriptions of crimes. Adoption statutes. Veteran and pension laws Rules of Court... Other statutes. 397 397 408 408 409 all 412 413 413 414 414 415 416 417 428 429 430 431 431 433 436 436 438 439 440 440 444 444 445 445, 450 4518.01. 8.02. 8.03. 8.04, 8.05. 8.06. 8.07. 8.08. 8.09, 8.10, 8.11. 8.12. 8.13. 8.14. 8.15. 8.16. 8.17. 8.18. 8.19. 8.20. 8.21. 8.22. 8.23. Chapter VII MANDATORY AND DIRECTORY STATUTES A.IN GENERAL Generally... Mandatory and directory statutes, generally When statute is mandatory or directory. Test to determine nature of statute.. Language used Use of “shall” or “must” Use of “may”. When “shall” is construed as “may” and vice versa Use of negative, prohibitory or exclusive terms... B. MANDATORY STATUTES Statutes conferring power ... Statutes granting benefits Statutes prescribing jurisdictional requirements. Statutes prescribing time to take action or to appeal Statutes prescribing procedural requirements Election laws on conduct of election.. Election laws on qualification and disqualification.. Statutes prescribing qualifications for office Statutes relating to assessment of taxes Statutes concerning public auction sale C. DIRECTORY STATUTES Statutes prescribing guidance for officers . Statutes prescribing manner of judicial action Statutes requiring rendition of decision within prescribed period Constitutional time provision directory. 453 453 454 455 456 457 460 461 473 474 474 475 475 477 478 480 480 481 481 482 482 483 485,9.01. 9.02. 9.03. 9.04. 9.05. 9.06. 9.07. 9.08. 9.09. 9.10. 9.11. 9.12. 9.13, 9.14, 9.15. 9.16. Chapter IX PROSPECTIVE AND RETROACTIVE STATUTES A. IN GENERAL Prospective and retroactive statutes, defined. Laws operate prospectively, generally. Presumption against retroactivity Words or phrases indicating prospectivity Retroactive statutes, generally ... B. STATUTES GIVEN PROSPECTIVE EFFECT Penal statutes, general; Ex post facto law. Bill of attainder When penal laws applied retroactively. Statutes substantive in nature, Effects on pending actions Qualification of rule Statutes affecting vested rights .. Statutes affecting obligations of contract Mlustration of rule. Repealing and amendatory acts. C. STATUTES GIVEN RETROACTIVE EFFECT Laws not retroactive: Exception.. Exceptions to the rule. Procedural laws... Exceptions to the rule Curative statutes Limitations of rule Police power legislations. Statutes relating to prescription Apparently conflicting decisions on prescription. Prescription in criminal and civil eases. Statutes relating to appeals. 488 489 491 492 493 494 494 495 496 498 509 512 514 516 516 522 523 523 525, 527 52710.01. 10.02. 10.03. 10.04, 10.05. 10.06. 10.07. 10.08, 10.09. 10.10. 10.11. 10.12. 10.13. 10.14. 10.15. 10.16. 10.17. 10.18. 10.19. 10.20. 10.21 10.22. 10.23. 10.24. 10.25. 10.26. 10.27. 10.28. 10.29. 10.30. Chapter X AMENDMENT, REVISION, CODIFICATION AND REPEAL A. AMENDMENT Power to amend. How amendment effected .. ‘Amendment by implication .. ‘When amendment takes effect How amendment is construed, generally . Meaning of law changed by amendment .. Amendment operates prospectively Effect of amendment on vested rights Effect of amendment on jurisdiction Effect of nullity of prior or amendatory act. B. REVISION AND CODIFICATION Generally Construction to harmonize different provisions.. ‘What is omitted is deemed repealed Change in phraseology. Continuation of existing laws. C. REPEAL Power to repeal ‘The constitution prohibits passage of jrrepealable laws; all laws are repealable.. Repeal, generally. Repeal by implication .. Irreconcilable inconsistency Implied repeal by revision or codification. Repeal by reenactment ... Other forms of implied repeal .. “All laws or parts thereof which are inconsistent with this Act are hereby repealed or modified accordingly,” construed... Repeal by implication not favored... {is between two laws, one passed later prevails. General law does not repeal law, generally. Application of rule... ‘When special or general law repeals the other Effects of repeal, generally - xviii 529 529 530 531 531 532 533 533 534, 535 235 536 536 538 538 539 539 B42 542 543 554 556 558 559 560 563 564 565 boo B7210.31. On jurisdiction, generally 10.32. On jurisdiction to try criminal case 10.33, On actions, pending or otherwise 10.34. On vested rights 10.35. On contracts .. 10.36. Effect or repeal of tax laws. 10.37, Repeal and reenactment, effect of. 10.38, Effect or repeal of penal laws .. 10.39. Distinetion as to effect of repeal and expiration of law. 10.40. Effect of repeal of municipal charter. 40.41, Repeal or nullity or repealing law, effect of Chapter XI CONSTITUTIONAL CONSTRUCTION 11.01. Constitution defined... 1102. Origin and history of the Philippine Constitutions. 11,03. Primary purpose of constitutional construction. 11.04. Constitution construed as enduring for ages 11.05, How language of constitution construed. 11.06. Aids to construction, generally... 11.07. Realities existing at time of adoption; object to be accomplished... 11.08. Proceedings of the convention 11.09. Contemporaneous construction and writings. 11.10. Previous laws and judicial rulings 11.11. Changes in phraseology... 11.12. Consequences of alternative constructions... 11.13. Constitution construed as a whole. 11.14. Mandatory or directory 11.15. Prospective or retroactive. 11.16. Applicability of rules of statutory construction. 11.17. Generally, constitutional provisions are self-executing 11.18. Three maxims employed as aids to construe constitutional provisions. 11.19. Constructions of US Constitutional provisions adopted in 1987 Constitution. 11.20, Other illustrative cases in constitutional construction.. Glossary of Maxims. Subject Index. Case Index 573 574 574 575 577 577 578 578 580 580 580 581 582 583 584 585 588 589 595 599 600 600 601 602 61 612 621 623 626 627 731 735 750