CHAPTER

 IV  –  QUASI  –  LEGISLATIVE  POWER   Executive   orders   are   "acts   of   the   President  
  providing   for   rules   of   a   general   or   permanent  
Legislative   power   is   the   power   to   make,   alter   and   character   in   implementation   or   execution   of  
repeal   laws}   The   Constitution   provides   that   "the   constitutional  or  statutory  powers."    
legislative   power   shall   be   vested   in   the   Congress   of    
the  Philippines  which  shall  consist  of  a  Senate  and  a   Administrative   orders   are   "acts   of   the   President  
House   of   Representatives,   except   to   the   extent   which  relate  to  particular  aspects  of  governmental  
reserved  to  the  people  by  the  provision  on  initiative   operations   in·∙   pursuance   of   his   duties   as  
and  referendum."     administrative  head."  
   
The  doctrine  of  separation  of  power  prohibits  the   Proclamations   are   "acts   of   the   President   fixing   a  
delegation  of  purely  legislative  power.     date   or   declaring   a   statute   or   condition   of   public  
  moment  or  interest,  upon  the  existence  of  which  the  
Delegation  of  legislative  power  to  the  President.     operation   of   a   specific   law   or   regulation   is   made   to  
The   doctrine   of   separation   of   powers   does   not,   depend."    
however,   absolutely   prohibit   delegation   of    
legislative   power.   The   Constitution   itself   makes   the   Memorandum  orders  are  "acts  of  the  President  on  
delegation  of  legislative  power  to  the  President,  the   matters  of  administrative  detail  or  of  subordinate  or  
Supreme  Court,  and  the  local  government  units.     temporary  interest  which  only  concern  a  particular  
  officer  or  office  of  the  Government."  
Delegation   of   legislative   power   to   the   President   is    
permitted  in  Sections  23(2)  and  28(2)  of  Article  VI  of   Memorandum   circulars   are   "acts   of   the   President  
the  Constitution.     on  matters  relating  to  internal  administration  which  
  the  President  desires  to  bring  to  the  attention  of  all  
Section  23(2)  provides  that  "In  times  of  war  or  other   or  some  of  the  departments,  agencies,  bureaus  or  
national   emergency,   the   Congress   may,   by   law,   offices   of   the   Government,   for   information   or  
authorize   the   President,   for   a   limited   period   and   compliance."  
subject   to   such   restrictions   as   it   may   prescribe,   to    
exercise  powers  necessary  and  proper  to  carry  out  a   General   or   specific   orders   are   "acts   and   commands  
declared  national  policy.  Unless  sooner  withdrawn   of  the  President  in  his  capacity  as  Commander-­‐in-­‐  
by   resolution   of   the   Congress,   such   powers   shall   Chief  of  the  Armed  Forces  of  the  Philippines."    
cease  upon  the  next  adjournment  thereof."  Section    
28(2)   states   that   "'The   Congress   may,   by   law,   Delegation  of  legislative  power:  Supreme  Court.    
authorize  the  President  to  fix  within  specified  limits,   The   Constitution   vests   in   the   Supreme   Court   the  
and  subject  to  such  limitations  and  restrictions  as  it   power   to   "Promulgate   rules   concerning   the  
may  impose,  tariff  rates,  import  and  export  quotas,   protection  and  enforcement  of  constitutional  rights,  
tonnage   and   wharfage   dues,   and   other   duties   or   pleadings,  practice,  and  procedure  in  all  courts,  the  
imposts   within   the   framework   of   the   national   admission  to  the  practice  of  law,  the  Integrated  Bar,  
development  program  of  the  Government."     and   legal   assistance   to   the   underprivileged.   Such  
  rules   shall   provide   a   simplified   and   inexpensive  
Administrative   Code   of   1987   also   delegates   to   the   procedure   for   the   speedy   disposition   of   cases,   shall  
President  certain  ordinance  powers,  in  the  form  of   be  uniform  for  all  courts  of  the  same  grade,  and  shall  
presidential   issuances.   Presidential   issuances   are   not  diminish,  increase,  or  modify  substantive  rights.  
those  which  the  President  issues  in  the  exercise  of   Rules   of   procedure   of   special   courts   and   quasi-­‐
his   ordinance   power:   such   as   –   executive   orders,   judicial   bodies   shall   remain   effective   unless  
administrative   orders,   proclamations,   disapproved  by  the  Supreme  Court."    
memorandum  orders,  memorandum  circulars,  and    
general  or  special  orders.      
   
The   rule-­‐making   power   of   the   Supreme   Court   as   The   sangguniang   panlalawigan,   as   the   legislative  
provided  in  Sec.  5(5),  Article  VIII  of  the  Constitution   body  of  a  province,  may  by  a  vote  of  a  majority  of  
is   complemented   by   Sec.   30,   Article   VI   of   the   the  members  present,  there  being  a  quorum,  enact  
Constitution,  'which  provides  that  "No  law  shall  be   ordinances   affecting   the   province.   The   ordinance   is  
passed   increasing   the   appellate   jurisdiction   of   the   then   forwarded   to   the   governor   (15   days   to   act,  
Supreme   Court   as   provided   in   this   Constitution   same  rules  apply)  
without  its  advice  and  concurrence."      
  Delegation  as  exception  to  restriction  thereon.    
Delegation  legislative  power:  local  governments.     The   prohibition   against   delegation   of   legislative  
The  Constitution  created  legislative  bodies  of  local   power   does   not   embrace   every   power   the  
governments   and   granted   each   local   government   legislature   may   properly   exercise.   What   the  
unit   the   “power   to   create   its   own   sources   of   doctrine   of   separation   of   powers   precludes   is   the  
revenues   and   to   levy   taxes,   fees,   and   charges   delegation   of   those   powers   which   are   inherent   in  
subject   to   such   guidelines   and   limitations   as   the   the  legislative  branch.    
Congress   may   provide,   consistent   with   the   basic    
policy  of  local  autonomy."     What   are   these   exclusive   powers?   The   power   to  
  declare   whether   or   not   there   shall   be   a   law,   to  
Section   48   of   the   Local   Government   Code   of   1991   determine   the   general   purpose   or   policy   to   be  
provides   that   "Local   legislative   power   shall   be   achieved   by   the   law,   and   to   fix   the   limits   within  
exercised  by  the  sangguniang  panlalawigan  for  the   which   the   law   shall   operate   is   a   power   which   is  
province;  the  sangguniang  panlungsod  for  the  city;   vested  in  the  legislature  and  may  not  be  delegated.  
the  sangguniang  bayan  for  the  municipality;  and  the    
sangguniang  barangay  for  the  barangay."     The  delegation  to  administrative  agencies  of  some  
  of  the  legislative  power  is  necessary,  particularly  in  
A   barangay   ordinance   is   subject   to   review   by   the   modern   regulatory   enactments   in   which   the  
sangguniang   bayan   or   sangguniang   panlungsod,   as   legislature  is  incapable  of  defining  the  multitudinous  
the   case   may   be,   to   determine   whether   it   is   details.    
consistent   with   law   or   with   municipal   or   city    
ordinance  (30  days  to  decide,  approved  by  inaction).     Trend  in  delegation  of  legislative  power.    
  The   latest   in   our   jurisprudence   indicates·∙   that  
The   power   to   enact   municipal   ordinance   is   lodged   delegation  of  legislative  power  has  become  the  rule  
with  the  sangguniang  bayan.  The  affirmative  vote  of   and   its   non-­‐delegation   the   exception.   The   reason   is  
a   majority   of   the   members   of   the   sangguniang   the  increasing  complexity  of  modern  life  and  many  
bayan   present   and   voting,   there   being   a   quorum,   technical   fields   of   governmental   functions.   This   is  
shall  be  necessary  for  the  passage  of  any  ordinance.   coupled  by  the  growing  inability  of  the  legislature  to  
The   ordinance   is   then   submitted   to   the   municipal   cope  directly  with  the  many  problems  demanding  its  
mayor   (10   days   to   act,   approved   by   inaction)   If   attention.    
vetoed,  same  rule  applies,  can  be  override  by  2/3  of    
the  members  of  the  SB.     Rule-­‐making  power,  generally.    
  The   term   "rule"   means   any   administrative   agency  
The   approved   ordinance   is   then   submitted   to   the   statement  of  general  applicability  that  implements  
sangguniang   panlalawigan   for   review.   The   or   interprets   a   law,   fixes   and   describes   the  
sangguniang   panlalawigan   may,   within   thirty   days   procedures   in,   or   practice   requirements   of,   an  
from  receipt  of  the  ordinance,  invalidate  it  in  whole   agency   not   affecting   the   rights   of,   or   procedure  
or  in  part,  and  its  action  shall  be  final.  (30  days  to   available  to,  the  public.    
act,  approved  by  inaction)    
   
   
   
"Rule-­‐making"   means   any   agency   process   for   the   of   rights,   privileges   and   duties   by   an   administrative  
formulation,  amendment,  or  repeal  of  a  rule.  Rule-­‐ agency  resulting  in  a  decision  or  order  which  applies  
making   power   of   administrative   agencies   refers   to   to   specific   situations   or   to   specific   persons   or  
the   power   to   issue   rules   and   regulations   which   entities,   or   pertains   exclusively   to   a   named   entity  
result   from   delegated   legislation   in   the   and  to  no  other  and  is  premised  on  a  finding  of  facts  
administrative  level.     or  on  a  report  of  its  inspector  on  which  the  order  is  
  based.    
Rules  and  regulations  promulgated  in  pursuance  of    
the   authority   conferred   upon   the   administrative   Smart  Communications  vs.  National  Telecomm.  
agency   by   law,   partake   of   the   nature   of   a   statute.   What   is   required   in   the   exercise   of   quasi-­‐
They  have  the  force  and  effect  of  law.  The  reason  is   legislative   power?   It   is   required   that   the  
that  statutes  are  usually  couched  in  general  terms,   regulation   be   germane   to   the   objects   and  
the  details  and  the  manner  of  carrying  out  the  law   purposes   of   the   law,   and   be   not   in  
are  oftentimes  left  to  the  administrative  agency.   contradiction  to,  but  in  conformity  with,  the  
  standards   prescribed   by   law.   They   must  
Distinguished  from  administrative  function.     conform   to   and   be   consistent   with   the  
It   has   been   held   that   administrative   functions   are   provisions   of   the   enabling   statute   in   order  
those  which  involve  the  regulation  and  control  over   for  such  rule  or  regulation  to  be  valid.    
the   conduct   and   affair   of   individuals   for   their   own    
welfare   and   the   promulgation   of   rules   and   What   is   quasi-­‐judicial   power?   This   is   the  
regulations   to   better   carry   out   the   policy   of   the   power   to   hear   and   determine   questions   of  
legislature.   It   has   been   said   that   while   legislation   fact  to  which  the  legislative  policy  is  to  apply  
and   administration   are   distinct   powers,   the   line   and   to   decide   in   accordance   with   the  
which  separates  their  exercise  is  not  clearly  marked   standards   laid   down   by   the   law   itself   in  
or   easily   defined,   and   that   their   definition   in   enforcing  and  administering  the  same  law.    
practical   application   lies   the   difference   between    
government   by   legislation   and   government   by   In   questioning   the   validity   or  
bureaucracy.     constitutionality   of   a   rule   or   regulation  
  issued  by  an  administrative  agency,  a  party  
Distinguished  from  quasi-­‐judicial  power.     need   not   exhaust   administrative   remedies  
Rule-­‐making   power   and   quasi-­‐judicial   power   IS   before  going  to  court.  This  principle  applies  
different,   the   distinction   being   determined   by   the   only   where   the   act   of   the   administrative  
character   of   the   proceedings   rather   than   the   agency  concerned  was  performed  pursuant  
character  of  the  body  conducting  the  proceedings.   to  its  quasi-­‐judicial  function,  and  not  when  
The   fact   that   a   body   which   acts   in   a   legislative   the   assailed   act   pertained   to   its   rule-­‐making  
capacity   has   judicial   power   does   not   change   the   or  quasi-­‐legislative  power  (cognizable  by  the  
character  of  the  legislative  act.     courts,  doctrine  of  primary  jurisdiction  is  not  
  applicable).    
The  rule-­‐making  power  differs  from  judicial  power,    
or  legislation  from  adjudication,  in  that  basically  or   In   like   manner,   the   doctrine   of   primary  
usually  a  quasi-­‐legislative  act  operates  in  the  future,   jurisdiction   applies   only.   where   the  
rather  than  on  past  transactions  and  circumstances,   administrative   agency   exercises   its   quasi-­‐
and  generally,  rather  than  particularly.     judicial   or   adjudicatory   function.   Thus,   in  
  cases   Involving   specialized   disputes,   the  
The  rules  and  regulations  issued  in  the  exercise  of   practice   has   been   to   refer   the   same   to   an  
rule-­‐making   power   are   of   general   applicability   administrative   agency   of   special  
issued   by   the   administrative   agency   to   implement   competence   pursuant   to   the   doctrine   of  
its   purely   administrative   policies   and   function.   On   primary  jurisdiction    
the  other  hand,  adjudication  means  a  determination    
Right  to  notice  and  hearing  distinguishing  feature.     The   ascertainment   of   what   the   law   shall   be   is   a  
An  important  distinguishing  feature  between  quasi-­‐ prerogative   of   the   legislature.   This   prerogative  
legislative   and   quasi-­‐judicial   or   adjudication   is   the   cannot   be   abdicated   nor   surrendered   by   the  
requirement   of   notice   and   hearing   in   the   latter,   legislature   to   the   delegate,   without   rendering   the  
which  is  not  necessary  in  the  former.     statute  delegating  it  unconstitutional.    
   
  What  may  be  delegated  
Kinds  of  Rule-­‐Making  Power   It  can  delegate  the  discretion  as  t  how  the  law  shall  
Three  types:   be   enforced,   to   issue   rules   to   fill   in   details,   to  
ü   Rule-­‐making   by   reason   of   particular   ascertain   facts   on   which   the   law   will   operate,   to  
delegation  of  authority   exercise  police  power,  and  to  fix  rates.  To  be  valid,  
ü   Rule-­‐making   by   the   construction   and   the   delegation   has   to   pass   the   completeness   and  
interpretation   of   a   statute   being   sufficiency  of  standard  tests.    
administered  and;    
ü   Determination   of   facts   under   a   delegated   There  are  two  accepted  tests  to  determine  whether  
power   as   to   which   a   statute   shall   go   into   or   not   there   is   a   valid   delegation   of   legislative  
effect.     power,   viz.,   the   completeness   test   and   the  
  sufficient  standard  test.    
The   first   refers   to   the   power   to   issue   rules   and    
regulations  which  have  the  force  and  effect  of  law.     Under  the  completeness  test,  the  law  must  
  be  complete  in  all  its  terms  and  conditions  
The   second   refers   to   the   power   of   administrative   when   it   leaves   the   legislative   such   that  
agencies   to   interpret   and   construe   the   statutes   when  it  reaches  the  delegate  the  only  thing  
entrusted  to  them  for  implementation.     he  will  have  to  do  is  to  enforce  it.    
   
The   interpretation   is   of   three   kinds:   (1)   Under   the   sufficient   standard   test,   there  
interpretation  as  incident  of  the  execution  of   must  be  adequate  guidelines  or  limitations  
a  law;  (2)  interpretation  handed  down  by  the   in  the  law  to  map  out  the  boundaries  of  the  
Secretary   of   Justice   upon   request   of   a   delegate’s   authority   and   prevent   the  
government   agency   or   official;   and   (3)   delegation  from  running  riot.    
interpretation  in  adversary  proceedings.      
  Note:  A  statute  may  be  complete  when  the  subject,  
Third   type   of   rule-­‐making   power   refers   to   the   the   manner,   and   the   extent   of   its   operation   are  
ascertainment  of  facts  which  will  form  the  basis  for   stated  in  it.  
the  enforcement  of  a  statute.      
  When  standard  sufficient.  
  The   Court   has   upheld   as   adequate   standards  
B.  DELEGATION  OF  LEGISLATIVE  POWER   simplicity   and   dignity,   public   interest,   public  
  welfare…  
Delegation  of  legislative  power  refers·∙  to  the  grant    
of   authority   by   the   legislature   to   administrative   There  is  no  uniform  application  of  standard.  
agencies  to  issue  rules  and,  regulations  concerning    
how  the  law  entrusted  to  them  for  implementation   Standard  fixed  cannot  be  enlarged  nor  restricted.    
may  be  enforced.  ‘Power  of  subordinate  legislation’   Where   the   law   sets   the   standards   by   which   the  
  delegate   may   exercise   the   delegated   power,   the  
What  cannot  be  delegated   executive   or   administrative   agency   concerned  
Those  that  are  purely  legislative  in  nature  –  power   cannot  add  thereto  and  justify   the  exercise   of   the  
to  make  the  law,  or  to  determine  what  the  law  shall   delegated   power   on   the   basis   of   all   such   enlarged  
be,  and  to  alter  or  repeal  it.     standards.    
When  standard  insufficient   Regulations  cannot  restrict  nor  enlarge  the  law.    
A   statute   which   prescribes   no   or   inadequate   "It   is   a   fundamental   rule   that   implementing   rules  
standard  for  the  exercise  of  a  delegated  legislative   CANNOT  add  to  or  detract  from  the  provisions  of  the  
power   and   the   rules   issued   by   an   administrative   law  it  is  designed  to  implement.  
agency   to   implement   the   law   are   null   and   void.   For    
Congress  in  failing  to  provide  adequate  standard  has   The   rule   may   thus   be   re-­‐stated   that   that   the  
abdicated   its   legislative   power,   and   the   issuance   of   an   administrative   rule   or   regulation  
administrative  agency  has  issued  the  rules  without   must   be   in   harmony   with   the   enabling   law.   If   a  
legal  basis.     discrepancy   occurs   between   the   basic   law   and   an  
  implementing  rule  or  regulation,  it  is  the  former  that  
Remember:  Ynot  vs.  IAC  –  carabeef   prevails.    
…The  phrase  "may  see  fit"  is  an  extremely  generous    
and  dangerous  condition,  if  condition  it  is.  It  is  laden   Rules  must  be  reasonable.    
with  perilous  opportunities  for  partiality  and  abuse,   To  be  valid,  the  rules  and  regulations  must  also  be  
and  even  corruption.     reasonable  and  fairly  adopted  to  secure  the  end  in  
  view.  If  shown  to  bear  no  reasonable  relation  to  the  
Usual  issues  on  validity  of  delegation.     purposes  for  which  they  are  authorized  to  be  issued,  
The   usual   Issues   concerning   the   validity   of   the   then  they  must  be  held  to  be  invalid.    
delegation   of   legislative   power   that   may   be   raised    
are:   firstly,   against   the   delegating   statute   itself;   Lupangco   Case   –   unreasonable   and   violative   of  
and   secondly,   against   the   exercise   of   the   delegated   academic  freedom;  prohibition  on  review  materials  
power.     three-­‐days  prior  to  examination;  PRC  resolution.  
   
The  first  refers  to  the  question  as  to  whether  or  not   Resolution  No.  105  is  not  only  unreasonable  
the   requisites   of   valid   delegation   are   present,   and   arbitrary;   it   also   infringes   on   the  
namely:  the  completeness  of  the  statute  making  the   examinees  right  to  liberty  guaranteed  by  the  
delegation,   and   the   presence   of   a   sufficient   Constitution.   Respondent   PRC   has   no  
standard.  If  any  one  of  these  requisites  is  absent,  the   authority   to   dictate   on   the   reviewees   as   to  
statute  making  the  delegation  is  unconstitutional.     now  they  should  prepare  themselves  for  the  
  licensure  examinations…  
The  second  pertains  to  the  question  as  to  whether    
or  not  the  rule  or  regulation  conforms  with  what  the   Rules  constituting  an  offense.    
statute   provides   and   whether   the·∙   same   is   Administrative   bodies   have   the   authority   to   issue  
reasonable.     administrative  regulations  which  are  penal  in  nature  
  where   the   Jaw   itself   makes   the   violation   of   the  
A  delegating  statute  may  meet  all  the  requisites  of  a   administrative   regulation   punishable   and   provides  
valid  delegation,  but  the  rule  issued  in  the  exercise   for  its  penalty.  The  regulations  may  then  validly  spell  
of  the  delegated  authority  may  suffer  infirmity     out  the  details  of  the  offense    
   
  On   the   other   hand,   where   a   law   empowering   an  
Rules  or  regulations,  generally.     administrative  agency  to  issue  rules  and  regulations.  
Rules   and   regulations   are   the   product   of   does  not  provide  that  violation  of  such  rules  shall  be  
subordinate   legislation.   If   valid,   the   rules   and   unlawful  and  punishable  or  even  if  it  does,  it  does  
regulations  issued  by  the  administrative  agencies  to   not   prescribe   the   penalty   for   such   violation,   the  
implement   the   law   have   the   force   and   effect   of   a   administrative  agency  tasked  to  execute  the  law  ha$  
law.     no   power   to   penalize   violation   of   its   rules   and  
  regulations    
   
   
When  rules  take  effect   become  effective  fifteen  (15)  days  from  the  
Section  18,  Book  I  of  the  1987  Administrative  Code   date   of   filing   as   above   provided   unless   a  
modified  Sec.  2  of  the  Civil  Code  when  it  provided   different   date   is   fixed   by   law,   or   specified   in  
that   "Laws   shall   take   effect   after   fifteen   (15)   days   the   rule   in   cases   of   imminent   danger   to  
following   the   completion   of   their   publication   in   the   public   health,   safety   and   welfare,   the  
Official   Gazette   or   in   a   newspaper   of   general   existence   of   which   must   be   expressed   in   a  
circulation,   unless   it   is   otherwise   provided."   The   statement  accompanying  the  rule.    
phrase  "otherwise  provided"  means  that  a  shorter    
or   longer   period   may   be   fixed   by   law   from   …  
publication,  when  the  law  will  take  effect.      
  Delegation  to  ascertain  facts.    
Note:   interpretative   regulations   and   those   Congress  may  delegate  to  an  administrative  agency  
merely  internal  in  nature,  that  is,  regulating   the  power  to  ascertain  facts  as  basis  to  determine  
only   the   personnel   of   the   administrative   when  law  may  take  into  effect  or  whether  a  law  may  
agency   and   not   the   public,   need   not   be   be  suspended  or  come  to  an  end.  This  is  a  delegation  
published.  Neither  is  publication  required  of   of  how  a  law  will  be  enforced  which  is  permissible.  
the  so-­‐called  letters  of  instructions      
  Prohibition  against  re-­‐delegation;  exceptions.    
Note2:  …even  the  charter  of  a  city  must  be   One   restriction   on   the   delegation   of   legislative  
published  notwithstanding  that  it  applies  to   power   is   the   doctrine   of   potestas   delegata   non  
only   a   portion   of   the   national   territory.   All   delegari  protest.  What  has  been  delegated  cannot  
presidential   decrees   must   be   published,   be  delegated.  This  doctrine  is  based  on  the  ethical  
including   even,   say,   those   naming   a   public   principle   that   such   a   delegated   power   constitutes  
place  after  a  favored  individual  or  exempting   not  only  a  right  but  a  duty  to  be  performed  by  the  
him   from   certain   prohibitions   or   delegate   through   the   instrumentality   of   his   own  
requirements.   Parenthetically,   municipal   judgment  and  not  through  the  intervening  mind  of  
ordinances  are  not  covered  by  this  rule  but   another.    
by  the  Local  Government  Code.      
  As   a   rule,   a   delegated   power   cannot   be   delegated  
Tanada  v  Tuvera  –  “…publication  must  be  in   but  must  be  exercised  by  the  person  or  body  tasked  
full   or   it   is   no   publication   at   all   since   its   by  law  to  exercise  it.    
purpose   is   to   inform   the   public   of   the    
contents  of  the  law”   Exceptions:  
  …  power  conferred  upon  an  administrative  agency  
Apart  from  publication,  it  is  also  required  that  the   to   which   the   (1)   administration   of   a   statute   is  
rules   and   regulations   be   filed   with   the   U.P.   Law   entrusted  may  be  an  adequate  source  of  authority  
Center  of  the  University  of  the  Philippines.     to  delegate  a  particular  function,  unless  by  express  
  provisions  of   the   Act  or   by   implication  it   has   been  
Chapter   2   of   Book   VII   of   the   1987   Administrative   withheld.   This   subdelegation   of   power   has   been  
Code  provides:     justified   by   sound   principles   of   organization   which  
  demand  that  those  at  the  top  be  able  to  concentrate  
Sec.  3  –  Filing;  Every  agency  shall  file  with  the   their  attention  upon  the  larger  and  more  important  
University   of   the   Philippines   Law   Center   questions  of  policy  and  practice    
three   (3)   certified   -­‐   copies   of   every   rule    
adopted  by  it…   (2)  Thus,  while  the  power  to  decide  resides  solely  in  
  the  administrative  agency  vested  by  law,  this  does  
Sec.  4.  Effectivity.  -­‐  In  addition  to  other  rule-­‐ not   preclude   a   delegation   of   the   power   to   hold   a  
making   requirements   provided   by   law   not   hearing   on   the   basis   of   which   the   decision   of   the  
inconsistent   with   this   Book,   each   rule   shall   administrative  agency  will  be  made.    
(3)   Neither   does   due   process   of   law   nor   the   C.  CONTEMPORARY  CONSTRUCTION  
requirements  of  fair  hearing  require  that  the  actual    
taking  of  testimony  be  before  the  same  officer  who   Administrative  rule,  interpretation  distinguished.    
will  make  the  decision  in  the  case.  In  short,  there  is   When   an   administrative   agency   promulgates   rules  
no   abnegation   of   responsibility   on   the   part   of   the   and   regulations,   in   the   exercise   of   its   rule-­‐making  
officer   concerned   as   the   actual   decision   remains   power   delegated   to   it   by   the   legislature,   it   "makes"  
with  and  is  made  by  said  officer.     a  new  law  with  the  force  and  effect  of  a  valid  law,  
  while   when   it   renders   an   opinion   or   gives   a  
Delegation  of  rate-­‐fixing  power.     statement   of   policy,   it   merely   interprets   a   pre-­‐
The   legislature   usually   delegates   its   rate-­‐fixing   existing  law.    
power  to  administrative  agencies  for  the  latter  to  fix    
the  rates  which  public  utility  companies  may  charge   The   rules   promulgated   pursuant   to   law   are   binding  
the  public.     on   the   courts,   even   if   they   are   not   in   agreement  
  with   the   policy   stated   therein   or   with   its   innate  
The   statute   making   the   delegation   must   be   wisdom.   On   the   other   hand,   administrative  
complete  and  must  fix  a  sufficient  standard.  In  case   interpretation   of   the   law   is   at   best   merely   advisory,  
of   a   delegation   of   rate-­‐fixing   power,   the   only   for  it  is  the  courts  that  finally  determine  what  the  
standard   which   the   legislature   is   required   to   law  means.    
prescribe   for   the   guidance   of   the   administrative    
authority  is  that  the  rate  be  reasonable  and  Just.     When  is  a  rule  considered  a  law  and  when  is  it  a  
  mere  interpretation  of  the  law?  "A  rule  is  binding  
The   function   of   prescribing   rates   by   an   on  the  courts  so  long  as  the  procedure  fixed  for  its  
administrative  agency  may  be  either  a  legislative  or   promulgation  is  followed  and  its  scope  is  within  the  
an   adjudicative   function.   If   it   were   a   legislative   statutory   authority   granted   by   the   legislature,   even  
function,  the  grant  of  prior  notice  and  hearing  to  the   if   the   courts   are   not   in   agreement   with   the   policy  
affected  parties  is  not  a  requirement  of  due  process.     stated   therein   or   its   innate   wisdom.   On   the   other  
  hand,  administrative  interpretation  of  the  law  is  at  
When   the   rules   and/or   rates   laid   down   by   an   best   merely   advisory,   for   it   is   the   courts   that   finally  
administrative   agency   are   meant   to   apply   to   all   determine  what  the  law  means.    
enterprise   of   a   given   kind   throughout   the   country,    
they  may  partake  of  a  legislative  character.  Where   Executive  construction,  generally;  kinds  of.    
the  rules  and  the  rates  imposed  apply  exclusively  to   What  is  commonly  understood,  and  usually  referred  
a  particular  party,  based  upon  a  finding  of  fact,  then   to,   as   contemporaneous   construction   is   the  
its  function  is  quasi-­‐judicial  in  character.     construction  placed  upon  the  statute  by  an  executive  
  or  administrative  officer  called  upon  to  execute  or  
Note:  Quasi-­‐Legis  –  no  need  for  notice  and  hearing;   administer  such  statute.    
Quasi-­‐Judicial  –  required.    
  There  are  three  types  of  executive  interpretations  
  of   the   law.   The   first   is   the   construction   by   an  
Power  to  fix  rate  cannot  be  re-­‐delegated.     executive  or  administrative  officer  directly  called  to  
The  power  delegated  to  a  administrative  agency  to   implement  the  law.  It  may  be  express  or  implied.  An  
fix  rates  cannot,  in  the  absence  of  a  law  authorizing   interpretation   embodied   in   a   circular,   directive   or  
it,  be  delegated  to  another.     regulation  is  an  express  interpretation.  A  practice  or  
  mode  of  enforcement  of  not  applying  the  statute  to  
  certain   situations   or   of   applying   it   in   a   particular  
  manner   is   an   implied   interpretation;   it   is  
  interpretation  by  usage  or  practice.    
   
   
The  second  type  is  the  construction  by  the  Secretary   administrative  officer  charged  with  its  enforcement  
of  Justice  in  his  capacity  as  the  chief  legal  adviser  of   will  be  adopted,  if  necessary  to  resolve  the  doubt.  
the  government.  It  is  in  the  form  of  opinions  issued    
upon  request  of  administrative  or  executive  officials   An   administrative   construction   is   not   necessarily  
who   enforce   the   law.   The   third   kind   of   binding   upon   the   courts.   An   action   of   an  
contemporaneous   construction   is   the   administrative  agency  may  be  disturbed  or  set  aside  
interpretation   handed   down   in   an   adversary   by  the  judicial  department  if  there  is  an  error  of  law,  
proceeding  in  the  form  of  a  ruling  by  an  executive   or  abuse  of  power    
officer  exercising  quasi-­‐judicial  power.      
  An  administrative  body  has  the  power  to  interpret  
  its  own  rule  and  such  interpretation  becomes  part  
Forms  of  interpretation.     of   the   rule   itself.   Unless   shown   to   be   erroneous,  
The  construction  or  interpretation  by  administrative   unreasonable   or   arbitrary,   such   interpretation   is  
or  executive  agencies  may  take  many  forms,  which   entitled  to  recognition  and  respect  from  the  courts,  
may  be  in  the  form  of  rules,  circulars,  opinions,  and   as  no  one  is  better  qualified  to  interpret  the  intent  
directives.   They   are   sometimes   comprehended   of  the  regulation  than  the  authority  that  issued  it.    
within  the  term  "administrative  practice."  The  term    
"administrative   practice"   includes   any   formal   or   Reasons   why   contemporaneous   construction   is  
informal  act  of  the  administrative  agency  by  which   given  much  weight.    
it   construes,   interprets,   or   applies   the   law.   In   the    
absence   of   a   previous   judicial   interpretation   of   a   ü   the   respect   due   the   government   agency   or  
statute   by   the   Supreme   Court,   courts   will   accord   officials  charged  with  the  implementation  of  
weight   to   construction   by   administrative   or   the   law,   their   competence,   expertness,  
executive  departments  of  the  government.     experience,  and  informed  judgment    
  ü   the  agency  is  the  one  which  the  legislature  
The  rule  is  that  the  formal  or  informal  interpretation   must   rely   to   advise   it   as   to   the   practical  
or   practical   construction   of   an   ambiguous   or   working  out  of  the  statute  
uncertain   statute   or   law   by   the   executive   ü   and   practical   application   of   the   statute  
department   or   other   agency   charged   with   its   presents   the   agency   with   unique  
administration   or   enforcement   is   entitled   to   opportunity  and  experiences  for  discovering  
consideration   and   the   highest   respect   from   the   deficiencies,  inaccuracies,  or  improvements  
courts,  and  must  be  accorded  appropriate  weight  in   in  the  statute.    
determining   the   meaning   of   the   law,   especially   ü   people  will  go  on  living  and  transactions  will  
when:   be   concluded   under   the   statute   while   its  
ü   the   construction   or   interpretation   is   long   construction  is  not  being  questioned.  
continued   and   uniform   or   is    
contemporaneous  with  the  first  workings  of   The  legislature  is  presumed  to  have  full  knowledge  
the  statute     of  a  construction  of  a  statute.  The  legislature  may,  
ü   the  enactment  of  the  statute  was  suggested   by   action   (reenactment)   or   inaction   (silence),  
by  such  agency     approve   or   ratify   such   contemporaneous  
ü   the   construction   has   received   implied   construction;  may  also  be  shown  by  the  legislature  
legislative   approval   by   failure   to   change   a   appropriating  money    
long  standing  administration  interpretation      
When  contemporaneous  construction  disregarded.    
Weight  accorded:  contemporaneous  construction.     No   ambiguity;   Construction   is   clearly   erroneous;  
Generally  speaking,  where  there  is  doubt  as  to  the   strong   reason   to   the   contrary   exists;   when   the  
proper   interpretation   of   a   statute,   the   uniform   courts   have   previously   given   the   statute   an  
construction   placed   upon   it   by   the   executive   or   interpretation.  
 
Erroneous   construction   creates   no   rights;   Distinguished  from  quasi-­‐legislative:  
exceptions   Quasi-­‐adjudication   refers   to   a   determination   of  
As   a   rule,   an   erroneous   contemporaneous   rights,   privileges   and   duties   by   an   administrative  
construction  creates  no  vested  right  on  the  part  of   agency   resulting   in   a   decision   or   order   affecting   a  
those   who   relied   upon,   and   followed,   such   named   person   and   becoming   final   and   executory  
construction.     after  a  lapse  of  period.  
   
Consequently,   those   who   benefited   from   the   Recall   above   discussions:   notice   and   hearing   and  
erroneous  contemporaneous  construction  may  not   applicability.  Another  important  distinction  is  as  to  
prevent  correction  of  such  construction,  nor  excuse   remedy:   decision   of   quasi-­‐judicial   agency   in   the  
themselves  from  complying  with  the  construction  as   exercise  of  its  quasi-­‐judicial  power  -­‐>  CA;  while  an  
corrected;   nor   can   they   set   up   such   error   as   legal   action  to  challenge  the  rules  and  regulations  issued  
obstacle   against   recovery   from   them   of   what   they   by  an  administrative  agency  to  implement  the  law  is  
received   pursuant   to,   and   on   the   basis   of,   the   filed  with  the  RTC.  
erroneous  application  of  law.  (Exception:  Tax  Cases)    
  Reason  for  creation  of  quasi-­‐judicial  agencies  
  Growing   complexity   of   modern   society.   There   is   a  
CHAPTER  V  –  QUASI  JUDICIAL  POWERS   need   for   the   active   intervention   of   agencies   in  
  matters  calling  for  technical  knowledge  and  speed.  
Quasi-­‐Judicial   –   actions   or   discretions   of   public   Unclogging  of  court  dockets.  
administrative   officers   or   bodies   required   to    
investigate   facts,   or   ascertain   facts,   hold   hearings,   Voluntary  arbitrator  a  quasi-­‐judicial  officer  
and  draw  conclusions  from  them,  as  basis  for  their   Arbitration  –  reference  of  a  dispute  to  an  impartial  
official  action  and  to  exercise  discretion  of  a  judicial   third   person   for   determination   on   the   basis   of  
nature.  Note:  Public  prosecutor  -­‐  executive   evidence   and   arguments   presented   by   the   parties  
  who  have  bound  themselves  to  accept  the  decision.  
Quasi-­‐Judicial   Body   –   organ   of   government,   other    
than   a   court   and   other   than   a   legislature,   which   Voluntary  arbitration  –  voluntary  arbitration  
exercises  adjudicative  power  affecting  the  rights  of   agreement.  
private  persons.     Involuntary   arbitration   –   compelled   by   the  
  Gov’t  to  accept.    
Quasi-­‐Judicial  Adjudication      
This  function  requires:   JURISDICTION  
ü   previously  established  rules  and  principles    
ü   concrete   facts,   whether   past   or   present,   -­‐power  and  capacity  conferred  by  Constitution  or  by  
affecting  determinate  individuals;     law   to   a   court   or   tribunal   to   entertain,   head   and  
ü   decision   as   to   whether   these   facts   are   determine   certain   controversies,   and   render  
governed  by  the  rules  and  principles.   judgment  thereon.    
   
Adjudication   –   an   agency   process   for   the   Jurisdiction  could  be  over  the  nature  of  the  action,  
formulation   of   a   final   order,   which   presupposes   over  the  subject  matter,  or  over  the  issues  framed  
compliance   with   such   requirements   before   such   in  the  pleadings  or  over  the  person  of  the  parties.  
final  order  is  issued.    
  Jurisdiction   over   the   petitioner   is   acquired   by   the  
Distinguished  form  administrative  function:   filing  of  initiatory  pleading  and  paying  of  docket  fees  
The   function   must   be   adjudicative   for   it   to   be   while  jurisdiction  over  the  respondent  is  acquired  by  
considered  as  quasi-­‐judicial.     the   service   of   summons   or   by   his   voluntary  
  submission  to  the  authority  of  the  court.  
   
Extent  of  Jurisdiction  
Rule:   administrative   body   to   which   quasi-­‐judicial  
power   has   been   delegated   is   a   tribunal   of   limited  
jurisdiction  and  such  it  could  wield  only  such  powers  
as   are   specifically   granted   to   it   by   its   enabling  
statute.  
 
Note:   the   grant   of   quasi-­‐judicial   power   should   not  
be  the  only  power  conferred,  but  should  instead  be  
only  incidental  to  the  administrative  agency’s  main  
task   of   implementing   the   law.   Otherwise,   the  
agency  becomes  a  specialized  court  of  justice  under  
the  judicial  branch.  
 
Estoppel  to  deny  jurisdiction.    
A  party  is  estopped  from  questioning  jurisdiction  of  
a  quasi-­‐judicial  body  when  for  instance  the  party  has  
appealed  to  such  body.  Affirmation  of  a  jurisdiction  
cannot  afterwards  be  denied.    
 
As  held  by  the  SC.  “  The  Court  frowns  upon  and  does  
not   tolerate   the   undesirable   practice   of   some  
litigants   who   submit   voluntarily   a   cause   and   then  
accepting  the  judgment  when  favorable  to  them  and  
attacking  it  for  lack  of  jurisdiction  when  adverse.”  
 
Note:  Party  cannot  take  inconsistent  positions.  
 
ADMINISTRATIVE  PROCEDURE  
 
Rules  of  Procedure.  
A   quasi-­‐judicial   body   has   the   implied   power   to  
promulgate   its   own   rules   of   procedure   for   the  
proper   exercise   of   adjudicative   power   and   for   the  
guidance  of  interested  parties.  However,  it  must  not  
diminish,  increase,  or  modify  substantive  rights  
 
Rules  subject  for  Supreme  Court  modifications  
Technical  Rules  not  applicable  
p.121