1987 Constitution a Comprehensive Reviewer-Bernas

1

PREAMBLE WE, THE SOVEREIGN FILIPINO PEOPLE, IMPLORING THE AID OF ALMIGHTY GOD, IN ORDER TO BUILD A JUST AND HUMANE SOCIETY AND ESTABLISH A GOVERNMENT THAT SHALL EMBODY OUR IDEALS AND ASPIRATIONS, PROMOTE THE COMMON GOOD, CONSERVE AND DEVELOP OUR PATRIMONY, AND SECURE TO OURSELVES AND OUR POSTERITY THE

BLESSINGS OF INDEPENDENCE AND DEMOCRACY UNDER THE RULE OF LAW AND A REGIME OF TRUTH, JUSTICE, FREEDOM, LOVE, EQUALITY AND PEACE, DO ORDAIN AND PROMULGATE THIS

CONSTITUTION.

Q.

What is the function of the Preamble in the Constitution?

A.

The Preamble is not a source of rights or of obligations. Jacobson v. Massachussetts, 197 U.S. 11, 22 (1905). Because, however, it sets down the origin, scope, and purpose of the Constitution, it is useful as an aid in ascertaining the meaning of ambiguous provisions in the body of the Constitution. It is thus a source of light.

Q.

What is the origin, scope and purpose of the Constitution as set out in the Preamble?

A.

Its origin, or authorship, is the will of the “sovereign Filipino people.” Its scope and purpose is “to build a just and humane society and to establish a government that shall embody our ideals and aspirations, promote the common good, conserve and develop our patrimony, and secure to ourselves and our posterity the blessings of independence and democracy under the rule of law and a regime of truth, justice, freedom, love, equality and peace.”

Q.

What is the significance of the use of the grammatical first person “We?”

A.

The use of the first person stresses the active and sovereign role of the Filipino people as author of the Constitution. The language thus differs from that of the 1935 Constitution which 1

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THE 1987 PHILIPPINE CONSTITUTION: A COMPREHENSIVE REVIEWER

used the third person “The Filipino people,” thereby suggesting that another power was merely announcing that the Filipinos were finally being allowed to promulgate a constitution. Q.

Why does the Constitution now say “Almighty God” instead of “Divine Providence,” as the 1935 and 1973 Constitutions did?

A.

The phrase “Almighty God” is more personal and more consonant with personalist Filipino religiosity.

Q.

What is the meaning of “common good” and how does it differ from the “general welfare” of the 1935 and 1973 Constitutions?

A.

The phrase “common good” projects the idea of a social order that enables every citizen to attain his or her fullest development economically, politically, culturally, and spiritually. The phrase “general welfare” was avoided because it could be interpreted as “the greatest good for the greatest number” even if what the greater number wants does violence to human dignity, as for instance when the greater majority might want the extermination of those who are considered inferior.

Q.

What is the significance of the specification of “equality?”

A.

It emphasizes that a major problem in Philippine society is the prevalence of gross economic and political inequalities.

Q.

What other significant addition to previous preambles does the new version have?

A.

It adds the final phrase “under the rule of law and a regime of truth, justice, freedom, love, equality and peace.” “Love” is inserted as a monument to the love that prevented bloodshed in the February Revolution. The mention of “truth” is a protest against the deception which characterized the Marcos regime. And “peace” is mentioned last as the fruit of the convergence of truth, justice, freedom, and love.

Q.

What is the import of “the rule of law?”

A.

This expresses the concept that government officials have only the authority given them by law and defined by law, and that such authority continues only with the consent of the people. The statement is: “Ours is a rule of law and not of men.”

RESOLUTION OF THE COURT EN BANC DATED OCTOBER 15, 1991

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ARTICLE I

THE NATIONAL TERRITORY SECTION 1. THE

NATIONAL TERRITORY COMPRISES THE

PHILIPPINE

ARCHIPELAGO, WITH ALL THE ISLANDS AND WATERS EMBRACED THEREIN, AND ALL OTHER TERRITORIES OVER WHICH THE

PHILIPPINES HAS SOVEREIGNTY

OR JURISDICTION, CONSISTING OF ITS TERRESTRIAL, FLUVIAL, AND AERIAL DOMAINS, INCLUDING ITS TERRITORIAL SEA, THE SEABED, THE SUBSOIL, THE INSULAR SHELVES, AND OTHER SUBMARINE AREAS.

THE

WATERS

AROUND, BETWEEN, AND CONNECTING THE ISLANDS OF THE ARCHIPELAGO, REGARDLESS OF THEIR BREADTH AND DIMENSIONS, FORM PART OF THE INTERNAL WATERS OF THE

PHILIPPINES.

Q.

What is the force of the assertion of a territorial claim in a constitution?

A.

It should be remembered that a constitution is municipal law. As such, it binds only the nation promulgating it. Hence, a definition of national territory in the constitution will bind internationally only if it is supported by proof that can stand in international law.

Q.

Why does the Constitution contain a definition of National Territory?

A.

Like the 1935 and 1973 Constitutions, the new Constitution defines the national territory of the Philippines. But the 1935 Constitution had a very special reason for defining the National Territory. To be effective, the 1935 Constitution had to be accepted by the President of the United States. Since at the time of the adoption of the 1935 Constitution there was still some fear that the United States government might dismember Philippine territory, the delegates to the 1935 Constitution believed that such dismemberment could be forestalled by 3

CONTENTS Preamble.......................................................................................

1

ARTICLE I – THE NATIONAL TERRITORY Section 1 .......................................................................................

3

ARTICLE II – DECLARATION OF PRINCIPLES AND STATE POLICIES Principles Section 1 ....................................................................................... Section 2 ....................................................................................... Section 3 ....................................................................................... Section 4 ....................................................................................... Section 5 ....................................................................................... Section 6 .......................................................................................

8 13 14 15 15 15

State Policies Section 7 ....................................................................................... Section 8 ....................................................................................... Section 9 ....................................................................................... Section 10 ..................................................................................... Section 11 ..................................................................................... Section 12 ..................................................................................... Section 13 ..................................................................................... Section 14 ..................................................................................... Section 15 ..................................................................................... Section 16 ..................................................................................... Section 17 ..................................................................................... Section 18 ..................................................................................... Section 19 ..................................................................................... Section 20 ..................................................................................... Section 21 ..................................................................................... Section 22 ..................................................................................... iii

15 16 17 17 17 17 18 19 20 20 20 21 21 21 21 21

Section 23 ..................................................................................... Section 24 ..................................................................................... Section 25 ..................................................................................... Section 26 ..................................................................................... Section 27 ..................................................................................... Section 28 .....................................................................................

22 22 22 22 22 22

ARTICLE III – BILL OF RIGHTS Section 1 ......................................................................................

23

Police Power......................................................................... Protected rights; life ............................................................ Right to property ................................................................. Right to liberty .................................................................... Two kinds of due process .................................................... Procedural due process in courts in non-criminal cases ... Procedural due process in administrative cases ................ Substantive due process...................................................... Equal protection ..................................................................

24 25 26 28 28 29 30 32 35

Section 2 .......................................................................................

39

Probable cause ..................................................................... Personal examination ......................................................... Particularity of description ................................................. Exclusionary rule ................................................................ Allowable warrantless searches ......................................... Warrantless arrests.............................................................

41 44 46 49 50 56

Section 3 ....................................................................................... Section 4 .......................................................................................

59 62

No prior restraint ................................................................ Commercial speech .............................................................. Subsequent punishment ..................................................... Symbolic speech ................................................................... Unprotected speech ............................................................. Libel ..................................................................................... Libel of public officials and public figures .......................... Obscenity and indecency ..................................................... Assembly and petition .........................................................

63 68 69 73 74 74 76 77 79

Section 5 .......................................................................................

82

Non-establishment of religion ............................................

83

iv

Free exercise ........................................................................

87

Section 6 ....................................................................................... Section 7 ....................................................................................... Section 8 ....................................................................................... Section 9 .......................................................................................

92 93 95 98

Taking .................................................................................. 98 Public use ............................................................................. 100 Just compensation ............................................................... 100 Judicial review..................................................................... 102 Section 10 ..................................................................................... 104 Section 11 ..................................................................................... 106 Section 12 ..................................................................................... 107 General matters................................................................... When and in what circumstances the rights are available ................................................................ Circumstances not covered ................................................. Right to be informed of his rights ....................................... Right to competent and independent counsel .................... Waiver of rights ................................................................... Admissible and inadmissible evidence ............................... Confessions and admissions ............................................... Termination of Section 12(1) rights....................................

107 109 111 112 113 117 117 118 119

Section 12(1) ................................................................................. Section 12(2) ................................................................................. Section 13 ..................................................................................... Section 14 .....................................................................................

119 120 120 127

Due process in criminal cases ............................................. Military tribunals ................................................................ Presumption of innocence ................................................... Right to be heard ................................................................. Right to counsel ................................................................... Right to be informed............................................................ Right to speedy trial ............................................................ Right to an impartial trial .................................................. Right to a public trial .......................................................... Right to meet witness face to face ...................................... Compulsory process ............................................................. Waiver of rights ...................................................................

127 128 129 131 133 135 138 140 141 142 144 145

Section 15 ..................................................................................... 145 v

Section 16 ..................................................................................... Section 17 ..................................................................................... Section 18 ..................................................................................... Section 19 ..................................................................................... Section 20 ..................................................................................... Section 21 .....................................................................................

147 148 152 153 159 161

Attachment of double jeopardy ........................................... Termination of jeopardy ...................................................... Waiver or estoppel ............................................................... Same offense ........................................................................ Appeals .................................................................................

161 163 168 169 174

Section 22 ..................................................................................... 176 ARTICLE IV – CITIZENSHIP Section 1 ....................................................................................... Section 2 ....................................................................................... Section 3 ....................................................................................... Section 4 ....................................................................................... Section 5 .......................................................................................

182 189 190 199 199

ARTICLE V – SUFFRAGE Section 1 ....................................................................................... 203 Section 2 ....................................................................................... 207 ARTICLE VI – THE LEGISLATIVE DEPARTMENT Section 1 ....................................................................................... Section 2 ....................................................................................... Section 3 ....................................................................................... Section 4 ....................................................................................... Section 5 .......................................................................................

210 218 218 218 218

Party-list system ................................................................. 220 Section 6 ....................................................................................... Section 7 ....................................................................................... Section 8 ....................................................................................... Section 9 ....................................................................................... Section 10 ..................................................................................... Section 11 ..................................................................................... vi

226 228 229 229 230 231

Section 12 ..................................................................................... Section 13 ..................................................................................... Section 14 ..................................................................................... Section 15 ..................................................................................... Section 16 ..................................................................................... Section 17 ..................................................................................... Section 18 ..................................................................................... Section 19 ..................................................................................... Section 20 ..................................................................................... Section 21 ..................................................................................... Section 22 ..................................................................................... Section 23 ..................................................................................... Section 24 ..................................................................................... Section 25 ..................................................................................... Section 26 ..................................................................................... Section 27 ..................................................................................... Section 28 ..................................................................................... Section 29 ..................................................................................... Section 30 ..................................................................................... Section 31 ..................................................................................... Section 32 .....................................................................................

234 234 235 236 236 240 245 248 248 248 253 253 255 256 258 261 266 272 275 275 275

ARTICLE VII – THE EXECUTIVE DEPARTMENT Section 1 ....................................................................................... Section 2 ....................................................................................... Section 3 ....................................................................................... Section 4 ....................................................................................... Section 5 ....................................................................................... Section 6 ....................................................................................... Section 7 ....................................................................................... Section 8 ....................................................................................... Section 9 ....................................................................................... Section 10 ..................................................................................... Section 11 ..................................................................................... Section 12 ..................................................................................... Section 13 ..................................................................................... Section 14 ..................................................................................... Section 15 ..................................................................................... Section 16 ..................................................................................... Section 17 ..................................................................................... Section 18 ..................................................................................... Section 19 ..................................................................................... vii

277 277 284 284 288 288 288 289 291 292 292 293 294 295 296 296 302 307 314

Section 20 ..................................................................................... Section 21 ..................................................................................... Section 22 ..................................................................................... Section 23 .....................................................................................

320 321 324 325

ARTICLE VIII – THE JUDICIAL DEPARTMENT Section 1 ....................................................................................... Section 2 ....................................................................................... Section 3 ....................................................................................... Section 4 ....................................................................................... Section 5 ....................................................................................... Section 6 .......................................................................................

326 331 332 332 335 336

Specific powers of the court................................................. Judicial review..................................................................... Standing ............................................................................... Taxpayer suit ....................................................................... Political questions ............................................................... Court review of capital sentences ....................................... Auxiliary powers.................................................................. Rule making.........................................................................

337 337 339 341 343 346 346 347

Section 7 ....................................................................................... Section 8 ....................................................................................... Section 9 ....................................................................................... Section 10 ..................................................................................... Section 11 ..................................................................................... Section 12 ..................................................................................... Section 13 ..................................................................................... Section 14 ..................................................................................... Section 15 ..................................................................................... Section 16 .....................................................................................

353 355 356 356 357 359 360 361 363 364

ARTICLE IX – CONSTITUTIONAL COMMISSIONS A. Common Provisions Section 1 ....................................................................................... Section 2 ....................................................................................... Section 3 ....................................................................................... Section 4 ....................................................................................... Section 5 ....................................................................................... Section 6 ....................................................................................... viii

365 365 365 365 366 366

Section 7 ....................................................................................... 367 Section 8 ....................................................................................... 370 B. The Civil Service Commission Section 1 ....................................................................................... 370 Section 2 ....................................................................................... 371 Scope of the system ............................................................. Appointments in the Civil Service...................................... Security of tenure ................................................................ Abolition of tenure ............................................................... Partisan political activity.................................................... Right to organize .................................................................

372 373 377 380 383 383

Section 3 ....................................................................................... Section 4 ....................................................................................... Section 5 ....................................................................................... Section 6 ....................................................................................... Section 7 ....................................................................................... Section 8 .......................................................................................

384 385 385 385 386 387

C. The Commission on Elections Section 1 ...................................................................................... Section 2 ....................................................................................... Section 3 ....................................................................................... Section 4 ....................................................................................... Section 5 ....................................................................................... Section 6 ....................................................................................... Section 7 ....................................................................................... Section 8 ....................................................................................... Section 9 ....................................................................................... Section 10 ..................................................................................... Section 11 .....................................................................................

389 391 402 403 405 405 406 406 407 407 408

D. The Commission on Audit Section 1 ....................................................................................... Section 2 ....................................................................................... Section 3 ....................................................................................... Section 4 .......................................................................................

ix

408 408 412 412

ARTICLE X – LOCAL GOVERNMENT General Provisions Section 1 ....................................................................................... Section 2 ....................................................................................... Section 3 ....................................................................................... Section 4 ....................................................................................... Section 5 ....................................................................................... Section 6 ....................................................................................... Section 7 ....................................................................................... Section 8 ....................................................................................... Section 9 ....................................................................................... Section 10 ..................................................................................... Section 11 ..................................................................................... Section 12 ..................................................................................... Section 13 ..................................................................................... Section 14 .....................................................................................

414 415 417 418 420 423 425 426 429 429 431 434 434 435

Autonomous Regions Section 15 ..................................................................................... Section 16 ..................................................................................... Section 17 ..................................................................................... Section 18 ..................................................................................... Section 19 ..................................................................................... Section 20 ..................................................................................... Section 21 .....................................................................................

435 436 436 437 439 440 441

ARTICLE XI – ACCOUNTABILITY OF PUBLIC OFFICERS Section 1 ....................................................................................... Section 2 ....................................................................................... Section 3 ....................................................................................... Section 4 ....................................................................................... Section 5 ....................................................................................... Section 6 ....................................................................................... Section 7 ....................................................................................... Section 8 ....................................................................................... Section 9 ....................................................................................... Section 10 ..................................................................................... Section 11 ..................................................................................... Section 12 ..................................................................................... x

442 442 443 445 447 447 448 450 450 450 450 450

Section 13 ..................................................................................... Section 14 ..................................................................................... Section 15 ..................................................................................... Section 16 ..................................................................................... Section 17 ..................................................................................... Section 18 .....................................................................................

451 455 455 455 455 456

ARTICLE XII – NATIONAL ECONOMY AND PATRIMONY Section 1 ....................................................................................... Section 2 ....................................................................................... Section 3 ....................................................................................... Section 4 ....................................................................................... Section 5 ....................................................................................... Section 6 ....................................................................................... Section 7 ....................................................................................... Section 8 ....................................................................................... Section 9 ....................................................................................... Section 10 ..................................................................................... Section 11 ..................................................................................... Section 12 ..................................................................................... Section 13 ..................................................................................... Section 14 ..................................................................................... Section 15 ..................................................................................... Section 16 ..................................................................................... Section 17 ..................................................................................... Section 18 ..................................................................................... Section 19 ..................................................................................... Section 20 ..................................................................................... Section 21 ..................................................................................... Section 22 .....................................................................................

457 458 467 471 471 473 473 473 479 479 481 484 485 485 485 485 486 486 487 489 490 490

ARTICLE XIII – SOCIAL JUSTICE AND HUMAN RIGHTS Section 1 ....................................................................................... 491 Section 2 ....................................................................................... 491 Labor Section 3 ....................................................................................... 492

xi

Agrarian and Natural Resources Reform Section 4 ....................................................................................... Section 5 ....................................................................................... Section 6 ....................................................................................... Section 7 ....................................................................................... Section 8 .......................................................................................

494 499 500 500 500

Urban Land Reform and Housing Section 9 ....................................................................................... 501 Section 10 ..................................................................................... 502 Health Section 11 ..................................................................................... 503 Section 12 ..................................................................................... 504 Section 13 ..................................................................................... 504 Women Section 14 ..................................................................................... 504 Role and Rights People’s Organizations Section 15 ..................................................................................... 504 Section 16 ..................................................................................... 504 Human Rights Section 17 ..................................................................................... 505 Section 18 ..................................................................................... 505 Section 19 ..................................................................................... 507 ARTICLE XIV – EDUCATION, SCIENCE AND TECHNOLOGY, ARTS, CULTURE, AND SPORTS Education Section 1 ....................................................................................... Section 2 ....................................................................................... Section 3 ....................................................................................... Section 4 ....................................................................................... Section 5 .......................................................................................

508 511 512 513 516

Language Section 6 ....................................................................................... 521 xii

Section 7 ....................................................................................... 521 Section 8 ....................................................................................... 523 Section 9 ....................................................................................... 523 Science and Technology Section 10 ..................................................................................... Section 11 ..................................................................................... Section 12 ..................................................................................... Section 13 .....................................................................................

523 523 523 523

Arts and Culture Section 14 ..................................................................................... Section 15 ..................................................................................... Section 16 ..................................................................................... Section 17 ..................................................................................... Section 18 .....................................................................................

524 524 524 524 524

Sports Section 19 ..................................................................................... 524 ARTICLE XV – THE FAMILY Section 1 ....................................................................................... Section 2 ....................................................................................... Section 3 ....................................................................................... Section 4 .......................................................................................

525 525 526 527

ARTICLE XVI – GENERAL PROVISIONS Section 1 ....................................................................................... Section 2 ....................................................................................... Section 3 ....................................................................................... Section 4 ....................................................................................... Section 5 ....................................................................................... Section 6 ....................................................................................... Section 7 ....................................................................................... Section 8 ....................................................................................... Section 9 ....................................................................................... Section 10 ..................................................................................... Section 11 ..................................................................................... Section 12 .....................................................................................

xiii

528 528 528 536 536 537 537 538 538 538 538 539

ARTICLE XVII – AMENDMENTS OR REVISIONS Section 1 ....................................................................................... Section 2 ....................................................................................... Section 3 ....................................................................................... Section 4 .......................................................................................

540 540 540 540

ARTICLE XVIII – TRANSITORY PROVISIONS Section 1 ....................................................................................... Section 2 ....................................................................................... Section 3 ....................................................................................... Section 4 ....................................................................................... Section 5 ....................................................................................... Section 6 ....................................................................................... Section 7 ....................................................................................... Section 8 ....................................................................................... Section 9 ....................................................................................... Section 10 ..................................................................................... Section 11 ..................................................................................... Section 12 ..................................................................................... Section 13 ..................................................................................... Section 14 ..................................................................................... Section 15 ..................................................................................... Section 16 ..................................................................................... Section 17 ..................................................................................... Section 18 ..................................................................................... Section 19 ..................................................................................... Section 20 ..................................................................................... Section 21 ..................................................................................... Section 22 ..................................................................................... Section 23 ..................................................................................... Section 24 ..................................................................................... Section 25 ..................................................................................... Section 26 ..................................................................................... Section 27 .....................................................................................

xiv

552 552 553 553 553 553 553 553 553 554 554 554 554 554 555 555 556 556 556 556 556 556 557 557 557 558 562