Statutory Construction 2016 Syllabus

STATUTORY CONSTRUCTION Instructor

Cabrera, John Patrick

Units

2

Pre-requisites

None

Instruction

Lecture, class discussion and student participation

 Assessment

60% two (2) major exams; 40% class standing

References

Statutory Construction: Cases and Materials (Jose Jesus G. Laurel) Statutory Construction (Ruben E. Agpalo)

Description

 This course deals with legal hermeneutics. It shall give the students an overview of  what the different different laws are, how they are passed and how how they will ultimately be applied applied in different situations using the strict rules of legal construction cognizant of the fact that not all laws are perfect. COURSE OUTLINE

I.

General Principles

a.

Philippine Legal System

b. Definition of Statutory Construction 1. Caltex v. Palomar (18 SCRA 247) c.

Importance of Statutory Construction

d.  Are construction construction and interpretation interpretation the same? same? e.

Object and Purpose

f.

Legislative Intent 1.  Airsporna v. CA CA (113 SCRA 459) 459) 2. China Bank v. Ortega (49 SCRA 355) 3. PVA Board v. Bautista (112 SCRA 59)

g. Nature of the Rules of Statutory Construction 1. PCFI v. NTC (G.R. No. L-63318, November 25, 1983 & August 18, 1984) -Read J. Abad dissent. h. Propriety of Construction Construction 1. NFL v. Eisma (127 SCRA 419) 2. Paat v. CA (266 SCRA 167) 3. People v. Mapa (20 SCRA 1164) 4. Leveriza v. IAC (157 SCRA 282) 5. Daoang v. Municipal Judge (159 SCRA 369)

2 6. Paras v. COMELEC (264 SCRA 49) i.

Power to Construe as a Judicial Function 1. Perfecto v. Meer (85 Phil. 552) 2. Endencia v. David (93 Phil. 696) 3. Nitafan v. CIR (152 SCRA 284)

II.

Statutory Construction v. Judicial Legislation

a.

Principle of Separation of Powers i. Rationale ii. Checks and Balances

b. Overlap of Government Functions c.

Status of SC Rulings i. Part of the law of the land ii. Principle Comparison: Stare Decisis  v. Ratio Decidendi  iii. Principle of Prospectivity

d.  What is Judicial Legislation? i. Floresca v. Philex Mining (136 SCRA 142) III.

Subjects of Construction

a.  The Constitution i. Primary Purpose ii. How the Constitution should be construed 1. Plain meaning 2. Intent of the framers 3. Interpretation as a whole 4. Cases a.

Sarmiento v. Mison (156 SCRA 549)

b. Francisco v. House of Representatives (G.R. No. 160261, November 10, 2003) c.

Chavez v. JBC (G.R. No. 202242, July 17, 2012) i. Majority decision ii.  J. Abad dissenting opinion

d. Chavez v. JBC (G.R. No. 202242, April 16, 2013) e.

Macalintal v. PET (G.R. No. 191618, November 23, 2010)

iii. Role of the Preamble 1.  Aglipay v. Ruiz (64 Phil. 201) 2. Estrada v. Escritor (A.M. No. P-02-1651)

3 a.  August 4, 2003 and June 22, 2006 decisions 3. Imbong v. Ochoa (G.R. No. 204819, April 8, 2014) 4. Gamboa v. Finance Sec. (G.R. No. 176579, October 9, 2012) 5. Narra Nickel Mining and Development Corp. v. Redmont Consolidated Mines Corp. (G.R. No. 195580, April 21, 2014) a.  J. Leonen dissenting opinion iv. Principle of Constitutional Supremacy 1.  Tawang Multipurpose Cooperative v. La Trinidad Water District (G.R. No. 166471, March 22, 2011) 2. Umali v. COMELEC (G.R. No. 203974, April 22, 2014) 3. Paras v. COMELEC (264 SCRA 49) 4. Ordillo v. COMELEC (192 SCRA 100)  v. Principle of Relative Unconstitutionality 1. Central Bank Employees Association v. Banko Sentral ng Pilipinas (G.R. No. 148208, December 15, 2004)  vi. Self-executing v. Need for Implementing Legislation 1. Gamboa v. Finance Secretary (G.R. No. 176579, June 28, 2011) 2. Gutierrez v. House of Representatives Committee on Justice (G.R. No. 193459, February 15, 2011) 3.  Agabon v. NLRC (G.R. No. 158693, November 17, 2004) 4.  Tañada v. Angara (G.R. No. 118295, May 2, 1997) 5. Manila Prince Hotel v. GSIS (G.R. No. 122156, February 3, 1997)  vii. Progressive Interpretation 1. Orceo v. COMELEC (G.R. No. 190779, March 26, 2010) b. Statutes i. Definition ii.  Types of Statutes iii. Enactment of Statutes iv. Parts of a Statute  v. Single Subject Requirement 1. Lambino v. COMELEC (G.R. No. 174153, October 25, 2006) 2. Reman Enterprises, Inc. v. Professional Regulatory Board of Real Estate Service (G.R. No. 197676, February 4, 2014)  vi. Procedure for Passing a Bill  vii. Presidential Veto

4  viii. Publication Requirements 1.  Tañada v. Tuvera (136 SCRA 27) 2.  Tañada v. Tuvera (146 SCRA 446) ix.  Validity x. Effect and Operation c.

Presidential Issuances, Rules and Ordinances i. Presidential Issuances ii. SC Circulars 1.  Jadewell Parking Systems Corp. v. Hon. Lidua (G.R. No. 169588, October 7, 2013) iii. Rules and Regulations iv.  Administrative Rule v. Interpretation 1.  Victorias Milling Co. v. SSC (G.R. No. L-16704, March 17, 1962)  v. Construction of AOs and IRRs

vis-à-vis  Statutes

1. RMBSA v. HDMF (333 SCRA 777) 2. Grego v. COMELEC (274 SCRA 481)  vi. Ordinances  vii. Construction of Ordinances vis-à-vis  Statutes 1. Solicitor General v MMA (G.R. No. 102782, December 11, 1991) 2. Magtajas v. Pryce (G.R. No. 111097, July 20, 1994) 3. Primicias v. Urdaneta (93 SCRA 462) 4. Bagatsing v. Ramirez (74 SCRA 306) IV.

 Aids to Construction

a.  Application b. Intrinsic Aids i. “Whereas” Clause as Aid 1. People v. Echavez (95 SCRA 663) 2. Llamado v. CA (G.R. No. 84850, June 29, 1989) ii. Headings 1. Kare v. Platon (G.R. No. L-35902, October 28, 1931) iii.  Arrangement and ordering 1. De Castro v. JBC (G. R. No. 191002) a.

March 17, 2010 and April 20, 2010 decisions

b.  J. Carpio-Morales dissenting opinion c.

Extrinsic Aids

5 i. Legislative History / Origin of Statute 1. United States v. Serapio (23 Phil. 584) 2. U.S. v. De Guzman (30 Phil. 416) 3. Schneckenburger v. Moran (G.R. No. L-44896, July 31, 1936) & Dissenting Opinion ii. Realities existing at the time of adoption 1. Gamboa v. Finance Sec. (G.R. No. 176579) 2.  Aquino v. COMELEC (62 SCRA 275) 3. Civil Liberties Union v. Executive Secretary (194 SCRA 317) 4. Poe-Llamanzares v. COMELEC (G.R. No. 221697, March 8, 2016) iii. Legislative Debates 1. Luz Farms v. Secretary of DAR (192 SCRA 51) 2. Montejo v. COMELEC (242 SCRA 415) 3. China Bank v. Ortega (49 SCRA 335) iv. Changes in phraseology 1. Umali v. COMELEC (G.R. No. 203974, April 22, 2014) 2. La Bugal-B’laan Tribal Assocciation, Inc. v. Ramos ( G.R. No. 127882,  January 27, 2004) 3. Dreamwork Construction, Inc. v. Janiola (G.R. No. 184861, June 30, 2009)  v. Usage 1. Manila Jockey Club v. Games and Amusement Board (107 Phil 151)  vi. Contemporaneous Acts of Legislature 1. David v. COMELEC (271 SCRA 90)  vii. Executive Construction 1. Rule 2.  When not favored 3. Rule v. Opinion 4.  Asturias Sugar Central, Inc. v. Commissioner of Customs (29 SCRA 617) 5. Chartered Bank Employees’ Association v. Ople (138 SCRA 273) 6. Nestle Phil., Inc. v. CA (G.R. No. 86738, November 13, 1991) 7.  ACORD v. Zamora (G.R. No. 144256, June 8, 2005) 8. De Los Santos v. Torres (G.R. No. L-3881, August 31, 1950)  V.

Presumptions

a.

In favor of the validity of legislative acts

b.  Against extrajudicial application of statutes

6 c.  Against ineffectiveness of statutes i.  What cannot be done directly cannot be done indirectly 1. CSC v. Cortes (G.R. No. 200103, April 23, 2014) d. In favor of beneficial operation of statutes e.  Against retroactive operation of statutes f.  Against injustice g.  Against inconvenience h.  Against absurdity i.  Against uncertainty j.

In favor of constitutionality

k. In favor of consistency l.  As to public policy m. Of acquiescence of judicial construction n.  As to foreign law o.  Against violation of international law p.  Against implied repeals  VI.

Special v. General Provisions

a.

Conflicting provisions of the same Statute i. Laxamana v. Baltazar (G.R. No. L-5955, September 19, 1952)

b. Conflicting provisions of different statutes i. Philippine Railway Co. v. Collector of Int. Rev. (91 Phil. 35) ii. Romualdez v. Marcelo (G.R. Nos. 165510-33, July 28, 2006) iii. Butuan Sawmill v. City of Butuan (16 SCRA 227) c.

Conflict between special provisions of a general law and a general provision of a special law i. Bagatsing v. Ramirez (74 SCRA 306) ii.  Teotico v. City of Manila (22 SCRA 267) iii. David v. COMELEC (271 SCRA 90)

 VII.

Rules of Statutory Construction (Latin Maxims)

a.  Verba legis non est recedendum i. Panaguiton v. DOJ (G.R. No. 167571, November 25, 2008) ii. Padua v. People (G.R. No. 168546, July 23, 2008) iii.  Jadewell Parking Systems Corp. v. Lidua (2013) b. Index animi sermo est c.

Ratio legis est anima legis i. LCP v. COMELEC (G.R. No. 176951, December 21, 2009)

7 d.  Verba intentioni, non e, contra, debent inservire i. PCFI v. NTC (G.R. No. L-63318, August 18, 1984) 1. Dissenting Opinion of J. Abad e.

Qui haeret in litera, haeret in cortice i. People v. Simon (G.R. No. 93028 , July 29, 1994) ii. People v. Puno (G.R. No. 97471, February 17, 1993)

f.

Mens legislatoris i. U.S. v. Toribio (15 Phil. 85) ii. Macabenta v. Davao Stevedore Terminal Co. (32 SCRA 553)

g. Dura lex sed lex i. People v. Callos (G.R. No. 133478, January 16, 2002) ii. People v. Suriaga (G.R. No. 123779, April 17, 2002) h. Expresio unius est exclusio alterius i. Catu v. Rellosa (A.C. No. 5738, February 19, 2008) ii. Lung Center of Phil v. Quezon City (G.R. No. 144104, June 29, 2004) iii. People v. Mamac (G.R. No. 130332, May 31, 2000) iv. Leviste v. CA (G.R. No. 189122, March 17, 2010) i.

Ejusdem Generis i. Sulpicio Lines v. Curso (G.R. No. 157009, March 17, 2010) ii. NPC v. Angas (G.R. Nos. 60225-26, May 8, 1992)

j.

Casus omissus (permissive v. restrictive) i. People v. Manantan (G.R. No. 14129, July 31, 1962) ii. Republic v. Cojuangco (G.R. No. 139930, June 26, 2012) & Separate Opinions

k. Noscitur a sociis i. Philippines v. Flores (G.R. No. 188315, August 25, 2010) ii. People v. Bello (G.R. Nos. 166948-59, August 29, 2012) l.

Ubi lex non distinguit, nec nos distinguere debemus i.  Yu v. Samson-Tatad (G.R. No. 170979, February 9, 2011) ii. People v. Sandiganbayan (G.R. No. 164185, July 23, 2008)

m. Ex praecedentibus et consequentibus fit optima interpretation  VIII.  Adherence or Departure from Language of Statute

a.

Literal Construction i. Rule ii.  When not favored

b. Departure from Literal Construction

8 i.  When proper ii. Limitation of Rule c.

Cases 1.  Abellana v. Marave (57 SCRA 106) 2. Comendador v. De Villa (200 SCRA 80) 3.  Amatan v. Aujero (248 SCRA 511) 4. Ursua v. CA (256 SCRA 147) 5. Salvacion v. Central Bank (278 SCRA 27) 6. Sec. of Justice v. Kuroga (G.R. No. 166199, April 24, 2009) 7. CSC v. CA (G.R. No. 176162, October 9, 2012) 8. Republic of the Philippines v Orbecido III (G.R. No. 154380 October 5, 2005) 9. National Federation of Labor vs. NLRC (327 SCRA 158) 10. Co Kim Cham v. Valdez (75 Phil. 113) 11. Philippine Airlines v. CA (G.R. No. L-49188, January 30, 1990)

d. Doctrine of Necessary Implications i. Chua v. CSC (G.R. No. 88979, February 7, 1992) ii. NATU v. Torres (G.R. No. 93468, December 29, 1994) IX.

Strict or Liberal Construction of Specific Types of Statutes

a.

Liberal Construction

b. Strict Construction c.

Preliminary Matters

d. Definitions e.

Social Justice

f.

General Welfare i. Strict Construction 1. Penal Statutes a.

General Rule

b. Rule on Retroactivity c.

 Ex Post Facto Law

d. Conflict within the RPC e.

Cases i. Llamado v. CA (G.R. No. 84850, June 29, 1989) ii. Centeno v. Villalon-Pornillos (G.R. No. 113092, September 1, 1994) iii. Gosiaco v. Ching (G.R. No. 173807, April 16, 2009)

9 iv. Corpuz v. People (G.R. No. 180016, 29 April 2014) Majority and Separate Opinions f.  Void for vagueness i. Sps. Romualdez v. COMELEC (G.R. NO. 167011, April 30, 2008) 1. Dissent of justice Tinga 2. Statutes in Derogation of Rights 3. Expropriation Laws a.

Republic v. Lim (G.R. No. 161656, June 29, 2005)

b. Republic of the Philippines v. Holy Trinity Development Corp. (G.R. No. 172410, April 14, 2008) 4. Statutes Granting Privileges a.

United Paracle Mining Co. v. Dela Rosa (G.R. No. 63786-87, April 7, 1993)

b. Boardwalk Business Venture v. Villareal (G.R. No. 181182, April 10, 2013) c.

People of the Philippines v. Jalosjos (G.R. No. 132875-76, February 3, 2000)

5. Legislative Grants to LGUs a.

Quimsing v. Lachica, et al. (G.R. No. L-14683, May 30, 1961)

b. Unson v. Lacson (G.R. No. L-7909, January 18, 1957) c.

Republic of the Philippines v. Provincial Governor (G.R. No. L-28055, October 30, 1967)

6. Removal of Officers a.

Lacson v. Roque (G.R. No. L-6225, January 10, 1953)

7. Naturalization Laws a.

In re Reyes (G.R. No. L-10761, November 29, 1958)

b. Co v. Civil Register (G.R. No. 138496, February 23, 2004) 8.  Tax Laws a.

Rule and Exceptions i. Commissioner of Internal Revenue v. Fortune Tobacco Corp. (G.R. Nos. 167274-75, July 21, 2008)

b.  Tax Exemption Laws i. Davao Oriental Electric Cooperative v. Province of Davao Oriental (G.R. No. 170901, January 20, 2009)

10 c.  Tax Sales i. Serfino v. CTA (154 SCRA 19) 9. Statutes Imposing Custom Duties 10. Statutes Concerning the Republic a.

Statutes authorizing suits against the State

11.  Wills a.

Statutes Prescribing Formalities

b. Interpretation of Wills i.  Tampoy v. Alberastine (107 SCRA 100) ii. Chavez v. Dozen Construction and Development Corp. (G.R. No. 192916, October 11, 2010) c.

Rule on Substantial Compliance

12. Exemptions and Provisos ii. Liberal Construction 1. General Social Legislation a.

In re Application for Survivorship Benefits of Mrs. Gruba (A.M. No. 14155-Ret., November 19, 2013)

b. Obra v. SSS (G.R. No. 147745, April 9, 2003) 2. General Welfare Clause a.

U.S. v. Salaveria (G.R. No. L-13678, November 12, 1918)

b. Ramirez v. Villegas (G.R. No. L-24153, February 14, 1983) c.

PLDT v. City of Davao (G.R. No. L-23080, October 30, 1965)

3. Grant of Power to LGUs a.

Magtajas v. Pryce (G.R. No. 111097, July 20, 1994) i.  J. Padilla dissenting opinion

4. Grant of Taxing Power a.

Government of Quezon City v. Bayan Telecommunications (G.R. No. 162015, March 6, 2006)

b. Medina v. City of Baguio (G.R. No. L-4060, August 29, 1952) 5. Statutes Prescribing Prescriptive Periods to Collect Tax a.

CIR v. BF Goodrich Phils, Inc (G.R. No. 104171, February 24, 1999)

b. CIR v. Phil. Global Communication, Inc. (G. R. No. 167146, October 31, 2006) 6. Statutes Imposing Penalties for Non-Payment of Tax 7. Debtor Protection Laws

11 8. Election Laws a.  Tolentino v. COMELEC (G.R. Nos. 187958, April 7, 2010) b. Frivaldo v. COMELEC (G.R. No. 120295, June 28, 1996) c.

Luna v. Rodriguez (G.R. No. L-13744, November 29, 1918)

9.  Amnesty Decrees a.  Aquino v. PAAC (G.R. No. L-3879, April 27, 1951) 10. Statutes Prescribing Prescription of Crimes a.

Romualdez v. Marcelo (G.R. Nos. 165510-33, July 28, 2006)

b. People v. Moran (G.R. No. L-17905, January 27, 1923) 11.  Adoption Statutes a.

In re Adoption of Stephanie Garcia (G.R. No. 148311, March 31, 2005)

12.  Veteran and Pension Laws a.

Board of Administrator v. Bautista (G.R. No. L-37867, February 22, 1982)

13. Rules of Court a.

Rules in General i. City of Dumaguete v. PPA (G.R. No. 168973, August 24, 2011)

b.  Applicability to Administrative Bodies c.

Rule Regarding Period and Modes of Appeal i.  Thenamaris Phil., Inc. v. CA (G.R. No. 191215, February 3, 2014) ii. Boardwalk Business Venture v. Villareal

d. Rule on Summary Procedure i. Gachon v. Devera (G.R. No. 116695, June 20, 1997) 14. Labor Laws a.

Rules of Construction as provided in Labor Code i. Cristobal v. ECC (G.R. No. L-49280, February 26, 1981) ii. Dissenting opinion of J. Velasco in Perez v. Phil. Telegraph &  Telephone Co. (G.R. No. 152048, April 7, 2009) and Gatus v. Quality House, Inc. (G.R. No. 156766, April 16, 2009)

b. Rule and exceptions regarding retirement i. In re Request of Judge Gustilo (A.M. No. RTJ-04-1868, August 13, 2004) 15. Insurance a.

Laws

12 b. Contractual Provisions i. Fortune Medicare, Inc. v. Amorin (G.R. No. 195872, March 12, 2014) 16. Corporate Law a.

Home Insurance Co. v. Eastern Shipping Lines (G.R. No. L-34382, July 20, 1983)

17.  Agrarian Reform a.

David v. CA (G.R. No. L-57719-21, May 6, 1988)

b. Department of Justice Opinion No. 44, Series of 1990 X.

Mandatory or Directory

a.

Mandatory v Directory provisions i. Bermudez v. Executive Secretary (G.R. No. 131429, August 4, 1999) ii. Marcelino v. Cruz (G.R. No. L-42428, March 18, 1983) iii. Malcora v. CA (G.R. No. L-51042, September 30, 1982)

b. Can a provision be both mandatory and directory? i. MMDA v. Concerned Residents of Manila Bay (G.R. Nos. 171947-48, December 18, 2008) XI.

Prospective or Retroactive Application

a. XII.

Gamboa v. Teves (G.R. No. 176579, October 9, 2012)

Construction of Specific Words and Phrases

a.

Ordinary Meaning

b. “May” and “Shall” i. Director of Lands v. CA (276 SCRA 276) ii. Capati v. Ocampo (113 SCRA 799) iii. Basiana v. Luna (103 SCRA 49) c.

“Or” and “And”

i. GMRC v. Bell Telecom (271 SCRA 790) d. Principally and Exclusively i.  Alfon v. Republic (97 SCRA 859) e.

Exclusively i. CIR v. CA (G.R. No. 124043, October 14, 1998) ii. Lung Center of Phil v. Quezon City (G.R. No. 144104, June 29, 2004)

f.

Previously i. Rural v. Lopena (137 SCRA 121) ii. Francisco v. CA (G.R. No. 108747, April 6, 1995)

13 g. Every i. IBAAEU v. Inciong (132 SCRA 663) ii. NHA v. Juco (134 SCRA 172) h.

“Term” and “Tenure”

i. Fetalino v. COMELEC (G.R. No. 191890, December 04, 2012) i.

Surplasages i. People v. Duque (212 SCRA 607)

j.

Punctuations i.  Arabay v. CFI (66 SCRA 617) ii. Florentino v. PNB (98 Phil 959)

k. Past Tense i. Grego v. COMELEC (274 SCRA 481) ii. Regalado v. Yulo (G.R. No. L-42935, February 15, 1935) l.

Provisos, Exceptions and Saving Clauses i. Rules and exceptions to the rules 1. Borromeo v. Mariano (G.R. No. L-16808, January 3, 1921) 2. Santos v. CCS (G.R. No. 158071, April 2, 2009) 3. Llmado v. CA (G.R. No. 84850, June 29, 1989) ii. Conflict between main provision and proviso iii. Exceptions 1. Lokin v. COMELEC (G.R. Nos. 179431-32, June 22, 2010) 2.  Tagabi v. Tanque (G.R. No. 144024, July 27, 2006) iv. Saving Clauses

XIII.  Amendment, Revision, Codification and Repeals

a.

Definitions

b. Repeals v. Amendments i. Gloria v. CA (306 SCRA 287) c.

Retroactivity i.  Tac-an v. CA (137 SCRA 803)

d. Express v. Implied i. Requisites Villegas v. Subido (GR No. 31711) ii. Gimenez `v. SEC (133 SCRA 840) iii. Grego v. COMELEC (274 SCRA 481) e.

Later over Earlier

f.

In Pare Materia 

14 i. Flores v. San Pedro (102 Phil 44) ii.  Vda. de. Urbano v. GSIS (GR No. 137904)