1

CHAPTER 1: STATUTES
MANNER OF REFERRING TO STATUTES
Phil. Commission/Phil. Legislature !"#!$!"%&' ( Pu)li*
A. IN GENERAL
LA+S, GENERALL-
La. in its /ural an0 generi* sense re1ers to the .hole
A*t Common.ealth !"%2$!"32' ( Common.ealth A*ts
Congress o1 the Phil. !"32$!"45 an0 !"64 on.ar0s' (
)o07 or s7stem o1 la., in its /ural an0 *on*rete sense, it means a
rule o1 *on0u*t 1ormulate0 an0 ma0e o)ligator7 )7 legitimate
8o.er o1 the state
It in*lu0es9 s ta tu te s, 8r e s i0 e n ti a l 0 e * r e e s, e : e *u ti ;e or 0e r s, other
8resi0ential issuan*es, rulings o1 the Su8reme Court
*onstruing the la., rules an0 regulations, an0 or0inan*es
STATES, GENERALL-
A statute is an a*t o1 the legislature as an organi<e0 )o07,
e:8resse0 in the 1orm, an0 8asse0 a**or0ing to the 8ro*e0ure,
re=uire0 to *onstitute it as 8art o1 the la. o1 the lan0. In*lu0es
those 8asse0 )7 the9 Phil. Commission, Phil. Legislature, >atasang
Pam)ansa, Congress o1 the Phil.
Pri;ate Statutes, a88lies onl7 to a s8e*i1i*
8erson/su)/e*t
Pu)li* Statutes, a?e*ts the 8u)li* at large9
!. General la.$ a88lies to the .hole state u8on all the
8eo8le or all o1 a *lass Peo8le ;. Palma'
5. S8e*ial la.$ relates to 8arti*ular 8ersons or things o1 a
*lass or to a 8arti*ular *ommunit7, in0i;i0ual or
thing
%. Lo*al la. ( o8eration is *on1ine0 to a s8e*i1i* 8la*e or
lo*alit7 e.g. muni*i8al or0inan*e
PERMANENT AN@ TEMPORAR- STATUTES
Permanent$ o8eration is not limite0 in 0uration )ut *ontinues
until re8eale0
Tem8orar7$ 0uration is 1or a limite0 8erio0 o1 time 1i:e0 in the
statute itsel1, *eases u8on the ha88ening o1 an e;ent
OTAER CLASSES OF STATUTES
A88li*ation9 8ros8e*ti;e, retroa*ti;e
O8eration9 0e*larator7, *urati;e, man0ator7, 0ire*tor7,
su)stanti;e, reme0ial, 8enal
Forms9 a?irmati;e, negati;e
Re8u)li* A*ts
>atasang Pam)ansa !"4%$!"62' ( >atas Pam)ansa
B. ENACTMENT OF STATUTES
LEGISLATIBE PO+ER, GENERALL-
Leg. Po.er is the 8o.er to maCe, alter an0 re8eal la.s. The
sangguniang )aranga7, sangguniang )a7an, sangguniang
8anlungso0 an0 sangguniang 8anlala.igan ha;e also legislati;e
8o.ers .ithin their /uris0i*tion, to ena*t or0inan*es.
Or0inan*es are in1erior in status an0 su)or0inate to the
la.s o1 the state Primi*ias ;. Muni*i8alit7 o1 Ur0aneta'.
An a0min./e:e*. O?i*er, in the e:er*ise o1 a 0ul7 0elegate0
8o.er, *an liCe.ise issue rules an0 regulations to
im8lement a s8e*i1i* la., an0 su*h rules an0 regulations ha;e the
1or*e an0 e11e*t o1 la..
CONGRESSD LEGISLATIBE PO+ER
The essential 1eature o1 the legislati;e 1un*tion is the
0etermination o1 the legislati;e 8oli*7 an0 its 1ormulation an0
8romulgation as a 0e1ine0 an0 )in0ing rule o1 *on0u*t. The
legislati;e 8o.er is 8lenar7.
PROCE@URAL REEUIREMENTS, GENERALL-
A8art 1rom the )asi* *onstitutional re=uirements, *ongress
8ro;i0es in 0etail, em)o0ie0 in the Rules o1 )oth Aouses o1
Congress, the 8ro*e0ure )7 .hi*h a )ill ma7 )e ena*te0 into la..
PASSAGE OF A >ILL
The Se*retar7 re8orts the )ill 1or 1irst rea0ing, .hi*h
*onsists o1 rea0ing the num)er an0 title o1 the )ill, 1ollo.e0 )7 its
re1erral to the a88ro8riate Committee 1or stu07 an0
re*ommen0ation. On se*on0 rea0ing, the )ill shall )e rea0 in 1ull
.ith the amen0ments 8ro8ose0 )7 the *ommittee, unless *o8ies
thero1 are 0istri)ute0 an0 su*h rea0ing is 0is8ense0 .ith.
Then, the )ill .ill )e su)/e*t to 0e)ates, 8ertinent
motions, an0 amen0ments. A1ter the amen0ments, the )ill .ill )e
;ote0 on se*on0 rea0ing. A )ill a88ro;e0 on the se*on0 rea0ing
shall )e in*lu0e0 in the *alen0ar o1 )ills 1or thir0 rea0ing. On
thir0 rea0ing, the )ill as a88ro;e0 on se*on0 rea0ing .ill )e
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su)mitte0 1or 1inal ;ote.
APPROPRIATIONS AN@ REBENUE >ILLS
Rea0 Arti*le 2, se*. 53, 5& o1 the *onstitution.
AUTAENTICATION OF >ILLS
>e1ore an a88ro;e0 )ill is sent to the 8resi0ent, the )ill is
authenti*ate0 )7 the signing o1 the S8eaCer an0 the Senate
Presi0ent o1 the 8rinte0 *o87 o1 the a88ro;e0 )ill.
UNIMPEACAA>ILIT- OF LEGISLATIBE FOURNALS
The /ournal is regar0e0 as *on*lusi;e .ith res8e*t to
matters that are re=uire0 )7 the *onstitution to )e re*or0e0
therein. +ith res8e*t to other matters, in the a)sen*e o1
e;i0en*e to the *ontrar7, the Fournals ha;e also )een a**or0e0
*on*lusi;e e?e*t.
ENROLLE@ >ILL
Un0er the enrolle0 )ill 0o*trine, the te:t o1 the a*t as
8asse0 an0 a88ro;e0 is 0eeme0 im8orting a)solute ;era*it7
an0 is )in0ing on the *ourts. It is *on*lusi;e not onl7 o1 its
8ro;isions )ut also o1 its 0ue ena*tment.
I1 there has )een an7 mistaCe in the 8rinting o1 the )ill
)e1ore it .as *erti1ie0 )7 the o?i*er o1 the assem)l7 an0 a88ro;e0
)7 the *hie1 e:e*uti;e, the reme07 is )7 amen0ment )7 ena*ting a
*urati;e legislation, not )7 /u0i*ial 0e*ree Cas*o Phil. Chemi*al
Co., In*. ;. Gimene<'
+here there is 0is*re8an*7 )et.een the /ournal an0 the
enrolle0 )ill, the latter as a rule 8re;ails o;er the 1ormer,
8arti*ularl7 .ith res8e*t to matters not e:8ressl7 re=uire0 to )e
entere0 in the /ournal.
+ITA@RA+AL OF AUTAENTICATION, EFFECT OF
The S8eaCer an0 the Senate Presi0ent ma7 .ith0ra. their
signatures 1rom the signe0 )ill .here there is serious an0
su)stantial 0is*re8an*7 )et.een the te:t o1 the )ill as
0eli)erate0 an0 sho.n )7 the /ournal an0 that o1 the enrolle0
)ill. It thus, ren0ers the )ill .ithout attestation an0 nulli1ies its
status as an enrolle0 )ill.
The *ourt *an 0e*lare that the )ill has not )een 0ul7 ena*te0
an0 0i0 not a**or0ingl7 )e*ome a la. Astorga ;. Billegas'.
C. PARTS OF STATUTES
TITLE OF STATUTE
One su)/e*t, one )ill 8ro;ision is man0ator7, ;iolation
thereo1 is un*onstitutional.
PURPOSES OF REEUIREMENT
It is to 8rohi)it 0u8li*it7 in legislation, the title o1 .hi*h
*om8letel7 1ails to a88rise the legislators or the 8u)li* o1 the
nature, s*o8e an0 *onse=uen*es o1 the la. or its 8ro;isions
In*hong ;. Aernan0e<'
!. to 8re;ent ho0ge8o0ge or log$rolling legislation
5. to 8re;ent sur8rise o1 1rau0 u8on the legislature
%. to 1airl7 a88rise the 8eo8le
3. title o1 the statute ma7 )e use0 as a gui0e in
as*ertaining legislati;e intent .hen the language o1 the a*t
0oes not *learl7 e:8ress its 8ur8ose
AO+ REEUIREMENT CONSTRUE@
The *onstitutional re=uirement as to title o1 a )ill shoul0 )e
li)erall7 *onstrue0 Peo8le ;. >uen;ia/e'. It shoul0 not
)e gi;en a te*hni*al inter8retation. Nor shoul0 it )e so
narro.l7 *onstrue0 as to *ri88le or im8e0e the 8o.er o1
legislation To)ias ;. A)alos'. +here there is 0ou)t, the
=uestion shoul0 )e resol;e0 against the 0ou)t an in 1a;or o1 the
*onstitutionalit7 o1 the statute.
+AEN TAERE IS COMPLIANCE +ITA REEUIREMENT
!. i1 the title is *om8rehensi;e enough to reasona)l7
in*lu0e the general o)/e*t .hi*h a statute seeCs to
e?e*t, .ithout e:8ressing ea*h an0 e;er7 en0 an0
means ne*essar7 o1 *on;enient 1or a**om8lishing the
o)/e*t
5. i1 all 8arts are relate0 an0 germane to the su)/e*t
matter
%. i1 it in0i*ates in )roa0 )ut *lear terms the nature, s*o8e
an0 *onse=uen*es o1 the la. an0 its o8erations.
The title nee0 not )e a *atalogue or in0e: o1 the )ill Peo8le ;.
Ferrer'. These 8rin*i8les a88l7 to titles o1 amen0ator7 a*ts. A title
.hi*h states that it is an a*t to amen0 a s8e*i1i* statutes is a
su?i*ient *om8lian*e .ith the *onstitutional re=uirementG it nee0
not states the 8re*ise nature o1 the amen0ator7 a*t Manila
Tra0ing H Su88l7 Co, ;. Re7es'.
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Note9 Ian0 1or other 8ur8osesJ amounts to nothing
+AEN REEUIREMENT NOT APPLICA>LE
It 0oes not a88l7 to la.s in 1or*e e:isting at the time the
!"%& Constitution tooC e?e*t Peo8le ;. Balenso7', nor to
muni*i8al or *it7 or0inan*es.
EFFECT OF INSUFFICIENC- OF TITLE
I1 the su)/e*t is not relate0 in an7 manner to the title it is
null an0 ;oi0, )ut i1 the su)/e*t matter is not su?i*ientl7 e:8resse0
in its title, onl7 so mu*h o1 the su)/e*t matter as is not e:8resse0
therein is ;oi0, lea;ing the rest in 1or*e, unless the in;ali0
8ro;isions are inse8ara)le 1rom the others.
ENACTING CLAUSE
The ena*ting *lause is that 8art o1 a statute .ritten
imme0iatel7 a1ter the title thereo1 .hi*h states the authorit7 )7
.hi*h the a*t is ena*te0.
PREAM>LE
A 8ream)le is a 8re1ator7 statement or e:8lanation or a
1in0ing o1 1a*ts, re*iting the 8ur8ose, reason or o**asion 1or maCing
the la. to .hi*h it is 8re1i:e0. It is usuall7 1oun0 in 8resi0ential
0e*rees an0 e:e*uti;e or0ers.
PURBIE+ OF STATUTE
The 8ur;ie. o1 )o07 o1 a statute is that 8art .hi*h tells
.hat the la. is all a)out. A *om8le: an0 *om8rehensi;e 8ie*e o1
legislation usuall7 *ontains, in this se=uen*e, a short title, a 8oli*7
se*tion, 0e1inition se*tion, a0ministrati;e se*tion, se*tions
8res*ri)ing stan0ar0s o1 *on0u*t, se*tion im8osing san*tions 1or
;iolations or its 8ro;isions, transitor7 8ro;ision, se8ara)ilit7 *lause,
re8ealing *lause an0 e11e*ti;it7 *lause.
The *onstitutional re=uirement that a )ill shoul0 ha;e onl7
one su)/e*t matter .hi*h shoul0 )e e:8resse0 in its title is
*om8lie0 .ith .here the 8ro;isions thereo1, no matter ho. 0i;erse
the7 ma7 )e, are allie0 an0 germane to the su)/e*t, or negati;el7
state0, .here the 8ro;isions are not in*onsistent .ith, )ut in
1urtheran*e o1, the single su)/e*t matter Peo8le ;. Carlos'.
SEPARA>ILIT- CLAUSE
A Se8ara)ilit7 *lause is that 8art o1 a statute .hi*h
states that i1 an7 8ro;ision o1 the a*t is 0e*lare0 in;ali0, the
remain0er shall not )e a?e*te0 there)7. Su*h a *lause is not
*ontrolling an0 the *ourts, in s8ite o1 it, ma7 in;ali0ate the
.hole statute .here .hat is le1t, a1ter the ;oi0 8art, is not
*om8lete an0 .orCa)le.
D. PRESIDENTIAL ISSUANCE, RULES AND ORDINANCES
PRESI@ENTIAL ISSUANCES
These are those .hi*h the 8resi0ent issues in the e:er*ise
o1 his or0inan*e 8o.er. The7 ha;e the 1or*e an0 e?e*t o1 la..
!. E:e*uti;e or0er ( a*ts o1 8resi0ent 8ro;i0ing 1or rules o1 a
general or 8ermanent *hara*ter in the im8lementation
or e:e*ution o1 *onstitutional or statutor7 8o.ers
5. A0ministrati;e or0er ( a*ts o1 8resi0ent .hi*h relate to
8arti*ular as8e*ts o1 go;ernmental o8erations in 8ursuan*e
o1 his 0uties as a0ministrati;e hea0.
%. Pro*lamations ( a*ts 8resi0ent 1i:ing a 0ate or 0e*laring a
statute or *on0ition o1 8u)li* moment or interest, u8on
the e:isten*e o1 .hi*h the o8eration o1 a s8e*i1i* la. or
regulation is ma0e to 0e8en0
3. Memoran0um or0ers ( a*ts o1 8resi0ent on matters o1
a0ministrati;e 0etail or o1 su)or0inate or tem8orar7
interest .hi*h onl7 *on*ern a 8arti*ular o?i*er or o?i*e
o1 the go;ernment
&. Memoran0um *ir*ulars ( a*ts o1 8resi0ent on matters
relating to internal a0ministration .hi*h the 8resi0ent
0esires to )ring to the attention o1 all or some o1 the
0e8artments, agen*ies, )ureaus or o?i*es o1 the
go;ernment 1or in1ormation or *om8lian*e
2. General/S8e*i1i* or0ers ( a*ts an0 *omman0s o1
8resi0ent in his *a8a*it7 as *omman0er$in$*hie1 o1 the
AFP
SUPREME COUR CIRCULARSG RULES AN@ REGULATIONS
Rea0 Se*. & &', Arti*le BIII o1 the *onstitution
In *ase o1 0is*re8an*7 or *on1li*t )et.een the )asi* la. an0
the regulations issue0 to im8lement it, the 1ormer 8re;ails
o;er the latter +ise H Co. ;. Meer'. For it is elementar7
8rin*i8le in statutor7 *onstru*tion that a statute is su8erior to an
a0ministrati;e regulation an0 the 1ormer *annot )e re8eale0 or
amen0e0 )7 the latter China >anCing Cor8. ;. C.A.'.
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A@MINISTRATIBE RULE AN@ INTERPRETATION
@ISTINGUISAE@
+hen an a0ministrati;e agen*7 8romulgates rules an0
regulation, it maCes a ne. la. .ith the 1or*e an0 e?e*t o1 a
;ali0 la. an0 is )in0ing to the *ourts, .hile .hen it ren0ers an
o8inion or gi;es a statement o1 8oli*7, it merel7 inter8rets a
8ree:isting la., it is merel7 a0;isor7 an0 not )in0ing to the
*ourts.
>ARANGA- OR@INANCE
The sangguniang )aranga7 ma7 8ass a )aranga7 or0inan*e
)7 ma/orit7 ;ote o1 all its mem)ers, it is su)/e*t to re;ie. )7 the
sangguniang )a7an or sangguniang 8anlungso0, as the *ase ma7
)e, .hi*h shall taCe a*tion on it .ithin %# 0a7s 1rom su)mission.
Ina*tion is e=ui;alent to a88ro;al.
MUNICIPAL OR@INANCE
The sangguniang )a7an ma7 )ass a )ill )7 a ;ote o1 a
ma/orit7 o1 the mem)ers 8resent, there )eing a =uorum,
su)/e*t to re;ie. )7 the muni*i8al ma7or a*ting on it .ithin !#
0a7s. Ina*tion is a88ro;al, i1 ;etoe0 ma7 )e 8asse0 )7 t.o$
thir0s ;ote o1 all mem)ers.
CIT- OR@INANCE
The sangguniang 8anglungso0 8asse0 a )ill in the same
manner as the sangguniang )a7an. >ut i1 itDs a *om8onent
*it7, the )ill is su)/e*t to re;ie. )7 the sangguniang 8anglungso0,
a*ting on it .ithin %# 0a7s .here ina*tion is e=ui;alent to a88ro;al.
PROBINCIAL OR@INANCE
The sangguniang 8anlala.aigan ma7 8ass a )ill )7 a
ma/orit7 ;ote o1 the mem)ers 8resent, su)/e*t to re;ie. )7 the
go;ernor, .ho shall a*t .ithin !& 0a7s 1rom re*ei8t. Ina*tion is
a88ro;al, i1 ;etoe0, ma7 )e re8asse0 )7 t.o$thir0s ;ote o1 all
mem)ers
E. VALIDITY
PRESUMPTION OF CONSTITUTIONALIT-
E;er7 statute is 8resume0 ;ali0. All reasona)le 0ou)ts
shoul0 )e resol;e0 in 1a;or o1 the *onstitutionalit7 o1 la.. To
0ou)t is to sustain. The 1inal authorit7 to 0e*lare a la.
un*onstitutional is the SC en )an* )7 the I*on*urren*e o1 a
ma/orit7 o1 the Mem)ers .ho a*tuall7 tooC 8art in the
0eli)erations.J Trial *ourts ha;e /uris0i*tion to initiall7 0e*i0e the
issue o1 *onstitutionalit7 o1 a la. in a88ro8riate *ases.
REEUISITES FOR EKERCISE OF FU@ICIAL PO+ER
!. the e:isten*e o1 an a88ro8riate *ase
5. an interest 8ersonal an0 su)stantial )7 the 8art7 raising the
*onstitutional =uestion
%. the 8lea that the 1un*tion )e e:er*ise0 at the earliest
o88ortunit7
3. the ne*essit7 that the *onstitutional =uestion )e 8asse0
u8on in or0er to 0e*i0e a *ase.
APPROPRIATE CASE
One in .hi*h it raises a /usti*ia)le *ontro;ers7, the
resolution o1 .hi*h the *ourt .ill ha;e to *hoose )et.een the
*onstitution an0 the *hallenge0 statute
STAN@ING TO SUE
Legal Stan0ing is a 8ersonal an0 su)stantial interest in the
*ase su*h that the 8art7 has sustaine0 or .ill sustain 0ire*t
in/ur7 as a result o1 the go;ernmental a*t that is )eing
*hallenge0.
Citi<ens legal stan0ing9
o Ae has su?ere0 some a*tual or threatene0 in/ur7 as
a result o1 the allege0l7 illegal *on0u*t o1
go;ernment
o In/ur7 is 1airl7 tra*ea)le to the *hallenge0 a*tion.
o In/ur7 is liCel7 to )e re0resse0 )7 a 1a;ora)le
a*tion
Ta: 8a7ers legal stan0ing9
!. +hen it is esta)lishe0 that 8u)li* 1un0s ha;e
)een 0is)urse0 in allege0 *ontra;ention o1 the
la. or the *onstitution, or in 8re;enting the
illegal e:8en0iture o1 mone7 raise0 )7 ta:ation
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5. Ae .ill sustain a 0ire*t in/ur7 as a result o1 the
en1or*ement o1 the =uestione0 statute.
The SC ma7 taCe *ogni<an*e o1 a suit .hi*h 0oes not
satis17 the re=uirements o1 legal stan0ingG the Court has a0o8te0 a
li)eral attitu0e on the lo*us stan0i o1 a 8etitioner .here the
8etitioner is a)le to *ra1t an issue o1 trans*en0ental signi1i*an*e to
the 8eo8leG 8aramount im8ortan*e to the 8u)li*.
+AEN TO RAISE CONSTITUTIONALIT-
Constitutionalit7 must )e raise0 at the earliest 8ossi)le
time. I1 the =uestion is not raise0 in the 8lea0ings, or0inaril7 it
ma7 not )e raise0 at the trial, an0 i1 not raise0 in the trial, it .ill
not )e *onsi0ere0 in a88eal.
E:*e8tions9
a. the =uestion ma7 raise0 in a motion 1or
re*onsi0eration or ne. trial in the lo.er
*ourt, .here the statute sought to )e
in;ali0ate0 .as not in e:isten*e .hen the
*om8laint .as 1ile0 or 0uring the trial
). the =uestion o1 ;ali0it7 ma7 also )e raise0 in
*riminal *ases at an7 stage o1 the
8ro*ee0ings.
*. In *i;il *ases .here it a88ears *learl7 that a
0etermination o1 the =uestion is
ne*essar7 to a 0e*ision an0 in*ases .here
it in;ol;e0 the /uris0i*tion o1 the *ourt
)elo..
TEST OF CONSTITUTIONALIT-
A statute ma7 )e 0e*lare0 un*onstitutional )e*ause it is
;ague. It is ;ague .hen it la*Cs *om8rehensi;e stan0ar0s that
men o1 *ommon intelligen*e must ne*essaril7 guess at its meaning
an0 0i?er in its a88li*ation. The *hange o1 *ir*umstan*es or
*on0itions ma7 a?e*t the ;ali0it7 o1 some
statues, s8e*iall7 those so$*alle0 emergen*7 la.s 0esigne0
s8e*i1i*all7 to meet *ertain *ontingen*ies.
+ith res8e*t to or0inan*es, the test o1 ;ali0it7 are9 Must
not *ontra;ene the *onstitution or an7
statute
Must not )e un1air or o88ressi;e
Must not )e 8artial or 0is*riminator7
Must not 8rohi)it )ut ma7 regulate tra0e
Must )e general an0 *onsistent .ith 8u)li*
8oli*7
Must not )e unreasona)le
EFFECTS OF UNCONSTITUTIONALIT-
The general rule is that an un*onstitutional a*t is not a la.,
*on1ers no rights. Regar0 shoul0 )e ha0 to .hat has )een
0one .hile the statute .as in o8eration an0 8resume0 to )e
;ali0. Aen*e, its o8erati;e 1a*t )e1ore a 0e*laration o1 nullit7
must )e re*ogni<e0.
There are t.o ;ie. on the e?e*ts o1 a 0e*laration o1 the
un*onstitutionalit7 o1 a statute9
Orthodox View. An un*onstitutional la. *on1ers no right, is
not a la., im8oses no 0uties, a?or0s no 8rote*tionG in
legal *ontem8lation, it is ino8erati;e, as i1 it ha0 not )een
8asse0.
Modern View. The *ourt in 8assing u8on the =uestion o1
*onstitutionalit7 0oes not annul or re8eal the statute i1 it is
un*onstitutional, it sim8l7 re1uses to re*ogni<e it an0
0etermines the rights o1 the 8arties /ust as i1 the statute
ha0 no e:isten*e. It 0oes not re8eal, su8erse0e, re;oCe or
annul the statute. The 8arties to the suit are *on*lu0e0 )7
the /u0gment, )ut no one else is )oun0.
INBALI@IT- @UE TO CAANGE OF CON@ITIONS
The general rule as to the e?e*ts o1 un*onstitutionalit7
o1 a statute is not a88li*a)le to a statute that is 0e*lare0 in;ali0
)e*ause o1 the *hange o1 *ir*umstan*es a?e*ting its ;ali0it7. It
)e*omes in;ali0 onl7 )e*ause the *hange o1 *on0itions maCes its
*ontinue0 o8eration ;iolati;e o1 the Constitution, an0 a**or0ingl7,
the 0e*laration o1 its nullit7 shoul0 a?e*t onl7 the 8arties in;ol;e0
in the *ase, an0 its e11e*ts a88lie0
8ros8e*ti;el7. A statute o1 this t78e )elongs to the *lass o1
emergen*7 la.s
PARTIAL INBALI@IT-
The general rule is that .here 8art o1 a statute is ;oi0 as
re8ugnant to the Constitution, .hile another 8art is ;ali0, the ;ali0
6
8ortion, i1 se8ara)le 1rom the in;ali0, ma7 stan0 an0 )e en1or*e0G
e:*e8t .hen the 8arts are so mutuall7 0e8en0ent
an0 *onne*te0. The 8resen*e o1 se8ara)ilit7 *lause *reates the
8resum8tion that the legislature inten0e0 se8ara)ilit7, rather than
*om8lete nullit7 o1 the statute.
F. EFFECT AND OPERATION
+AEN LA+S TALE EFFECT
Art 5 o1 the Ci;il Co0e 8ro;i0es that ILaws shall take
efect after fifteen days following the completion of their
publication in the Oficial Gazette unless it is otherwise
pro!ided."
All la.s or statutes, in*lu0ing those o1 lo*al a88li*ation
an0 8ri;ate la. shall )e 8u)lishe0 as a *on0ition 1or their
e?e*ti;it7 TaMa0a ;. Tu;era', other.ise it .oul0 ;iolate the 0ue
8ro*ess *lause o1 the *onstitution.
The general rule is that .here the la. is silent as to its
e?e*ti;it7, or .here it 8ro;i0es that it shall taCe e?e*t imme0iatel7
or u8on its a88ro;al, su*h la. shall taCe e?e*t a1ter !& 0a7s 1rom
its 8u)li*ation in the O?i*ial Ga<ette. The *om8letion o1
8u)li*ation, 1rom .hi*h 0ate the 8erio0 o1 8u)li*ation .ill )e
*ounte0, re1ers to the 0ate o1 release o1 the O.G. or ne.s8a8er 1or
*ir*ulation an0 not to its 0ate, unless the t.o 0ates *oin*i0e.
+AEN PRESI@ENTIAL ISSUANCES, RULES AN@ REGULATIONS TALE
EFFECT
The re=uirement o1 8u)li*ation as a *on0ition 1or the
e?e*ti;it7 o1 statues a88lies to Presi0ential Issuan*es, e:*e8t
those .hi*h are merel7 inter8retati;e or internal in nature not
*on*erning the 8u)li*.
Rules an0 regulations o1 a0ministrati;e an0 e:e*uti;e
o?i*ers are o1 t.o t78es9
!. +hose 8ur8ose is to im8lement or en1or*e
e:isting la. 8ursuant to a ;ali0 0elegation or to
1ill in the 0etails o1 a statuteG .hether the7 are
8enal or non$8enalG this re=uires 8u)li*ation.
5. +hi*h are merel7 inter8retati;e in nature or
merel7 internal in *hara*ter not *on*erning the
8u)li*, 0oes not nee0 8u)li*ation.
In a00ition, the !"64 A0ministrati;e Co0e 8ro;i0es that9
!. E;er7 agen*7 shall 1ile .ith the U.P. La. *enter three
*o8ies o1 e;er7 rule a0o8te0 )7 it. Rules in 1or*e on the
0ate o1 e?e*ti;it7 o1 this Co0e .hi*h are not 1ile0 .ithin
% months 1rom that 0ate shall not )e the )asis o1 an7
san*tion against an7 8art7 or 8ersons.
5. Ea*h rule shall )e*ome e?e*ti;e !& 0a7s 1rom the
0ate o1 1iling as a)o;e 8ro;i0e0 unless a 0i?erent
0ate is 1i:e0 )7 la., or s8e*i1ie0 in the rule in *ases
o1 imminent 0anger to 8u)li* health, sa1et7 an0
.el1are.
Pu)li*ation an0 1iling re=uirements are in0is8ensa)le to
the e?e*ti;it7 o1 rules an0 regulations, e:*e8t .hen the la.
authori<ing its issuan*e 0is8enses the 1iling re=uirements.
+AEN LOCAL OR@INANCE TALE EFFECT
!. Unless other.ise state0, Local ordinance shall taCe e?e*t
a1ter !# 0a7s 1rom the 0ate a *o87 thereo1 is 8oste0 in a
)ulletin )oar0 at the entran*e o1 the 8ro;in*ial *a8itol or
*it7, muni*i8al, or )aranga7 hall, as the *ase ma7 )e, an0
in at least t.o other *ons8i*uous 8la*es in the lo*al
go;ernment unit.
5. the se*retar7 to the sanggunian shall *ause the 8osting o1
the or0inan*e .ithin & 0a7s a1ter its a88ro;al at the
entran*e o1 the 8ro;in*ial *a8itol an0 the *it7, muni*i8al or
)aranga7 hall in at least 5 *ons8i*uous 8la*es
%. The gist o1 all or0inan*es .ith 8enal san*tions shall )e
8u)lishe0 in a ne.s8a8er o1 general *ir*ulation, .ithin the
8ro;in*e .here the lo*al legislati;e )o07 *on*erne0
)elongs, in the a)sen*e o1 su*h ne.s8a8ers, 8ostings shall
)e ma0e in all muni*i8alities an0 *ities o1 the 8ro;in*e
.here the saggunian o1 origin is situate0.
3. For highl7 ur)ani<e0 *it7 an0 in0e8en0ent *om8onent *ities,
in a00ition to )eing 8oste0, )e 8u)lishe0 on*e in a lo*al
ne.s8a8er o1 gen. *ir*ulation .ithin the *it7, in the
a)sen*e o1 .hi*h, it shall )e 8u)lishe0 in an7 ne.s8a8er o1
general *ir*ulation.
STATUTES CONTINUE IN FORCE UNTIL REPEALE@
Unless a statute is )7 its 8ro;isions 1or a limite0 8erio0
onl7, it *ontinues in 1or*e until *hange0 or re8eale0 )7 the
legislature. La. on*e esta)lishe0 *ontinues until *hange0 )7 some
*om8etent legislati;e 8o.er. It is not *hange0 )7 *hange o1
so;ereignt7 nor o1 a *hange in *onstitution, until the ne. so;ereign
7
)7 legislati;e a*t *reates a *hange.
MANNER OF COMPUTING TIME
+here the .or0 I.eeCJ is use0 as a measure o1 time an0
.ithout re1eren*e to the *alen0ar, it means a 8erio0 o1 se;en
*onse*uti;e 0a7s .ithout regar0 to the 0a7 o1 the .eeC 1rom
.hi*h it )egins PN> ;. C.A'.
+here a statute re=uires the 0oing o1 an a*t .ithin a
s8e*i1ie0 num)er o1 0a7s, su*h as ten 0a7s, 1rom noti*e, it
means !# *alen0ar 0a7s an0 not .orCing 0a7s.
The e:*lu0e$ the (1irst an0 in*lu0e the last 0a7 rule
go;erns the *om8utation o1 a 8erio0. I1 the last 0a7 1alls on a
Sun0a7 or legal holi0a7, the a*t *an still )e 0one the 1ollo.ing
0a7. The 8rin*i8le 0oes not a88l7 to the *om8utation o1 the 8erio0
o1 8res*ri8tion o1 a *rime, in .hi*h the rule is that i1 the last 0a7s
in the 8erio0 o1 8res*ri8tion o1 a 1elon7 1alls on a Sun0a7 or legal
holi0a7, the in1ormation *on*erning sai0 1elon7 *annot )e 1ile0 on
the ne:t .orCing 0a7, as the o11ense has )een )7 then alrea07
8res*ri)e0.
CHAPTER 2: CONSTRUCTION AND
INTERPRETATION
A. NATURE AND PURPOSE
CONSTRUCTION @EFINE@
It is the art or 8ro*ess o1 0is*o;ering an0 e:8oun0ing the
meaning an0 intention o1 the authors o1 the la., .here that
intention is ren0ere0 0ou)t1ul )7 reason o1 the am)iguit7 in its
language or o1 the 1a*t that the gi;en *ase is not e:8li*itl7 8ro;i0e0
in the la.
CONSTRUCTION AN@ INTERPRETATION @ISTINGUISAE@
Inter8retation is the art o1 1in0ing the true meaning an0
sense o1 an7 1orm o1 .or0, .hile *onstru*tion is the 8ro*ess o1
0ra.ing .arrante0 *on*lusions not al.a7s in*lu0e0 in 0ire*t
e:8ression or 0etermining the a88li*ation o1 .or0s to 1a*es in
litigation. >ut the7 are use0 inter*hangea)l7 in 8ra*ti*e.
RULES OF CONSTRUCTION, GENERALL-
The legislature is 8resume0 to Cno. the rules o1
statutor7 *onstru*tion, it ena*ts a la. .ith the en0 in ;ie. that
it .ill, in *ase o1 0ou)t, )e *onstrue0 in a**or0an*e .ith the
settle0 8rin*i8les o1 inter8retation. +here there is am)iguit7 in the
language o1 a statute, *ourts em8lo7 *anons o1 statutor7
*onstru*tion to as*ertain an0 gi;e e11e*t to its true intent an0
meaning.
The legislature sometimes a0o8ts rules o1 statutor7
*onstru*tion as 8art o1 the 8ro;isions o1 a statute. The legislature
also 0e1ines, in *ertain *om8li*ate0 statutes, the .or0 an0
8hrases use0 therein. E:*e8t as the7 ma7 ha;e )een em)o0ie0 as
8art o1 a statute, rules o1 *onstru*tion ha;e no )in0ing e?e*t on the
*ourts. Nor are the7 *ontrolling in the inter8retation o1 la.s, the7
ma7 onl7 )e use0 to *lari17, not to 0e1eat, legislati;e intent.
E;en those rules o1 *onstru*tion .hi*h are in the 1orm o1
statutor7 8ro;isions ma7 )e ignore0 i1 their em8lo7ment ma7
0e1eat, rather than e?e*tuate, legislati;e intent.
PURPOSE OR O>FECT OF CONSTRUCTION
All rules o1 *onstru*tion o1 inter8retation ha;e 1or their sole
o)/e*t the as*ertainment o1 the true intent o1 the
legislature. The o)/e*t o1 all /u0i*ial inter8retation o1 a statute
is to 0etermine legislati;e intent, .hat intention is *on;e7e0,
either e:8ressl7 or im8lie0l7, )7 the language use0, so 1ar as it is
ne*essar7 1or as*ertaining .hether the 8arti*ular *ase or state
o1 1a*ts 8resente0 to the *ourt *omes .ithin it.
LEGISLATIBE INTENT, GENERALL-
Courts .ill not 1ollo. the letter o1 the statute .hen it
lea0s a.a7 1rom the true intent o1 the legislature an0 to
*on*lusions in*onsistent .ith the general 8ur8ose o1 the a*t Torres
;. Lim/a8'. Aen*e, .here the statute is sus*e8ti)le o1 more than
one *onstru*tion, that *onstru*tion shoul0 )e
a0o8te0 .hi*h .ill most ten0 to gi;e e?e*t to the mani1est
intent o1 the legislature U.S. ;. Tori)io'.
LEGISLATIBE PURPOSE
It is the reason .h7 a 8arti*ular statute .as ena*te0 )7 the
legislature. A legislation is an a*ti;e instrument o1 the go;ernment
.hi*h, 1or 8ur8oses o1 inter8retation, means that la. ha;e en0s to
)e a*hie;e0 an0 statutes shoul0 )e so *onstrue0 so as not 0e1eat
)ut to *arr7 out su*h en0s an0 8ur8oses Lite: Em8lo7ees Assn ;.
E0u;ala'.
8
LEGISLATIBE MEANING
It is .hat the la., )7 its language, means. It ma7 )e
s7non7mous to legislati;e intent. I1 there is am)iguit7 in the
language, its 8ur8ose ma7 in0i*ate the meaning o1 the
language an0 lea0 to .hat the legislati;e intent is.
MATTERS INEUIRE@ INTO IN CONSTRUING A STATUTE
It is not enough to as*ertain the intention o1 meaning o1 the
statuteG it is also ne*essar7 to see .hether the intention or
meaning o1 the statute has )een e:8resse0 in su*h a .a7 as to
gi;e it legal e?e*t an0 ;ali0it7. The legal a*t is ma0e u8 o1 t.o
elements ( an internal an0 an e:ternal oneG it originates in
intention an0 is 8er1e*te0 )7 e:8ression. Failure o1 the latter
ma7 0e1eat the 1ormer.
+AERE LEGISLATIBE INTENT IS ASCERTAINE@
The 8rimar7 sour*e o1 the intent is the statute itsel1 an0 has
to )e 0is*o;ere0 1rom the 1our *orners o1 the la. Manila
Lo0ge No. 42! ;. C. A'. It has to )e e:tra*te0 1rom the statute
as a .hole an0 not 1rom an isolate0 8art o1 8arti*ular 8ro;ision
thereo1. +here the .or0s an0 8hrases o1 a statute are not o)s*ure
or am)iguous, its meaning an0 the intention o1 the legislature must
)e 0etermine0 1rom the language em8lo7e0 Bero7 ;. La7ague'.
The *ourt ma7 also looC to the 8ur8ose o1 the statute to )e
su)ser;e0, the reason or *ause .hi*h in0u*e0 the ena*tment o1
the la., the mis*hie1 to )e su88resse0, an0 the 8oli*7 .hi*h
0i*tate0 its 8assage -u Cong Eng ;. Trini0a0'.
B. POWER TO CONSTRUE
CONSTRUCTION IS A FU@ICIAL FUNCTION
It is em8hati*all7 the 8ro;in*e an0 0ut7 o1 the /u0i*ial
0e8artment to sa7 .hat the la. is an0 it has the 1inal .or0 as to
.hat the la. means. The *ourt 0oes not inter8ret the la. in a
;a*uum. It 0oes not gi;e legal o8inion on h78otheti*al *ases or in
*ases .hi*h ha;e )e*ome moot or a*a0emi*
LEGISLATURE CANNOT OBERRULE FU@ICIAL @ECISIONS
The legislature has no 8o.er to o;errule the inter8retation
or *onstru*tion o1 a statute o1 the Constitution )7
the Su8reme *ourt an0 .hile it ma7 in0i*ate its *onstru*tion o1
a statute in a resolution or 0e*larator7 a*t, it *annot 8re*lu0e the
*ourts 1rom gi;ing the statute a 0i?erent inter8retation.
+AEN FU@ICIAL INTERPRETATION MA- >E SET ASI@E
The Su8reme Court ma7 *hange or o;errule its 8re;ious
*onstru*tion. Constitutional amen0ments ma7 mo0i17 or nulli17 a
/u0i*ial inter8retation o1 a 8ro;ision thereo1. The rule that the
Su8reme Court has the 1inal .or0 in the inter8retation o1 a statute
merel7 means that the legislature *annot, )7 la. or resolution,
mo0i17 or annul the /u0i*ial *onstru*tion .ithout mo0i17ing or
re8ealing the ;er7 statute .hi*h has )een the su)/e*t o1
*onstru*tion, )ut .hen it ena*ts a re8eal, the 8re;ious /u0i*ial
*onstru*tion o1 the statute is mo0i1ie0 or set asi0e.
+AEN COURT MA- CONSTRUE STATUTE
A *on0ition sine =ua non, )e1ore the *ourt ma7 *onstrue or
inter8ret, is that there )e 0ou)t or am)iguit7 in its language. Onl7
statutes .ith an am)iguous or 0ou)t1ul meaning ma7 )e the
su)/e*t o1 statutor7 *onstru*tion @aong ;. Muni*i8al Fu0ge'. A
statute is am)iguous i1 it is sus*e8ti)le o1 more than one
inter8retation.
COURTS MA- NOT CONSTRUE +AERE STATUTE IS CLEAR
Constru*tion *omes onl7 a1ter it has )een 0emonstrate0
that the a88li*ation is im8ossi)le or ina0e=uate .ithout it. It is the
;er7 last 1un*tion .hi*h the *ourt shoul0 e:er*ise, 1or it
there is more a88li*ation an0 less *onstru*tion, there .oul0 )e
more sta)ilit7 in the la. Li<arraga Aermanos ;. -a8 Ti*o'. It has
)een re8eate0l7 0e*lare0 that .here the la. s8eaCs in *lear
an0 *ategori*al language, there is no room 1or
inter8retation an0 there is onl7 room 1or a88li*ation Ce)u
Portlan0 Cement Co. ;. Muni*i8alit7 o1 Naga'.
For nothing is )etter settle0 than that the 1irst an0
1un0amental 0ut7 o1 *ourts is to a88l7 the la. as the7 1in0 it, not
as the7 liCe it to )e. Fi0elit7 to su*h a tasC 8re*lu0es *onstru*tion
unless a88li*ation is im8ossi)le or ina0e=uate .ithout it Resins,
In*. ;. Au0itor General'.
+here the la. is *lear an0 unam)iguous, it must )e taCen
to mean e:a*tl7 .hat it sa7s an0 the *ourt has no *hoi*e
)ut to see to it that its man0ate is o)e7e0 Lu<on Suret7 Co. ;.
9
@e Gar*ia'.
+here the la. is 1ree 1rom am)iguit7, the *ourt ma7 not
intro0u*e e:*e8tions .here none is 8ro;i0e0 1rom
*onsi0erations o1 *on;enien*e, 8u)li* .el1are, or 1or an7
lau0a)le 8ur8ose, nor ma7 it engra1t into the la. =uali1i*ations not
*ontem8late0 Ramos ;. C.A', nor *onstrue 8ro;isions )7 taCing
into a**ount =uestions o1 e:8e0ien*7, goo0 1aith, 8ra*ti*al
utilit7 an0 other similar reasons so as to rela: non *om8lian*e
there.ith.
A0ministrati;e agen*ies tasCe0 to im8lement a stature
ma7 not *onstrue it )7 e:8an0ing its meaning .here 8ro;isions
are *lear an0 unam)iguous.
RULINGS OF SUPREME COURT PART OF LEGAL S-STEM
Legis interpretato legis !im obtinet the authoritati;e
inter8retation o1 the Su8reme Court o1 a statute a*=uires the 1or*e
o1 la. )7 )e*oming a 8art thereo1 as o1 the 0ate o1 its ena*tment,
sin*e the *ourtDs inter8retation merel7 esta)lishes the
*ontem8oratneous legislati;e intent that the statute thus
*onstrue0 inten0s to e?e*tuate Seno;ila ;. Aermosisimo'.
#tare decisis et non $uieta mo!ere .hen the Su8reme
Court has on*e lai0 0o.n a 8rin*i8le o1 la. as a88li*a)le to a
*ertain state o1 1a*ts, it .ill a0here to that 8rin*i8le an0 a88l7 it to
all 1uture *ases .here the 1a*ts are su)stantiall7 the same. This
assures *ertaint7 an0 sta)ilit7 in the legal s7stem.
As 8art o1 the legal s7stem an0 until re;erse0 )7 the
Su8reme Court itsel1, rulings o1 the highest tri)unal are )in0ing
u8on in1erior *ourts.
FU@ICIAL RULINGS AABE NO RETROACTIBE EFFECT
Lex prospicit non respicit the la. looCs 1or.ar0 not
)a*C.ar0. The inter8retation o1 a statute )7 the Su8reme
Court remains to )e 8art o1 the legal s7stem until the latter
o;errules it an0 the ne. 0o*trine o;erruling the ol0 is a88lie0
8ros8e*ti;el7 in 1a;or o1 8ersons .ho ha;e relie0 thereon in goo0
1aith.
COURTS MA- ISSUE GUI@ELINE IN CONSTRUING STATUTE
In *onstruing a statute, the en1or*ement o1 .hi*h ma7
trea0 on sensiti;e areas o1 *onstitutional rights, the *ourt ma7
issue gui0elines in a88l7ing the statute, not to enlarge or
restri*t it )ut to *learl7 0elineate .hat the la. re=uires. This is not
/u0i*ial legislation )ut an a*t to 0e1ine .hat the la. is.
C. LIMITATIONS ON POWER TO CONSTRUE
COURTS MA- NOT ENLARGE OR RESTRICT STATUTES
!. +hile statutor7 *onstru*tions in;ol;es *hoi*e, the *ourt
shoul0 resist the tem8tation to roam at .ill an0 rel7 on its
8re0ile*tion as to .hat 8oli*7 shoul0 8re;ail.
5. The7 ma7 not, in the guise o1 inter8retation, enlarge the
s*o8e o1 a statute an0 in*lu0e therein situations not
8ro;i0e0 nor inten0e0 )7 la.maCers.
%. The7 are not authori<e to insert into the la. .hat the7 thinC
shoul0 )e in it or to su88l7 .hat the7 thinC the
legislature .oul0 ha;e su88lie0 i1 its attention ha0 )een
*alle0 to the omission.
3. The7 shoul0 not re;ise e;en the most ar)itrar7 an0
un1air a*tion o1 the legislature, nor re.rite the la. to
*on1orm .ith .hat the7 thinC shoul0 )e the la.
&. Nor ma7 the7 inter8ret into the la. a re=uirement .hi*h the
la. 0oes not 8res*ri)e
2. Neither shoul0 *ourts *onstrue statutes .hi*h are
8er1e*tl7 ;ague, or *annot )e *lari1ie0 either )7 a sa;ing
*lause or )7 *onstru*tion.
COURTS NOT TO >E INFLUENCE@ >- EUESTIONS OF +IS@OM Sin*e
the legislature is 8rimaril7 the /u0ge o1 the
ne*essit7, a0e=ua*7, .is0om, reasona)leness an0 e:8e0ien*7 o1
an7 la., *ourts ma7 not taCe an7 o1 these matters into
a**ount in *onstruing or inter8reting the la.. As long as la.s
0o not ;iolate the Constitution, the *ourts merel7 inter8ret an0
a88l7 them regar0less o1 .hether or not the7 are .ise or
salutar7.
CHAPTER 3: AIDS TO CONSTRUCTION
A. IN GENERAL
10
GENERALL-
Ai0 to *onstru*tion are those 1oun0 in the 8rinte0 8age o1
the statute itsel1, Cno.n as intrinsi* ai0s, an0 those e:traneous
1a*ts an0 *ir*umstan*es outsi0e the 8rinte0 8age, *alle0 e:trinsi*
ai0s.
TITLE
The title ma7 in0i*ate the legislati;e intent to e:ten0 or
restri*t the s*o8e o1 the la., an0 a statute *ou*he0 in a language
o1 0ou)t1ul im8ort .ill )e *onstrue0 to *on1orm to the legislati;e
intent as 0is*lose0 in its title. The rule that the title ma7 ser;e as a
gui0e *arries more .eight in this /uris0i*tion )e*ause o1 the
*onstitutional re=uirement that e;er7 )ill shall ha;e one su)/e*t as
e:8resse0 in the title thereo1.
+AEN RESORT TO TITLE NOT AUTAORINE@
+hen the te:t is *lear it is im8ro8er to resort to its title to
maCe it o)s*ure. The title ma7 )e resorte0 in or0er to
remo;e, )ut not to *reate 0ou)t or un*ertaint7
PREAM>LE
It is that 8art o1 the stature .ritten imme0iatel7 a1ter its
title .hi*h states the 8ur8ose, reason or /usti1i*ation 1or the
ena*tment o1 the la. an0 usuall7 e:8resse0 in the 1orm o1
I.hereasJ *lauses. Though it is not, stri*tl7 s8eaCing, a 8art o1 a
statute, it is the Ce7 to the statute 1or its sets out the
intention o1 the legislature. It ma7 restri*t .hat other.ise
a88ears to )e a )roa0 s*o8e o1 a la., or re=uire, in the
*ommission o1 a *rime, an element not *learl7 e:8resse0 in its
te:t. It ma7 e:8ress the legislati;e intent to maCe the la. a88l7
retroa*ti;el7, in .hi*h *ase the la. has to )e gi;en retroa*ti;e
e?e*t, so as to *arr7 out su*h intent PN> ;. O?i*e o1 the
Presi0ent'.
CONTEKT OF +AOLE TEKT
Legislati;e intent shoul0 a**or0ingl7 )e as*ertaine0 1rom a
*onsi0eration o1 the .hole *onte:t o1 the stature an0 not
1rom an isolate0 8art o1 8arti*ular 8ro;ision A)oiti< Shi88ing
Cor8. ;. Cit7 o1 Ce)u'. The *onte:t ma7 *ir*ums*ri)e the
meaning o1 a statute, it ma7 gi;e to a .or0 or 8hrase a
meaning 0i?erent 1rom its usual or or0inar7 signi1i*ation. In
su*h a *ase, the meaning 0i*tate0 )7 the *onte:t 8re;ails.
E;er7 se*tion, 8ro;ision or *lause o1 the statute must )e
e:8oun0e0 )7 re1eren*e to ea*h other in or0er to arri;e at the
e?e*t *ontem8late0 )7 the legislature. The intention o1 the
legislature must )e as*ertaine0 1rom the .hole te:t o1 the la.
an0 e;er7 8art o1 the a*t is taCen into ;ie. Commissioner o1
Internal Re;eneu ;. TMK Sales'.
PUNCTUATION MARLS
A semi$*olon is use0 to in0i*ate a se8aration in the
relation o1 the thought, a 0egree greater than that e:8resse0
)7 a *ommaG an0 .hat 1ollo.s a semi$*olon must ha;e a
relation to the same matter .hi*h 8re*e0es it. The *omma an0 the
semi$*olon are )oth use0 1or the same 8ur8ose ( to 0i;i0e
senten*es an0 8arts o1 senten*es, the onl7 0i?eren*e is that semi$
*olon maCes the 0i;ision a little more 8ronoun*e0. The7 are not
use0 to intro0u*e a ne. i0ea.
Pun*tuation marCs are ai0s o1 lo. 0egree an0 *an ne;er
*ontrol against the intelligi)le meaning o1 .ritten .or0. The
reason is that 8un*tuation marCs are not 8art o1 a statureG nor
are the7 8art o1 the English language Feli*iano ;. A=uino'.
C a 8 it a l i< a tio n o 1 L e tt er s
LiCe 8un*tuation marCs, *a8itali<ation is an ai0 o1 lo.
0egree in the *onstru*tion o1 statute. E:am8le9 in a statute .hi*h
8ro;i0es that I a .ill ma0e .ithin the Phili88ine Islan0s )7 a
*iti<en or su)/e*t o1 another state or country, .hi*h is e:e*ute0 in
a**or0an*e .ith the la. o1 the state or country o1 .hi*h he is a
*iti<en or su)/e*t, an0 .hi*hOJ , in 1or*e at a time .hen the
Phili88ines .as still a territor7 o1 the US, the 1a*t that the .or0s
Istate an0 *ountr7J are not *a8itali<e0 0oes not mean that the
Unite0 States is e:*lu0e0 1orm the 8hrase Ianother state or
*ountr7.J
A e a 0 n o te s o r e 8ig r a 8 hs
Aea0notes, hea0ings, or e8igra8hs o1 se*tions o1 a statute
are *on;enient in0e: to the *ontents o1 its 8ro;isions.
Ao.e;er the7 are not entitle0 too mu*h .eight, an0 in1eren*es
0ra.n there1rom are o1 little ;alue an0 the7 *an ne;er *ontrol the
8lain terms o1 the ena*ting *lause, 1or the7 are not 8art o1 the la..
Se*on0ar7 ai0s, su*h as hea0notes or e8igra8hs, ma7 )e *onsulte0
to remo;e, )ut not to *reate nor to limit or *ontrol the 8lain
11
language o1 the la..
L in g u al te :t
Phili88ine la.s are o?i*iall7 8romulgate0 either in
English, S8anish or Fili8ino, or either in t.o su*h languages. The
rule is that, unless other.ise 8ro;i0e0, .here a statute is o?i*iall7
8romulgate0 in English an0 S8anish, the English te:t shall go;ern,
)ut in *ase o1 am)iguit7, omission or mistaCe, the S8anish ma7 )e
*onsulte0 to e:8lain the English te:t.
In te n t o r s 8i r it o 1 the la.
The intent or s8irit o1 the la. is the la. itsel1. For this
reason, legislati;e intent or s8irit is the *ontrolling 1a*tor, the
lea0ing star an0 gui0ing light in the a88li*ation an0
inter8retation o1 a statute. A thing .hi*h is .ithin the intent o1 the
la.maCer is as mu*h .ithin the statute as i1 .ithin the letterG an0 a
thing .hi*h is .ithin the letter o1 the statute is not .ithin the
statute unless .ithin the intent o1 the la.maCers.
P o li *7 o 1 la.
The 8oli*7 o1 the la. on*e as*ertaine0 shoul0 )e gi;en
e?e*t )7 the /u0i*iar7. One .a7 o1 a**om8lishing this man0ate is
to gi;e a statute o1 0ou)t1ul meaning, a *onstru*tion that .ill
8romote 8u)li* 8oli*7. The *onstru*tion .hi*h .oul0 *arr7 into
e?e*t the e;i0ent 8oli*7 o1 the la. shoul0 )e a0o8te0 in 1a;or o1
that inter8retation .hi*h .oul0 0e1eat it. E:am8le9
homestea0 a*t
P u r 8 o se o 1 la. o r m is*h ie 1 to ) e su 88 re ss e 0
The *ourt mu*h looC to the o)/e*t to )e a**om8lishe0, the
e;ils to )e reme0ie0, or the 8ur8ose to )e su)ser;e0, an0
shoul0 gi;e the la. a reasona)le or li)eral *onstru*tion .hi*h
.ill )est e?e*tuate its 8ur8ose.
@ i* ti o na r ie s
+hile 0e1inition s gi;en )7 le:i*ogra8hers are not
)in0ing, *ourts ha;e a0o8te0, in 8ro8er *ases, su*h 0e1initions to
su88ort their *on*lusion as to the meaning o1 the 8arti*ular .or0s
or terms use0 in a statute, es8 .here no strong reason e:ists .h7
their 0i*tionar7 meaning shoul0 not )e a0o8te0 in the
*onstru*tion o1 the statute.
C o ns e = u e n* e s o 1 ;a r io us * o ns tr u* ti o ns
In *onstruing a statute, the o)/e*ti;e shoul0 al.a7s )e to
arri;e at a reasona)le an0 sensi)le inter8retation that is in 1ull
a**or0 .ith the legislati;e intent. As a general rule, a *onstru*tion
o1 a statute shoul0 )e re/e*te0 that .ill *ause in/usti*e or
har0shi8, result in a)sur0it7, 0e1eat legislati;e intent or s8irit,
8re*lu0e a**om8lishment o1 legislati;e 8ur8ose or o)/e*t, ren0er
*ertain .or0s or 8hrases a sur8lusage, nulli17 the statute or maCe
an7 o1 its 8ro;isions nugator7.
P re sum 8ti o ns
In*lu0e9 8resum8tions in 1a;or o1 the *onstitutionalit7 o1 a
statute, o1 its *om8leteness, o1 its 8ros8e*ti;e o8eration, o1 right
an0 /usti*e, o1 its e?e*ti;e, sensi)le, )ene1i*ial an0 reasona)le
o8eration as a .hole, as .ell as those against the in*onsisten*7
an0 im8lie0 re8eal, unne*essar7 *hanges in la., im8ossi)ilit7,
a)sur0it7, in/usti*e an0 har0shi8, in*on;enien*e, an0
ine?e*ti;eness.
>. Legislati;e Aistor7
Ge n er a ll 7
It is a .ell settle0 rule o1 statutor7 *onstru*tion that .here
a statue is sus*e8ti)le o1 se;eral inter8retations or
.here there is am)iguit7 in its language, there is no )etter
means o1 as*ertaining the .ill an0 intention o1 the legislature
than that .hi*h is a?or0e0 )7 the histor7 o1 the statute.
+hat * o n s tit u te s le gi s la t i;e h is tor 7
I1 the statute is )ase0 on, or is a re;ision o1, a 8rior statute,
the latterDs 8ra*ti*al a88li*ation an0 /u0i*ial *onstru*tion, the
;arious amen0ments it un0er.ent, an0 the *ontem8orar7 e;ents at
the time o1 its ena*tment 1orm 8art o1 its legislati;e histor7. I1 the
statute is )orro.e0 1rom, or mo0ele0 u8on, Anglo$Ameri*an
8re*e0ents or other 1oreign sour*es, its histor7 in*lu0es the histor7
o1 su*h 8re*e0ents, an0 1or a 8ro8er *onstru*tion o1 the statue
sought to )e *onstrue0, it is o1tentimes essential to re;ie. su*h
legislati;e histor7 an0 1in0 authoritati;e gui0e 1or its inter8retation
1rom su*h 8re*e0ents, their 8ra*ti*al a88li*ation , an0 the 0e*isions
12
o1 the *ourts *onstruing an0 a88l7ing su*h 8re*e0ents in the
*ountr7 o1 origin.
P re s i0 e n tDs m e ssa g e to le gi s la tu r e
The 8resi0entDs message in0i*ates his thinCing on the
8ro8ose0 legislation .hi*h , .hen ena*te0 into la., 1ollo.s his
line o1 thinCing on the matter.
E : 8l an a tor 7 N o te
+here there is am)iguit7 in a statue or .here a statute is
sus*e8ti)le o1 more than one inter8retation, *ourts ma7 resort
to the e:8lanator7 note to *lari17 the am)iguit7 an0 as*ertain the
8ur8ose or intent o1 the statute. The statue ma7 then )e so
*onstrue0 as to gi;e e?e*t to the 8ur8ose or intent as 0is*lose0 in
its e:8lanator7 note.
Le gi s la ti;e @ e ) a te s, ; ie . s an 0 0 e li) er a ti o ns
Courts ma7 resort to the legislati;e 0eli)erations in the
legislature on a )ill .hi*h e;entuall7 .as ena*te0 into la. to
as*ertain the meaning o1 its 8ro;isions. Thus, .here there is
0ou)t as to .hat a 8ro;ision o1 a statute means, that meaning
.hi*h .as 8ut to the 8ro;ision 0uring the legislati;e
0eli)eration or 0is*ussion on the )ill ma7 )e a0o8te0.
Ao.e;er the ;ie.s e:8resse0 )7 the legislators 0uring
the 0eli)eration o1 a )ill as to the )illDs 8ur8ose, meaning, or
e?e*t are not *ontrolling in the inter8retation o1 the la..
The o8inions e:8resse0 )7 legislators in the *ourse o1
0e)ates *on*erning the a88li*ation o1 e:isting la.s are not also
gi;en 0e*isi;e .eight, es8e*iall7 .here the legislator .as not a
mem)er o1 the assem)l7 that ena*te0 sai0 la.s.
R e 8 or ts o 1 * o mm iss io ns
In the *o0i1i*ation o1 la.s, *ommissions are usuall7 1orme0
to *om8ile an0 *ollate all la.s on 8arti*ular su)/e*t an0 to 8re8are
the 0ra1t o1 the 8ro8ose0 *o0e
P r io r la. 1ro m . h i*h s ta tu te is ) as e 0
In as*ertaining the intention o1 the la.maCer, *ourts are
8ermitte0 to looC to 8rior la.s on the same su)/e*t an0 to
in;estigate the ante*e0ents o1 the statute in;ol;e0.
C han g e in 8 h r as e o lo g 7 ) 7 am e n 0 m e n ts
The *hange in 8hraseolog7 )7 amen0ment o1 a 8ro;ision o1
la. in0i*ates a legislati;e intent to *hange the meaning o1 the
8ro;ision 1rom that it originall7 ha0. In *onstruing the amen0e0
8ro;ision, *ourts ma7 in;estigate the histor7 o1 the 8ro;ision to
as*ertain legislati;e intent as to the meaning or s*o8e o1 the
amen0e0 la..
A m e n 0 m e n t ) 7 0 e le ti o n
As a rule, the amen0ment )7 0eletion o1 *ertain .or0s or
8hrases in a statute in0i*ate that the legislature inten0e0 to
*hange the meaning o1 the statute, 1or the 8resum8tion is that the
legislature .oul0 not ha;e ma0e the 0eletion ha0 the intention
)een not to e11e*t a *hange in its meaning. The amen0e0 statute
shoul0 a**or0ingl7 )e gi;en a *onstru*tion 0i?erent 1rom that
8re;ious to its amen0ment.
E :* e 8ti o ns to the r u le
The rule that an amen0ment o1 a statute in0i*ates a *hange
in meaning 1rom that .hi*h the statute originall7 ha0
a88lies onl7 .hen the 0elete0 .or0s or 8hrases are not
sur8lusage or .hen the intention is *lear to *hange the
8re;ious meaning o1 the ol0 la.. The rule 0oes not a88l7 .here the
intent, as sho.n )7 histor7 o1 the ena*tment, is *lear that the
amen0ment is 8re*isel7 to 8lainl7 e:8ress that *onstru*tion o1 the
a*t 8rior to its amen0ment )e*ause its language is not su?i*ientl7
e:8ressi;e o1 su*h *onstru*tion.
A 0 o 8t e 0 s ta tu te
The general rule is that .here lo*al statutes are 8atterne0
a1ter or *o8ie0 1rom those o1 another *ountr7, the 0e*isions o1 the
*ourts in su*h *ountr7 *onstruing those la.s are entitle0 to great
.eight in the inter8retation o1 su*h lo*al statutes. The reason is
that the legislature, in a0o8ting 1rom another *ountr7 a statute
.hi*h has 8re;iousl7 re*ei;e0 /u0i*ial *onstru*tion in that *ountr7,
is 0eeme0 to ha;e a0o8te0 the statute .ith su*h *onstru*tion an0
8ra*ti*al a88li*ation in the *ountr7 o1 origin.
The a0o8te0 statutes are thus generall7 *onstrue0 in
a**or0an*e .ith the *onstru*tion gi;en similar statutes in the
13
US, unless s8e*ial reasons, lo*al *ustoms, an0 8ra*ti*e re=uire
other.ise.
L im it a t io ns to the r u le
The general rule that a statute .hi*h has )een a0o8te0
1rom that o1 a 1oreign *ountr7 shoul0 )e *onstrue0 in
a**or0an*e .ith the *onstru*tion gi;en it in the *ountr7 o1
origin is not .ithout limitations.
P r in * i8 le s o 1 * o mm o n la.
+hile *ommon la. as Cno.n in Anglo$Ameri*an
/uris8ru0en*e is not in 1or*e in this *ountr7, sa;e onl7 inso1ar as
it is 1oun0e0 on soun0 8rin*i8les a88li*a)le to lo*al
*on0itions an0 is not in *on1li*t .ith e:isting la.s, ne;ertheless
man7 o1 the 8rin*i8les o1 the *ommon la. ha;e )een im8orte0 into
this /uris0i*tion as a result o1 the ena*tment o1 la.s an0
esta)lishment o1 institutions similar those o1 the Unite0 States.
Courts ma7 thus 8ro8erl7 resort to *ommon la. 8rin*i8les in
*onstruing 0ou)t1ul 8ro;isions o1 a statute, 8arti*ularl7 .here
su*h statute is mo0ele0 u8on Anglo$Ameri*an 8re*e0ents. Ao.e;er
there is a *on1li*t )et.een a *ommon la. 8rin*i8le an0 a
statutor7 8ro;ision, the latter 8re;ails.
C o n 0iti o ns at ti me o 1 e na* tm e nt
In ena*ting a statute, the legislature is 8resume0 to
ha;e taCen into a**ount the e:isting *on0itions o1 things at the
time o1 its ena*tment. For this reason, it is 8ro8er, in the
inter8retation o1 a statute to *onsi0er the 8h7si*al *on0itions o1 the
*ountr7 an0 the *ir*umstan*es then o)taining .hi*h must
o1 ne*essit7 a?e*t its o8eration in or0er to rea*h an un0erstan0ing
as to the intent o1 the legislature, or as to the meaning o1 the
statute.
A is tor 7 o 1 ti m e s
The *ourt ma7 looC to the histor7 o1 the times, e:amine the
state o1 things e:isting .hen the statue .as ena*te0, an0
inter8ret it in the light o1 the *on0itions o)taining. Generall7, it
ma7 )e sai0 that in 0etermining the meaning, intent an0 8ur8ose o1
a la. or *onstitutional 8ro;ision, the histor7 o1 the times out o1
.hi*h it gre. an0 to .hi*h it ma7 )e rationall7 su88ose0 to )ear
some 0ire*t relationshi8, the e;ils inten0e0 to )e reme0ie0, an0 the
goo0 to )e a**om8lishe0 are 8ro8er su)/e*ts o1 in=uir7.
C. Contem8oraneous Constru*tion
Ge n er a ll 7
Contem8orar7 or 8ra*ti*al *onstru*tions are the
*onstru*tions 8la*e0 u8on statutes at the time o1, or a1ter, their
ena*tment )7 the e:e*uti;e, legislature, or /u0i*ial authorities, as
.ell as those .ho, )e*ause o1 their in;ol;ement in the
8ro*ess o1 legislation, are Cno.le0gea)le o1 the intent an0
8ur8ose o1 the la., su*h as 0ra1tsmen an0 )ill s8onsors.
%ontemporanea exposition est optima et fortissima in lege$$$ the
*ontem8orar7 *onstru*tion is strongest in la..
E : e *u ti ;e * o n s tr u * ti o n , g e n er a ll 7 G C in 0 s o 1
+hat is *ommonl7 Cno.n as *ontem8oraneous *onstru*tion
is the *onstru*tion 8la*e0 u8on the statute )7 an e:e*uti;e or
a0ministrati;e o?i*er *alle0 u8on to e:e*ute or a0minister su*h
statute. A**or0ingl7, e:e*uti;e an0 the a0ministrati;e o?i*ers are
generall7 the ;er7 1irst o?i*ials to inter8ret the la., 8re8arator7 to
its en1or*ement. Three t78e o1 e:e*uti;e inter8retations9 !'
*onstru*tion )7 an e:e*uti;e or a0ministrati;e o?i*er 0ire*tl7
*alle0 to im8lement the la., e:8resse0 or im8lie0, e:8resse0 su*h
as *ir*ular, 0ire*ti;e, or regulationG 5' )7 the Se*retar7 o1 Fusti*e in
his *a8a*it7 as the *hie1 legal a0;iser o1 the go;ernment, in the
1orm o1 o8inions issue0 u8on the re=uest o1 the e:e*uti;e %'
inter8retation
han0e0 0o.n in an a0;ersar7 8ro*ee0ing in the 1orm o1 a ruling )7
an e:e*uti;e o?i*er e:er*ising =uasi$/u0i*ial 8o.er.
+ e ig h t a** or 0 e 0 to * o n te m 8 or an eo us * o ns tr u* ti o n
Generall7 s8eaCing, .here there is 0ou)t as to the
8ro8er inter8retation o1 a statute, the uni1orm *onstru*tion 8la*e0
u8on it )7 the e:e*uti;e or a0ministrati;e o?i*er *harge0
.ith its en1or*ement .ill )e a0o8te0, i1 ne*essar7 to resol;e the
0ou)t. In the a)sen*e o1 error or a)use o1 8o.er or la*C o1
/uris0i*tion or gra;e a)use o1 0is*retion *learl7 *on1li*ting
14
.ith either the letter or the s8irit o1 the legislati;e ena*tment
*reating or *harging a go;ernmental agen*7, the a*tion o1 the
agen*7 .oul0 not )e 0istur)e0 )7 the *ourts. As a8tl7 sai0 in a
*ase9 Ithe 8rin*i8le that the *ontem8oraneous *onstru*tion o1 a
statute )7 the e:e*uti;e o?i*ers o1 the go;ernment, .hose 0ut7 it
is to e:e*ute it, is entitle0 to great res8e*t, an0 shoul0 or0inaril7
*ontrol the *onstru*tion o1 the statute )7 the *ourts, is so 1irml7
em)e00e0 in our /uris0i*tion that no authorities nee0 )e *ite0 to
su88ort it.J
+ e ig h t a** or 0 e 0 to usa g e an 0 8 r a* ti *e
$ a*=uies*e0 in )7 all the 8arties *on*erne0 an0 has
e:ten0e0 o;er a long 8erio0 o1 time
&Optimus interpres rerum usus$ the )est inter8reter o1
the la. is usage
C o n s tr u * ti o n o 1 r u le s an 0 re g u la ti o ns
An a0ministrati;e agen*7 has the 8o.er to inter8ret its o.n
rules an0 su*h inter8retation )e*omes 8art o1 the rules.
R e as o ns .h7 * o n te m 8 or an eo us * o ns tr u* ti o n is gi ; e n mu*h
. e ig ht
Contem8oraneous *onstru*tion is entitle0 to great .eight9
)e*ause !'it *omes 1rom the 8arti*ular )ran*h o1
go;ernment *alle0 u8on to im8lement the la. thus *onstrue0.
5' e:e*uti;e o?i*ials are 8resume0 to ha;e 1amiliari<e0
themsel;es .ith all the *onsi0erations 8ertinent to the meaning
an0 8ur8ose o1 the la., an0 to ha;e 1orme0 an in0e8en0ent,
*ons*ientious an0 *om8etent e:8ert o8inion thereon. %' there are
1re=uentl7 the 0ra1ters o1 the la. the7 inter8ret. In short,
0ue to their *om8eten*e, e:8ertness, e:8erien*e, an0 in1orme0
/u0gment. An0 there is a nee0 1or *ertaint7 an0 8re0i*ta)ilit7 in the
la..
+h e n * o n te m 8 or an eo us * o n s tr u * ti o n 0i s re g a r 0 e 0
It is neither *ontrolling nor )in0ing u8on the *ourt. The *ourt
ma7 0isregar0 the la. CC, .here there is no am)iguit7,
.here the *onstru*tion is *learl7 erroneous, .here strong
reason to the *ontrar7 e:ists, an0 .here the *ourt has 8re;iousl7
gi;en the statue a 0i?erent inter8retation. I1 it is erroneous then
shoul0 )e 0e*lare0 null an0 ;oi0.
E rro n eo us * o n te m 8 or an eo us * o ns tr u* ti o n 0 oe s n o t 8 re * lu 0 e
* o rre * ti o n n o r * re a te r ig h tsG e : * e 8ti o ns
The error ma7 )e *orre*te0 .hen the true *onstru*tion is
as*ertaine0. As a rule, an erroneous CC *reates no ;este0
right on the 8art o1 those .ho relie0 u8on, an0 1ollo.e0 su*h
*onstru*tion. A ;este0 right ma7 not arise 1rom a .rong
inter8retation o1 a la. )7 an a0ministrati;e or e:e*uti;e o?i*er
.hose 8rimar7 0ut7 is to en1or*e, an0 not to *onstrue, the la..
An0 the go;ernment is ne;er esto88e0 )7 the mistaCe or error on
the 8art o1 its agents.
The rule is not a)solute, )ut a0mits e:*e8tions in the
interest o1 /usti*e an0 1air 8la7. true in ta: *ases'
Le gi s la ti;e in ter 8 re ta ti o n
The 1a*t that the inter8retation o1 a statue is 8rimaril7 a
/u0i*ial 1un*tion 0oes not 8re*lu0e the legislature 1orm
in0i*ating its *onstru*tion o1 a statute it ena*ts into la.. It ma7 thus
8ro;i0e in the statute itsel1 an inter8retati;e or 0e*larator7 *lause
8res*ri)ing rules o1 *onstru*tion or in0i*ating ho. its 8ro;isions
shoul0 )e *onstrue0. It ma7 also 0e1ine the terms use0 in a
statute, ena*t a 0e*larator7 a*t *onstruing a 8re;ious la. or 8ass a
resolution in0i*ating its sense or intention as to gi;en statute.
Ao.e;er the legislature *annot limit or restri*t the 8o.er grante0
to the *ourts to inter8ret the la.. +hile their inter8retation is not
*ontrolling, the *ourts ma7 resort to it to *lari17 am)iguit7 in the
language thereo1. It is entitle0 o1 res8e*t1ul *onsi0eration.
Le gi s la ti;e a 88 ro ;al
The legislature ma7 )7 a*tion or ina*tion, a88ro;e or rati17
su*h *ontem8oraneous *onstru*tion. It ma7 )e mani1este0 in
man7 .a7s9 as .hen it reena*ts a statute 8re;iousl7 gi;en a CC,
uses .or0s similar in their im8ort to the language o1 an earlier la.
.hi*h has re*ei;e0 a 8ra*ti*al a88li*ation or amen0 a 8rior statute
.ithout, in the amen0ing a*t, 8ro;i0ing an7thing .hi*h .oul0
restri*t, *hange or nulli17 the 8re*ious CC 8la*e0 u8on the 8rior
la.. It ma7 )e also sho.n )7 the legislature a88ro8riating mone7
15
1or the o?i*er 0esignate0 to 8er1orm a tasC 8ursuant to an
inter8retation o1 a statute. +here the legislature has noti*e or
Cno.le0ge o1 a *onstru*tion 8la*e0 u8on a statue )7 an e:e*uti;e
o?i*er *harge0 .ith its im8lementation, .ithout re8u0iating it, its
silen*e is a*=uies*en*e e=ui;alent to *onsent to *ontinue 8ra*ti*e.
There is an im8lie0 a88ro;al )7 its 1ailure to *hange a longstan0ing
a0ministrati;e *onstru*tion.
'atihabitio mandato ae$uiparatur$ legislati;e rati1i*ation is
e=ui;alent to a man0ate
R e e na* tm e nt
The most *ommon a*t o1 legislati;e a88ro;al o1 CC o1 a
state is )7 reena*tment. The 8rin*i8le is the reena*tment o1 a
statute, 8re;iousl7 gi;en CC, is a 8ersuasi;e in0i*ation o1 the
a0o8tion )7 the legislature o1 the 8rior *onstru*tion. It must )e
reena*te0 an0 not merel7 amen0e0 an0 the CC thereo1 must )e in
the 1orm o1 regulation to im8lement the la. an0 0ul7 8u)lishe0 an0
not merel7 a0ministrati;e ruling em)o0ie0 in a letter to a s8e*i1ie0
in0i;i0ual an0 not 8u)lishe0. It is a**or0e0 .ith greater .eight an0
res8e*t than the CC o1 the statute )e1ore its rati1i*ation. The reason
1or su*h is9 there is an agreement )et.een t.o 0e8artments ( the
legislati;e an0 e:e*uti;eP to the meaning o1 the la., an0 it
0e;ol;es u8on the /u0i*iar7 to gi;e it 0e1erential treatment.
S ta r e 0 e * is is
The 0e*ision o1 the SC a88l7ing or inter8reting a statute is
*ontrolling .ith res8e*t to the inter8retation o1 that statute
an0 is o1 greater .eight than that o1 an e:e*uti;e or
a0ministrati;e o?i*er in the *onstru*tion o1 other statutes o1 similar
im8ort. The reason9 the SCDs inter8retation 1orms 8art o1 the statue
itsel1 an0 o1 the legal s7stem an0 *omes 1orm that
)ran*h o1 go;ernment entruste0 .ith the 0ut7 to *onstrue or
inter8ret the la..
#tare decisis et non $uieta mo!ere$ one shoul0 1ollo.
8ast 8re*e0ents an0 shoul0 not )e 0istur)e0 .hat has )een
settle0. The rule rests on the 0esira)ilit7 o1 ha;ing sta)ilit7 in the
la.. (nterest republicae ut sit finis litiumPthe interest o1
the state 0eman0s that there )e an en0 to litigation.
For a ruling o1 SC )e un0er the 0o*trine o1 stare 0e*isis, it
must )e a 0ire*t ruling an0 not through su) silen*io an0
o)iter 0i*tum.
The 1a*ts o1 the 8re*e0ent an0 the *ase to .hi*h it is
a88lie0 shoul0 )e the same 1or stare 0e*isis to )e a88lie0.
The rule o1 stare 0e*isis is not a)solute. The 8rin*i8le
0oes not )lin0 a0heren*e to 8re*e0ents. I1 it is 1oun0 *ontrar7
to la., must )e a)an0one0. The 8rin*i8le shoul0 not a88l7
.hen there is *on1li*t )et.een the 8re*e0ent an0 the la..
Ao.e;er onl7 the SC itsel1 *an *hange or a)an0on a 8re*e0ent
enun*iate0 )7 it, neither )7 in1erior *ourt, nor )7 legislature
unless the7 re8eal or amen0 the la. itsel1. I1 the in1erior *ourts 1eel
that the 8re*e0ent is against their .a7 o1 reasoning, the7
ma7 state their 8ersonal o8inion )ut still the7 are )oun0 to
1ollo. it.
CHAPTER IV : ADHERENCE TO, OR DEPARTURE
FROM, LANGUAGE OF STATUTE
A. LITERAL INTERPRETATION Lite!"
Me!#i#$ % &"!i#'(e!#i#$ )"e
' As a general rule, the intent o1 legislature to )e
as*ertaine0 an0 therea1ter gi;en e?e*t is the intent
e:8resse0 in the language o1 the statute.
' Plain meaning rule9 !erba legis
' (ndex animi sermo) s8ee*h is the in0e: o1 intention.
' Verba Legis non est recedendum) 1rom the .or0s o1 a
statute there shoul0 )e no 0e8arture.
' +hat is not *learl7 8ro;i0e0 in the la. *annot )e
e:ten0e0 to those matters outsi0e its s*o8e.
' +here .hat is not *learl7 8ro;i0e0 in the la. is rea0 into
la. )7 *onstru*tion )e*ause it is more logi*al an0 .ise, it
.oul0 )e to en*roa*h u8on legislati;e 8rerogati;e to
0e1ine the .is0om o1 the la., .hi*h is /u0i*ial legislation.
' To 0e8art 1rom the meaning e:8resse0 )7 .or0s is to
alter the statute, to legislate an0 not to inter8ret.
' Maledicta est expositio$uae corrumpit textum9 or it is
0angerous *onstru*tion .hi*h is against the te:t.
16
Dura Lex Sed Lex
' *bsoluta sentential expositore non indigent) +hen the
language o1 the la. is *lear, no e:8lanation o1 it is
re=uire0.
' +hen the la. is *lear, it is not sus*e8ti)le o1
inter8retation. It must )e a88lie0 regar0less .ho ma7 )e
a?e*te0, e;en i1 it ma7 )e harsh or onerous.
' +ura lex sed lex) The la. ma7 )e harsh, )ut it is still the
la..
' ,oc $uidem per$uam durum est sed ita lex scripta est
or it is e:*ee0ingl7 har0 )ut so the la. is .ritten.
' The *ourt shoul0 a88l7 the la. e;en i1 it .oul0 )e harsh or
un.ise.
' The 0ut7 o1 *ourt in inter8reting a statute .hi*h is
am)iguous is not to 0is8ute its .is0omG the 0ut7 o1 the
*ourt is limite0 to in=uiring into the legislati;e intent an0,
on*e this is 0etermine0, to maCing sai0 intent e?e*ti;e.
' +hen the la. is *lear, a88eal to /usti*e an0 e=uit7 as
/usti1i*ation to *onstrue it 0i?erentl7 are una;ailing.
E=uit7 I 0es*ri)e0 as /usti*e outsi0e legalit7, .hi*h
sim8l7 means that it *annot su88lant although it ma7
su88lement the la..
' *e$uitas nun$uam contra!enit legis) E=uit7 ne;er a*ts in
*ontra;ention o1 the la..
B. DEPARTURE FROM LITERAL MEANING
St!t)te ()*t +e ,!&!+"e %- i#te&et!ti%#, %t.e/i*e
i#%&e!ti0e.
' Court must use e;er7 authori<e0 means to as*ertain the
intent o1 the statute an0 gi;e it an intelligi)le meaning.
I1 e?ort is im8ossi)le to sol;e the 0ou)t an0 0is8el the
o)s*urit7 o1 a statute, i1 no /u0i*ial *ertaint7 *an )e ha0
as to its meaning, the *ourt is not at li)ert7 to su88l7 nor
to maCe one.
' I1 statute 1ails to e:8ress a meaning, /u0i*ial mo0est7
1or)i0s *ourt 1rom assuming an0 1rom su88l7ing a
meaning thereto.
' (nterpretatio fienda est ut res magis !aleat$uam pereat9
that inter8retation as .ill gi;e the thing e?i*a*7 is to )e
a0o8te0. A la. shoul0 )e inter8rete0 .ith a ;ie. to
u8hol0ing rather than 0estro7ing it.
W.!t i* /it.i# t.e *&iit i* /it.i# t.e "!/.
' The intent or s8irit o1 the la. is the la. itsel1.
' As a general rule o1 statutor7 *onstru*tion, the s8irit or
intention o1 a statute 8re;ails o;er the letter thereo1,
an0 .hat is .ithin the s8irit o1 a statute is .ithin the
statute although it is not .ithin the letter thereo1, .hile that
.hi*h is .ithin the letter )ut not .ithin the s8irit o1 the
statute is not .ithin the statute.
' The intent is the ;ital 8art, the essen*e o1 the la., an0 the
8rimar7 rule o1 *onstru*tion is to as*ertain an0 gi;e
e?e*t to that intent.
' A la. shoul0 a**or0ingl7 )e so *onstrue0 as to )e in
a**or0an*e .ith, an0 not re8ugnant to, the s8irit o1 the
la..
' The *ourt ma7 *onsi0er the s8irit an0 reason o1 statute
.here a literal meaning .oul0 lea0 to a)sur0it7,
*ontra0i*tion, in/usti*e, or .oul0 0e1eat the *lear
8ur8ose o1 the la.maCers.
Lite!" i(&%t ()*t 1ie"2 t% i#te#t.
' The intention *ontrols the literal inter8retation o1 a
8arti*ular language o1 statute.
' Verba intentioni non e contra debent inser!ire) .or0s
ought to )e more su)ser;ient to the intent an0 not the
intent to the .or0s.
' I1 thereDs t.o *on1li*ting theories, *ourts *hoose .hi*h
)est a**or0s .ith the s8irit or intent o1 the la..
' Cons*ien*e an0 e=uit7 shoul0 al.a7s )e *onsi0ere0 in the *onstru*tion o1 a statute.
17
' The s8irit an0 inten0ment o1 the la. must 8re;ail o;er its
letter.
' A statute ma7 there1ore )e e:ten0e0 to *ases not .ithin
the literal meaning o1 its terms, so long as the7 *ome .ithin
its s8irit or intent.
Li(it!ti%# %- )"e
' +hat is .ithin the s8irit o1 a statute e;en i1 not .ithin the
letter is a88li*a)le onl7 i1 there is am)iguit7 in the
language o1 the la..
C%#*t),ti%# t% !,,%(&"i*. &)&%*e
' Statutes shoul0 )e *onstrue0 in the light o1 the o)/e*t to )e
a*hie;e0 an0 the e;il or mis*hie1 to )e su88resse0, an0
the7 shoul0 )e gi;en su*h *onstru*tion as .ill a0;an*e the
o)/e*t, su88ress the mis*hie1, an0 se*ure the )ene1its
inten0e0.
' Courts shoul0 not 1ollo. the letter o1 a statute .hen to 0o
so .oul0 0e8art 1rom the true intent o1 the
legislature or .oul0 other.ise 7iel0 *on*lusions
in*onsistent .ith the 8ur8ose o1 the a*t.
' As )et.een t.o statutor7 inter8retations, that .hi*h )etter
ser;es the 8ur8ose o1 the la. shoul0 8re;ail. .h7Q
The general 8ur8ose is a more im8ortant ai0 to the meaning
than an7 rule .hi*h grammar or 1ormal logi* ma7 la7 0o.n.
Aolmes'.
' A literal inter8retation is to )e re/e*te0 i1 it .oul0 )e
un/ust or lea0 to a)sur0 results.
W.e# e!*%# %- "!/ ,e!*e*, t.e "!/ it*e"- ,e!*e*.
' cessante ratione legis cessat et ipsa lex
' raton legis est anima9 the reason o1 the la. is its soul.
' The reason )ehin0 the la. is the heart o1 the la..
Reason o1 the la. 8la7s a 0e*isi;e role in its
*onstru*tion.
' A statute ma7 ren0er a 8rior la. 0e;oi0 o1 reason.
' +here a later la. has a 8ur8ose in *on1li*t .ith that o1 a
8rior statute on the same su)/e*t, the latter has lost all
meaning an0 1un*tion an0 has *ease0 to e:ist.
' This ma7 ha88en .hen the 8ur8ose o1 the statute sought
to )e a*hie;e0 )7 it is a**om8lishe0, or the mis*hie1
sought to )e re8resse0 is 8re;ente0, )7 an a*t or e;ent
in0e8en0ent o1 the statute itsel1.
S)&&"1i#$ "e$i*"!ti0e %(i**i%#
' +here a literal im8ort o1 the language o1 a statute
sho.s that .or0s ha;e )een omitte0 that shoul0 ha;e )een
in the statute in or0er to *arr7 out its intent an0 s8irit,
*learl7 as*ertaina)le 1rom the *onte:t, the *ourt ma7 su88l7
the omission to maCe the statute *on1orm to the o);ious
intent o1 the legislature or to 8re;ent the a*t 1rom )eing
a)sur0.
' Rule is *orollar7 .ith the rule that .hat is .ithin the
s8irit o1 the la. is .ithin the la..
C%e,ti#$ C"ei,!" e%*
' The *ourt, in or0er to *arr7 out the o);ious intent o1 the
legislature, ma7 *orre*t *leri*al errors, mistaCes or
mis8rints .hi*h, i1 un*orre*te0 .oul0 ren0er the statute
meaningless, em8t7 or nonsensi*al or .oul0 0e1eat or
im8air its inten0e0 o8eration, so long as the meaning
inten0e0 is a88arent on the 1a*e o1 the .hole ena*tment
an0 no s8e*i1i* 8ro;ision is a)rogate0.
' It is the 0ut7 o1 the *ourt to arri;e at the legislati;e
intent.
' The *ourt is not in0ulging /u0i*ial legislation, it is merel7
en0ea;oring to re*ti17 an0 *orre*t a *learl7 *leri*al error.
3)!"i4,!ti%# %- )"e
' +hat the *ourts ma7 *orre*t to re1le*t intention o1
legislature are those .hi*h are *learl7 *leri*al errors or
o);ious mistaCes, omissions, mis8rints.
' To *orre*t a *lear statute .oul0 )e re.riting the la. an0 0o
/u0i*ial legislation in the 0isguise o1 inter8retation.
C%#*t),ti%# t% !0%i2 !+*)2it1
' General terms o1 a statute shoul0 )e so limite0 in their
a88li*ation as not to lea0 to a)sur0ities. It is 8resume0
that the legislature inten0e0 e:*e8tions to its language
.hi*h .oul0 a;oi0 a)sur0 *onse=uen*es.
' (nterpretatio talis in ambiguis semper fienda est ut
e!itetur incon!eniens et absurdum) +here there is
am)iguit7, su*h inter8retation as .ill a;oi0
in*on;enien*e an0 a)sur0it7 is to )e a0o8te0.
' +here literal a0heren*e to the language .oul0 result to
a)sur0it7, the *ourt has the 8o.er to su88l7 or omit the
18
.or0s 1rom a statute in or0er to 8re;ent an a)sur0
result.
' Courts test the la. )7 its result. There are la.s .hi*h are
generall7 ;ali0 )ut ma7 seem ar)itrar7 .hen a88lie0
in a 8arti*ular *ase )e*ause o1 its 8e*uliar *ir*umstan*e.
Courts are not )oun0 to a88l7 them in sla;ish o)e0ien*e to
their language.
' A la. shoul0 not )e inter8rete0 so as not to *ause
in/usti*e.
' +here a term is 0e1ine0 in a statute, the *ourt ma7 not
*onstrue it to e:*lu0e .hat is in*lu0e0 therein as to restri*t
its s*o8e.
C%#*t),ti%# t% !0%i2 i#5)*ti,e
' The 8resum8tion is that the legislature in ena*ting a la.,
0i0 not intent to .orC a har0shi8 or an o88ressi;e
result, a 8ossi)le a)use o1 authorit7 or a*t o1
o88ression, arming one 8erson .ith a .ea8on to im8ose
har0shi8 on another.
' -a est accipienda interpretatio $uae !itio caret9 that
inter8retation is to )e a0o8te0 .hi*h is 1ree 1rom e;il or
in/usti*e.
C%#*t),ti%# t% !0%i2 2!#$e t% &)+"i, i#tee*t
' It is a .ell esta)lishe0 rule o1 statutor7 *onstru*tion that
.here great in*on;enien*e .ill result, or great 8u)li*
interest .ill )e en0angere0 or sa*ri1i*e0, or great mis*hie1
0one, 1rom a 8arti*ular *onstru*tion o1 a
statute, su*h *onstru*tion is to )e a;oi0e0.
' Courts shoul0 8resume that su*h *onstru*tion .as not
inten0e0 )7 the legislature.
C%#*t),ti%# i# -!0% %- i$.t !#2 5)*ti,e
' An7 0ou)t in the *onstru*tion o1 a statute shoul0 )e
resol;e0 in 1a;or o1 right an0 /usti*e.
' The 1a*t that a statute is silent, o)s*ure or insu?i*ient
.ith res8e*t to a =uestion )e1ore the *ourt .ill not /usti17
the latter 1rom 0e*lining to ren0er /u0gment thereon.
' .ure naturae ae$uum est neminem cum alterius
detrimento et in/uria fieri locupletiorem, .hi*h .as
restate0 .ith ninguno non deue enri$uecerse
tortizeramente con da0o de otro. Courts in;oCe these
8rin*i8les .hen the statutes are silent or o)s*ure in or0er
to arri;e at a solution that .oul0 res8on0 to the
;ehement 8assionate' urge o1 *ons*ien*e.
' In )alan*ing *on1li*ting solutions, that one is 8er*ei;e0 to
ti8 the s*ales .hi*h the *ourt )elie;es .ill )est 8romote the
8u)li* .el1are in its 8ro)a)le o8eration as a general rule or
8rin*i8le.
S)&")*!$e !#2 *)&e6)it1 2i*e$!2e2
' surplusagium non noceat) sur8lusage 0oes not ;itiate a
statute.
' 1tile per inutile non !itiatur) the useful is not !itiated by
the non&useful.
' +here a .or0, 8hrase or *lause in a statute is 0e;oi0 o1
meaning in relation to the *onte:t or intent o1 the statute or
.here it suggests a meaning that nulli1ies the statute or
ren0ers it .ithout sense, the .or0, 8hrase, or *lause ma7
)e re/e*te0 as a sur8lusage an0 entirel7 ignore0.
Re2)#2!#t /%2* (!1 +e e5e,te2
' General rule is that e;er7 e?ort shoul0 )e ma0e to gi;e
some meaning to e;er7 8art o1 a statute. This rule 0oes
not im8ose u8on the *ourts an im8erati;e o)ligation to
gi;e e;er7 re0un0ant .or0 or 8hrase a s8e*ial
signi1i*an*e, *ontrar7 to the mani1est intention o1 the
legislature.
' A 8ossi)le inter8retation .hi*h .oul0 0e1eat the .hole
8ur8ose o1 the la. is to )e re/e*te0.
' +hen the use o1 .or0 is merel7 to reiterate or re8eat, it
*arries out the intention o1 the legislature.
O+*,)e % (i**i#$ /%2 % -!"*e 2e*,i&ti%# (!1 #%t
&e,")2e ,%#*t),ti%#
' Court shoul0 not an0 *annot al.a7s )e )oun0 )7 the
8hraseolog7 or literal meaning o1 a statute.
' That some .or0s ma7 )e missing 0ue to *leri*al errors or
1alse 0es*ri8tion 0oes not 8re*lu0e *onstru*tion nor ;itiate
the meaning o1 the statute .hi*h is other.ise
*lear.
' 2alsa demonstration non nocet cum de corpore constat)
False 0es*ri8tion 0oes not 8re*lu0e *onstru*tion nor ;itiate
the meaning o1 the statute.
E7e(&ti%# -%( i$i2 !&&"i,!ti%# %- "!/
' E;er7 rule is not .ithout e:*e8tion
' (bi $uid generaliter conceditur3 inest haec exception si
19
non ali$uid sit contras /us bas$ue .hi*h means that .here
an7thing is grante0 generall7, this e:*e8tion is im8lie0G
that nothing shall )e *ontrar7 to la. an0 right.
' E=uit7 an0 other *om8elling reasons ma7 /usti17 an
e:*e8tion to a rule e;en .hen the rule 0oes not 8ro;i0e
an7.
' I1 the a88li*ation o1 la. .ill 8re;ent a 1air an0 im8artial
in=uir7 into the a*tual 1a*ts o1 a *ase, /usti*e 0eman0s
that the general rule shoul0 7iel0 to o**asional
e:*e8tions.
' #ummum /us summa in/uria9 the rigor o1 the la. .oul0
)e*ome the highest in/usti*e.
' +here rigi0 an0 stri*t a88li*ation o1 la. .oul0 .orC
in/usti*e, an e:em8tion there1rom to 8re;ent su*h result on
humanitarian an0 e=uita)le groun0s is .arrante0,
although the literal im8ort o1 the la. suggests no su*h
e:em8tion.
L!/ 2%e* #%t e8)ie t.e i(&%**i+"e
' The la. o)liges no one to 8er1orm an im8ossi)ilit7,
e:8resse0 in the ma:im, nemo tenetur ad impossibile. In
other .or0s, there is no o)ligation to 0o an im8ossi)le
thing. (mpossibilium nulla obligation est.
' Statutes shoul0 not )e *onstrue0 as to re=uire *om8lian*e
.ith .hat it 8res*ri)es, .hi*h is im8ossi)leG
)ut in su*h a .a7 that su)stantial *om8lian*e .ith .hat the
la. re=uires is su?i*ient.
N)(+e !#2 $e#2e %- /%2*
' it is a ma:im o1 statutor7 *onstru*tion that .hen the
*onte:t i1 a statute so in0i*ates in 8lural in*lu0e the
singular, an0 ;i*e ;ersa.
' A 8lural .or0 in a statute ma7 thus a88l7 to a singular
8erson or thing, /ust as a singular .or0 ma7 em)ra*e
t.o or more 8ersons or things.
' It is also a rule o1 statutor7 *onstru*tion that in
*onstruing a statute, the mas*uline, )ut not the
1eminine, in*lu0es all gen0ers, unless the *onte:t in
.hi*h the .or0 is use0 in the statute in0i*ates
other.ise.
C. IMPLICATIONS
D%,ti#e %- #e,e**!1 i(&"i,!ti%#
' +hat is thought, at the time o1 ena*tment, to )e an all$
em)ra*ing legislation ma7 )e ina0e=uate to 8ro;i0e 1or
1uture e;ents, there)7 *reating ga8s in the la.. One o1 the
rules o1 statutor7 *onstru*tion use0 to 1ill in the ga8 is the
0o*trine o1 ne*essar7 im8li*ation.
' @o*trine states that .hat is im8lie0 in a statute is as
mu*h a 8art thereo1 as that .hi*h is e:8resse0.
' E;er7 statute is un0erstoo0 )7 im8li*ation to *ontain all
su*h 8ro;isions that are nee0e0 to e11e*tuate its
8ur8ose.
' -x necessitate legis or 1rom the ne*essit7 o1 the la..
' E;er7 statutor7 grant o1 8o.er, right or 8ri;ilege is
0eeme0 to in*lu0e all in*i0ental 8o.er, right or
8ri;ilege. This is )e*ause in eo $uod plus sit semper
inest et minus.
' Ine*essar7 im8li*ationJ9 it is one .hi*h un0er the
*ir*umstan*es, is *om8elle0 )7 a reasona)le ;ie. o1 the
statute, an0 the *ontrar7 o1 .hi*h .oul0 )e im8ro)a)le
an0 a)sur0.
' INe*essit7J9 0e1ines .hat ma7 8ro8erl7 an0 logi*all7 )e
in1erre0 1rom an0 rea0 into the statute.
' This 0o*trine ma7 not )e use0 to /usti17 the in*lusion in
a statute o1 .hat to the *ourt a88ears to )e .ise an0
/ust, unless it is at the same time ne*essaril7 an0
logi*all7 .ithin its terms.
' +hat ma7 )e ne*essaril7 im8lie0 1rom a statute shoul0, in
an7 e;ent, )e *onsistent .ith, an0 not *ontrar7 to,
20
the *onstitution or to e:isting la.s. An im8li*ation .hi*h is
;iolati;e o1 the la. is un/usti1ie0 or un.arrante0.
Re(e21 !&&"ie2 -%( ! i$.t
' +here there is a right, there is a reme07. 1bi /us ibi
remedium
' The 1a*t that the statute is silent as to the reme07 0oes not
8re*lu0e him 1rom ;in0i*ating his right, 1or su*h
reme07 is im8lie0 1rom su*h right.
' Su*h right en1or*es itsel1 )7 its o.n inherent 8oten*7 an0
8uissan*e, an0 1rom .hi*h all legislation must taCe their
)earings.
' I.rongJ means 0e8ri;ation or ;iolation o1 a right, an0 is
not e=ui;alent to Ierror.J
G!#t %- 5)i*2i,ti%#
' Settle0 is the rule that /uris0i*tion to hear an0 0e*i0e
*ases is *on1erre0 onl7 )7 the Constitution or )7 the
Statute.
' Furis0i*tion *annot )e im8lie0 1rom the language o1 a
statute, in the a)sen*e o1 a *lear legislati;e intent to
that e?e*t.
W.!t (!1 +e i(&"ie2 -%( $!#t %- 5)i*2i,ti%#
' to em8lo7 all .rits, 8ro*esses an0 other means essential to
maCe its /uris0i*tion e?e*ti;e.
' Po.er to 0o all things .hi*h are reasona)l7 ne*essar7
1or the a0ministration o1 /usti*e .ithin the s*o8e o1 its
/uris0i*tion an0 1or the en1or*ement o1 its /u0gments an0
man0ates, e;en though the *ourt ma7 )e *alle0 to
0e*i0e matters .hi*h .oul0 not )e .ithin its *ogni<an*e as
original *ause0 o1 a*tion.
' It *an grant relie1s in*i0ental to the main *ause o1
a*tion.
G!#t %- &%/e i#,")2e* i#,i2e#t!" &%/e
' As a rule, .here a general 8o.er is *on1erre0 or 0ut7
en/oine0, e;er7 8arti*ular 8o.er ne*essar7 1or the
e:er*ise o1 one or the 8er1orman*e o1 the other is also
*on1erre0. The in*i0ental 8o.ers are those .hi*h are
ne*essaril7 in*lu0e0 in, an0 are there1ore o1 lesser
0egree than the 8o.er grante0. It *annot e:ten0 to other
matters not em)ra*e0 therein, nor are not in*i0ental
thereto.
' Po.er *on1erre0 )7 la. u8on an a0ministrati;e o?i*er to
issue rules an0 regulations to *arr7 out the 8ur8oses o1
a statute he is *alle0 u8on to e:e*ute in*lu0es the
authorit7 to 0elegate to a su)or0inate o?i*er the
8er1orman*e o1 a 8arti*ular 1un*tion, a)sent an7 e:8ress or
im8lie0 8ro;ision to the *ontrar7.
G!#t %- &%/e e7,")2e* $e!te &%/e
' the 8rin*i8le that the grant o1 8o.er in*lu0es all
in*i0ental 8o.ers ne*essar7 to maCe the e:er*ise
thereo1 e11e*ti;e im8lies the e:*lusion o1 those .hi*h are
greater than that *on1erre0.
W.!t i* i(&"ie2 *.%)"2 #%t +e !$!i#*t t.e "!/.
' The statutor7 grant o1 8o.er 0oes not in*lu0e su*h
in*i0ental 8o.er .hi*h *annot )e e:er*ise0 .ithout
;iolating the Constitution, the statute *on1erring the
8o.er, or other la.s on the same su)/e*t.
A)t.%it1 t% ,.!$e !$!i#*t &)+"i, -)#2* (!1 #%t +e
i(&"ie2
' Unless a statute e:8ressl7 so authori<es, no *laim
against 8u)li* 1un0s ma7 )e allo.e0. A**or0ingl7, a
statute ma7 not )e so *onstrue0 as to authori<e, )7
im8li*ation, a *harge against 8u)li* 1un0s.
I""e$!"it1 %- !,t i(&"ie2 -%( &%.i+iti%#
' +here a statute 8rohi)its the 0oing o1 an a*t, the a*t 0one
in ;iolation thereo1 is )7 im8li*ation null an0 ;oi0.
' The 8rohi)ite0 a*t *annot ser;e as a 1oun0ation o1 a
*ause o1 a*tion 1or relie1.
' -x dolo malo non oritur) no man *an )e allo.e0 to
1oun0 a *laim u8on his o.n .rong0oing or ine=uit7
' 4ullus commodum capere potest de in/uria sua propria) no
man shoul0 )e allo.e0 to taCe a0;antage o1 his o.n
.rong.
' It is 8o8ularl7 Cno.n )7 the ma:im9 (n pari delicto
21
potior est condition defendentis
E7,e&ti%#* t% t.e )"e
' the 8rin*i8le o1 pari delicto re*ogni<es *ertain
e:*e8tions.
' It .ill not a88l7 .hen its en1or*ement or a88li*ation .ill
;iolate an a;o.e0 1un0amental 8oli*7 or 8u)li* interest.
' Another e:em8tion is that .hen the transa*tion is not
illegal 8er se )ut merel7 8rohi)ite0 an0 the 8rohi)ition )7
la. is 0esigne0 1or the 8rote*tion o1 one 8art7, the *ourt
ma7 grant relie1 in 1a;or o1 the latter.
W.!t ,!##%t +e 2%#e 2ie,t"1 ,!##%t +e 2%#e i#2ie,t"1
' 5uando ali$uid prohibetur ex directo prohibeturet per
obli$uum
' +hat the la. 8rohi)its *annot, in some other .a7, )e
legall7 a**om8lishe0.
T.ee *.%)"2 +e #% &e#!"t1 -% ,%(&"i!#,e %- "!/.
For sim8le logi*, 1airness an0 reason *annot *ountenan*e an
e:a*tion or a 8enalt7 1or an a*t 1aith1ull7 0one in *om8lian*e
.ith the la.
CHAPTER 9: INTERPRETATION OF
WORDS AND PHRASES
Ge#e!""1
$ A .or0 or 8hrase use0 in a statute ma7 ha;e an
or0inar7, generi*, restri*te0, te*hni*al, legal, *ommer*ial or
tra0e meaning.
$ +hi*h meaning shoul0 )e gi;en 0e8en0s u8on .hat the
legislature inten0e0. As a general rule in inter8reting the
meaning an0 s*o8e o1 a term use0 in the la., a *are1ul
re;ie. o1 the .hole la. in;ol;e0, as .ell as the inten0ment
o1 la., as*ertaine0 1rom a *onsi0eration o1 the statute as a
.hole an0 not o1 an isolate0 8art or a
8arti*ular 8ro;ision alone, must )e ma0e to 0etermine
the real intent o1 the la..
St!t)t%1 De4#iti%#
$ The legislati;e 0e1inition *ontrols the meaning o1 a
statutor7 .or0, irres8e*ti;e o1 an7 other meaning the .or0
or 8hrase ma7 ha;e in its or0inar7 or usual sense.
$ For the legislature, in a0o8ting a s8e*i1i* 0e1inition is
0eeme0 to ha;e restri*te0 the meaning o1 the .or0
.ithin the terms o1 the 0e1inition.
$ +hen the legislature 0e1ines a .or0, it 0oes not usur8 the
*ourtDs 1un*tion to inter8ret the la.s )ut it merel7
legislates .hat shoul0 1orm 8art o1 the la. itsel1.
$ +hile the 0e1inition o1 terms in a statute must )e gi;en all
the .eight 0ue to them in the *onstru*tion o1 the
8ro;ision in .hi*h the7 are use0, the terms or 8hrases
)eing 8art an0 8ar*el o1 the .hole statute must )e gi;en
e?e*t in their entiret7 as a harmonious, *oor0inate0 an0
integrate0 unit, not as a mass o1 heterogeneous an0
unrelate0 i1 not in*ongruous terms, *lauses an0 senten*es.
3)!"i4,!ti%# %- )"e
$ The statutor7 0e1inition o1 a .or0 or term Ias use0 in
this A*tJ is *ontrolling onl7 in so 1ar as sai0 a*t is
*on*erne0.
$ The general rule that the statutor7 0e1initions *ontrol
the meaning o1 statutor7 .or0s 0oes not a88l7 .here its
a88li*ation *reates o);ious in*ongruities in the language o1
the statute, 0estro7s one o1 its ma/or 8ur8oses, or
)e*omes illogi*al as a result o1 a *hange in its 1a*tual
)asis.
$ Ao.e;er, in a su)se=uent *ase, it .as hel0 that o1 a
statute remains un*hange0, it must )e inter8rete0
a**or0ing to its *lear, original man0ate until the legislature
amen0s it.
W%2* ,%#*t)e2 i# t.ei %2i#!1 *e#*e
$ In *onstruing .or0s an0 8hrases, the general rule is that in
the a)sen*e o1 legislati;e intent to the *ontrar7, the7
shoul0 )e gi;en their 8lain, or0inar7, an0 *ommon
usage meaning.
$ For .or0s are 8resume0 to ha;e )een em8lo7e0 )7 the
la.maCer in their or0inar7 an0 *ommon use an0
a**e8tation.
$ The grammati*al an0 or0inar7 rea0ing o1 a statute must
)e 8resume0 to 7iel0 its *orre*t sense.
$ 1bi lex non distinguit nec nos distinguere debemus
22
Ge#e!" W%2* ,%#*t)e2 $e#e!""1
$ Generalia !erba sunt generaliter intelligenda or .hat is
generall7 s8oCen shall )e generall7 un0erstoo0 or
general .or0s shall )e un0erstoo0 in a general sense.
$ Generale dictum generaliter est interpretandum. A
general statement is un0erstoo0 in a general sense.
$ +here a .or0 use0 in a statute has )oth a restri*te0
an0 general meaning, the general must 8re;ail o;er the
restri*te0 unless the nature o1 the su)/e*t matter or the
*onte:t in .hi*h it is em8lo7e0 *learl7 in0i*ates that the
limite0 sense is inten0e0.
$ A general .or0 shoul0 not )e gi;en a restri*te0 meaning
.here no restri*tion is in0i*ate0.
Ge#ei, te( i#,")2e* t.i#$* t.!t !i*e t.ee!-te
$ 8rogressi;e inter8retation9 e:ten0s )7 *onstru*tion the
a88li*ation o1 a statute to all su)/e*ts or *on0itions
.ithin its general 8ur8ose or s*o8e that *ome into
e:isten*e su)se=uent to its 8assage an0 thus Cee8s
legislation 1rom )e*oming e8hemeral an0 transitor7 unless
there is a legislati;e intent to the *ontrar7.
$ It is a rule o1 statutor7 *onstru*tion that legislati;e
ena*tments in general an0 *om8rehensi;e terms,
8ros8e*ti;e in o8eration, a88l7 aliCe to all 8ersons,
su)/e*ts an0 )usiness .ithin their general 8ur;ie. an0
s*o8e *oming into e:isten*e su)se=uent to their
8assage.
W%2* /it. ,%((e,i!" % t!2e (e!#i#$
$ +or0s an0 Phrases, .hi*h are in *ommon use among
mer*hants an0 tra0ers, a*=uire tra0e or *ommer*ial
meanings .hi*h are generall7 a**e8te0 in the
*ommunit7 in .hi*h the7 ha;e )een in *ommon use.
$ Settle0 is the rule that in the a)sen*e o1 legislati;e
intent to the *ontrar7, tra0e or *ommer*ial terms, .hen
use0 in a statute are 8resume0 to ha;e )een use0 in
their tra0e or *ommer*ial sense.
W%2* /it. te,.#i,!" % "e$!" (e!#i#$
$ As a general rule, .or0s that ha;e or ha;e )een use0 in, a
te*hni*al sense or those that ha;e )een /u0i*iall7 *onstrue0
to ha;e a *ertain meaning shoul0 )e inter8rete0 a**or0ing
to the sense in .hi*h the7 ha;e )een 8re;iousl7 use0,
although the sense ma7 ;ar7 1rom the stri*t or literal
meaning o1 the .or0s.
$ The te*hni*al or legal, not the or0inar7 or general
meaning o1 a .or0 use0 in a statute shoul0 )e a0o8te0 in
the *onstru*tion o1 the statute, in the a)sen*e o1 na7
=uali1i*ation or intention to the *ontrar7.
H%/ i2e#ti,!" te(* i# *!(e *t!t)te ,%#*t)e2
$ The general rule is that a .or0 or 8hrase re8eate0l7
use0 in a statute .ill )ear the same meaning throughout the
statute.
$ The same .or0 or su)stantiall7 the same 8hrase
a88earing in 0i?erent 8arts o1 a statute .ill )e a**or0e0
a generall7 a**e8te0 an0 *onsistent meaning, unless a
0i?erent intention a88ears or is *learl7 e:8resse0.
$ The reason 1or the rule is that a .or0 use0 in a statute in
a gi;en sense is 8resume0 to )e use0 in the same
sense throughout the la..
$ It is 8arti*ularl7 a88li*a)le .here in the statute the
.or0s a88ear so near ea*h other 8h7si*all7 an0 8arti*ularl7
.here the .or0 has a te*hni*al meaning an0 that meaning
has )een 0e1ine0 in the statute.
Me!#i#$ %- /%2 8)!"i4e2 +1 &)&%*e %- *t!t)te
$ The meaning o1 a .or0s or 8hrase use0 in a statute ma7 )e
=uali1ie0 )7 the 8ur8ose .hi*h in0u*e0 the legislature to
ena*t the statute.
$ In *onstruing a .or0 or 8hrase, the *ourt shoul0 a0o8t
that inter8retation that a**or0s )est .ith the mani1est
8ur8ose o1 the statute or 8romotes or reali<es its o)/e*t.
$ It is generall7 re*ogni<e0 that i1 a statute is am)iguous
an0 *a8a)le o1 more than one *onstru*tion, the literal
meaning o1 the .or0 or 8hrase use0 therein ma7 )e
re/e*te0 i1 the result o1 a0o8ting su*h meaning .ill )e to
0e1eat the 8ur8ose .hi*h the legislature ha0 in min0.
W%2 % &.!*e ,%#*t)e2 i# e"!ti%# t% %t.e &%0i*i%#*
23
$ The general rule is that a .or0, 8hrase or 8ro;ision
shoul0 not )e *onstrue0 in isolation )ut must )e inter8rete0
in relation to other 8ro;isions o1 the la.. This rule is a
;ariation o1 the rule that a statute shoul0 )e *onstrue0 as
a .hole, an0 ea*h o1 its 8ro;isions must )e gi;en e?e*t.
$ A .or0 or 8ro;ision shoul0 not )e *onstrue0 in isolation
1rom, )ut shoul0 )e inter8rete0 in relation to, the other
8ro;isions o1 a statute or other statutes 0ealing on the same
su)/e*t.
$ The .or0 or 8ro;ision shoul0 not )e gi;en a meaning
that .ill restri*t or 0e1eat, )ut shoul0 instea0 )e *onstrue0
to e?e*tuate, .hat has )een inten0e0 in an ena*ting la..
Me!#i#$ %- te( 2i,t!te2 +1 ,%#te7t
$ +hile or0inaril7 a .or0 or term use0 in a statute .ill )e
gi;en its usual an0 *ommonl7 un0erstoo0 meaning, the
*onte:t in .hi*h the .or0 or term is em8lo7e0 ma7 0i*tate
a 0i?erent sense.
$ The *onte:t in .hi*h the .or0 is use0 o1tentimes
0etermines its meaning.
$ A .or0 is un0erstoo0 in the *onte:t in .hi*h it is use0.
Verba accipienda sunt secundum materiam
$ The *onte:t ma7 liCe.ise gi;e a )roa0 sense to a .or0 o1
other.ise or0inaril7 limite0 meaning.
$ The *onte:t ma7 also limit the meaning o1 .hat
other.ise is a .or0 o1 )roa0 signi1i*ation.
W.ee t.e "!/ 2%e* #%t 2i*ti#$)i*.
$ +here the la. 0oes not 0istinguish, *ourts shoul0 not
0istinguish. 1bi lex non distinguit nec nos distinguere
debemus.
$ The rule 1oun0e0 on logi*, is a *orollar7 o1 the 8rin*i8le
that general .or0s an0 8hrases in a statute shoul0
or0inaril7 )e a**or0e0 their natural an0 general signi1i*an*e
$ The rule re=uires that a general term or 8hrase shoul0 not
)e re0u*e0 into 8arts an0 one 8art 0istinguishe0 1rom
the other so as to /usti17 its e:*lusion 1rom the o8eration o1
the la..
$ A *orollar7 o1 the 8rin*i8le is the rule that .here the la.
0oes not maCe an7 e:*e8tion, *ourt ma7 not e:*e8t
something there1rom, unless there is *om8elling reason
a88arent in the la. to /usti17 it.
$ 1bi lex non distinguit nec non distinguere debemus
a88lies not onl7 in the *onstru*tion o1 general .or0s an0
e:8ressions use0 in a statute )ut also in the inter8retation
o1 a rule lai0 0o.n therein.
$ This 8rin*i8le assumes that the legislature ma0e no
=uali1i*ation in the use o1 a general .or0 or e:8ression.
$ The *ourts ma7 0istinguish .hen there are 1a*ts or
*ir*umstan*es sho.ing that the legislature inten0e0 a
0istin*tion or =uali1i*ation, 1or in su*h a *ase, the *ourts
merel7 gi;e e11e*t to the legislati;e intent.
Di*5)#,ti0e !#2 ,%#5)#,ti0e /%2*
$ The .or0 IorJ is a 0is/un*ti;e term signi17ing
0isasso*iation an0 in0e8en0en*e o1 one thing 1rom ea*h
o1 the other things enumerate0. It shoul0 )e *onstrue0
in the sense in .hi*h it or0inaril7 im8lies, as a
0is/un*ti;e .or0.
$ The use o1 the 0is/un*ti;e .or0 IorJ )et.een t.o
8hrases *onnotes that either 8hrase ser;es as =uali17ing
8hrase.
$ The term IorJ has sometimes )een hel0 to mean Ian0J,
.hen the s8irit or *onte:t o1 the la. so .arrants.
$ The .or0 IorJ ma7 also )e use0 as the e=ui;alent o1
Ithat is to sa7J gi;ing that .hi*h it 8re*e0e0 it the same
signi1i*an*e as that .hi*h 1ollo.s it. It is not al.a7s
0is/un*ti;e an0 is sometimes inter8retati;e or e:8ositor7 o1
the 8re*e0ing .or0.
$ The .or0 IorJ ma7 also mean su**essi;el7.
$ The .or0 Ian0J is a *on/un*tion 8ertinentl7 0e1ine0 as
meaning Itogether .ithJ, I/oine0 .ithJ, Ialong or
together .ithJ, Ia00e0 to or linCe0 toJ, use0 to *on/oin
.or0 .ith .or0, 8hrase .ith 8hrase, *lause .ith *lause.
$ The .or0 Ian0J 0oes not mean IorJG it is a *on/un*tion
use0 to 0enote a /oin0er or union, I)in0ing togetherJ,
Irelating the one to the otherJ.
24
$ Ao.e;er, Ian0J ma7 mean IorJ as an e:*e8tion to the
rule. The e:*e8tion is resorte0 to onl7 .hen a literal
inter8retation .oul0 8er;ert the 8lain intention o1 the
legislature as gleane0 1rom the *onte:t o1 the statute or
1rom e:ternal 1a*tors.
Noscitur a sociis
$ +here a 8arti*ular .or0 or 8hrase is am)iguous in itsel1 or
is e=uall7 sus*e8ti)le o1 ;arious meanings, its *orre*t
*onstru*tion ma7 )e ma0e *lear an0 s8e*i1i* )7
*onsi0ering the *om8an7 o1 .or0s in .hi*h it is 1oun0 or
.ith .hi*h it is asso*iate0.
$ +here the la. 0oes not 0e1ine a .or0 use0 therein, it .ill
)e *onstrue0 as ha;ing a meaning similar to that o1 .or0s
asso*iate0 .ith or a**om8anie0 )7 it.
$ A .or0, 8hrase shoul0 )e inter8rete0 in relation to, or
gi;en the same meaning o1, .or0s .ith .hi*h it is
asso*iate0.
$ +here most o1 the .or0s in an enumeration o1 .or0s in a
statute are use0 in their generi* an0 or0inar7 sense, the
rest o1 the .or0s shoul0 similarl7 )e *onstrue0.
$ +here a .or0 .ith more than one meaning is asso*iate0
.ith .or0s ha;ing s8e*i1i* or 8arti*ular signi1i*ation, the
1ormer shoul0 )e gi;en a s8e*i1i* or 8arti*ular signi1i*ation.
Ejusdem generic
$ +hile general .or0s or e:8ressions in a statute are, as a
rule, a**or0e0 their 1ull, natural, an0 generi* sense, the7
.ill not )e gi;en su*h meaning i1 the7 are use0 in
asso*iation .ith s8e*i1i* .or0s or 8hrases.
$ General rule is that .here a general .or0 or 8hrase
1ollo.s an enumeration o1 8arti*ular an0 s8e*i1i* .or0s o1
the same *lass or .here the latter 1ollo. the 1ormer, the
general .or0 or 8hrase is to )e *onstrue0 to in*lu0e, or to
)e restri*te0 to, 8ersons, things, or *ases aCin to,
resem)ling, or o1 the same Cin0 or *lass as those
s8e*i1i*all7 mentione0.
$ +here a statute 0es*ri)es things o1 8arti*ular *lass or
Cin0 a**om8anie0 )7 .or0s o1 a generi* *hara*ter, the
generi* .or0s .ill usuall7 )e limite0 to things o1 a
Cin0re0 nature .ith those 8arti*ularl7 enumerate0,
unless there )e something in the *onte:t o1 the statute to
re8el su*h in1eren*e.
$ Pur8ose9 gi;e e?e*t to )oth the 8arti*ular an0 general
.or0s, )7 treating the 8arti*ular .or0s as in0i*ating the
*lass an0 the general .or0s as in0i*ating all that is
em)ra*e0 in sai0 *lass, although not s8e*i1i*all7 name0 )7
8arti*ular .or0s.
$ This 8rin*i8le is )ase0 on the 8ro8osition that ha0 the
legislature inten0e0 the general .or0s to )e use0 in
their generi* an0 unrestri*te0 sense, it .oul0 not ha;e
enumerate0 the s8e*i1i* .or0s.
$ A88li*ation9 .here s8e*i1i* an0 generi* terms o1 the
same nature are em8lo7e0 in the same a*t, the latter
1ollo.ing the 1ormer.
Li(it!ti%#* %- Ejusdem generic
$ To )e a88li*a)le, the 1ollo.ing must *on*ur9
o Statute *ontains an enumeration o1 8arti*ular an0
s8e*i1i* .or0s, 1ollo.e0 )7 a general .or0 or
8hrase.
o The 8arti*ular an0 s8e*i1i* .or0s *onstitute a
*lass or are o1 the same Cin0
o Enumeration o1 the 8arti*ular an0 s8e*i1i* .or0s
is not e:hausti;e or is not merel7 )7 e:am8les
o No in0i*ation o1 legislati;e intent to gi;e the
general .or0s or 8hrases a )roa0er meaning
$ The rule o1 e/usdem generic 0oes not re=uire the
re/e*tion o1 general terms entirel7.
$ The rule is not o1 uni;ersal a88li*ation, it shoul0 )e use0 to
*arr7 out, not to 0e1eat, the intent or 8ur8ose o1 the la..
$ I1 that intent *learl7 a88ears 1rom other 8arts o1 the la., an0
su*h intent thus *learl7 mani1este0 is *ontrar7 to
the result .hi*h .ill )e rea*he0 )7 a88l7ing the rule o1
e/usdem generic, the rule must gi;e .a7 in 1a;or o1 the
legislati;e intent.
25
Expressio unius est exclusio alterius
$ E:8ress mention o1 one 8erson, thing or *onse=uen*e
im8lies the e:*lusion o1 all others.
$ It is 1ormulate0 in a num)er o1 .a7s9
o One ;ariation o1 the rules is the 8rin*i8le that
.hat is e:8resse0 8uts an en0 to that .hi*h is
im8lie0 -xpressum facit cessare tacitum
o General e:8ression 1ollo.e0 )7 e:*e8tions
there1rom im8lies that those .hi*h 0o not 1all un0er
the e:*e8tions *ome .ithin the s*o8e o1 the
general e:8ression. -xceptio firmat regulam in
casibus non exceptis
o E:8ression o1 one or more things o1 a *lass
im8lies the e:*lusion o1 all not e:8resse0, e;en
though all .oul0 ha;e )een im8lies ha0 none
)een e:8resse0.
$ The rule expressio unius est exclusio alterius an0 its
;ariations are *anons o1 restri*ti;e inter8retation.
$ >asis9 legislature .oul0 not ha;e ma0e s8e*i1ie0
enumerations in a statute ha0 the intention )een not to
restri*t its meaning an0 *on1ine its terms to those
e:8ressl7 mentione0. The7 are o88osite the 0o*trine o1
ne*essar7 im8li*ation.
Ne$!ti0e'%&&%*ite 2%,ti#e
$ The 8rin*i8le that .hat is e:8resse0 8uts an en0 to that
.hi*h is im8lie0 is also Cno.n as negati;e$8ositi;e 0o*trine
or argumentum a contrario.
A&&"i,!ti%# %- expressio unius )"e
$ The rule o1 expressio unius est exclusio alterius an0 its
*orollar7 *anons are generall7 use0 in the *onstru*tion o1
statutes granting 8o.ers, *reating rights an0 reme0ies,
restri*ting *ommon rights, an0 im8osing 8enalties an0
1or1eitures, as .ell as those statutes .hi*h are stri*tl7
*onstrue0.
$ +here a statute 0ire*ts the 8er1orman*e o1 *ertain a*ts )7
a 8arti*ular 8erson or *lass or 8ersons, it im8lies that
it shall not )e 0one other.ise or )e a 0i?erent 8erson or
*lass o1 8ersons.
$ I1 a statute enumerates the things u8on .hi*h it is to
o8erate, e;er7thing else must ne*essaril7, an0 )7
im8li*ation, )e e:*lu0e0.
Li(it!ti%#* %- )"e
$ The rule expressio unius est exclusio alterius is not a
rule o1 la.. It is a mere tool o1 statutor7 *onstru*tion or a
means o1 as*ertaining the legislati;e intent.
$ The rule, not )eing in1le:i)le nor a me*hani*al or
te*hni*al tool, must 7iel0 to .hat is *learl7 a legislati;e
intent.
$ It is no more than an au:iliar7 rule o1 inter8retation to )e
ignore0 .here other *ir*umstan*es in0i*ate that the
enumeration .as not inten0e0 to )e e:*lusi;e.
$ It shoul0 a88lie0 onl7 as a means o1 0is*o;ering
legislati;e intent an0 shoul0 not )e 8ermitte0 to 0e1eat the
8lainl7 in0i*ate0 8ur8ose o1 the legislature.
$ It .ill not a88l7 .here the enumeration is )7 .a7 o1
e:am8le or to remo;e 0ou)ts onl7.
$ It .ill not a88l7 in *ase a statute a88ears u8on its 1a*e
to limit the o8eration o1 its 8ro;isions to 8arti*ular 8ersons
or things )7 enumerating them, )ut no reason e:ists .h7
other 8ersons or things not so enumerate0 shoul0 not
ha;e )een in*lu0e0 an0 mani1est in/usti*e .ill 1ollo. )7
not in*lu0ing them.
$ The rule ma7 )e 0isregar0e0 o1 it .ill result to
in*ongruities or a ;iolation o1 the e=ual 8rote*tion *lause
o1 the *onstitution, in*on;enien*e, har0shi8 an0 in/ur7
to the 8u)li* interest.
$ +here the legislati;e intent sho.s that the enumeration is
not e:*lusi;e, the ma:im 0oes not a88l7.
D%,ti#e %- casus omissus
$ The rule o1 casus omissus pro omisso habendus est
states that a 8erson, o)/e*t or thing omitte0 1rom an
enumeration must )e hel0 to ha;e )een omitte0
intentionall7.
26
$ Prin*i8le 8ro*ee0s 1rom a reasona)le *ertaint7 that a
8arti*ular 8erson, o)/e*t or thing has )een omitte0 1rom
a legislati;e enumeration
$ The rule 0oes not a88l7 .here it is sho.n that the
legislature 0i0 not inten0 to e:*lu0e the 8erson, thing,
o)/e*t 1rom the enumeration. I1 su*h legislati;e intent is
*learl7 in0i*ate0, the *ourt ma7 su88l7 the omission i1 to 0o
so .ill *arr7 out the *lear intent o1 the legislature an0 .ill
not 0o ;iolen*e to its language.
D%,ti#e %- "!*t !#te,e2e#t
$ 3uali17ing .or0s restri*t or mo0i17 onl7 the .or0s or
8hrases to .hi*h the7 are imme0iatel7 asso*iate0. The7 0o
not =uali17 .or0s or 8hrases .hi*h are 0istantl7 or
remotel7 lo*ate0.
$ In the a)sen*e o1 legislati;e intent to the *ontrar7,
8re1erential an0 =uali17ing .or0s an0 8hrases must )e
a88lie0 onl7 to their imme0iate or last ante*e0ent, an0
not to the other remote or 8re*e0ing .or0s or
asso*iation o1 .or0s.
$ The ma:im e:8ressi;e o1 this rule is proximum
antecedens fiat relatio nisi impediatur sententia or
relati;e .or0s re1er to the nearest ante*e0ents, unless
the *onte:t other.ise re=uires.
$ The use o1 *omma to se8arate an ante*e0ent 1rom the
rest e:erts a 0ominant in1luen*e in the a88li*ation o1 the
0o*trine o1 last ante*e0ent.
3)!"i4,!ti%# %- t.e 2%,ti#e
$ @o*trine o1 last ante*e0ent is su)/e*t to the e:*e8tion
that .here the intention o1 the la. is to a88l7 the
8hrase to all ante*e0ents em)ra*e0 in the 8ro;ision, the
same shoul0 )e ma0e e:tensi;e to the .hole.
$ Slight in0i*ation o1 legislati;e intent so to e:ten0 the
relati;e term is su?i*ient. Nor 0oes the 0o*trine a88l7
.here the intention is not to =uali17 the ante*e0ent at all.
Reddendo singular singulis
$ The ;ariation o1 the 0o*trine o1 last ante*e0ent is the
rule o1 reddendo singular singulis. The ma:im means
re1erring ea*h to ea*hG re1erring ea*h 8hrase or e:8ression
to its a88ro8riate o)/e*t, or let ea*h )e 8ut in its 8ro8er
8la*e, that is, the .or0s shoul0 )e taCen 0istri)uti;el7.
$ 'eddendo singular singulis re=uires that the ante*e0ents
an0 *onse=uen*es shoul0 )e rea0 0istri)uti;el7 to the
e?e*t that ea*h .or0 is to )e a88lie0 to the su)/e*t to
.hi*h it a88ears )7 *onte:t most a88ro8riatel7 relate0
an0 to .hi*h it is most a88li*a)le.
P%0i*%*, $e#e!""1
$ The o?i*e o1 a 8ro;iso is either to limit the a88li*ation o1 the
ena*ting *lause, se*tion, or 8ro;ision o1 a statute, or
to e:*e8t something there1rom, or to =uali17 or restrain
its generalit7 , or to e:*lu0e some 8ossi)le groun0 o1
misinter8retation o1 it, as e:ten0ing to *ases not
inten0e0 )7 the legislature to )e )rought .ithin its 8ur;ie..
$ Its 8rimar7 8ur8ose is to limit or restri*t the general
language or o8eration o1 the statute, not to enlarge it.
$ A 8ro;iso is *ommonl7 1oun0 at the en0 o1 a se*tion, or
8ro;ision o1 a statute an0 is intro0u*e0, as a rule )7 the
.or0 IPro;i0e0J
$ +hat 0etermines .hether a *lause is a 8ro;iso is its
su)stan*e rather than its 1orm. I1 it 8er1orms an7 o1 the
1un*tions o1 a 8ro;iso, then it .ill )e regar0e0 as su*h,
irres8e*ti;e o1 .hat .or0 or 8hase is use0 to intro0u*e it.
It is a =uestion o1 legislati;e intent.
P%0i*% (!1 e#"!$e *,%&e %- "!/
$ It has )een hel0 that Ie;en though the 8rimar7 8ur8ose o1
the 8ro;iso is to limit or restrain the general language o1 a
statute, the legislature, un1ortunatel7, 0oes not al.a7s use
it .ith te*hni*al *orre*tnessG *onse=uentl7, .here its use
*reates an am)iguit7, it is the 0ut7 o1 the
*ourt to as*ertain the legislati;e intention, through
resort to the usual rules o1 *onstru*tion a88li*a)le to
statutes generall7 an0 gi;e it e11e*t e;en though the statute
is there)7 enlarge0, or the 8ro;ision ma0e to assume the
1or*e o1 in0e8en0ent ena*tment an0 although a
8ro;iso as su*h has no e:isten*e a8art 1rom .hi*h it is
0esigne0 to limit or =uali17.
$ A 8ro;iso ma7 thus enlarge, instea0 o1 restri*t or limit,
.hat other.ise is a 8hrase o1 limite0 im8ort has there
)een no 8ro;iso =uali17ing it.
P%0i*% !* !22iti%#!" "e$i*"!ti%#
27
$ A 8ro;iso ma7 also assume the role o1 an a00itional
legislation.
$ A *lear an0 un=uali1ie0 8ur8ose e:8resse0 in the
o8ening statement o1 a se*tion o1 a statute *om8rising
se;eral su)0i;isions has )een *onstrue0 as *ontrolling
an0 limiting a 8ro;iso atta*he0 to one o1 the
su)0i;isions, .here the 8ro;iso, i1 segregate0 there1rom,
.oul0 mean e:a*tl7 the re;erse o1 .hat it ne*essaril7
im8lie0 .hen rea0 in *onne*tion .ith the limitation.
W.!t &%0i*% 8)!"i4e*
$ The general rule is that the o?i*e o1 the 8ro;iso =uali1ies or
mo0i1ies onl7 the 8hrase imme0iatel7 8re*e0ing it or
restrains or limits the generalit7 o1 the *lause that it
imme0iatel7 1ollo.s.
$ It shoul0 )e *on1ine0 to that .hi*h 0ire*tl7 8re*e0es it, or
to the se*tion to .hi*h it has )een a88en0e0, unless
it *learl7 a88ears that the legislature inten0e0 it to ha;e a
.i0er s*o8e.
E7,e&ti%# t% t.e )"e
$ +here the legislati;e intent is to restrain or =uali17 not
onl7 the 8hrase imme0iatel7 8re*e0ing it )ut also earlier
8ro;isions o1 the statute or e;en the statute itsel1 as a
.hole, then the 8ro;iso .ill )e *onstrue0 in that
manner, in or0er that the intent o1 the la. ma7 )e
*arrie0 out.
Re&)$#!#,e +et/ee# &%0i*% !#2 (!i# &%0i*i%#
$ A 8ro;iso shoul0 )e so *onstrue0 as to harmoni<e an0 not
to re8eal or 0estro7, the main 8ro;ision o1 the
statute.
$ +hen there is an irre*on*ila)le *on1li*t or re8ugnan*7
)et.een a 8ro;iso an0 the main 8ro;ision o1 a statute, that
.hi*h is a lo*ate0 in a later 8ortion o1 the statute 8re;ails,
unless there is a legislati;e intent to the *ontrar7 or su*h
*onstru*tion .ill 0estro7 the .hole statute itsel1.
$ The latter 8ro;ision, .hether a 8ro;iso or not, is gi;en
8re1eren*e )e*ause it is the latest e:8ression o1 the intent
o1 the legislation.
E7,e&ti%#* $e#e!""1
$ An e:*e8tion *onsists o1 that .hi*h .oul0 other.ise )e
in*lu0e0 in the 8ro;ision 1rom .hi*h it is e:*e8te0.
$ An e:*e8tion .ill )e *onstrue0 as su*h i1 it remo;es
something 1rom the o8eration o1 a 8ro;ision o1 la..
$ It is o1ten sai0 that an e:*e8tion *on1irms the general
rule. It shoul0 not )e *onstrue0 to =uali17 the .or0s or
8hrases *onstituting the general rule.
$ It is .ell settle0 that the e:8ress mention o1 e:*e8tions
o8erates to e:*lu0e other e:*e8tions an0 *on;ersel7, those
.hi*h are not .ithin the enumerate0 e:*e8tions are
0eeme0 in*lu0e0 in the general rule.
$ E:*e8tions, as a general rule, shoul0 )e stri*tl7 )ut
reasona)l7 *onstrue0.
E7,e&ti%# !#2 &%0i*% 2i*ti#$)i*.e2
$ an e:*e8tion 0i?ers 1rom a 8ro;iso. An e:*e8tion
e:em8ts something a)solute 1rom the o8eration o1 a
statute, )7 e:8ress .or0s in the ena*ting *lause.
$ A 8ro;iso 0e1eats its o8eration *on0itionall7.
$ A 8ro;iso a;oi0s them )7 .a7 o1 0e1easan*e or e:*use.
An e:*e8tion is generall7 a 8art o1 the ena*tment itsel1,
a)solutel7 e:*lu0ing 1rom its o8eration some su)/e*t or
thing that other.ise .oul0 1all .ithin its s*o8e.
$ >ut .hen the ena*tment is mo0i1ie0 )7 engra1ting u8on it
a ne. 8ro;ision )7 .a7 o1 amen0ment, 8ro;i0ing
*on0itionall7 1or a ne. *ase, it is in the nature o1 a 8ro;iso.
$ One o1 the 1un*tions o1 a 8ro;iso is to e:*e8t something
1rom an ena*ting *lause. In this sense, an e:*e8tion an0 a
8ro;iso are similar.
S!0i#$ ,"!)*e
28
$ It is a *lause in a 8ro;ision o1 la. .hi*h o8erates to
e:*e8t 1rom the e?e*t o1 the la. .hat the *lause
8ro;i0es or to sa;e something .hi*h .oul0 other.ise )e
lost.
$ It is use0 to e:*e8t or sa;e something 1rom the e11e*t o1 a
re8eal o1 a statute.
$ It shoul0 )e *onstrue0 in the light o1 the intent or
8ur8ose o1 the legislature the 8rin*i8al *onsi0eration )eing
to e?e*tuate su*h intent or *arr7 out su*h 8ur8ose'.
$ It shoul0 )e gi;en a stri*t or li)eral *onstru*tion
0e8en0ing u8on the Cin0 o1 inter8retation that shoul0,
*onsi0ering its nature, )e gi;en to the statute as a
.hole.
CHAPTER :: STATUTE CONSTREUD AS WHOLE AND IN
RELATION TO OTHER STATUTES
2.#! Generall7
A statute is 8asse0 as a .hile an0 not in 8arts or se*tions an0 is
animate0 )7 one general 8ur8ose an0 intent. Conse=uentl7, ea*h
8art or se*tion shoul0 )e *onstrue0 in *onne*tion .ith e;er7 other
8art an0 se*tion so as to 8ro0u*e a harmonious .hole. +hole an0
e;er7 8art o1 statute shoul0 )e *onstrue0 together.
2.#5 Intent as*ertaine0 1rom statue as .hole
The intent or meaning o1 a statue shoul0 )e as*ertaine0 1rom the
statute taCen as a .hole an0 not 1rom an isolate0 8art or 8ro;ision
thereo1. The legislati;e meaning is to )e e:tra*te0 1orm the statue
as a .hole. Its *lauses are not to )e segrate0, )ut e;er7 8art o1 a
statute is to )e *onstrue0 .ith re1eren*e to
e;er7 other 8art an0 e;er7 .or0 an0 8hrase in *onne*tion .ith its
*onte:t. Optima statute interpretatrix est ipsum statutum. The
)est inter8reter o1 a statute is the statue itsel1.
2.#% Pur8ose or *onte:t as *ontrolling gui0e
A statute must al.a7s )e *onstrue0 as a .hole, an0 the
8arti*ular meaning to )e atta*he0 to an7 .or0 or 8hrase is
usuall7 to )e as*ertaine0 1rom the *onte:t, the nature o1 the
su)/e*t treate0 an0 the 8ur8ose or intention o1 the )o07 .hi*h
ena*te0 or 1rame0 the statute. Statute must re*ei;e a reasona)le
*onstru*tion, re1eren*e )eing ha0 to their *ontrolling 8ur8ose, to
all their 8ro;isions, 1or*e an0 e11e*t )eing gi;en not narro.l7 to
isolate0 an0 0is/oine0 *lauses, )ut
to their s8irit, )roa0l7 taCing all their 8ro;isions together in one
rational ;ie..
2.#3 Gi;ing e11e*t to statute as a .hole
>e*ause a statute is ena*te0 in .hole an0 not in 8arts or
se*tions, .hi*h im8lies that one 8art is as im8ortant as the
other, the statue shoul0 )e *onstrue0 an0 gi;en e?e*t as a
.hole. A 8ro;ision or se*tion .hi*h is un*lear )7 itsel1 ma7 )e
ma0e *lear )7 rea0ing an0 *onstruing it in relation to the .hole
statute. E;er7 8art o1 a statute shoul0 )e gi;en e?e*t )e*ause
a statute is ena*te0 as an integrate0 measure an0 not as a
ho0ge8o0ge o1 *on1li*ting 8ro;isions.
Court shoul0 a0o8t a *onstru*tion that .ill gi;e e?e*t to e;er7
8art o1 a statue, i1 at all 8ossi)le. This rule is e:8resse0 in the
ma:im ut res magis !aleat $uam pereat or the *onstru*tion is to
)e sought .hi*h gi;es e?e*t to the .hole o1 the statutePits e;er7
.or0.
2.#& A88arentl7 *on1li*ting 8ro;isions re*on*ile0
The rule that a statute must )e *onstrue0 an0 gi;en e?e*t as a
.hole re=uires that a88arentl7 *on1li*ting 8ro;isions shoul0 )e
re*on*ile0 an0 harmoni<e0, i1 at all 8ossi)le. All the 8ro;isions,
e;en i1 a88arentl7 *ontra0i*tor7, shoul0 )e allo.e0 to stan0
an0 gi;en e?e*t )7 re*on*iling time. The statute must )e so
*onstrue0 as to 8re;ent a *on1li*t )et.een 8arts o1 it. For it is
onl7 )7 so *onstruing a statute that the statute .ill )e gi;en
e?e*t as a .hole.
2.#2 S8e*ial an0 general 8ro;isions in same statute
+hen there is a 8arti*ular or s8e*ial 8ro;ision an0 a general
8ro;ision in the same statue an0 the latter in its most
*om8rehensi;e sense .oul0 o;errule the 1ormer, the 8arti*ular or
s8e*ial 8ro;ision must )e o8erati;e an0 the general 8ro;ision must
)e taCen to a?e*t onl7 the other 8arts o1 the statute to .hi*h it ma7
8ro8erl7 a88l7. The 8arti*ular or s8e*ial 8ro;ision
is *onstrue0 as an e:*e8tion to the general 8ro;ision.
29
2.#4 Constru*tion as not to ren0er 8ro;ision nugator7
The .hole state shoul0, i1 8ossi)le, )e gi;en e?e*t is that
a 8ro;ision o1 a statute shoul0 )e so *onstrue0 as not to
nulli17 or ren0er nugator7 another 8ro;ision o1 the same
statute.
(nterpretatio fienda est ut res magis !aleat $uam pereat
.hi*h means that a la. shoul0 )e inter8rete0 .ith a
;ie. to u8hol0ing rather than 0estro7ing it. A *onstru*tion that
.oul0 ren0er a 8ro;ision ino8erati;e or ine?e*ti;e shoul0 )e
a;oi0e0.
2.#6 Reason 1or the rule
The *onstru*tion that re=uires that a88arentl7 *on1li*ting
8ro;isions o1 a statute )e re*on*ile0 an0 harmoni<e0, i1 at all
8ossi)le an0 that a 8ro;ision shoul0 )e so *onstrue0 as not to
nulli17 another, is )ase0 on the 8resum8tion that the legislature has
ena*te0 a statute .hose 8ro;isions are in harmon7 an0 *onsistent
.ith ea*h other an0 that *on1li*ting intentions in the same statue
are ne;er su88ose0 or regar0e0.
2.#" Euali1i*ation o1 rule
One 8art o1 a statute *annot )e re*on*ile0 or harmoni<e0
.ith another 8art .ithout nulli17ing one in 1a;or o1
the other, the *ourt shoul0, in *onstruing the statue, *hoose
one .hi*h .ill )est e11e*tuate the legislati;e intent. Rule9 .here
a)solute harmon7 )et.een 8arts o1 a statue is 0emonstra)l7
not 8ossi)le, the *ourt must re/e*t that one .hi*h is least in
a**or0 .ith the general 8lan o1 the .hole statue. Ao.e;er, i1
there )e no su*h groun0 1or *hoi*e )et.een inharmonious
8ro;isions or se*tions, the latter 8ro;ision or se*tion, )eign the
last e:8ression o1 the legislati;e .ill, must, in *onstru*tion,
;a*ate the 1ormer to the e:tent o1 the re8ugnan*7.
2.!# Constru*tion as to gi;e li1e to la.
La. must re*ei;e sensi)le inter8retation to 8romote the
en0s 1or .hi*h the7 are ena*te0. The7 shoul0 )e gi;en
reasona)le an0 8ra*ti*al *onstru*tion as .ill gi;e li1e to them, i1
it *an )e 0one .ithout 0oing ;iolen*e to reason. Con;ersel7, a la.
shoul0 not )e *onstrue0 as to allo. the 0oing o1 an a*t .hi*h is
8rohi)ite0 )7 la., nor so inter8rete0 as to a?or0 an o88ortunit7 to
0e1eat *om8lian*e in terms, *reate an in*onsisten*7, or *ontra;ene
the 8lain .or0s o1 the la.. (nterpretatio fienda est ut res magis
!aleat $uam pereat or that inter8retation that .ill gi;e the thing
e?i*a*7 is to )e a0o8te0.
The *ourt shoul0 start .ith the assum8tion that the
legislature 0i0 not 0o a ;ain thin gin the ena*tment o1 the
statute. It is to )e 8resume0 that the la. is *om8lete )7 itsel1.
1t res magis !aleat $uam pereat, that the *ourts shoul0, i1
reasona)l7 8ossi)le to 0o so .ithout ;iolen*e to the s8irit an0
language o1 an a*t, so inter8ret a statute as to gi;e it e?i*ient
o8eration an0 e?e*t as a .hole.
2.!! Constru*tion to a;oi0 sur8lusage
The rule that a statue shoul0 )e gi;en e?e*t as a .hole
re=uires that the state )e so *onstrue0 as to maCe no 8art o1
8ro;ision thereo1 sur8lusage. A legal 8ro;ision must not )e so
*onstrue0 as to )e a useless sur8lusage, an0 a**or0ingl7,
meaningless in the sens o1 a00ing nothing to the la. or ha;ing no
e?e*t .hatsoe;er therein. Nor shoul0 a .or0 )e so *onstrue0 as to
ren0er other .or0s or 8hrases asso*iate0 .ith it ser;es no
8ur8ose. For the legislature, in ena*ting a la., is 8resume0 to
ha;e use0 the .or0 or 8hrase 1or a 8ur8ose. In short, the
legislature, in ena*ting a statute, is su88ose0 not to insert a
8ro;ision .hi*h is unne*essar7 an0 a sur8lusage.
2.!% Statute an0 its amen0ments *onstrue0 together
All 8arts o1 a statute are to )e harmoni<e0 an0 re*on*ile0
so that e11e*t ma7 )e gi;en to ea*h an0 e;er7 8art
thereo1 a88lies to the *onstru*tion o1 a statute an0 its
amen0ments. Amen0ments shoul0 )e gi;en e?e*t. It is to )e
8resume0 that the *hanges ha;e some 8ur8ose, .hi*h shoul0 )e
as*ertaine0 an0 gi;en e11e*t.
B. STATUTE CONSTRUED IN RELATION TO
CONSTITUTION AND OTHER STATUTES
2.!3 Statute *onstrue0 in harmon7 .ith the Constitution
As the Constitution is the 1un0amental la. to .hi*h all la.s
are su)ser;ient, a statute shoul0 not )e inter8rete0 in0e8en0entl7
o1 the Constitution. The statute shoul0 )e *onstrue0 in harmon7
.ith an0 not in ;iolation o1 the 1un0amental la.. It is 8resume0 that
the legislature in ena*ting a la., ha;e a0here0 to the *onstitutional
limitations.
A statute shoul0 )e *onstrue0 .hene;er 8ossi)le in a
30
manner that .ill a;oi0 *on1li*t .ith the Constitution. It shoul0 not
)e *onstrue0 in su*h a .a7 as .ill gi;e rise to a *onstitutional
0ou)t. Nor shoul0 it )e inter8rete0 in su*h a manner as .ill ren0er
its a88li*ation ;iolati;e o1 a *onstitutional inhi)ition. It shoul0 )e
inter8rete0 in *onsonan*e, rather than re8ugnant to, an7
*onstitutional *omman0 or 8res*ri8tion.
+here a statute is reasona)le sus*e8ti)le o1 t.o
*onstru*tions, one *onstitutional an0 the other un*onstitutional,
that *onstru*tion in 1a;or o1 its *onstitutionalit7 shall )e
a0o8te0 an0 the *onstru*tion that .ill ren0er it in;ali0 re/e*te0.
E;er7 inten0ment o1 la. shoul0 lean to.ar0s its ;ali0it7 an0
the *ourt shoul0 1a;or that *onstru*tion .hi*h gi;es it the
greater *han*e o1 sur;i;ing the test o1 *onstitutionalit7.
I1 there is 0ou)t or un*ertaint7 as to the meaning o1 the
legislature, i1 the .or0s or 8ro;isions are o)s*ure, or i1 the
ena*tment is 1airl7 sus*e8ti)le o1 t.o or more *onstru*tions, that
inter8retation .ill )e a0o8te0 .hi*h .ill a;oi0 the e?e*t o1
un*onstitutionalit7, e;en though it ma7 )e ne*essar7, 1or this
8ur8ose, to 0isregar0 the more usual or a88arent im8ort o1 the
language em8lo7e0. Ao.e;er, the *ourt *annot, in or0er to
)ring a statute .ithin the 1un0amental la., amen0 it )7
*onstru*tion.
2.!& Statutes in 8ari materia
Statutes are in 8ari material .hen the7 relate to the same
8erson or thing, or ha;e the same 8ur8ose or o)/e*t, or
*o;er the same s8e*i1i* or 8arti*ular su)/e*t matter. The later
statute ma7 s8e*i1i*all7 re1er to the 8rior statutes. The 1a*t that no
re1eren*e is ma0e to the 8rior la. 0oes not mean that the t.o la.s
are not in 8ari materia. It is su?i*ient, in or0er that
the7 ma7 )e *onsi0ere0 in 8ari materia, that the t.o or more
statute relate to the same s8e*i1i* su)/e*t matter. T.o la.s are not
in 8ari materia i1 the7 re1er to 0i?erent s8e*i1i* matters, although
the7 )oth 1all un0er the same )roa0 su)/e*t.
2.!2 Ao. statutes in 8ari materia *onstrue0
A statute shoul0 )e *onstrue0 as to harmoni<e .ith other
la.s on the same su)/e*t matter as to 1orm a *om8lete, *oherent
an0 intelligi)le s7stem. (nterpretare et concordare leges legibus
est optimus interpretandi modus or e;er7 statute must )e so
*onstrue0 an0 harmoni<e0 .ith other statutes as to 1orm a uni1orm
s7stem o1 /uris8ru0en*e.
Statutes in 8ari materia shoul0 )e *onstrue0 together to
attain the 8ur8ose o1 an e:8ress national 8oli*7. For the assum8tion
is that .hene;er the legislature ena*ts a la., it has in min0 the
8re;ious statutes relating to the same su)/e*t matter, an0 in the
a)sen*e o1 an7 e:8ress re8eal or amen0ment, the ne. statute is
0eeme0 ena*te0 in a**or0 .ith the legislati;e 8oli*7 em)o0ie0 in
the 8rior statutes an0 the7 shoul0 )e *onstrue0 together. Pro;isons
in an a*t .hi*h are omitte0 in another a*t relating to the same
su)/e*t matter .ill )e a88lie0 in a 8ro*ee0ing un0er the other a*t
.hen not in*onsistent .ith its 8ur8ose. Prior statutes relating to the
same su)/e*t matter are to )e *om8are0 .ith the ne. 8ro;isions,
an0 i1 8ossi)le )7 reasona)le *onstru*tion, )oth are to )e
*onstrue0 that e?e*t is gi;en to e;er7 8ro;ision o1 su*h.
Statutes in 8ari materia, although in a88arent *on1li*t, are so 1ar
as reasona)l7 8ossi)le *onstrue0 to )e in harmon7 .ith ea*h
other. (nterpretare et concordare leges legibus est optimus
interpretandi modus .hi*h means that the )est metho0 o1
inter8retation is that .hi*h maCes la.s *onsistent .ith other
la.s.
+hen t.o or more statutes on the same su)/e*t .ere
ena*te0 at 0i?erent times an0 un0er 0issimilar *ir*umstan*es or
*on0itions, their inter8retation shoul0 )e in a**or0an*e .ith the
*ir*umstan*es or *on0itions 8e*uliar to ea*h, in or0er that the
statutes ma7 )e harmoni<e0 or )etter un0erstoo0. Rule
)ase0 on9 distingue tempora et concordabis /ura, or 0istinguish
times an0 7ou .ill harmoni<e la.s.
A statute .ill not, ho.e;er, )e *onstrue0 as re8ealing
8rior a*t on the same su)/e*t in the a)sen*e o1 .or0s to that
e?e*t, unless there is an irre*on*ila)le re8ugnan*7 )et.een them
or unless the ne. la. is e;i0entl7 inten0e0 to su8erse0e all 8rior
a*ts on the matter an0 to *om8rise itsel1 the sole an0 *om8lete
s7stem o1 legislation on the su)/e*t.
2.!4 Reasons .h7 la.s on same su)/e*t are re*on*ile0
In ena*ting a statute, the legislature is 8resume0 to
ha;e )een a.are o1, an0 ha;e taCen into a**ount, 8rior la.s on the
su)/e*t o1 legislation. It *annot )e sai0 that the7 inten0e0
the esta)lishment o1 *on1li*ting an0 hostile s7stems on the
same su)/e*t, or to lea;e in 1or*e 8ro;isions o1 a 8rior la.
.hi*h ma7 th.art an0 o;erthro. the .ill o1 the legislature.
31
2.!6 +here harmoni<ation is im8ossi)le
I1 t.o or more la.s on the same su)/e*t *annot 8ossi)l7 )e
re*on*ile0 or harmoni<e0, one has to gi;e .a7 in 1a;or o1
the other. There *annot )e t.o *on1li*ting la.s on the same
su)/e*t. The earlier one must 7iel0 to the later one, it )eing the
later e:8ression o1 the legislati;e .ill.
2.!" Illustration o1 the rule
2.5# General an0 s8e*ial statutes
A general statute is a statute .hi*h a88lies to all o1 the
8eo8le o1 the state or to all o1 a 8arti*ular *lass o1 8ersons in the
state .ith e=ual 1or*e. It is one .hi*h em)ra*es o1 a *lass o1
su)/e*t or 8la*es an0 0oes not omit an7 su)/e*t or 8la*e
naturall7 )elonging to su*h *lass. A s8e*ial statute is one .hi*h
relates to 8arti*ular 8ersons or things o1 a *lass or to a 8arti*ular
8ortion or se*tion o1 the state onl7.
A general la. an0 s8e*ial la. on the same su)/e*t are
statutes in 8ari material an0 shoul0, a**or0ingl7 )e rea0
together an0 harmoni<e0, i1 8ossi)le, .ith a ;ie. to gi;ing
e?e*t to )oth. Rule9 .here there are t.o a*ts, one o1 .hi*h is
s8e*ial an0 8arti*ular an0 the other general .hi*h, i1 stan0ing
alone, .oul0 in*lu0e the same matter an0 thus *on1li*t .ith the
s8e*ial a*t, the s8e*ial must 8re;ail sin*e it e;in*es the legislati;e
intent more *learl7 than that o1 a general statute an0 must )e
taCen as inten0e0 to *onstitute an e:*e8tion to the general a*t.
The *ir*umstan*e that the s8e*ial la. is 8asse0 )e1ore or
a1ter the general a*t 0oes not *hange the 8rin*i8le. +here
the s8e*ial la. is later, it .ill )e regar0e0 as an e:*e8tion to or
=uali1i*ation o1, the 8rior general a*tG an0 .here the general
a*t is later, the s8e*ial statute .ill )e *onstrue0 as remaining an
e:*e8tion to its terms, unless re8eale0 e:8ressl7 or )7
ne*essar7 im8li*ation.
+here t.o statutes are o1 e=ual theoreti*al a88li*ation
to a 8arti*ular *ase, the one 0esigne0 there1ore s8e*iall7 shoul0
8re;ail.
2.5! Reason 1or the rule
Reason9 s8e*ial as e:*e8tion to the general' the legislature
in 8assing a la. o1 s8e*ial *hara*ter has its attention 0ire*te0 to
the s8e*ial 1a*ts an0 *ir*umstan*e .hi*h the s8e*ial 1a*ts an0
*ir*umstan*es .hi*h the s8e*ial a*t is inten0e0 to meet.
2.55 Euali1i*ations o1 the rule
The rule is not a)solute. One e:*e8tion is that .here the
legislature *learl7 inten0e0 the later general ena*tment to
*o;er the .hole su)/e*t an0 to re8eal all 8rior la.s in*onsistent
there.ith, the general la. 8re;ails o;er a s8e*ial la. on the
su)/e*t. In su*h *ase, there is a re8eal o1 the s8e*ial la..
Another e:*e8tion9 .here the s8e*ial la. merel7
esta)lishes a general rule .hile the general la. *reates a
s8e*i1i* an0 s8e*ial rule, in .hi*h *ase the general la. 8re;ails
o;er the s8e*ial la..
The rule 0oes not a88l7 .here the situation is re;erse0,
that is, the general la. treats the su)/e*t in 8arti*ular an0 the
s8e*ial la. re1ers to it in general. In this situation, the general la.
8re;ails o;er the s8e*ial la. in the e;ent o1 re8ugnan*7 or
*on1li*t )et.een the t.o la.s.
2.5% Re1eren*e statutes
A re1eren*e statute is a statute .hi*h re1ers to other
statutes an0 maCes them a88li*a)le to the su)/e*t o1
legislation. It is in*or8oration in a statute o1 another statute )7
re1eren*e. It is use0 to a;oi0 en*um)ering the statute )ooCs o1
unne*essar7 re8etition, an0 the7 ha;e )een re*ogni<e0 as an
a88ro;e0 metho0 o1 legislation, in the a)sen*e o1 *onstitutional
restri*tions.
The a0o8tion )7 re1eren*e o1 a statute that .as 8re;iousl7
re8eale0 re;i;es the statute. The a0o8tion taCes the a0o8te0
statute as it e:ists at the tie o1 a0o8tion an0 0oes not in*lu0e the
su)se=uent *hanges or mo0i1i*ation o1 the statute so taCen, unless
it 0oes so e:8ressl7.
A re1eren*e statute shoul0 )e so *onstrue0 as to
harmoni<e .ith, an0 to gi;e e?e*t to, the a0o8te0 statute.
32
2.53 Su88lemental statutes
A su88lemental a*t is one inten0e0 to su88l7 0e1i*ien*ies
in an e:isting statute an0 to a00, to *om8lete, or
e:ten0 the statute .ithout *hanging or mo0i17ing its original
te:t. The original statute an0 the su88lemental a*t shoul0 )e
rea0 an0 *onstrue0 together to maCe an intelligi)le .hole.
2.5& Reena*te0 statutes
A statute .hi*h reena*ts a 8re;ious statute or the
8ro;isions thereo1 is Cno.n as reena*te0 statute. A reena*tment is
one in .hi*h the 8ro;isions o1 an earlier statute are re8ro0u*e0 in
the same or su)stantiall7 the same .or0s. The reena*tment ma7
also )e ma0e )7 re1eren*e. Thus, .here a statute 8ro;i0es that all
la.s not in*onsistent .ith the 8ro;isions thereo1 are 0eeme0
in*or8orate0 an0 ma0e integral 8arts thereo1 )7 re1eren*e, su*h
8re;ious la.s on the same su)/e*t matter are 0eeme0 ena*te0.
The reena*tment is a legislati;e e:8ression o1 intention to
a0o8t the *onstru*tion as .ell as the language o1 the 8rior
a*t. Rule9 .hen a statute or a 8ro;ision thereo1 has )een
*onstrue0 )7 the *ourt o1 last resort an0 the same is
su)stantiall7 reena*te0, the legislature ma7 )e regar0e0 as
a0o8ting su*h *onstru*tion, an0 the *onstru*tion .hi*h the
a0o8te0 statute 8re;iousl7 re*ei;e0.
The rule is that t.o statute .ith a 8arallel s*o8e, 8ur8ose
an0 terminolog7 shoul0, ea*h in its o.n 1iel0, ha;e a liCe
inter8retation, unless in 8arti*ular instan*es there is something
8e*uliar in the =uestion un0er the *onsi0eration, or 0issimilar in
the terms o1 the a*t relating thereto, re=uiring a 0i?erent
*on*lusion.
2.52 A0o8tion o1 *ontem8oraneous *onstru*tion
The reena*tment o1 a statute .hi*h has re*ei;e0 a
8ra*ti*al or *ontem8oraneous *onstru*tion )7 those *harge0 .ith
the 0ut7 o1 e:e*uting it is a 8ersuasi;e in0i*ation o1 the a0o8tion
)7 the legislature o1 the 8rior 8ra*ti*al or e:e*uti;e *onstru*tion,
the legislature )eing 8resume0 to Cno. the e:isten*e o1 su*h
*onstru*tion .hen it ma0e the reena*tment.
2.54 Euali1i*ation o1 the rule
the rule that .hen a /u0i*ial or *ontem8oraneous
*onstru*tion has )een gi;en to a statute, the reena*tment o1 the
statute is generall7 hel0 to )e in e?e*t a legislati;e a0o8tion o1
the *onstru*tion, a88lies onl7 .hen the statute is *a8a)le o1 the
*onstru*tion gi;en to it an0 .hen the *onstru*tion has )e*ome a
settle0 rule o1 *on0u*t.
2.56 A0o8te0 statutes
An a0o8te0 statute is statute 8atterne0 a1ter, or *o8ie0
1rom a statute o1 a 1oreign *ountr7. In *onstruing it, the *ourt shoul0
taCe into *onsi0eration the *onstru*tion o1 the la. )7 the *ourts o1
the *ountr7 1rom .hi*h it is taCen, as .ell as the la. itsel1 an0 the
8ra*ti*es un0er it, 1or the legislature is 8resume0 to ha;e a0o8te0
su*h *onstru*tion an0 8ra*ti*es .ith the a0o8tion o1 the la.. The
8resum8tion 0oes not, ho.e;er, a88l7 to *onstru*tion gi;en the
statute su)se=uent to its a0o8tion, although it ha0 8ersuasi;e
e?e*t on the inter8retation o1 the a0o8te0 statute.
C.!&te ;: STRICT OR LIBERAL
CONSTRUCTION
A. IN GENERAL
4.!. Generall79
+hether a statute is to )e gi;en a stri*t or li)eral
*onstru*tion .ill )e 0e8en0 u8on the nature o1 the
statute, the 8ur8ose to )e su)ser;e0 an0 the mis*hie1 to
)e reme0ie0, an0 a stri*t or li)eral inter8retation .ill )e
gi;en a statute that .ill )est a**om8lish the en0 0esire0
an0 e?e*tuate legislati;e intent.
4.5. Stri*t *onstru*tion, generall7
Stri*t *onstru*tion is that *onstru*tion a**or0ing to
the letter o1 a statute, .hi*h re*ogni<es nothing that
is not e:8resse0, taCes the language use0 in its e:a*t
meaning, an0 a0mits no e=uita)le *onsi0eration. It
0oes not mean gi;ing a statute its narro.est meaning o1
.hi*h it is sus*e8ti)le. Nor 0oes it mean that .or0s
shall )e so restri*te0 as not to ha;e their 1ull meaning.
S*o8e o1 statute shall not )e e:ten0e0 or enlarge0 )7
im8li*ation, inten0ment, or e=uita)le *onsi0eration )e7on0
the literal meaning o1 its terms.
33
4.%. Li)eral *onstru*tion, 0e1ine0.
Li)eral *onstru*tions means su*h e=uita)le
*onstru*tion as .ill enlarge o1 a statute to a**om8lish its
inten0e0 8ur8ose, *arr7 out its intent, or 8romote
/usti*e. It 0oes not mean enlargement o1 a 8ro;ision
.hi*h is *lear, unam)iguous an0 1ree 1rom 0ou)t, 1or a
statute .hi*h is 8lain an0 *lear is not su)/e*t to
*onstru*tion. Li)eral *onstru*tion is that *onstru*tion
.hi*h e:8an0s the meaning o1 a statute to meet *ases
.hi*h are *learl7 .ithin the s8irit or reason thereo1 or
.ithin the e;il .hi*h the statute .as 0esigne0 to
reme07, or .hi*h gi;e the statute its generall7 a**e8te0
meaning to the en0 that the most *om8rehensi;e
a88li*ation thereo1 ma7)e a**or0e0, .ithout )eing
in*onsistent .ith its language or 0oing ;iolen*e to an7 o1 its
terms. Li)eral *onstru*tion means that the .or0s shoul0
re*ei;e a 1air an0 reasona)le inter8retation, so as to attain
the intent, s8irit an0 8ur8ose o1 the la..
4.3. Li)eral *onstru*tion a88lie0, generall7.
The literal meaning o1 the .or0s use0 ma7 )e
re/e*te0 i1 the result o1 a0o8ting sai0 meaning .oul0 )e to
0e1eat 8ur8ose o1 the la.. Li)eral inter8retation so as to
sa;e the statute 1rom o)literation, ut res magis !aleat
$uam pereat. Constru*tion )7 this nature an0 the a*t o1
the *ourt in engra1ting u8on a la. something .hi*h its
)elie;es ought to ha;e )een em)ra*e0 therein. The 1ormer
is li)eral *onstru*tion an0 is a legitimate e:er*ise o1
/u0i*ial 8o.er. The latter is /u0i*ial
legislation 1or)i00en )7 the tri8artite 0i;ision o1 8o.ers
among the three 0e8artments o1 go;ernment, the
e:e*uti;e, the legislati;e an0 the /u0i*ial. A statute ma7 not
)e li)erall7 *onstrue0 to rea0 into it something .hi*h
its *lear an0 8lain language re/e*ts.
4.&. Constru*tion to 8romote so*ial /usti*e.
IIt so*ial /usti*e man0ate' is meant 1or the three
0e8artments9 the legislati;e, e:e*uti;e, an0 /u0i*ial, )e*ause
the latter t.o are no less than the agen*ies o1 the state than
the 1irst. Enhan*e so*ial /usti*e.
4.2. Constru*tion taCing into *onsi0eration general .el1are or
gro.th o1 *i;ili<ation.
Some authorities a0;o*ate a *onstru*tion .hi*h
seeCs an e:8ansi;e a88li*ation o1 statutes to attain the general
.el1are. salus populi est suprema lex. Statute ena*te0 1or the
8u)li* goo0 are to )e *onstrue0 li)erall7. #tatuta pro publico
commodo late interpretantur. An authorit7 on the su)/e*t
e:8oun0s on this t78e o1 *onstru*tion9 IThere is 1or me in all
*ases a 8rin*i8le o1 statutor7 *onstru*tion not to )e 1oun0 on the
)ooCs, )ut .hi*h 1or the Phili88ine Islan0s is all$im8ortant.
In the resolution o1 all =uestions, I )egin .ith these =ueries9
.hat is 1or the )est interest o1 the Fili8ino 8eo8leQ
IThe statute in general has t.o, arti*ulate organs 1or
la.maCing 8ur8oses ( the legislature an0 the tri)unal. First
organ maCes ne. la., the se*on0 attests an0 *on1irms ol0 la..
Statutes must )e inter8rete0 in the light o1 the gro.th o1
*i;ili<ation an0 ;ar7ing *on0itions.
4.4. Penal statutes, generall7.
Penal statutes re1er to those la.s )7 .hi*h
8unishments are im8ose0 1or ;iolation or transgression o1 their
8ro;isions. A*ts o1 the legislature .hi*h 8rohi)it *ertain a*ts
an0 esta)lish 8enalties 1or their ;iolationG or those that 0e1ine
*rimes, treat o1 their nature an0 8ro;i0e 1or their 8unishment. Penal
or *riminal la.s are those .hi*h im8ose 8unishment 1or an
o?ense *ommitte0 against the state, an0 .hi*h the *hie1 e:e*uti;e
has the 8o.er to 8ar0on. A statute .hi*h 0e*rees the 1or1eiture
in 1a;or o1 the state o1 une:8laine0 .ealth a*=uire0 )7 a 8u)li*
o?i*ial .hile in o?i*e is *riminal in nature.
4.6. Penal statutes stri*tl7 *onstrue0.
Penal or *riminal la.s are stri*tl7 *onstrue0 against
the State an0 li)erall7 in 1a;or o1 the a**use0 *annot )e enlarge0
or e:ten0e0 )7 inten0ment, im8li*ation, or an7 e=uita)le
*onsi0eration. The language o1 a 8enal statutes *annot )e
34
enlarge0 )e7on0 the or0inar7 meaning o1 its terms in or0er to *arr7
into e?e*t the general 8ur8ose 1or .hi*h the statute .as ena*te0.
Resol;e0 in 1a;or o1 the 8erson a**use0 o1 ;iolating the statute.
No 8erson shoul0 )e )rought .ithin the terms o1 a statute .ho is
not *learl7 .ithin them, nor shoul0 an7 a*t )e 8ronoun*e0 *riminal
.hi*h is not *learl7 ma0e so )7 the statute.
The rule that 8enal statutes are stri*tl7 *onstrue0 0oes not
mean that e;er7 8enal la. must )e so narro.l7 *onstrue0
as to 0e1eat the la. itsel1G it merel7 means that the7 are not to
)e *onstrue0 so stri*tl7 as to nulli17 or 0estro7 the o);ious 8ur8ose
o1 the legislature. >e *onstrue0 .ith su*h stri*tness as to *are1ull7
sa1eguar0 the rights o1 the 0e1en0ant an0 at the same time
8reser;e the o);ious intention o1 the legislature. It .ill en0ea;or to
e?e*t su)stantial /usti*e.
Care1ul s*rutin7 sa1eguar0 the rights o1 the a**use0.
T.o reasona)le )ut *ontra0i*tor7 *onstru*tions, that .hi*h
o8erates in 1a;or o1 a 8art7 a**use0 un0er its 8ro;ision is to )e
8re1erre0. The 8rin*i8le is that a*ts in an0 o1 themsel;es inno*ent
an0 la.1ul *annot )e hel0 to )e *riminal unless there is a *lear
an0 une=ui;o*al e:8ression o1 the legislati;e intent to maCe them
su*h.
4.". Reason .h7 8enal statutes are stri*tl7 *onstrue0.
La. is ten0er in 1a;or o1 the rights o1 an in0i;i0ualG
the o)/e*t is to esta)lish a *ertain rule )7 *on1ormit7
to .hi*h manCin0 .oul0 )e sa1e, an0 the 0is*retion o1 the *ourt
limite0. The 8ur8ose o1 stri*t *onstru*tion is not to ena)le a
guilt7 8erson to es*a8e 8unishment through a te*hni*alit7 )ut to
8ro;i0e a 8re*ise 0e1inition o1 1or)i00en a*ts.
4.!#. A*ts mala in se an0 mala prohibita.
General rule is that a 8enal statute .ill not )e
*onstrue0 to maCe the *ommission o1 *ertain 8rohi)ite0 a*ts
*riminal .ithout regar0 to the intent o1 the 0oer, unless there is a
*lear legislati;e intent to the *ontrar7G e;il intent must *om)ine
.ith an a*t. *ctus non facit reum nisi mens sit rea, the a*t itsel1
0oes not maCe a man guilt7 unless his intention .ere so. *ctus
me in!ito factus non est meus actus, an a*t 0one )7 me against
m7 .ill is not m7 a*t. Mala in se, *riminal intent, a8art 1rom the a*t
itsel1, is re=uire0 )ut in those .hi*h are mala prohibita the onl7
in=uir7 is, has the la. )een ;iolate0.
4.!5 Limitation o1 the rule.
The rule that 8enal statutes are gi;en a stri*t
*onstru*tion is not the onl7 1a*tor in the inter8retation o1 the
*riminal la.sG merel7 ser;es as an a00itional 1a*tor to )e
*onsi0ere0 as an ai0 in as*ertaining the meaning o1 8enal la.s. A
stri*t *onstru*tion shoul0 not )e 8ermitte0 to 0e1eat the intent,
8oli*7, an0 8ur8ose o1 the statute. The *ourt shoul0 *onsi0er the
s8irit an0 reason o1 a statute .here a literal meaning .oul0 lea0 to
a)sur0it7, *ontra0i*tion, in/usti*e, or .oul0 0e1eat the *lear
8ur8ose o1 the la., 1or stri*t *onstru*tion o1 a *riminal
statute 0oes not mean su*h *onstru*tion as to 0e8ri;e it o1 the
meaning inten0e0.
Ca8a)le o1 t.o inter8retations, one .hi*h .ill o8erate to
e:em8t an a**use0 1rom lia)ilit7 1or ;iolation thereo1 an0 another
.hi*h .ill gi;e e?e*t to the mani1est intent o1 the statute an0
8romote its o)/e*t, the latter the inter8retation shoul0 )e a0o8te0G
the7 are not to )e so stri*tl7 *onstrue0 as to 0e1eat the o);ious
8ur8ose o1 the legislature.
4.!% Statutes in 0erogation o1 rights.
Peo8le in re8u)li*an state en/o7 *ertain rights, .hi*h
are either inherent or guarantee0 )7 the *onstitution or 8rote*te0
)7 la.G rights are not a)solute, an0 the state, in the e:er*ise o1 its
8oli*e 8o.er, ma7 ena*t legislations *urtailing or restri*ting their
en/o7ment. As these statutes are in 0erogation o1 *ommon or
general rights, the7 are generall7 stri*tl7 *onstrue0 an0 rigi0l7
*on1ine0 to *ases *learl7 .ithin their s*o8e or 8ur8ose.G t.o
reasona)l7 8ossi)le *onstru*tions, one .hi*h .oul0 0iminish or
restri*t 1un0amental right o1 the 8eo8le an0 the other o1 .hi*h
.oul0 not 0o so, the latter *onstru*tion
must )e a0o8te0 so as to allo. 1ull en/o7ment o1 su*h
1un0amental right.
4.!3 Statutes authori<ing e:8ro8riations.
The 8o.er o1 eminent 0omain is essentiall7
legislati;e in nature. The legislature ma7 not, ho.e;er, )7
itsel1, e:er*ise su*h 8o.er )7 ena*ting a la. 0ire*tl7 e:8ro8riating
a 8arti*ular lan0 an0 1i:ing the amount o1 /ust *om8ensation
thereo1. It ma7 0elegate the 8o.er, )7 la., su)/e*t to hearing as
to /ust *om8ensation to the 8resi0ent, lo*al go;ernment units, or
a 8u)li* utilit7 *om8an7.G stri*tl7 *onstrue0 against the
e:8ro8riating authorit7 an0 li)erall7 in 1a;or o1 8ro8ert7 o.nersG
Ie:er*ise o1 the right o1 eminent 0omain, .hether )7 the state or
)7 its authori<e0 agents, is ne*essaril7 in 0erogation o1 8ri;ate
35
rights, an0 the rule in that *ase is that the authorit7 must )e
stri*tl7 *onstrue0G right to 1reehol0 inha)itants.
4.!& Statutes granting 8ri;ileges.
Statutes granting a0;antages to 8ri;ate 8ersons or
entities ha;e in man7 instan*e *reate0 s8e*ial 8ri;ileges or
mono8olies 1or the rantees an0 ha;e thus )een ;ie.e0 .ith
sus8i*ion an0 stri*tl7 *onstrue0G 8u)li* a0;antage is gaine0 )7 the
grant, it narro.l7 a88ears to )e se*on0ar7 signi1i*an*e *om8are0
.ith the a0;antage gaine0 )7 the grantee.
Stri*t *onstru*tion re=uires that those .ho in;oCe a
s8e*ial 8ri;ilege grante0 )7 the statute must *om8l7 stri*tl7
.ith its 8ro;isions. 6ri!ilegia recipient largam interpretationem
!oluntati consonam concedentis, or 8ri;ileges are to )e
inter8rete0 in a**or0an*e .ith the .ill o1 him .ho grants them.
4.!2 Legislati;e grants to lo*al go;ernment units.
Legislati;e grants in 1a;or o1 lo*al go;ernment units
are grants o1 a 8u)li* nature, an0 hen*e, shoul0 )e stri*tl7
*onstrue0 against the grantee.G there is in su*h a grant a
gratuitous 0onation o1 8u)li* mone7 or 8ro8ert7 .hi*h results in an
un1air a0;antage to the grantee an0 1or that reason, the grant
shoul0 )e narro.l7 restri*te0 in 1a;or o1 the 8u)li*.
4.!4 Statutor7 groun0s 1or remo;al o1 o?i*ials.
Statutes relating to sus8ension or remo;al o1 8u)li*
o?i*ials are stri*tl7 *onstrue0. G remo;al is to )e *on1ine0 .ithin the
limits 8res*ri)e0 1or itG the *auses, manner an0 *on0itions 1i:e0
must )e 8ursue0 .ith stri*tnessG .here the *ause o1 remo;al is
s8e*i1ie0, the s8e*i1i*ation amounts to a 8rohi)ition to remo;e 1or a
0i?erent *ause, .hi*h is a 8ara8hrase o1 the ma:im expressio
unius est exclusion alterius.
G reme07 o1 remo;al is 0rasti* one an0 8enal in nature.G .here a
statute 8ro;i0es that a 8u)li* o?i*ial ma7 )e remo;e0 1or
Inegle*t o1 0ut7, o88ression, *orru8tion or other 1orms o1
mala0ministration in o?i*e,J the 8hrase Rin o?i*eJ shoul0 )e
*onstrue0 to =uali17 the enumerate0 groun0s, in that the groun0s
must )e su*h as a?e*t the o?i*erDs 8er1orman*e o1 his 0uties as an
o?i*er an0 not su*h as a?e*t onl7 his *hara*ter as a 8ri;ate
8erson.
4.!6 Naturali<ation la.s.
La.s on naturali<ation are stri*tl7 *onstrue0 against
an a88li*ant 1or *iti<enshi8 an0 rigi0l7 1ollo.e0 an0
en1or*e0. G right o1 an alien to )e*ome a *iti<en )7
naturali<ation is a statutor7 rather that a natural one, an0 it
0oes not )e*ome ;este0 until he 1iles a 8etition an0 esta)lishes )7
*om8etent an0 satis1a*tor7 e;i0en*e that he has all the
=uali1i*ations an0 none o1 the 0is=uali1i*ations s8e*i1ie0 )7 la..
4.!" Statutes im8osing ta:es an0 *ustom 0uties.
The 8o.er to ta: is an in*i0ent o1 so;ereignt7
an0 is unlimite0 in its range, a*Cno.le0ging in its ;er7 nature no
limits, so that se*urit7 against its a)use the is to )e 1oun0 onl7 in
the res8onsi)ilit7 o1 the legislature .hi*h im8oses the ta: o1 the
*onstituen*7 .ho are to 8a7 it. G I8o.er to ta: in;ol;es the 8o.er
to 0estro7.J G ta: statutes must )e *onstrue0 stri*tl7
against the go;ernment an0 li)erall7 in 1a;or o1 the ta:8a7er. G the
statute is to )e *onstrue0 stri*tl7 against the su)/e*tion to ta:
lia)ilit7, an0 it .ill not )e *onstrue0 as im8osing a ta: unless it
0oes so *learl7, e:8ressl7 an0 unam)iguousl7 . a ta: *annot )e
im8ose0 .ithout *lear an0 e:8ress .or0s 1or that 8ur8ose. Ta: or
*ustoms la.s ma7 not )e e:ten0e0 )7 im8li*ation )e7on0 the *lear
im8ort o1 their language, nor their o8eration enlarge0 so as to
em)ra*e matters not s8e*i1i*all7 8ro;i0e0. G
Reason ( ta:ation is a 0estru*ti;e 8o.er .hi*h
inter1eres .ith the 8ersonal an0 8ro8ert7 rights o1 the 8eo8le an0
taCes 1rom them a 8ortion o1 their 8ro8ert7 1or the su88ort o1 the
go;ernment.G )ur0ens are not to )e im8ose0, nor 8resume0 to )e
im8ose0, )e7on0 .hat the statutes e:8ressl7 an0 *learl7 im8ort.
4.5# Statutes granting ta: e:em8tions.
Ta:es are .hat the 8eo8le 8a7 1or *i;ili<e0 so*iet7.
G li1e)loo0 o1 the nation. The la. 1ro.ns against e:em8tions 1rom
ta:ation. La.s granting ta: e:em8tions are thus *onstrue0
36
strictissmi /uris against the ta:8a7er an0 li)erall7 in 1a;or o1
the ta:ing authorit7. Ta:ation is the rule an0 e:em8tion is
thee:*e8tion. The )ur0en o1 8roo1 rests u8on the 8art7 *laiming
e:em8tion to 8ro;e that it is in 1a*t *o;ere0 )7 the e:em8tion so
*laime0. Statutes granting ta: e:em8tions are *onstrue0
strictissimi /uris against the ta:8a7er an0 li)erall7 in 1a;or o1
the ta:ing authorit7. >asis ( to minimi<e the 0i?erent treatment
an0 1oster im8artialit7, 1airness an0 e=ualit7 o1 treatment among
ta:8a7ers. For e:em8tions 1rom ta:ation are not 1a;ore0 in la.,
nor are the7 8resume0. The7 must )e e:8resse0 in the *learest
an0 most unam)iguous language an0 not le1t to mere
im8li*ations. Ie:em8tions are ne;er 8resume0, the )ur0en is on the
*laimant to esta)lish *learl7 his right to e:em8tion an0 an allege0
grant o1 e:em8tion .ill )e stri*tl7 *onstrue0 an0 *annot )e ma0e
out )7 in1eren*e or im8li*ations )ut must )e )e7on0 reasona)le
0ou)t. In other .or0s, sin*e ta:ation is the rule an0 e:em8tion the
intention to maCe an e:em8tion ought to )e e:8resse0 in *lear an0
unam)iguous terms.
4.5! Euali1i*ation o1 rule.
Not a)solute. +here the 8ro;ision o1 the la. is
*lear an0 unam)iguous , so that there is no o**asion 1or the
*ourt seeCing the legislati;e intent, the la. must )e taCen as it is,
0e;oi0 o1 /u0i*ial a00ition or su)tra*tion. La. 8ro;i0es no
=uali1i*ation 1or the granting o1 ta: e:em8tion, the *ourt is not at
li)ert7 to su88l7 one..G 0oes not a88l7 in the *ase o1 ta: e:em8tions
in 1a;or o1 the go;ernment itsel1 or its agen*ies.
4.55 Statutes *on*erning the so;ereign.
Restri*ti;e statutes .hi*h im8ose )ur0ens on the
8u)li* treasur7 or .hi*h 0iminish rights an0 interest are stri*tl7
*onstrue0. For this reason, su*h statutes , no matter ho.
)roa0 their terms are, 0o not em)ra*e the so;ereign, unless the
so;ereign is s8e*i1i*all7 mentione0.
4.5% Statutes authori<ing suits against the go;ernment. IState
ma7 not )e sue0 .ithout its *onsent.J (
rea?irms uni;ersal rule that the so;ereign is e:em8t 1rom suit, in
the a)sen*e o1 its *onsent to )e sue0 usuall7 in the 1orm o1 a
statute to that e11e*t, not )e*ause o1 an7 1ormal *on*e8tion or
a)solute theor7 )ut on the logi*al an0 8ra*ti*al groun0 that
there *an )e no legal right 0e8en0s. 4ullum tempus occurrit
regi. A statute .here)7 the state gi;es its *onsent to )e sue0
is stri*tl7 *onstrue0, an0 the .ai;er o1 immunit7 1rom suit,
)eing in 0erogation o1 so;ereignt7, .ill not )e lightl7 in1erre0.
4.53 Statutes 8res*ri)ing 1ormalities o1 .ill.
Statutes 8res*ri)ing the 1ormalities to )e
o)ser;e0 in the e:e*ution o1 .ills are stri*tl7 *onstrue0, G a .ill
must )e e:e*ute0 in a**or0an*e .ith the statutor7 re=uirements,
other.ise it is entirel7 ;oi0. G a88l7 the intent o1 the legislators an0
not that o1 the testator, an0 the latterDs intention is 1re=uentl7
0e1eate0 )7 the non$o)ser;an*e o1 .hat the statute re=uires.
4.5& E:*e8tions an0 8ro;isos.
As a rule, e:*e8tions shoul0 )e stri*tl7 )ut
reasona)l7 *onstrue0G the7 e:ten0 onl7 so 1ar as their
language 1airl7 .arrants, an0 all 0ou)ts shoul0 )e resol;e0 in
1a;or o1 the general 8ro;ision rather than the e:*e8tion. The
*ourt .ill not *urtail the 1ormer nor a00 to the latter )7
im8li*ation, an0 it is a rule that an e:8ress e:*e8tion e:*lu0es all
others, although it is al.a7s 8ro8er in 0etermining the a88li*a)ilit7
o1 this rule to in=uire .hether, in the 8arti*ular *ase, it a**or0s
.ith reason an0 /usti*e.
Similarl7, a statute, rule or situation .hi*h allo.s
e:*e8tions to the re=uirement o1 .arrant o1 arrest or sear*h
.arrant must )e stri*tl7 *onstrue0. A 8re1eren*e is an
e:*e8tion to the general rule an0 it is .hat its name im8lies.
A 8ro;iso shoul0 )e inter8rete0 *onsistentl7 .ith the
legislati;e intent. The reason is that the legislati;e 8ur8ose set
1orth in the general ena*tment e:8resses the legislati;e 8oli*7 an0
onl7 those e:8ressl7 e:em8te0 )7 the 8ro;iso shoul0 )e 1ree0 1rom
the o8eration o1 the statute.
C. STATUTES LI>ERALL- CONSTRUE@
4.52 General so*ial legislation
37
Im8lement the so*ial /usti*e an0 8rote*tion$to$ la)or
8ro;isions o1 the Constitution are Cno.n as general .el1are
legislations. These statutes are *onstrue0 li)erall7. General
.el1are legislations, the *ourts .ill )e gui0e0 )7 more than /ust an
in=uir7 into the letter o1 the la. as against its s8irit an0 .ill
ultimatel7 resol;e an7 0ou)t in 1a;or o1 the 8ersons .hom the la.
inten0e0 to )ene1it.
La)or la.s, tenan*7 la.s, lan0 re1orm la.s an0
so*ial se*urit7 la.s. Ao.e;er, .hile general .el1are
legislations are *onstrue0 li)erall7 in 1a;or o1 those inten0e0 to
)e )ene1ite0, this 8rin*i8le hol0s true onl7 .hen there is 0ou)t or
am)iguit7 in the la. an0 not .hen the la. itsel1 is *lear an0 1ree
0ou)t.
+orCingmanDs .el1are shoul0 )e the 8rimor0ial an0
8aramount *onsi0eration. Arti*le 3 o1 the Ne. La)or Co0e
.hi*h states that Rall 0ou)ts in the im8lementation an0
inter8retation o1 the 8ro;isions o1 the La)or Co0e in*lu0ing its
im8lementing rules an0 regulations shall )e resol;e0 in 1a;or o1
la)or. >ase0 on the 8remise that the statute is am)iguous.
4.54 General .el1are *lause.
The general .el1are *lause on the 8o.er o1 lo*al
go;ernment has t.o )ran*hes. One )ran*h atta*hes itsel1 to
the main trunC o1 muni*i8al authorit7 an0 relates to su*h
or0inan*es an0 regulations as ma7 )e ne*essar7 to *arr7 into
e?e*t an0 0is*harge the 8o.ers an0 0uties *on1erre0 u8on lo*al
legislati;e )o0ies )7 la.. The se*on0 )ran*h is mu*h more
in0e8en0ent o1 the s8e*i1i* 1un*tions enumerate0 )7 la.. It
authori<es su*h or0inan*es as shall seem ne*essar7 an0 8ro8er to
8ro;i0e 1or the health an0 sa1et7, 8romote the 8ros8erit7,
im8ro;e the morals, 8ea*e, goo0 or0er, *om1ort, an0
*on;enien*e o1 the lo*al go;ernment unit an0 the inha)itants
thereo1, an0 1or the 8rote*tion o1 the 8ro8ert7 therein.
The general .el1are *lause shoul0 )e *onstrue0
li)erall7 in 1a;or o1 the lo*al go;ernment units.
4.56 Grant o1 8o.er to lo*al go;ernments.
Limite0 sel1$go;ernment to 1ull autonom7. The ol0
rule is that muni*i8al *or8orations, )eing mere *reatures o1 the
la., ha;e onl7 su*h 8o.ers as are e:8ressl7 grante0 to them
an0 those .hi*h are ne*essaril7 im8lie0 or in*i0ental to the
e:er*ise thereo1 an0 that grants o1 8o.er to them are to )e
*onstrue0 stri*tl7 an0 an7 0ou)t shoul0 )e resol;e0 in 1a;or o1 the
national go;ernment an0 against the 8oliti*al su)0i;ision
*on*erne0.
The rule o1 *onstru*tion *hange .ith the ena*tment
o1 Re8u)li* A*t No.5523, other.ise Cno.n as the Lo*al Autonom7
A*t. Se*tion !5 o1 sai0 A*t 8ro;i0es in 8art that the Rim8lie0
8o.er o1 a 8ro;in*e, a *it7 or a muni*i8alit7 shall )e li)erall7
*onstrue0 in its 1a;or. An7 1air an0 reasona)le 0ou)t as to the
e:isten*e o1 the 8o.er shoul0 )e inter8rete0 in 1a;or o1 the lo*al
go;ernment an0 it shall )e 8resume0 to e:ist. This li)eral
*onstru*tion is 1orti1ie0 )7 the Constitution. !"4%
Constitution is to.ar0s the 1ullest autonom7 o1 lo*al
go;ernment units.
Lo*al Go;ernment Co0e ( Ran7 8o.er o1 a )aranga7,
muni*i8alit7, *it7 or 8ro;in*e shall )e li)erall7
*onstrue0 in its 1a;or.
Shall )e resol;e0 in 1a;or o1 0e;olution o1 8o.ers
an0 o1 the lo.er lo*al go;ernment unit. Ta: or0inan*e or
re;enue measure shall )e *onstrue0 stri*tl7 against the lo*al
go;ernment unit ena*ting it, an0 li)erall7 in 1a;or o1 the ta:8a7er.
An7 ta: e:em8tion *onstrue0 stri*tl7 against the 8erson *laiming itG
Li)erall7 inter8rete0 to gi;e more 8o.ers to lo*al go;ernment
units in a**elerating e*onomi* 0e;elo8met an0 u8gra0ing the
=ualit7 o1 li1e 1or the 8eo8le in the *ommunit7G go;erne0 )7 the
original terms an0 *on0itions o1 sai0 *ontra*ts or the la. in 1or*e
at the time su*h rights .ere ;este0G resolution o1 *ontro;ersies
ma7 )e ha0 to the *ustoms an0 tra0itions in the 8la*e .here the
*ontro;ersies taCe 8la*e.
4.5" Statutes granting ta:ing 8o.er.
>e1ore the !"4% Constitution, the rule is that a
lo*al go;ernment unit, unliCe the so;ereign state is *lothe0 .ith no
inherent 8o.er o1 ta:ation. An0 the ta:ing 8o.er .hen grante0 is
to )e *onstrue0 strictissimi /uris. An7 0ou)t or am)iguit7 arising
out o1 the terms use0 in granting that 8o.er must )e resol;e0
against the lo*al go;ernment unit. In1eren*es, im8li*ations,
an0 0e0u*tions ha;e no 8la*e in the inter8retation o1 the ta:ing
8o.er o1 a muni*i8al *or8oration.
38
>ase0 on the *on*e8t that lo*al go;ernment, unliCe
the so;ereign state, are allo*ate0 .ith no inherent 8o.er to ta:.
The Ne. Constitution has *hange0 su*h *on*e8t. The
Constitution 8ro;i0es that IEa*h lo*al go;ernment unit shall ha;e
the 8o.er to *reate its o.n sour*es o1 re;enue an0 to le;7
ta:es, 1ees an0 *harges su)/e*t to su*h gui0elines an0 limitations
as the *ongress ma7 8ro;i0e, *onsistent .ith the )asi* 8oli*7 o1
lo*al autonom7. Statutes 8res*ri)ing limitations o1 the ta:ing
8o.er o1 lo*al go;ernment units must )e stri*tl7 *onstrue0 against
the national go;ernment an0 li)erall7 in 1a;or o1 the lo*al
go;ernment units.
4.%# Statutes 8res*ri)ing 8res*ri8ti;e 8erio0 to *olle*t
ta:es.
Statutes 8res*ri)ing the 8erio0 o1 limitation o1 a*tion
1or the *olle*tion o1 ta:es is )ene1i*ial )oth to the
go;ernment )e*ause ta: o?i*ers .oul0 )e o)lige0 to a*t 8rom8tl7
in the maCing o1 assessment, an0 to *iti<ens )e*ause
a1ter the la8se o1 the 8eio0 o1 8res*ri8tion, *iti<ens .oul0 ha;e a
1eeling o1 se*urit7 against uns*ru8ulous ta: agents .ho .ill
al.a7s 1in0 an e:*use to ins8e*t the )ooCs o1 ta:8a7ers, not to
0etermine the latterDs real lia)ilit7, )ut to taCe a0;antage o1
e;er7 o88ortunit7 to molest 8ea*e1ul, la.$a)i0ing *iti<ens.
4.%! Statues im8osing 8enalties 1or non$8a7ment o1 ta:.
Statues im8osing 8enalties 1or non$8a7ment o1
ta:es .ithin the re=uire0 8erio0 are li)erall7 *onstrue0 in 1a;or
o1 the go;ernment an0 stri*tl7 o)ser;e0 an0 inter8rete0
against the ta:8a7er. Strong reasons o1 8u)li* 8oli*7 su88ort this
rule. Su*h la.s are inten0e0 to hasten ta: 8a7ments or to 8unish
e;asions or negle*t o1 0ut7 in res8e*t thereto.
The7 .ill not 8la*e u8on ta: la.s so loose a
*onstru*tion as to 8ermit e;asions on merel7 1an*i1ul an0
insu)stantial 0istin*tions. +hen 8ro8er, a ta: statute shoul0 )e
*onstrue0 to a;oi0 the 8ossi)ilities o1 ta: e;asions.
4.%5 Ele*tion La.s.
Ele*tion la.s shoul0 )e reasona)l7 an0 li)erall7
*onstrue0 to a*hie;e their 8ur8ose ( to e?e*tuate an0
sa1eguar0 the .ill o1 the ele*torate in the *hoi*e o1 their
re8resentati;es ( 1or the a88li*ation o1 ele*tion la.s in;ol;es
8u)li* interest an0 im8oses u8on the Commission on Ele*tions an0
the *ourts the im8erati;e 0ut7 to as*ertain )7 all means .ithin
their *omman0 .ho is the real *an0i0ate ele*te0 )7 the 8eo8le.
Ele*tions la.s ma7 )e 0i;i0e0 into three 8arts 1or
8ur8oses o1 a88l7ing the rules o1 statutor7 *onstru*tion. The
first 8art re1ers to the 8ro;isions 1or the *on0u*t o1 ele*tions
.hi*h ele*tions o?i*ials are re=uire0 to 1ollo.. The second 8art
*o;ers those 8ro;isions .hi*h *an0i0ates 1or o?i*e are re=uire0 to
8er1orm. The third 8art em)ra*es those 8ro*e0ural rules .hi*h are
0esigne0 to as*ertain, in *ase o1 0is8ute, the a*tual .inner in the
ele*tions.
Irules an0 regulations 1or the *on0u*t o1 ele*tions
are man0ator7 )e1ore the ele*tion, )ut .hen it is sought to en1or*e
them a1ter the ele*tions the7 are hel0 to )e 0ire*tor7 onl7, i1 that is
8ossi)le, es8e*iall7 .here, i1 the7 are hel0 to )e man0ator7,
inno*ent ;oters .ill )e 0e8ri;e0 o1 their ;otes, .ithout an7 1ault on
their 8art. Generall7, Ithe 8ro;isions o1 a statute as to the
manner o1 *on0u*ting the 0etails o1 an ele*tions are not
man0ator7, )ut 0ire*tor7 merel7, an0 irregularities in *on0u*ting an
ele*tions an0 *ounting the ;otes, not 8ro*ee0ing 1rom an7 .rong1ul
intent an0 .hi*h 0e8ri;es no legal ;oter o1 his ;otes, .ill not
;itiate an ele*tion or /usti17 the re/e*tion o1 the entire ;otes o1 a
8re*in*t.
The 8ro;isions o1 the ele*tion la. .hi*h *an0i0ates
1or the o?i*e are re=uire0 to *om8l7 are generall7 regar0e0 as
man0ator7. Euali1i*ations o1 *an0i0ates, re=uiring the 1iling o1
*erti1i*ates o1 *an0i0a*7, 0e1ining ele*tion o?enses, an0 limiting
the 8erio0 .ithin .hi*h to 1ile ele*tion *ontests, are man0ator7 an0
1ailure to *om8l7 .ith su*h 8ro;isions are 1atal.
The 8ro;isions o1 the ele*tion la. 0esigne0 to
0etermine the .ill o1 the ele*torate are li)erall7 *onstrue0.
Te*hni*al an0 8ro*e0ural )arriers shoul0 not )e allo.e0 to
stan0 i1 the7 *onstitute an o)sta*le in the *hoi*e o1 their
ele*ti;e o?i*ials.
Ele*tion la. inten0e0 to sa1eguar0 the .ill o1 the
8eo8le in their *hoi*e o1 their re8resentati;es shoul0 )e
*onstrue0 li)erall7 to a*hie;e su*h 8ur8ose.
Ele*tion 8rotest, .hi*h shoul0 )e li)erall7 *onstrue0
to the en0 that the 8o8ular .ill e:8resse0 in the
ele*tion o1 8u)li* o?i*ers .ill not, )7 reason o1 8urel7 te*hni*al
o)/e*tions, )e 0e1eate0.
Rigi0 a88li*ation o1 the la. that .ill 8re*lu0e the
*ourt 1rom as*ertaining the 8o8ular .ill shoul0 )e re/e*te0 in
1a;or o1 a li)eral *onstru*tion thereo1 that .ill su)ser;e su*h
39
en0, .here a rigi0 an0 stri*t a88li*ation an0 en1or*ement o1
8ro;isions o1 the ele*tion la. .ill sa1eguar0 8o8ular .ill an0
8re;ent transgression o1 su?rage an0 the man0ate o1 the ma/orit7,
the 8ro;isions .ill )e gi;en stri*t *onstru*tion. Ele*tion
*ontest, es8e*iall7 a88re*iation o1 )allots, must )e li)erall7
*onstrue0 to the en0 that the .ill o1 the ele*torate in the *hoi*e
o1 8u)li* o?i*ials ma7 not )e 0e1eate0 )7 te*hni*al in1irmities.
4.%% Amnest7 8ro*lamations.
Amnest7 8ro*lamations shoul0 )e li)erall7 *onstrues
so as to *arr7 out their 8ur8ose, .hi*h is to en*ourage the
return to the 1iel0 o1 the la. o1 those .ho ha;e ;eere0 1rom the
la.. Amnest7 an0 8ar0on are s7non7mous, an0 1or this reason,
the grant o1 8ar0on shoul0 liCe.ise )e *onstrue0 li)erall7 in 1a;or
o1 those 8ar0one0 an0 stri*tl7 against the state, 1or .here t.o
.or0s are s7non7mous, the rules 1or inter8reting one .ill a88l7 to
the other.
4.%3 Statues 8res*ri)ing 8res*ri8tions o1 *rimes.
A stature o1 limitation or 8res*ri8tion o1 o?enses is
in the nature o1 amnest7 grante0 )7 the state, 0e*laring that a1ter
a *ertain time, o)li;ion shall )e *ast o;er the o?ense. Aen*e,
statutes o1 limitations are li)erall7 o1 *onstru*tion )elongs to all
a*ts o1 amnest7 an0 gra*e, )ut )e*ause the ;er7 e:isten*e o1 the
statute is a re*ognition an0 noti1i*ation )7 the legislature o1 the
1a*t that time, .hile it gra0uall7 .ears out 8roo1s an0 inno*en*e,
has assigne0 to it 1i:e0 an0 8ositi;e 8erio0s in .hi*h it 0estro7s
8roo1s o1 guilt.
4.%& A0o8tion statues.
A0o8tion statutes are *onstrue0 li)erall7 in 1a;or o1
the *hil0 to )e a0o8te0 .ith the li)eral *on*e8t that a0o8tion
statutes, )eing humane, an0 salutar7, hol0 the interest an0 .el1are
o1 the *hil0 to )e a 8aramount *onsi0eration an0 are 0esigne0 to
8ro;i0e homes, 8arental *are an0 e0u*ation 1or the un1ortunate,
nee07 or or8hane0 *hil0ren an0 gi;e them the 8rote*tion o1 a
so*iet7 an0 1amil7 in the 8erson o1 the a0o8ter.
4.%2 Beteran an0 8ension la.s
Beteran an0 8ension la.s are ena*te0 to
*om8ensate a *lass o1 men .ho su?ere0 in the ser;i*e 1or the
har0shi8s the7 en0ure0 an0 the 0angers the7 en*ountere0 in
line o1 0ut7. The7 are e:8ression o1 gratitu0e to an0
re*ognition o1 those .ho ren0ere0 ser;i*e tot eh *ountr7 )7
e:ten0ing to them regular monetar7 )ene1it. For these
reasons, su*h statutes are *onstrue0 li)erall7 to the en0 that
their no)le 8ur8ose is )est a**om8lishe0. Ao.e;er, .hile ;eteran
an0 8ension la.s are to )e *onstrue0 li)erall7, the7 shoul0 )e so
*onstrue0 as to 8re;ent a 8erson 1rom re*ei;ing 0ou)le 8ension or
*om8ensation, unless the la. 8ro;i0es other.ise. Retirement or
8ension la.s are also li)erall7 *onstrue0. >eing reme0ial in
*hara*ter, a statute *reating 8ension or esta)lishing retirement
8lan shoul0 )e li)erall7 *onstrue0 an0 a0ministere0 in 1a;or o1 the
8ersons inten0e0 to )ene1ite0 there)7.
4.%4 Rules o1 Court.
The Rules o1 Court, )eing 8ro*e0ural, are to )e
*onstrue0 li)erall7 .ith the en0 in ;ie. o1 reali<ing their
8ur8ose ( the 8ro8er an0 /ust 0etermination o1 a litigation. A
li)eral *onstru*tion o1 the Rules o1 Court re=uires the *ourts, in the
e:er*ise o1 their 1un*tions, to a*t reasona)l7 an0 not *a8ri*iousl7,
an0 en/oins them to a88l7 the rules in or0er to 8romote their
o)/e*t an0 to assist the 8arties in o)taining a /ust, s8ee07 an0
ine:8ensi;e 0etermination o1 their *ases, means *on0u*i;e to the
reali<ation o1 the a0ministration o1 la. an0 /usti*e.
La8ses in the literal o)ser;an*e o1 a rule o1
8ro*e0ure .ill )e o;erlooCe0 .hen the7 0o not in;ol;e 8u)li*
8oli*7, .hen the7 arose 1rom an honest mistaCe or un1oreseen
a**i0ent, .hen the7 ha;e not 8re/u0i*e0 the a0;erse 8art7 an0
ha;e not 0e8ri;e0 the *ourt o1 its authorit7. Con*ei;e0 in the
)est tra0itions o1 8ra*ti*al an0 moral /usti*e an0 *ommon
sense, the Rules o1 Court u8on$s8litting te*hni*alities that 0o not
s=uare .ith their li)eral ten0en*7 an0 .ith the en0s o1 /usti*e.
through the 8ro*ess o1 re1ormation, it shoul0 )e li)erall7 *onstrue0
to a*hie;e its o)/e*ti;e. Thus, the 8ro)ation la. ma7 li)erall7
*onstrue0 )7 e:ten0ing the )ene1its thereo1 to an7 one not
s8e*i1i*all7 0is=uali1ie0.
CHAPTER <: MANDATORY AND
40
The literal stri*ture o1 the rule ha;e )een rela:e0 in
1a;or o1 li)eral *onstru*tion in the 1ollo.ing *ases9 !. .here
a rigi0 a88li*ation .ill result in a mani1est 1ailure or mis*arriage
o1 /usti*e 5. .here the interest o1 su)stantial /usti*e .ill )e ser;e0
%. .here the resolution o1 the emotion is a00resse0 solel7 to the
soun0 an0 /u0i*ious 0is*retion o1 the *ourt an0 3. .here the
in/usti*e to the a0;erse 8art7 is not *ommensurate .ith the
0egree o1 his thoughtlessness in not *om8l7ing .ith the
8res*ri)e0 8ro*e0ure.
4.%6 Other statues.
Curati;e statutes are ena*te0 to *ure 0e1e*ts in a
8rior la. or to ;ali0ate legal 8ro*ee0ings .hi*h .oul0 other.ise )e
;oi0 1or .ant o1 *on1ormit7 .ith *ertain legal re=uirements. The7
are inten0e0 to su88l7 0e1e*ts, a)ri0ge su8er1luities an0 *ur)
*ertain e;ils. Their 8ur8ose is to gi;e ;ali0it7 to a*ts 0one that
.oul0 ha;e )een in;ali0 un0er e:isting la.s ha;e )een *om8lie0
.ith. Curati;e statutes, )7 their ;er7 nature, are retroa*ti;e.
Re0em8tion la.s, )eing reme0ial in nature are to )e
*onstrue0 li)erall7 to *arr7 our their 8ur8ose, .hi*h is to ena)le the
0e)tor to ha;e his 8ro8ert7 a88lie0 to 8a7 as man7 0e)torDs
lia)ilities as 8ossi)le. E:e*ution are inter8rete0 li)erall7 in
or0er to gi;e e11e*t to their )ene1i*ent an0 humane 8ur8oseG an0 to
this en0, an7 reasona)le 0ou)t )e *onstrue0 in 1a;or o1 the
e:em8tion 1rom e:e*ution. La.s on Atta*hment are also
li)erall7 *onstrue0 in or0er to 8romote their 8ro/e*ts an0 assist
the 8arties in o)taning s8ee07 /usti*e.
An instrument o1 *re0it, .arehouse re*ei8ts 8la7 a
;er7 im8ortant role in mo0ern *ommer*e, an0 a**or0ingl7,
.arehouse re*ei8t la.s are gi;en li)eral *onstru*tion in 1a;or o1
bona fide hol0ers o1 su*h re*ei8ts.
The 8ur8ose o1 the 8ro)ation )eing to gi;e 1irst$
han0 o11en0ers a se*on0 *han*e to maintain his 8la*e in so*iet7
DIRECTORY STATUTES
A. IN GENERAL
' Statutes ma7 )e *lassi1ie0 either as man0ator7 or
0ire*tor7.
M!#2!t%1 !#2 2ie,t%1 *t!t)te*, $e#e!""1
' Man0ator7 statute is a statute .hi*h *omman0s either
8ositi;el7 that something )e 0one, or 8er1orme0 in a
8arti*ular .a7, or negati;el7 that something )e not
0one, lea;ing the 8erson *on*erne0 no *hoi*e on the
matter e:*e8t to o)e7.
' A*t e:e*ute0 against the 8ro;isions o1 man0ator7 or
8rohi)itor7 la.s shall )e ;oi0, e:*e8t .hen the la. itsel1
authori<es their ;ali0it7.
' +here a statute is man0ator7, the *ourt has no 8o.er to
0istinguish )et.een material an0 immaterial )rea*h
thereo1 or omission to *om8l7 .ith .hat it re=uires.
' A 0ire*tor7 statute is a statute .hi*h is 8ermissi;e or
0is*retionar7 in nature an0 merel7 outlines the a*t to )e
0one in su*h a .a7 that no in/ur7 *an result 1rom
ignoring it or that its 8ur8ose *an )e a**om8lishe0 in a
manner other than that 8res*ri)e0 an0 su)stantiall7 the
same result o)taine0.
' The non8er1orman*e o1 .hat it 0ire*tor7 statute'
8res*ri)es, though *onstituting in some instan*es an
irregularit7 or su)/e*ting the o?i*ial *on*erne0 to
0is*i8linar7 or a0ministrati;e san*tion, .ill not ;itiate
the 8ro*ee0ings therein taCen.
W.e# *t!t)te i* (!#2!t%1 % 2ie,t%1
' The 8rimar7 o)/e*t is to as*ertain legislati;e intent.
' Legislati;e intent 0oes not 0e8en0 u8on the 1orm o1 the
statute.
' Consi0eration must )e gi;en to the entire statute, its
o)/e*t, 8ur8ose, legislati;e histor7 an0 the *onse=uen*es
.hi*h .oul0 result 1rom *onstruing it one .a7 or the other,
an0 the statute must )e *onstrue0 in *onne*tion .ith other
relate0 statutes.
' The language o1 the statute, ho.e;er man0ator7 in
1orm, ma7 )e 0eeme0 0ire*tor7 .hene;er the legislati;e
8ur8ose *an )est )e *arrie0 out )7 su*h *onstru*tion,
)ut the *onstru*tion o1 man0ator7 .or0s as 0ire*tor7
shoul0 not )e lightl7 a0o8te0 an0 ne;er .here it .oul0
in 1a*t maCe a ne. la. instea0 o1 that 8asse0 )7 the
legislature.
' +hether a statute is man0ator7 or 0ire*tor7 0e8en0s on
.hether the thing 0ire*te0 to )e 0one is o1 the essen*e o1
the thing re=uire0, or is a mere matter o1 1orm, an0
.hat is a matter o1 essen*e *an o1ten )e 0etermine0
onl7 )7 /u0i*ial *onstru*tion.
41
Te*t t% 2ete(i#e #!t)e %- *t!t)te
' The test generall7 em8lo7e0 to 0etermine .hether a
statute is man0ator7 or 0ire*tor7 is to as*ertain the
*onse=uen*es that .ill 1ollo. in *ase .hat the statute
re=uires is not 0one or .hat it 1or)i0s is 8er1orme0.
' +hether a statutor7 re=uirement is man0ator7 or
0ire*tor7 0e8en0s on its e?e*ts.
' I1 no su)stantial rights 0e8en0 on it an0 no in/ur7 *an
result 1rom ignoring itG an0 the 8ur8ose o1 the legislature
*an )e a**om8lishe0 in a manner other than
that 8res*ri)e0 an0 su)stantiall7 the same results
o)taine0, then the statute .ill generall7 )e regar0e0 as
0ire*tor7G )ut i1 not, it .ill )e man0ator7.
' A statute .ill not )e *onstrue0 as man0ator7 an0 re=uiring
a 8u)li* o?i*er to a*t .ithin a *ertain time limit e;en i1 it is
*ou*he0 in .or0s o1 8ositi;e *omman0 i1 it
.ill *ause har0shi8 or in/usti*e on the 8art o1 the 8u)li*
.ho is not at 1ault. Nor .ill a statute )e inter8rete0 as
man0ator7 i1 it .ill lea0 to a)sur0, im8ossi)le or
mis*hie;ous *onse=uen*es.
L!#$)!$e )*e2
' Statutes using .or0s o1 *omman0, su*h as IshallJ,
ImustJ, IoughtJ, or Ishoul0J, or 8rohi)ition, su*h as
I*annotJ, Ishall notJ or Iought notJ, are generall7
regar0e0 as man0ator7.
' The use o1 .or0s o1 *omman0 or o1 8rohi)ition in0i*ates
the legislati;e intent to maCe the la. man0ator7.
' It has )een hel0 that the intention o1 the legislature as to
the man0ator7 or 0ire*tor7 nature o1 8arti*ular statutor7
8ro;ision is 0etermine0 8rimaril7 1rom the
language thereo1.
U*e %- =*.!""> % =()*t>
' As a general rule, the use o1 the .or0 IshallJ in a statute
im8lies that the statute is man0ator7.
' It means Iought toJ, ImustJ, an0 .hen use0 in a statute
or regulation, e:8resses .hat is man0ator7.
' The term IshallJ is a .or0 o1 *omman0, an0 one .hi*h
has or .hi*h must )e gi;en a *om8ulsor7 meaning an0
it is generall7 im8erati;e or man0ator7.
' I1 a 0i?erent inter8retation is sought, it must rest u8on
something in the *hara*ter o1 the legislation or in the
*onte:t .hi*h .ill /usti17 a 0i?erent meaning.
' It *onnotes *om8ulsion or man0atoriness.
' This rule is not a)solute. The im8ort o1 the .or0
0e8en0s u8on a *onsi0eration o1 the entire 8ro;ision, its
nature, o)/e*t an0 the *onse=uen*es that .oul0 1ollo.
1rom *onstruing it one .a7 or the other.
' The .or0 ImustJ in a statute, liCe IshallJ is not al.a7s
im8erati;e. It ma7 )e *onsistent .ith 0is*retion. I1 the
language o1 a statute *onsi0ere0 as a .hole an0 .ith 0ue
regar0 to its nature an0 o)/e*t re;eals that the legislature
inten0e0 to use the .or0 ImustJ to )e 0ire*tor7, it shoul0
)e gi;en that meaning.
' One test use0 to 0etermine .hether the .or0 IshallJ in
man0ator7 or 0is*retionar7 is .hether non$*om8lian*e
.ith .hat is re=uire0 .ill result in the nullit7 o1 the a*t.
I1 it results in the nullit7 o1 the a*t, the .or0 is use0 as a
*omman0.
U*e %- =(!1>
' The .or0 Ima7J is an au:iliar7 ;er) sho.ing, among
others o88ortunit7 or 8ossi)ilit7. Un0er or0inar7
*ir*umstan*es, the 8hrase Ima7 )eJ im8lies the 8ossi)le
e:isten*e o1 something.
' Generall7 s8eaCing, the use o1 the .or0 Ima7J in a
statute 0enotes that it is 0ire*tor7 in nature. The .or0
42
Ima7J is generall7 8ermissi;e onl7 an0 o8erates to
*on1er 0is*retion.
' The .or0 Ima7J as use0 in a0/e*ti;e la.s, su*h as
reme0ial statutes .hi*h are *onstrue0 li)erall7, is onl7
8ermissi;e an0 not man0ator7.
W.e# =*.!""> i* ,%#*t)e2 !* =(!1> !#2 0i,e 0e*!
' @e8en0ing u8on a *onsi0eration o1 the entire 8ro;ision, its
nature, its o)/e*t, an0 the *onse=uen*es that .oul0
1ollo. 1rom *onstruing it one .a7 or the other, the
*on;erti)ilit7 o1 sai0 terms either as man0ator7 or
0ire*tor7 is a stan0ar0 re*ourse in statutor7
*onstru*tion.
' It is .ell$settle0 that the .or0 Ima7J shoul0 )e rea0 as
IshallJ .here su*h *onstru*tion is ne*essar7 to gi;e
e?e*t to the a88arent intention o1 the legislature.
' The .or0 Ima7J .ill, as a rule, )e *onstrue0 as IshallJ
.here a statute 8ro;i0es 1or the 0oing o1 some a*t .hi*h is
re=uire0 )7 /usti*e or 8u)li* 0ut7, or .here it ;ests a
8u)li* )o07 or o?i*er .ith 8o.er an0 authorit7 to taCe
su*h a*tion .hi*h *on*erns the 8u)li* interest or rights o1
in0i;i0uals.
' The .or0 IshallJ ma7 )e *onstrue0 as Ima7J .hen so
re=uire0 )7 the *onte:t or intention o1 the legislature. It
shall )e *onstrue0 merel7 as 8ermissi;e .hen no 8u)li*
)ene1it or 8ri;ate right re=uires that it )e gi;en an
im8erati;e meaning.
U*e %- #e$!ti0e, &%.i+it%1 % e7,")*i0e te(*
' A negati;e statute is man0ator7. A negati;e statute is
one e:8resse0 in negati;e .or0s or in the 1orm o1 an
a?irmati;e 8ro8osition =uali1ie0 )7 the .or0 Ionl7J, sai0
.or0 ha;ing the 1or*e o1 an e:*lusionar7 negation.
' The use o1 the legislature o1 negati;e, 8rohi)itor7 or
e:*lusi;e terms or .or0s in a statute is in0i*ati;e o1 the
legislati;e intent to maCe the statute man0ator7.
' Prohi)iti;e or negati;e .or0s *an rarel7, i1 e;er, )e
0ire*tor7, 1or there is )ut one .a7 to o)e7 the
*omman0, Ithou shall notJ, an0 that is to *om8letel7
re1rain 1rom 0oing the 1or)i00en a*t.
B. MANDATORY STATUTES
St!t)te* ,%#-ei#$ &%/e
' Statutes .hi*h *on1er u8on a 8u)li* )o07 or o?i*er 8o.er
to 8er1orm a*ts .hi*h *on*ern the 8u)i* interests
or rights o1 in0i;i0uals, are generall7 regar0e0 as
man0ator7 although the language use0 is 8ermissi;e
onl7 sin*e su*h statutes are *onstrue0 as im8osing
rather than *on1erring 8ri;ileges.
St!t)te* $!#ti#$ +e#e4t*
' Statutes .hi*h re=uire *ertain ste8s to )e taCen or
*ertain *on0itions to )e met )e1ore 8ersons *on*erne0
*an a;ail o1 the )ene1its *on1erre0 )7 la. are, .ith
res8e*t to su*h re=uirements, *onsi0ere0 man0ator7.
' The rule is )ase0 on the ma:im !igilantibus et non
dormientibus /ura sub!eniunt or the la.s ai0 the
;igilant, not those .ho slum)er on their rights.
' 6otior est in tempoe potior est in /ure$ he .ho is 1irst in
time is 8re1erre0 in right.
St!t)te* &e*,i+i#$ 5)i*2i,ti%#!" e8)ie(e#t*
' The general rule is that statutor7 re=uirements )7 .hi*h
*ourts or tri)unals a*=uire /uris0i*tion to hear an0
0e*i0e 8arti*ular a*tions must )e stri*tl7 *om8lie0 .ith
)e1ore the *ourts or tri)unals *an ha;e authorit7 to
8ro*ee0.
' Aen*e, statutes 8res*ri)ing the ;arious ste8s an0
metho0s to )e taCen 1or a*=uisition )7 the *ourts or
tri)unals o;er *ertain matters are *onsi0ere0
man0ator7.
St!t)te* &e*,i+i#$ ti(e t% t!?e !,ti%# % t% !&&e!"
' Statutes or rules 8res*ri)ing the time 1or litigants to
taCe *ertain a*tions or to a88eal 1rom an a0;erse
0e*ision is generall7 man0ator7.
' Su*h statutes or rules ha;e )een hel0 as a)solutel7
in0is8ensa)le to the 8re;ention o1 nee0less 0ela7s an0 to
the or0erl7 an0 s8ee07 0is*harge o1 )usiness an0 are a
ne*essar7 in*i0ent to the 8ro8er, e?i*ient, an0 or0erl7
0is*harge o1 /u0i*ial 1un*tions.
' Su*h statutes or rules re=uire stri*t, not su)stantial,
43
*om8lian*e. A**or0ingl7, the7 are not .ai;a)le, nor *an
the7 )e the su)/e*t o1 agreements or sti8ulations )7
litigants.
St!t)te* &e*,i+i#$ &%,e2)!" e8)ie(e#t*
' In statutes relating to 8ro*e0ure, e;er7 a*t .hi*h is
/uris0i*tional, or o1 the essen*e o1 the 8ro*ee0ings, or is
8res*ri)e0 1or the 8rote*tion or )ene1it o1 the 8art7
a?e*te0, is man0ator7. A statute .hi*h re=uires a *ourt to
e:er*ise its /uris0i*tion in a 8arti*ular manner, 1ollo. a
8arti*ular 8ro*e0ure, or su)/e*t to *ertain limitations, is
man0ator7, an0 an a*t )e7on0 those limits is ;oi0 as in
e:*ess o1 /uris0i*tion.
' The statute 8res*ri)ing su*h re=uirements is regar0e0
as man0ator7, e;en though the language use0 therein is
8ermissi;e in nature.
E"e,ti%# "!/* %# ,%#2),t %- e"e,ti%#
' The 8ro;isions o1 ele*tion la.s go;erning the *on0u*t o1
ele*tions an0 8res*ri)ing the ste8s ele*tion o?i*ials are
re=uire0 to 0o in *onne*tion there.ith are man0ator7
)e1ore the ele*tionsG ho.e;er, .hen it is sought to en1or*e
them a1ter the ele*tions, the7 are hel0 to )e 0ire*tor7 onl7,
i1 that is 8ossi)le, es8e*iall7 .here, i1 the7 are hel0 to )e
man0ator7, inno*ent ;oters .ill )e 0e8ri;e0 o1 their ;otes
.ithout an7 1ault on their 8art.
' Unless o1 a *hara*ter to a?e*t an o)stru*tion to the 1ree
an0 intelligent *asting o1 the ;otes, or to the as*ertainment
o1 the result, or unless the 8ro;ision a?e*ts an essential
element o1 the ele*tion, or unless it is e:8ressl7 0e*lare0
)7 the statute that the 8arti*ular a*t is essential to the
;ali0it7 o1 an ele*tion, or that its omission shall ren0er it
;oi0.
E"e,ti%# "!/* %# 8)!"i4,!ti%# !#2 2i*8)!"i4,!ti%#
' The rule that ele*tion la.s are man0ator7 )e1ore )ut not
a1ter the ele*tions a88lies onl7 to those 8ro;isions .hi*h
are 8ro*e0ural in nature a?e*ting the *on0u*t o1 the
ele*tion as .ell as to those .hi*h 0ire*t or re=uire ele*tion
o?i*ials to 0o or 8er1orm *ertain a*ts, the 8ur8ose o1 su*h
*onstru*tion )eing to 8reser;e the san*tit7 o1 the )allot an0
*arr7 out the .ill o1 the ele*torate.
' The rule 0oes not a88l7 to 8ro;isions o1 the ele*tion la.s
8res*ri)ing the time limit to 1ile *erti1i*ates o1 *an0i0a*7 an0
the =uali1i*ations an0 0is=uali1i*ations to ele*ti;e o?i*e.
' These 8ro;isions are *onsi0ere0 man0ator7 e;en a1ter
ele*tions.
St!t)te* &e*,i+i#$ 8)!"i4,!ti%#* -% %@,e
' Eligi)ilit7 to a 8u)li* o?i*e is o1 a *ontinuing nature an0
must e:ist at the *ommen*ement o1 the term an0 0uring
the o**u8an*7 o1 the o?i*e. Statutes 8res*ri)ing the
eligi)ilit7 or =uali1i*ations o1 8ersons to a 8u)li* o?i*e are,
as a rule, regar0e0 as man0ator7.
St!t)te* e"!ti#$ t% !**e**(e#t %- t!7e*
' It is a general rule that the 8ro;isions o1 a statute relating to the
assessment o1 ta:es, .hi*h are inten0e0 1or the se*urit7 o1
the *iti<ens, or to insure the e=ualit7 o1 ta:ation, or 1or
*ertaint7 as to the nature an0 amount o1 ea*h otherDs ta:, are
man0ator7G )ut those 0esigne0 merel7 1or the in1ormation or
0ire*tion o1 o?i*ers or to se*ure metho0i*al an0 s7stemati*
mo0es o1 8ro*ee0ings are merel7 0ire*tor7.
St!t)te* ,%#,e#i#$ &)+"i, !),ti%# *!"e
' Statutes authori<ing 8u)li* au*tion sale o1 8ro8erties an0
8res*ri)ing the 8ro*e0ure to )e 1ollo.e0 are in 0erogation
o1 8ro8ert7 rights an0 0ue 8ro*ess, an0 are *onstrue0,
.ith res8e*t to the 8res*ri)e0 8ro*e0ure, to )e
man0ator7.
' The 8res*ri)e0 ste8s must )e 1ollo.e0 stri*tl7G
other.ise, the sale at 8u)li* au*tion shall )e ;oi0.
C. DIRECTORY STATUTES
St!t)te* &e*,i+i#$ $)i2!#,e -% %@,e*
' There are statutor7 re=uisitions inten0e0 1or gui0an*e o1
o?i*ers in the *on0u*t o1 )usiness 0e;ol;e0 u8on them
.hi*h 0o not limit their 8o.er or ren0er its e:er*ise in
0isregar0 o1 the re=uisitions ine?e*tual.
' Pro;isions o1 this *hara*ter are not usuall7 regar0e0 as
man0ator7, unless a**om8anie0 )7 negati;e .or0s
im8orting that the a*ts re=uire0 shall not )e 0one in an7
other manner or time than that 0esignate0.
44
St!t)te* &e*,i+i#$ (!##e %- 5)2i,i!" !,ti%#
' Statutes 8res*ri)ing the re=uirements as to the manner o1
/u0i*ial a*tion that /u0ges shoul0 1ollo. in the
0is*harge o1 their 1un*tions are, as a rule, merel7
0ire*tor7.
' It shoul0 not )e assumes in the a)sen*e o1 s8e*i1i*
language to the *ontrar7 that the legislature inten0e0
that the right o1 8arties shoul0 )e seriousl7 a?e*te0 )7
the 1ailure o1 a *ourt or some o?i*er to *om8l7 stri*tl7
.ith the statutor7 re=uirements o1 o?i*ial a*tion.
' Pro*e0ure is se*on0ar7 in im8ortan*e to su)stanti;e right,
an0 the non o)ser;an*e o1 su*h 8ro*e0ure shoul0 ne;er )e
8ermitte0 to a?e*t su)stanti;e right, unless
the intention o1 the legislature is *learl7 e:8resse0.
' It is uni;ersall7 hel0 that statutes o1 this nature are
merel7 0ire*tor7 an0 non*om8lian*e there.ith is not
ne*essar7 to the ;ali0it7 o1 the 8ro*ee0ings.
St!t)te* e8)ii#$ e#2iti%# %- 2e,i*i%# /it.i# &e*,i+e2
&ei%2
' The *onstitution 8ro;i0es that the ma:imum 8erio0
.ithin .hi*h a *ase or matter shall )e 0e*i0e0 or
resol;e0 1rom the 0ate o1 its su)mission, shall )e 53
months 1or the Su8reme Court, an0 unless re0u*e0 )7
the Su8reme Court, !5 months 1or lo.er *ollegiate
*ourts an0 % months 1or all other lo.er *ourts.
' Ea*h Constitutional Commission shall 0e*i0e an7 *ase
)rought )e1ore it .ithin si:t7 0a7s 1rom the 0ate o1 its
su)mission 1or resolution.
' A /u0gment 8romulgate0 a1ter the e:8iration o1 the sai0
8erio0 is not null an0 ;oi0, although the o?i*er .ho
1aile0 to *om8l7 .ith the la7 ma7 )e 0ealt .ith
a0ministrati;el7 in *onse=uen*e o1 his 0ela7$unless the
intention to the *ontrar7 is mani1est.
' +here a statute s8e*i1ies the time at or .ithin .hi*h an a*t
is to )e 0one )7 a 8u)li* o?i*er or )o07, it is
generall7 hel0 to )e 0ire*tor7 onl7 as to the time, an0
not man0ator7, unless the time is o1 the essen*e o1 the
thing to )e 0one, or the language o1 the statute *ontains
negati;e .or0s, or sho.s that the 0esignation o1 the time
.as inten0e0 as a limitation o1 8o.er, authorit7 or right.
' The )etter rule is that .here a *onstru*tion o1 a time
8ro;ision as man0ator7 .ill *ause great in/ur7 to
8ersons not at 1ault or result in a mis*arriage o1 /usti*e,
su*h *onse=uen*e shoul0 )e a;oi0e0 )7 *onstruing the
statute as 0ire*tor7, 1or reasons o1 1airness, /usti*e an0 1air
8la7 re=uire su*h *onstru*tion.
' It has )een hel0 that a statute re=uiring ren0ition o1
/u0gment .ithin a s8e*i1ie0 time is generall7 *onstrue0
to )e merel7 0ire*tor7, so that non$*om8lian*e .ith
them 0oes not in;ali0ate the /u0gment on the theor7
that i1 the statute ha0 inten0e0 su*h result, it .oul0
ha;e *learl7 in0i*ate0.
' Ao.e;er, .hile the 8erio0 1i:e0 )7 la. to resol;e a *ase is
merel7 0ire*tor7, it *annot )e 0isregar0e0 or ignore0
*om8letel7 .ith a)solute immunit7.
' It *annot )e assume0 that the la. has in*lu0e0 a
8ro;ision that is 0eli)eratel7 inten0e0 to )e*ome
meaningless an0 to )e treate0 as a 0ea0 letter.
C%#*tit)ti%#!" ti(e &%0i*i%# 2ie,t%1
' @oes the Constitution alter the general rule an0 ren0er
time 8ro;ision to 0e*i0e man0ator7Q Is a 0e*ision
ren0ere0 )e7on0 the 8erio0 8res*ri)e0 in the
Constitution$ 53 months 1or the Su8reme Court, !5 months
1or the lo.er *ollegiate *ourts an0 % months 1or other
lo.er *ourts$ null an0 ;oi0Q
' TAE Su8reme Court ga;e negati;e ans.ers Mar*elino ;.
Cru<'
CHAPTER A:PROSPECTIVE AND RETROACTIVE
STATUTES
A. IN GENERAL
".#!. PROSPECTIBE AN@ RETROACTIBE STATUTES, @EFINE@
$ A 8ros8e*ti;e statute is one .hi*h o8erates u8on 1a*ts or
transa*tions that o**ur a1ter the stature taCes e11e*t, one
that looCs an0 a88lies to the 1uture
$ A retroa*ti;e la. *reates a ne. o)ligation, im8oses a ne.
0ut7 or atta*hes a ne. 0isa)ilit7 in res8e*t to a transa*tion
alrea07 8astG is one .hi*h taCes a.a7 or im8airs ;este0
45
rights a*=uire0 un0er e:isting la.s
".#!. LA+S OPERATE PROSPECTIBEL-, IN GENERALS
$ Statutes are to )e *onstrues as ha;ing onl7 8ros8e*ti;e
o8eration, unless the intension o1 the legislature to gi;e
them retroa*ti;e e11e*t is e:8ressl7 0e*lare0 or is
ne*essaril7 im8lie0 1rom the language use0
$ Em)o0ie0 in art. 3 o1 the *i;il *o0e9 la.s shall ha;e no
retroa*ti;e e?e*t unless the *ontrar7 is 8ro;i0e0, the reason
1or this is that a rule is esta)lishe0 to gui0e a*tions .ith no
)in0ing e11e*t until it is ena*te0.
$ The 8rin*i8le o1 8ros8e*ti;it7 a88lies to statutes,
a0ministrati;e rulings an0 *ir*ulars an0 /u0i*ial 0e*isions
".#%. PRESUMPTION AGAINST RETROACTIBIT-
$ The 8resum8tion is that all la.s o8erate 8ros8e*ti;el7,
unless the *ontrar7 a88ears or is *learl7, 8lainl7 an0
une=ui;o*all7 e:8resse0 or ne*essaril7 im8lie0. @ou)t
.ill )e resol;e0 against the retroa*ti;e e?e*t
$ The 8resum8tion a88lies .hether the statures is in the
1orm o1 an original ena*tment, an amen0ment o1 a
re8eal
$ Presum8tion is stronger .ith re1eren*e to su)stanti;e
la.s a?e*ting 8en0ing a*tions
".#3. +OR@ OR PARASES IN@ICATING PROSPECTIBIT-
$ +here )7 its terms a statute is to a88l7 Rherea1terJ or
Itherea1terJ, or is to taCe e11e*t imme0iatel7 or at a 1i:e0
1uture 0ate, or .here a statute *ontains, in the ena*ting
*lause, the 8hrase I1rom an0 a1ter the 8assing
o1 this a*tJ or em8lo7s su*h .or0s as Ishall ha;e )een
ma0eJ or I1rom an0 a1terJ a 0esignate0 0ate, the statute is
8ros8e*ti;e in o8eration onl7
".#&. RETROACTIBE STATUTES, GENERALL-
$ The *onstitution 0oes not 8rohi)it the ena*tment o1
retroa*ti;e statutes .hi*h 0o not im8air the o)ligations
o1 *ontra*t, 0e8ri;e 8ersons o1 8ro8ert7 .ithout 0ue
8ro*ess o1 la., or 0i;est rights that ha;e )e*ome ;este0,
or .hi*h are not in the nature o1 e: 8ost 1a*to la.s
$ Some statutes are )7 their nature retroa*ti;e9
reme0ial/*urati;e statutes, as .ell as statutes that
*reate ne. rights
$ A retroa*ti;e statute ;iolating the *onstitution shall not )e
a88lie0
>. STATUTES GIBEN PROSPECTIBE EFFECT
".#2. PENAL STATUTES, GENERALL-
$ Gen. rule9 Penal la.s or those .hi*h 0e1ine o?enses
an0 8res*ri)e 8enalties 1or their ;iolation o8erate
8ros8e*ti;el7
$ Art. 5! RPC9 No 1elon7 shall )e 8unisha)le )7 an7
8enalt7 not 8res*ri)e0 )7 la. 8rior to its *ommission
".#2 EK POST FACTO LA+
$ The *onstitution 8ro;i0es that no e: 8ost 1a*to la. shall )e
ena*te0
$ An e: 8ost 1a*to la. is an7 o1 the ?9
!. la. .hi*h maCes *riminal an a*t 0one )e1ore the 8assage
o1 the la. an0 .hi*h .as inno*ent .hen 0one,
an0 8unishes su*h a*t
5. a la. .hi*h aggra;ates a *rime, or maCes greater than it
.as, .hen *ommitte0
%. .hi*h *hanges the 8unishment an0 in1li*ts a greater
8unishment than that anne:e0 to the *rime .hen
*ommitte0
3. .hi*h alters the legal rules o1 e;i0en*e an0 authori<e
*on;i*tion u8on less or 0i?erent testimon7 than the la.
re=uire0 at the time o1 the *ommission o1 the o?ense
&. .hi*h assumes to regulate *i;il rights an0 reme0ies onl7 )ut
in e?e*t im8oses a 8enalt7 or 0e8ri;ation o1 a right 1or
something .hi*h .hen 0one .as la.1ul
2. .hi*h 0e8ri;es a 8erson a**use0 o1 a *rime o1 some la.1ul
8rote*tion to .hi*h he has )e*ome entitle0, su*h
as 8rote*tion o1 a 1ormer *on;i*tion or a*=uittal, or a
8ro*lamation o1 amnest7
46
$ I1 the la. sought to )e a88lie0 retroa*ti;el7 taCe
1rom an a**use0 an7 right regar0e0 at the time as ;ital
1ro the 8rote*tion o1 li1e an0 li)ert7 then it is an e: 8ost
1a*tola.
$ The 8rohi)ition on e: 8ost 1a*to la. a88lies onl7 to
*riminal/ 8enal matter an0 0oes not a88l7 to *i;il
8ro*ee0ings .hi*h regulate *i;il an0 8oliti*al rights
".#2 >ILL OF ATTAIN@ER
$ A )ill o1 attain0er is a legislati;e a*t .hi*h in1li*ts
8unishment .ithout /u0i*ial trial
$ The singling out o1 a 0e1inite minorit7, the im8osition o1 a
)ur0en on it, a legislati;e intent an0 the retroa*ti;e
a88li*ation to 8ast *on0u*t su?i*e to stigmati<e a
statute as a )ill o1 attain0er
$ I1 a statute is a )ill o1 attain0er, it is also an e: 8ost 1a*to
la.. >ut i1 it is an e: 8ost 1a*to la., the reasons that
esta)lish that it is not, are 8ersuasi;e that it is not a )ill o1
attain0er
".#". +AEN PENAL LA+S ARE APPLIE@ RETROACTIBEL-
$ Art 55 RPC9 Penal la.s shall ha;e a retroa*ti;e e?e*t in so
1ar as the7 1a;or the 8erson guilt7 .ho is not a ha)itual
*riminal e:*e8tion to the gen. rule'
$ +here there is alrea07 a 1inal /u0gment, the reme07 o1 the
a**use0 is to 1ile a 8etition 1or ha)eas *or8us
alleging that his *ontinue0 im8risonment is illegal
8ursuant to sai0 statute
$ The gen. rule that an amen0ator7 statue ren0ering an illegal
a*t 8rior to its ena*tment no longer illegal is gi;en
retroa*ti;e e?e*t 0oes not a88l7 i1 the amen0ator7
statute e:8ressl7 8ro;i0es that it shall not a88l7
retroa*ti;el7 )ut onl7 8ros8e*ti;el7
".!#. STATUTES SU>STANTIBE IN NATURE
$ a su)stanti;e la. *reates rights, 0e1ines or regulates
rights *on*erning li1e, li)ert7 or 8ro8ert7 or the 8o.ers
o1 agen*ies or instrumentalities 1or the a0ministration o1
8u)li* a?airs.
$ Su)stanti;e right is one .hi*h in*lu0es those rights
.hi*h one en/o7s un0er the legal s7stem 8rior to the
0istur)an*e o1 normal relations
$ A88lie0 to *riminal la., su)stanti;e la. is that .hi*h
0e*lares .hat a*ts are *rimes an0 8res*ri)es the
8unishment 1or *ommitting them.
$ Su)stanti;e la. o8erates 8ros8e*ti;el7
$ +hether a rule is 8ro*e0ural or su)stanti;e, the test is
.hether the rule reall7 regulates 8ro*e0ure. I1 it taCes
a.a7 a ;este0 right, it is not 8ro*e0ural. I1 it *reates right
su*h as the right to a88eal, it is su)stanti;e, )ut i1 it
o8erates as a means o1 im8lementing an e:isting right it is
merel7 8ro*e0ural
$ Pro*e0ural rules are retroa*ti;e an0 are a88li*a)le to
a*tions 8en0ing an0 un0ermine0 at the times o1 the
8assage o1 the 8ro*e0ural la.
".!!. EFFECTS ON PEN@ING ACTIONS
$ Statute .hi*h a?e*ts su)stanti;e rights ma7 not )e
gi;en retroa*ti;e e?e*t so as to go;ern 8en0ing
8ro*ee0ings in the a)sen*e o1 a *lear legislati;e intent to
the *ontrar7
".!5. EUALIFICATION OF RULE
$ A su)stanti;e la. .ill )e a88li*a)le to 8en0ing a*tions i1
su*h is the *lear intent o1 the la. or i1 the statute )7 the
;er7 nature o1 its 8ur8ose as a measure to 8romote
so*ial /usti*e or in the e:er*ise o1 8oli*e 8o.er is
inten0e0 to a88l7 to 8en0ing a*tions. This is ho.e;er
su)/e*t to the limitation *on*erning *onstitutional
restri*tions against im8airment o1 ;este0 rights
".!%. STATUTES AFFECTING BESTE@ RIGATS
$ Beste0 right ma7 )e sai0 to mean some right or interest in
8ro8ert7 that has )e*ome 1i:e0 or esta)lishe0 an0 is no
longer o8en to *ontro;ers7. It must )e a)solute,
*om8lete, an0 un*on0itional, in0e8en0ent o1 a
*ontingen*7 an0 a mere e:8e*tan*7 o1 1uture )ene1it.
$ A statute ma7 not )e *onstrue0 an0 a88lie0 retroa*ti;el7 i1
it im8airs su)stanti;e right that has )e*ome ;este0, as
0istur)ing e:isting right em)o0ie0 in a /u0gment or
*reating ne. o)ligations .ith res8e*t to 8ast
47
transa*tions as )7 esta)lishing a su)stanti;e right to
1un0amental *ause o1 a*tion .here none e:iste0 )e1ore
an0 maCing su*h right retroa*ti;e, or )7 ar)itraril7
re*reating a ne. right or lia)ilit7 alrea07 e:tinguishe0 )7
o8eration o1 la.
".!3. STATUTES AFFECTING O>LIGATIONS OF CONTRACT
$ La.s e:isting at the time o1 the e:e*ution o1 *ontra*ts
are the ones a88li*a)le to su*h transa*tions an0 not
later statutes, unless the latter 8ro;i0e that the7 shall
ha;e retroa*ti;e e?e*t i1 to 0o so .ill im8air the o)ligation
o1 *ontra*ts, 1or the *onstitution 8rohi)its the ena*tment o1
a la. im8airing su*h.
$ I1 a *ontra*t is legal at its in*e8tion, it *annot )e
ren0ere0 illegal )7 a su)se=uent legislation
".!&. ILLUSTRATION OF RULE
$ Peo8le ;. Neta. Pursuant to the then e:isting la. a la.7er
is authori<e0 to *harge not more then &S o1 the
amount in;ol;e0 as attorne7Ds 1ees in the 8rose*ution o1
a ;eteranDs *laim. A la.7er entere0 into a *ontra*t .ith a
*lient .ith su*h sti8ulation. >e1ore the *laim .as
*olle*te0, a statute .as ena*te0 8rohi)iting the *olle*tion
o1 su*h 1ees 1or su*h ser;i*es ren0ere0. The *ourt rule0
that the statute 8rohi)iting the *olle*tion o1 attorne7Ds 1ees
*annot )e a88lie0 retroa*ti;el7 so as to a0;ersel7 a?e*t
the *ontra*t 1or 8ro1essional ser;i*es an0 the 1ees
themsel;es.
".!2. REPEALING AN@ AMEN@ATOR- ACTS
$ Statutes .hi*h re8eal earlier la.s o8erate 8ros8e*ti;el7,
unless the legislati;e intent to gi;e them retroa*ti;e e?e*t
*learl7 a88ears. Ao.e;er, although a re8ealing statute is
inten0e0 to )e retroa*ti;e, it .ill not )e so *onstrue0 i1 it
.ill im8air ;este0 rights or o)ligations o1
*ontra*t, or unsettle matters that ha0 )een legall7 0one
un0er the ol0 la.
C. STATUTES GIBEN RETROACTIBE EFFECT
".!4. PROCE@URAL LA+S
$ Reme0ial statutes or statutes relating to reme0ies or
mo0es o1 8ro*e0ure, .hi*h 0o not *reate ne. or taCe
a.a7 ;este0 rights, )ut onl7 o8erate0 in 1urtheran*e o1
the reme07 or *on1irmation o1 rights alrea07 e:isting, 0o not
*ome .ithin the legal *on*e8tion o1 the general rule against
retroa*ti;e o8eration, 1urthermore, it a88lies to all a*tions,
.hether the7 ha;e alrea07 a**rue0 o1 are 8en0ing.
$ The 1a*t that 8ro*e0ural statutes ma7 someho. a?e*t
the litigantsG rights ma7 not 8re*lu0e their retroa*ti;e
a88li*ation to 8en0ing a*tions. The retroa*ti;e
a88li*ation o1 8ro*e0ural la.s is not ;iolati;e o1 an7 right
o1 a 8erson .ho ma7 1eel that he is a0;ersel7 a?e*te0, nor
is it *onstitutionall7 o)/e*tiona)le, 1or as a general rule, no
;este0 right ma7 atta*h to, nor arise 1rom 8ro*e0ural la.s.
$ A statute .hi*h trans1ers the /uris0i*tion to tr7 *ertain
*ases 1rom a *ourt to a =uasi$/u0i*ial tri)unal is a
reme0ial statute that is a88li*a)le to *laims that a**rue0
)e1ore its ena*tment )ut 1ormulate0 an0 1ile0 a1ter it tooC
e?e*t, 1or it 0oes not *reate a ne. nor taCe a.a7 ;este0
rights. No litigant *an a*=uire a ;este0 tight to )e hear0
)7 one 8arti*ular *ourt.
$ An a0ministrati;e rule .hi*h is inter8retati;e o1 a 8re$
e:isting statute an0 not 0e*larati;e o1 *ertain rights .ith
o)ligation thereun0er is gi;en retroa*ti;e e11e*t as o1 the
0ate o1 the e?e*ti;it7 o1 the statute.
".!6. EKCEPTIONS TO TAE RULE
$ The rule 0oes not a88l7 .here the statute itsel1
e:8ressl7 or )7 ne*essar7 im8li*ation 8ro;i0es that
8en0ing a*tions are e:*e8te0 1rom its o8eration or
.here to a88l7 it to 8en0ing a*tions .oul0 im8air ;este0
rights
$ Un0er a88ro8riate *ir*umstan*es, *ourts ma7 0en7 the
retroa*ti;e a88li*ation or 8ro*e0ural la.s in the e;ent
that to 0o so .oul0 not )e 1easi)le or .oul0 .orC
in/usti*e. Nor ma7 the7 )e a88lie0 it to 0o so .oul0
in;ol;e intri*ate 8ro)lems o1 0ue 8ro*ess or im8air the
in0e8en0en*e o1 *ourts.
".!". CURATIBE STATUTES
$ Curati;e statutes are inten0e0 to su88l7 0e1e*ts, a)ri0ge
su8er1luities in e:isting la.s an0 *ur) *ertain e;ils.
The7 are inten0e0 to ena)le 8ersons to *arr7 into e?e*t
that .hi*h the7 ha;e 0esigne0 an0 inten0e0, )ut has
48
1aie0 o1 e:8e*te0 legal *onse=uen*e )7 reason o1 some
statutor7 0isa)ilit7 or irregularit7 in their o.n a*tion.
The7 maCe ;ali0 that .hi*h, )e1ore the ena*tment o1 the
statute .as in;ali0, as su*h the7 are gi;en retroa*ti;e
a88li*ation.
".5#. LIMITATIONS OF RULE
$ A reme0ial or *urati;e statute ena*te0 as a 8oli*e 8o.er
measure ma7 )e gi;en retroa*ti;e e?e*t e;en though
the7 im8air ;este0 right or o)ligations o1 *ontra*t, i1 the
legislati;e intent is to gi;e them retroa*ti;e o8eration
".5!. POLICE PO+ER LEGISLATIONS
$ An7 right a*=uire0 un0er a statute o1 un0er a *ontra*t is
su)/e*t to the *on0ition that it ma7 )e im8aire0 )7 the
state in the legitimate e:er*ise o1 its 8oli*e 8o.er, sin*e
the reser;ation o1 the essential attri)utes o1 so;ereign
8o.er, one o1 .hi*h is 8oli*e 8o.er is 0eeme0 rea0 into
e;er7 statute or *ontra*t as a 8ostulate o1 legal or0er
".55. STATUTE RELATING TO PRESCRIPTION
$ Su*h statutes are )oth 8ros8e*ti;e in the sense that it
a88lies to *auses that a**rue0 an0 .ill a**rue a1ter it
tooC e?e*t an0 retroa*ti;e in the sense that it a88lies to
*ause that a**rue0 )e1ore its 8assage. Ao.e;er, it .ill not
)e gi;en a retroa*ti;e o8eration to *auses o1 a*tion that
a**rue0 8rior to its ena*tment i1 to 0o .ill remo;e a )ar o1
limitation .hi*h has )e*ome *om8lete or to
0istur) e:isting *laims .ithout allo.ing a reasona)le
time to )ring a*tions thereon.
$ A statute o1 limitation 8res*ri)ing a longer 8erio0 to 1ile an
a*tion than that s8e*i1ie0 un0er the ole la. ma7 not )e so
*onstrue0 as ha;ing a retroa*ti;e e11e*t, e;en i1 it so
8ro;i0es, as to re;i;e a *ause that alrea07 8res*ri)e0 un0er
the ol0 la., 1or that .ill im8air the ;este0 right o1 the
8erson against .hom the *ause is asserte0.
$ A statue .hi*h shortens the 8erio0 o1 8res*ri8tion an0
re=uires that *uses .hi*h a**rue0 8rior to its e?e*ti;it7 )e
8rose*ute0 or 1ile0 not later than a s8e*i1i* 0ate ma7 not
)e *onstrue0 to a88l7 to e:isting *auses .hi*h, 8ursuant to
the ol0 la. un0er .hi*h the7 a**rue0, .ill not 8res*ri)e
until a mu*h longer 8erio0 than that s8e*i1ie0 in the later
ena*tment )e*ause the right to )ring an a*tion is 1oun0e1
on the la. .hi*h has )e*ome ;este0 )e1ore the 8assage o1
the ne. statute o1 limitation.
".5%. APPARENTL- CONFLICTING @ECISIONS ON
PRESCRIPTIONS
$ >illones ;. Court o1 In0ustrial Relations an0 Corales ;.
Em8lo7eeDs Com8ensation Commission. The 8ro)lem in
)oth *ases is ho. to sa1eguar0 the right to )ring the a*tion
.hose 8res*ri8ti;e 8erio0 to institute it has )een shortene0
)7 la.. To sol;e the 8ro)lem the *ourt in the Corales *ase
*onstrue0 the statute o1 limitation as ina88li*a)le to the
a*tion that a**rue0 )e1ore the ne. la. tooC e11e*tG the
*ourt in >illones *ase ga;e the *laimants .hose rights ha;e
)een a?e*te0, one 7ear 1rom the 0ate the la. tooC e?e*t
.ithin .hi*h to sue on their *laims. The Corales *ase
a88ears to )e 8re0i*ate0 on 1irmer groun0s.
".53. PRESCRIPTION IN CRIMINAL AN@ CIBIL CASES
$ In a *i;il suit, the statute is ena*te0 )7 the legislature as an
im8artial ar)iter )et.een t.o *onten0ing 8arties. In the
*onstru*tion o1 su*h stature, there is no inten0ment to )e
ma0e in 1a;or o1 either 8art7. Neither grants the right to the
other, there is there1ore no grantor against .hom no
or0inar7 8resum8tions *onstru*tion are to )e ma0e
$ The rule is other.ise in statutes o1 limitation *on*erning
*riminal *ases. Aere the state is the grantor, surren0ering
)7 an a*t o1 gra*e its right to 8rose*ute or 0e*lare that the
o?ense is no longer the su)/e*t o1 8rose*ution a1ter the
8res*ri8ti;e 8erio0. Su*h statutes are not onl7 li)erall7
*onstrue0 )ut are a88lie0 retroa*ti;el7 in 1a;or o1 the
a**use0
".5&. STATUTES RELATING TO APPEALS
$ A statute relating to a88eals is reme0ial or 8ro*e0ural an0
a88lies to 8en0ing a*tion in .hi*h no /u0gment has
7et )een 8romulgate0 at the time the statute tooC
e?e*t. It ma7 not )e gi;en retroa*ti;e e11e*t i1 it
im8airs ;este0 rights.
49
$ A stature shortening the 8erio0 1or taCing a88eals is to )e
gi;en 8ros8e*ti;e e11e*t an0 ma7 not )e a88lie0 to 8en0ing
8ro*ee0ing in .hi*h /u0gment has alrea07 )een
ren0ere0 at the time o1 its ena*tment.
C.!&te 1B: A(e#2(e#t, Re0i*i%#, C%2i4,!ti%#
!#2 Re&e!"
I. A(e#2(e#t
A. Po.er to amen0
Legislature has the 8o.er to amen0, su)/e*t to
*onstitutional re=uirement, an7 e:isting la.
Su8reme *ourt, in the e:er*ise o1 its rule$maCing 8o.er or o1
its 8o.er to inter8ret the la., has no authorit7 to amen0 or
*hange the la.
>. Ao. amen0ment e?e*te0
>7 a00ition, 0eletion, or alteration o1 a statute .hi*h sur;i;es in
its amen0e0 1orm.
>7 ena*ting amen0ator7 a*t mo0i17ing or altering some
8ro;isions o1 the statue either e:8ressl7 or im8lie0l7
E:8ress amen0ment9 0one )7 8ro;i0ing amen0ator7 a*t that
s8e*i1i* se*tions or 8ro;isions o1 a statute are amen0e0G
in0i*ate0 as 9 I to rea0 as 1ollo.s. C.
Amen0ment )7 im8li*ation
There is im8lie0 amen0ment .here a 8art o1 a 8rior statute
em)ra*ing the same su)/e*t as the later a*t ma7 not )e
en1or*e0 .ithout nulli17ing the 8ertinent 8ro;ision o1 the latter
in .hi*h e;ent, 8rior a*t is 0eeme0 amen0e0 to the e:tent o1
the re8ugnan*7.
@. +hen amen0ment taCes e?e*t
A1ter !& 0a7s 1ollo.ing the 8u)li*ation in the O?i*ial
Ga<ette or ne.s8a8er o1 general *ir*ulation
E. Ao. *onstrue0
A statute an0 its amen0ment shoul0 )e rea0 together as a
.hole meaning, it shoul0 )e rea0 as i1 the statue has )een
originall7 ena*te0 in its amen0e0 1orm.
Portions not amen0e0 .ill *ontinue to )e in 1or*e .ith the same
meaning the7 ha;e )e1ore amen0ment.
F. Meaning o1 la. *hange0 )7 amen0ment
General rule9 an amen0e0 a*t .oul0 )e gi;en a *onstru*tion
0i?erent 1rom that o1 the la. 8rior to its amen0ment 1or it is
8resume0 that legislatures .oul0 not ha;e amen0e0 the statue
i1 it 0i0 not inten0 to *hange its meaning.
G. Amen0ment o8erates 8ros8e*ti;el7
General rule9 amen0ator7 a*t o8erates 8ros8e*ti;el7 unless the
*ontrar7 is 8ro;i0e0 or the legislati;e intent to gi;e it a
retroa*ti;e e?e*t is ne*essaril7 im8lie0 1rom the language
use0 an0 no ;este0 rights is im8aire0.
Ao.e;er, amen0ments relating to 8ro*e0ures shoul0 )e gi;en
retroa*ti;e e?e*t.
A. E?e*t o1 amen0ment in ;este0 rights
Rule9 a1ter the statute is amen0e0, the original a*t
*ontinues to )e in 1or*e .ith regar0 to all rights that ha0
a**rue0 8rior to the amen0ment or to o)ligations that .ere
*ontra*te0 un0er the 8rior a*t.
I. E?e*t o1 amen0ment on /uris0i*tion
Rule9 a su)se=uent statute amen0ing a 8rior a*t .ith the
e?e*t o1 0i;esting the *ourt o1 /uris0i*tion ma7 not )e
*onstrue0 to o8erate to oust /uris0i*tion that has alrea07
atta*he0 un0er the 8rior la..
F. E?e*t o1 nullit7 o1 8rior or amen0ator7 a*t
An in;ali0 or un*onstitutional la. 0oes not in legal
*ontem8lation e:ist.
+here a statute amen0e0 in in;ali0, nothing in e11e*t has
)een amen0e0. The amen0e0 a*t shall )e *onsi0ere0 the
original or in0e8en0ent a*t.
+hen the amen0e0 a*t is 0e*lare0 un*onstitutional, the original
statute remains una?e*te0 an0 in 1or*e.
II. Re0i*i%# !#2 C%2i4,!ti%#
L. Generall79 restating the e:isting la.s into one statute in
or0er to sim8li17 *om8li*ate0 8ro;isions.
L. Constru*tion to harmoni<e 0i?erent 8ro;isions
The 0i?erent 8ro;isions o1 a re;ise0 statute or *o0e shoul0 )e
50
rea0 an0 *onstrue0 together.
+here there is irre*on*ila)le *on1li*t9 that .hi*h is )est in
a**or0 .ith the general 8lan or, in the a)sen*e o1
*ir*umstan*es u8on .hi*h to )ase a *hoi*e, that .hi*h is
later in 8h7si*al 8osition, )eing the latest e:8ression o1
legislati;e .ill, .ill 8re;ail.
M. +hat is omitte0 is 0eeme0 re8eale0
+hen )oth intent an0 s*o8e *learl7 e;in*e the i0ea o1 a re8eal,
then all 8arts an0 8ro;isions o1 the 8rior a*t that are omitte0
1rom the re;ise0 a*t are 0eeme0 re8eale0.
N. Change in 8hraseolog7
Rule9 Neither an alteration in 8hraseolog7 nor omission or
a00ition o1 .or0s in the later statute shall )e hel0
ne*essaril7 to alter the *onstru*tion o1 the 1ormer a*ts.
O. Continuation o1 e:isting la.
Rule9 the rearrangement o1 se*tion or 8arts o1 a statute, or the
8la*ing o1 8ortions o1 .hat 1ormerl7 .as a single se*tion in
se8arate se*tion, 0oes not o8erate to *hange the o8eration,
e11e*t an0 meaning o1 the statute, unless *hanges are o1
su*h nature as to mani1est the *leat intent to *hange the 1ormer
la.s.
III. Re&e!"*
P. Po.er to re8eal
Legislature has 8lenar7 8o.er to re8eal, Su8reme *ourt, .hile
it has the 8o.er to 8romulgate rule o1 8ro*e0ure, it *annot in
the e:er*ise o1 su*h 8o.er alter, *hange or re8eal su)stanti;e
la.s.
E. Re8eal9 total or 8artial, e:8ress or im8lie0
!. Total9 ren0ere0 re;oCe0 *om8letel7
5. Partial9 Lea;es the una?e*te0 8ortion o1 the statue in
1or*e
%. E:8ress9 there is a 0e*laration in a statute
re8ealing *lause'
3. Im8lie09 all other re8eals
R. Re8eal )7 im8li*ation
T.o .ell$settle0 *ategories9
!. +here the 8ro;isions in the t.o a*ts on the same
su)/e*t matter are irre*on*ila)le, the later a*t
re8eals the earlier one
5. Later a*t *o;ers the .hole su)/e*t o1 the earlier one an0
is *learl7 inten0e0 as su)stitute.
S. Irre*on*ila)le in*onsisten*7
Rule9 re8ugnan*7 must )e *lear an0 *on;in*ing or the later la.
nulli1ies the reason or 8ur8ose o1 the earlier to *all 1or a re8eal.
Mere 0i?eren*e in terms .ill not *reate re8ugnan*e.
Leges posteriors priores contraries abrogant9 A later la.
re8eals an earlier la. on the same su)/e*t .hi*h is re8ugnant
thereto.
T. Im8lie0 re8eal )7 re;ision or *o0i1i*ation
Rule9 +here a statute is re;ise0 or a series o1 legislati;e
a*ts on the same su)/e*t are re;ise0 an0 *onsoli0ate0 into one,
*o;ering the entire 1iel0 o1 su)/e*t matter, all 8arts an0
8ro;isions o1 the 1ormer a*t or a*ts that are omitte0 1rom the
re;ise0 a*t are 0eeme0 re8eale0.
U. Re8eal )7 reena*tment
+here a statute is a reena*tment o1 the .hole su)/e*t in
su)stitution o1 the 8re;ious la.s on the matter, the latter
0isa88ears entirel7 an0 .hat is omitte0 in the reena*te0 la. is
0eeme0 re8eale0.
B. Other 1orms o1 im8lie0 re8eal
!. +hen t.o la.s is e:8resse0 in the 1orm o1 a
uni;ersal negati;e9 a negati;e statute re8eals all
*on1li*ting 8ro;isions unless the *ontrar7 intention is
0is*lose0.
5. +here the legislature ena*ts something in general
terms an0 a1ter.ar0s 8asses another on the same
su)/e*t, although in a?irmati;e language, intro0u*es
s8e*ial *on0ition or restri*tions.
+. Re8ealing *lause
All la.s or 8art thereo1, .hi*h are in*onsistent .ith this a*t, are
here)7 re8eale0 or mo0i1ie0 a**or0ingl7.
Nature o1 this *lause9 not an e:8ress re8eal rather, it is a
*lause .hi*h 8re0i*ates the inten0e0 re8eal u8on the *on0ition
that a su)stantial *on1li*t must )e 1oun0 on e:isting an0
8rior a*ts o1 the same su)/e*t matter
E: 8ro8rio ;igore
Rule9 the 1ailure to a00 a s8e*i1i* re8ealing *lause 8arti*ularl7
mentioning the statute to )e re8eale0 in0i*ate0 the intent .as
not to re8eal an7 e:isting la. on the matter unless an
51
irre*on*ila)le in*onsisten*7 an0 re8ugnan*7 e:ist in the terms
o1 the ne. an0 ol0 la.s.
K. Re8eal )7 im8li*ation not 1a;ore0
Rule9 Re8eals )7 im8li*ation not 1a;ore0
Presum8tion is against in*onsisten*7 an0 against im8lie0
re8eals 1or it is 8resume0 that legislatures Cno. e:isting la.s
on the su)/e*t an0 not to ha;e ena*te0 in*onsistent or
*on1li*ting statutes.
-. Leges posteriores priores contraries abrogant (
later statue re8eals 8rior ones .hi*h are re8ugnant
thereto. As )et.een t.o la.s, on the same su)/e*t
matter, .hi*h are irre*on*ila)le in*onsistent, that .hi*h
is 8asse0 later 8re;ails.
N. General la.
Rule9 General la. on a su)/e*t 0oes not o8erate to re8eal a
8rior s8e*ial la. on the same su)/e*t unless *learl7 a88ears
that the legislature has inten0e0 the later general a*t to
mo0i17 the earlier s8e*ial la..
Generalia specialibus non derogant 9 a general la. 0oes not
nulli17 a s8e*i1i* or s8e*ial la..
Reason9 the legislature shoul0 maCe 8ro;isions 1or all
*ir*umstan*e o1 the 8arti*ular *ase.
AA. +hen s8e*ial or general la. re8eals the other
Rule9 +here a later s8e*ial la. on a 8arti*ular su)/e*t is
re8ugnant to or in*onsistent .ith a 8rior general la. on the
same su)/e*t, a 8artial re8eal o1 the latter is im8lie0 to the
e:tent o1 the re8ugnan*7 or e:*e8tion grante0 u8on the
general la..
Legislati;e intent to re8eal must )e sho.n in the a*t itsel1, the
e:8lanator7 not to the )ill )e1ore its 8assage into a la., the
0is*ussion on the 1loor o1 the legislature an0 the histor7 o1 the
t.o legislations.
Rule9 General la. *annot )e *onstrue0 to ha;e re8eale0 a
s8e*ial la. )7 mere im8li*ation.
Rule9 I1 intention to re8eal the s8e*ial la. is *lear, the s8e*ial
la. .ill )e *onsi0ere0 as an e:*e8tion to the general la. .ill
not a88l7. S8e*ial la. is re8eale0 )7 im8li*ation.
>>. E?e*ts o1 re8eals
!. Statute is ren0ere0 ino8erati;e
5. @oes not un0o the *onse=uen*es o1 the o8eration o1
the statute .hile in 1or*e
%. @oes not ren0er illegal .hat un0er the re8eale0 a*t
is legal
3. @oes not laCe legal .hat un0er the 1ormer la. is
illegal
CC. On /uris0i*tion
Furis0i*tion to tr7 an0 0e*i0e a*tions is 0etermine0 )7 the la.
in 1or*e at the time the a*tion is 1ile0.
General rule9 .here the *ourt or tri)unal has alrea07 a*=uire0
an0 is e:er*ising /uris0i*tion o;er a *ontro;ers7, its
/uris0i*tion to 8ro*ee0 to 1inal 0etermination o1 the *ause is not
a?e*te0 )7 the ne. legislation re8ealing the statue .hi*h
originall7 *on1erre0 /uris0i*tion unless the re8ealing statute
8ro;i0es other.ise e:8ressl7 or )7 ne*essar7 im8li*ation.
@@. On /uris0i*tion to tr7 *riminal *ases
Furis0i*tion o1 a *ourt to tr7 a *riminal *ase is 0etermine0 )7
the la. in 1or*e at the time the a*tion is institute0.
EE. On a*tions 8en0ing or other.ise
The general rule is that the re8eal o1 a statue 0e1eats all
a*tions an0 8ro*ee0ings in*lu0ing those .hi*h are still 8en0ing.
FF. On ;este0 rights
Re8eal o1 a statute 0oes not 0estro7 or im8air rights that
a**rue0 an0 )e*ame ;este0 un0er the statute )e1ore its re8eal.
GG. On *ontra*ts
+hen a *ontra*t is entere0 into )7 the 8arties on the )asis o1
the la. .hen o)taining, the re8eal or amen0ment o1 sai0 la.
0oes not a?e*t the terms o1 the *ontra*t not im8air the right o1
the 8arties thereun0er.
AA. E?e*t o1 re8eal o1 ta: la.
Re8eals 0oes not 8re*lu0e the *olle*tion o1 ta:es assesse0
un0er the ol0 la. )e1ore its re8eals unless the re8ealing statute
8ro;i0es other.ise
II. Re8eal an0 ena*tment
Simultaneous re8eal an0 reena*tment o1 a statue 0oes not
a?e*t the rights an0 lia)ilities .hi*h ha;e a**rue0 un0er the
original statute sin*e the reena*tment neutrali<es the re8eal
an0 *ontinues the la. in 1or*e .ithout interru8tion.
FF. E?e*t o1 re8eal o1 8enal la.s
Re8eal .ithout =uali1i*ation o1 8enal la. 0e8ri;e0 the *ourt o1
the /uris0i*tion to 8unish 8ersons *harge0 .ith a ;iolation o1 the
ol0 la. 8rior to its re8eal.
+here re8eal is a)solute, *rime no longer e:ists.
E:*e8tion9
!. The re8ealing a*t reena*ts the statute an0 8enali<es
52
the same a*t 8re;iousl7 8enali<e0 un0er the
re8eale0 la., the a*t *ommitte0 )e1ore the
reena*tment *ontinues to )e a *rime.
5. +here the re8ealing a*t *ontains a sa;ing *lause
8ro;i0ing that 8en0ing a*tions shall not )e a?e*te0,
the latter .ill *ontinue to )e 8rose*ute0 in
a**or0an*e .ith the ol0 la..
IB. @istin*tion as to e?e*t o1 re8eal an0 e:8iration o1 la.
In a)solute re8eal, the *rime is o)literate0
In e:8iration o1 8enal la. )7 its o.n 1or*e 0oes not ha;e
that e?e*t
LL. E?e*t o1 re8eal o1 muni*i8al *harter
Su8er*e0ing o1 the ol0 *harter )7 a ne. one has the e?e*t o1
a)olishing the o?i*es un0er the ol0 *harter.
LL. Re8eal or nullit7 o1 re8ealing la.
La. 1irst re8eale0 shall not )e re;i;e0 unless e:8ressl7
8ro;i0e0
+here a re8ealing statute is 0e*lare0 un*onstitutional, it .ill
ha;e no e?e*t o1 re8ealing the 1ormer statute.
CHAPTER 11 :CONSTITUTIONAL CONSTRUCTION
CONSTITUTION @EFINE@
It is an instrument o1 a 8ermanent nature, inten0e0 not
merel7 to meet e:isting *on0itions, )ut to go;ern the 1uture. It
0oes not 0eal in 0etails )ut enumerates general 8rin*i8les an0
general 0ire*tions .hi*h are inten0e0 to a88l7 to all ne. 1a*ts
.hi*h ma7 *ome into )eing an0 .hi*h ma7 )e )rought .ithin those
general 8rin*i8les or 0ire*tion Lo8e< B. @e los Re7es'.
A su8reme la. to .hi*h all other la.s must *on1orm an0 in
a**or0an*e .ith .hi*h all 8ri;ate rights must )e 0etermine0 an0 all
8u)li* authorit7 a0ministere0 Manila Prin*e Aotel ;. GSIS'.
PRIMAR- PURPOSE OF CONSTITUTIONAL CONSTRUCTION The
8rimar7 tasC o1 *onstitutional *onstru*tion is to
as*ertain the intent or 8ur8ose o1 the 1ramers o1 the *onstitution
as e:8resse0 in the language o1 the 1un0amental
la., Tem)o0ie0 in the 8ro;isions themsel;esU, an0 therea1ter to
assure its reali<ation F.M. Tuason H Co., In*. ;. Lan0 Tenure
A0ministration'.
The 8ur8ose o1 the Phil. Constitution is to 8rote*t an0
enhan*e the 8eo8leDs interest, as a nation *olle*ti;el7 an0 as
8erson in0i;i0uall7. The inter8retation o1 the Constitution
shoul0 )e 0one .ith a ;ie. to reali<ing this 1un0amental
o)/e*ti;e.
CONSTITUTION CONSTRUE@ AS EN@URING FOR AGES
It is something soli0, 8ermanent an0 su)stantial. Its
sta)ilit7 8rote*ts the rights, li)ert7 an0 8ro8ert7 o1 the ri*h an0
8oor aliCe U.S. ;. Ang Teng Ao'.
!. A *onstitution shoul0 )e *onstrue0 in the light o1 .hat
a*tuall7 is, a *ontinuing instrument to go;ern not onl7
the 8resent )ut also the un1ol0ing e;ents o1 the in0e1inite
1uture.
5. A *onstitution must )e *onstrue0 as a 07nami* 8ro*ess
inten0e0 to stan0 1or a great length o1 time, to )e
8rogressi;e an0 not stati*.
%. Its *onstru*tion ought not to *hange .ith emergen*ies or
*on0itions
3. Nor shoul0 it )e *onstrue0 to in1le:i)l7 i0enti17 its te:t
.ith the *ir*umstan*es that ins8ire0 1or its a0o8tion, 1or
that .oul0 maCe it in*a8a)le o1 res8on0ing to the nee0 o1
the 1uture.
&.
2. Courts shoul0 al.a7s en0ea;or to gi;e su*h inter8retation
that .oul0 maCe the *onstitutional 8ro;ision *onsistent
.ith reason, /usti*e an0 the 8u)li* interest.
AO+ LANGUAGE OF CONSTITUTION CONSTRUE@ The
8rimar7 sour*e 1rom .hi*h to as*ertain
*onstitutional intent or 8ur8ose is the language o1 the
*onstitution itsel1. It is an intrinsi* ai0.
It is a .ell$esta)lishe0 rule that the language o1 the
*onstitution shoul0 )e un0erstoo0 in the sense it has in
*ommon use an0 that the .orl0s in the *onstitutional 8ro;isions are
to )e gi;en their or0inar7 meaning e:*e8t .here te*hni*al
terms are em8lo7e0, )e*ause the 1un0amental la. is not
8rimaril7 a la.7erDs 0o*ument )ut essentiall7 that o1 the
8eo8le, in .hose *ons*iousness it shoul0 e;er )e 8resent as an
im8ortant *on0ition 1or the rule o1 la. to 8re;ail. +here the
*onstitution 0oes not s8e*i1i*all7 0e1ine the terms use0 therein,
the7 shoul0 )e *onstrue0 in their general an0 or0inar7 sense.
+here .or0s use0 in a *onstitution ha;e )oth restri*ti;e
an0 general meanings, the rule is that the general 8re;ails o;er
the restri*te0 unless the *onte:t in .hi*h the7 are em8lo7e0
*learl7 in0i*ates that the limite0 sense is inten0e0.
A .or0 or 8hrase in one 8art o1 the *onstitution is to
re*ei;e the same inter8retation .hen use0 in e;er7 other 8art,
unless it *learl7 a88ears 1rom the *onte:t or other.ise that a
0i?erent meaning shoul0 )e a88lie0.
+or0s .hi*h ha;e a*=uire0 a te*hni*al meaning )e1ore
the7 are use0 in the *onstitution must )e taCen in that sense
.hen su*h .or0s as thus use0 are *onstrue0.
AI@S TO CONSTRUCTION, GENERALL-
E:traneous Ai0s9
!. histor7 or realities e:isting at the time o1 the a0o8tion o1 the
*onstitution
5. 8ro*ee0ings o1 the *on;ention
REALITIES EKISTING AT TIME OF A@OPTIONG O>FECT TO >E
ACCOMPLISAE@
Aistor7 man7 a time hol0s the Ce7 that unlo*Cs the 0oor to
un0erstan0ing. For this reason, *ourts looC to the histor7 o1
times, e:amine the state o1 things e:isting .hen the
*onstitution .as 1rame0 an0 a0o8te0, an0 inter8ret it in the
light o1 these 1a*tors Commissioner o1 Internal Benue ;.
Guerrero'.
The e:isting realities that *on1ronte0 the 1ramers o1 the
*onstitution *an hel8 unra;el the intent )ehin0 a *onstitutional
8ro;ision.
The *ourt in *onstruing the *onstitution shoul0 )ear in min0
the o)/e*t sought to )e a**om8lishe0 )7 its a0o8tion, an0 the e;ils,
i1 an7, sought to )e 8re;ente0 or reme0ie0.
A 0ou)t1ul 8ro;ision .ill )e e:amine0 in the light o1 the
histor7 o1 the times, an0 the *on0itions an0 *ir*umstan*es
un0er .hi*h the *onstitution .as 1rame0. The o)/e*t is to
as*ertain the reason .hi*h in0u*e0 the 1ramers o1 the
*onstitution to ena*t the 8arti*ular 8ro;ision an0 the 8ur8ose
sought to )e a**om8lishe0 thereo1, in or0er to *onstrue the
.hole as to maCe the .or0s *onsonant to that reason an0
*al*ulate0 to e?e*t that 8ur8ose.
PROCEE@INGS OF TAE CONSTITUTION
I1 the language o1 the *onstitutional 8ro;ision is 8lain, it is
neither ne*essar7 nor 8ermissi)le to resort to e:trinsi* ai0s.
Ao.e;er, .here the intent o1 the 1ramers 0oes not 0e*isi;el7
a88ear in the te:t o1 the 8ro;ision as it a0mits o1 more than one
*onstru*tion, relian*e ma7 )e ma0e on e:trinsi* ai0s, su*h as the
re*or0s o1 the 0eli)erations or 0is*ussions in the *on;ention
Peo8le ;. MuMo<'.
>ut .hile a mem)erDs o8inion e:8resse0 on the 1loor o1 the
*onstitutional *on;ention is ;alua)le, it is not ne*essaril7
e:8ressi;e o1 the 8eo8leDs intent. The *onstitutional .is0om is
that the *onstitution 0oes not 0eri;e its 1or*e 1rom the *on;ention
.hi*h 1rame0 it, )ut 1rom the 8eo8le .ho rati1ie0 it,
Word employed therein are not to be construed to yield 3. changes in phraseology
fixed and rigid answers but as impressed with the 4. prior laws and judicial decisions
necessary attributes of flexibility and accommodation to 5. contemporaneous constructions
enable them to meet adequately whatever problems the 6. consequences of alternative interpretations
future has in store.
the intent to )e arri;e0 at is that o1 the 8eo8le, it 0e8en0s more on ho. it .as un0erstoo0 )7 the 8eo8le a0o8ting it than the
1ramersD un0erstan0ing thereo1.
It is, ho.e;er, not 0e*isi;e 1or the 8ro*ee0ings o1 the *on;ention are less *on*lusi;e o1 the 8ro8er *onstru*tion o1 the
1un0amental la. than are legislati;e 8ro*ee0ings o1 the 8ro8er
*onstru*tion o1 a statute, sin*e in the latter *ase, it is the intent o1 the legislature that *ourts seeC, .hile in the 1ormer, the *ourts
seeC to arri;e at the intent o1 the 8eo8le through the re8resentati;es.
The as*ertainment o1 the intent is )ut in Cee8ing .ith
the 1un0amental 8rin*i8le o1 *onstitutional *onstru*tion that the intent o1 the 1ramers o1 the organi* la. an0 o1 the 8eo8le
a0o8ting shoul0 )e gi;en e?e*t. The 8rimar7 tasC in
*onstitutional *onstru*tion is to as*ertain an0 therea1ter assure the reali<ation o1 the 8ur8ose o1 the 1ramers an0 o1 the 8eo8le in
the a0o8ting o1 the *onstitution Nita1an ;. Commissioner o1 Internal Re;enue'.
CONTEMPORANEOUS CONSTRUCTION AN@ +RITINGS Contem8oraneous or 8ra*ti*al *onstru*tions o1 s8e*i1i*
*onstitutional 8ro;isions )7 the legislati;e an0 e:e*uti;e 0e8artments, es8e*iall7 i1 long *ontinue0, ma7 )e resorte0 to
resol;e, )ut not to *reate am)iguities.
Though not *on*lusi;e, *ontem8oraneous or 8ra*ti*al *onstru*tions are generall7 *on*e0e0 as )eing entitle0 to great .eight.
The 8ra*ti*al *onstru*tion o1 a *onstitution is o1 little .eight unless it has )een uni1orm. As a general rule, it is onl7
in *ases o1 su)stantial 0ou)t an0 am)iguit7 that the 0o*trine o1
*ontem8oraneous *onstru*tion has an7 a88li*ation.
Contem8oraneous *onstru*tion is not ne*essaril7 )in0ing u8on *ourts, i1 in its /u0gment, su*h *onstru*tion is erroneous
an0 its 1urther a88li*ation is not ma0e im8erati;e )7 an7
8aramount *onsi0eration o1 8u)li* 8oli*7, it ma7 )e re/e*te0
TaMa0a ;. Cuen*o'
+riting o1 0elegates to the *on;ention on or e:8laining the 8ro;isions o1 the *onstitution, 8u)lishe0 shortl7 therea1ter
ha;e some 8ersuasi;e 1or*e.
PREBIOUS LA+S AN@ FU@ICIAL RULINGS
A *onstitution shall )e hel0 to )e 8re8are0 an0 a0o8te0 in re1eren*e to e:isting statutor7 la.s, the 8ro;ision o1 .hi*h in
0etail it must 0e8en0 to )e set in a 8ra*ti*al o8eration. Its 1ramers are 8resume0 to )e a.are o1 8re;ailing /u0i*ial 0o*trines or
rulings *on*erning .hi*h are the su)/e*ts o1 *onstitutional 8ro;isions. Courts ma7 8ro8erl7 taCe su*h
rulings into a**ount in *onstruing the *onstitutional 8ro;ision in;ol;e0. Thus, i1 the 1ramers o1 the *onstitution a0o8te0 a
8rin*i8le 0i?erent 1rom .hat the *ourts ha0 8re;iousl7 enun*iate0, the7 0i0 so to o;errule sai0 8rin*i8le.
CAANGES IN PARASEOLOG-
Changes in 8hraseolog7 in the ne. *onstitution ma7 in0i*ate an intent to mo0i17 or *hange the meaning o1 the ol0
8ro;ision 1rom .hi*h it .as )ase0, an0 it shoul0 thus )e *onstrue0 to re1le*t su*h intent Aratu* ;. Comele*'.
Mere 0eletion o1 a 8hrase 1rom a 8ro8ose0 8ro;ision )e1ore its 1inal a0o8tion is not 0eterminati;e o1 an7 *on*lusion. It
*oul0 ha;e )een 0one )e*ause the 1ramers *onsi0ere0 it su8er1luous. @eletions in the 8reliminar7 0ra1ts o1 the *on;ention are, at
)est, negati;e gui0es .hi*h *annot 8re;ail o;er the 8ositi;e 8ro;isions o1 the 1inall7 a0o8te0 *onstitution.
CONSEEUENCES OF ALTERNATIBE CONSTRUCTIONS
+here a *onstitutional 8ro;ision is sus*e8ti)le o1 more than one inter8retation, that *onstru*tion .hi*h .oul0 lea0 to
a)sur0, im8ossi)le or mis*hie;ous *onse=uen*es must )e re/e*te0.
CONSTITUTION CONSTRUE@ AS A +AOLE
It is a .ell$esta)lishe0 rule that no one 8ro;ision o1 the *onstitution is to )e se8arate0 1rom all the others, to )e
*onsi0ere0 alone, )ut that all the 8ro;isions )earing u8on a 8arti*ular su)/e*t are to )e )rought into ;ie. an0 to )e so
inter8rete0 as to e?e*tuate the great 8ur8oses o1 the instrument.
One se*tion is not to )e allo.e0 to 0e1eat another, i1 )7 an7 reasona)le *onstru*tionG the t.o *an )e ma0e to stan0
together. The *ourts must harmoni<e them, i1 8ra*ti*a)le, an0 must lean in 1a;or o1 a *onstru*tion .hi*h .ill ren0er e;er7
.or0 o8erati;e, rather then one .hi*h ma7 maCe the .or0s i0le an0 nugator7.
MAN@ATOR- OR @IRECTOR-
The esta)lishe0 rule is that *onstitutional 8ro;isions are to )e *onstrue0 as man0ator7, unless )7 e:8ress 8ro;ision or )7
ne*essar7 im8li*ation, a 0i?erent intention is mani1este0. The 0i?eren*e )et.een a man0ator7 an0 0ire*tor7 8ro;ision is o1ten
0etermine0 on groun0s o1 e:8e0ien*7, the reason )eing that less in/ur7 results to the general 8u)li* )7 0isregar0ing than )7
en1or*ing the letter o1 the 1un0amental la..
Failure to 0is*harge a man0ator7 0ut7, .hate;er it ma7 )e, .oul0 not automati*all7 result in the 1or1eiture o1 an oV*e,
in the a)sen*e o1 a statute to that e?e*t.
PROSPECTIBE OR RETROACTIBE
A *onstitution shoul0 o8erate 8ros8e*ti;el7 onl7, unless the .or0s em8lo7e0 sho. a *lear intention that it shoul0 ha;e a
retroa*ti;e e?e*t.
APPLICA>ILIT- OF RULES OF STATUTOR- CONSTRUCTION GENERALL-, CONSTIRUTIONAL PROBISIONS ARE SELF$
EKECUTING
The general rule is that *onstitutional 8ro;isions are
sel1$e:e*uting e:*e8t .hen the 8ro;isions themsel;es e:8ressl7 re=uire legislations to im8lement them or .hen 1rom their
language or tenure, the7 are merel7 0e*larations o1 8oli*ies an0
8rin*i8les.
A sel1$e:e*uting 8ro;ision is one .hi*h is *om8lete )7 itsel1 an0 )e*omes o8erati;e .ithout the ai0 o1 su88lementar7
or ena)ling legislation, or .hi*h su88lies suV*ient rule )7
means o1 .hi*h the right it grants ma7 )e en/o7e0 or 8rote*te0.
Omission 1rom a *onstitution o1 an7 e:8ress 8ro;ision 1or a reme07 1or en1or*ing a right or lia)ilit7 is not ne*essaril7
an in0i*ation that it .as not inten0e0 to )e sel1$e:e*uting.