1CHAPTER ICONSTITUTIONAL LAW, VOLUME 1

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CHAPTER I

CONSTITUTIONAL LAW, VOLUME I

PART I

GENERAL PRINCIPLES

POLITICAL LAW: It is that branch of jurisprudence which treats of the science of politics, or the organization and administra-tion of government. (Black’s Law Dictionary, Sixth Edition, 1158) Our Supreme Court de ned political law in more speci c terms by saying that it is that branch of public law which deals with the orga-nization and operation of the governmental organs of the State and de nes the relations of the State with the inhabitants of its terri-tory. (People vs. Perfecto, 43 Phil. 887)

CONSTITUTIONAL LAW: It is that department of the sci-ence of law which treats of the nature of constitutions, their estab-lishment, construction and interpretation, and of the validity of legal enactments as tested by the criterion of conformity to the fundamen-tal law. (Black, Constitutional Law, 1). A more simple de nition is that of Justice Isagani A. Cruz. According to him, constitutional law is the study of the maintenance of the proper balance between au-thority as represented by the three inherent powers of the State and liberty as guaranteed by the Bill of Rights.

THE PHILIPPINE CONSTITUTION: ITS DEFINITION, NATURE, PURPOSE AND CLASSIFICATION

CONSTITUTION: It is a “body of rules and maxims in ac-cordance with which the powers of sovereignty are habitually exer-cised.” With particular reference to the Constitution of the Republic of the Philippines, it is a written instrument enacted by the direct action of the people by which the fundamental powers of the govern-

SIX MONTHS BEFORE THE BAR OUTLINE/REVIEWER2

ment are established, limited and de ned, and by which those pow-ers are distributed among the several departments for their safe and useful exercise and for the bene t of the body politic. (Malcolm and Laurel, Phil. Constitutional Law 6)

CONSTITUTION UNDER THE SOCIAL CONTRACT DOCTRINE:

“The Constitution x x x is a law for rulers and people, equally in war and in peace, and covers with the shield of its protection all classes of men, at all times, and under all circum-stances. No doctrine involving more pernicious consequences was ever invented by the wit of man than that any of its provi-sions can be suspended during any of the great exigencies of government.” (Marcos vs. Manglapus, 177 SCRA 668, Septem-ber 15, 1989)

BASIC PRINCIPLES:

1. It is the supreme law of the land. It is a legislation direct from the people acting in their sovereign capacity, hence, it is more superior than an ordinary law or statute which is merely a leg-islation from the people’s representatives subject to limitations prescribed by the Constitution.

2. It is the symbol and monument of the people’s will. As such, it should be submitted for rati cation of the people.

3. It outlines the infrastructure of the government.

4. It must be obeyed by all. It governs the poor and the rich, the governed and governors.

5. The courts are the ultimate guardians of the Constitution.

PURPOSE OF THE CONSTITUTION:

The purpose of a Constitution is “to prescribe the permanent framework of a system of government, to assign to the different de-partments their respective powers and duties, and establish certain xed principles on which government is founded.” (Malcolm and Laurel, Philippine Constitutional Law, 7) Likewise, it serves as a security and sanctuary of the rights of all citizens, rich or poor, weak or strong, lettered or unlettered, and regardless of religious and po-

3CHAPTER ICONSTITUTIONAL LAW, VOLUME 1

litical persuasion. In times of peace and war, it holds the State to-gether.

CLASSIFICATION OF CONSTITUTION:

A Constitution may be written or unwritten, conventional or cumulative, and rigid or exible:

(a) A written and unwritten constitution — A written constitution is one the provisions of which have been reduced to writing and embodied in one or more instruments at a particular time. Example: Philippine Constitution. An unwritten constitu-tion is one which has not been reduced to writing at any speci c time but it is the collective product of a gradual political develop-ment, consisting of unwritten usages and customary rules, judicial decisions, dicta of statesmen, and legislative enactments of a fun-damental character written but scattered in various records with-out having any compact form in writing. (Malcolm and Laurel, Phil. Constitutional Law, pp. 9-13)

(b) Conventional or Cumulative — A Conventional con-stitution is enacted deliberately and consciously by a constituent body or ruler at a certain time and place. A cumulative constitu-tion is a product of a gradual political development.

(c) Rigid or exible — A rigid constitution is one which can be amended through a formal and dif cult process. A exible Constitution is one which can be changed by ordinary legislation.

THREE ESSENTIAL PARTS OF A WRITTEN CONSTITUTION:

1. Constitution Of Liberty: This contains the fundamental civil and political rights of the citizens as well as the limitations on the powers of the government to secure the enjoyment of the rights of the citizens (i.e., Articles III, IV, V and XII of the 1987 Constitution).

2. Constitution Of Government: It contains provisions that enumerate the powers of government and outline its organiza-tion (i.e., Articles VI to XI of the 1987 Constitution).

3. Constitution Of Sovereignty: It contains the provisions on how changes in the Constitution may be made (i.e., Article XVII of the 1987 Constitution).

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PREFACE

TO THE REVIEWEES

The title of this modest piece of work is SIX MONTHS BEFORE THE BAR OUTLINE/REVIEWER.

I have tried to make the presentation and the summary of the principles and cases brief and simple, hoping that by doing so, the bar reviewees will not be saddled with the burden of reading long and extensive discussions.

Making use of this book will be more helpful and effective if the reviewee has already read the textbooks in his fi rst or second year in the College of Law, and the reviewer two (2) years thereafter.

For the working students who did not have much time to read the textbooks as well as the old and new cases, including the most recent decisions of the Supreme Court on the different subjects of political law, this book will at least provide them the opportunity to know and to be acquainted with the changes and modifi cations in the jurisprudence.

I hope that this modest work could be of help to anyone who uses it. After all, my intention is to help the students, and particu-larly, the reviewees, pass the bar examinations. That is more than enough to inspire me to improve this work as well as the other books I have written, which are now being used in many colleges and uni-versities in the Philippines.

January 21, 2009, Parañaque City

ROLANDO A. SUAREZ

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ACKNOWLEDGMENT

I acknowledge the assistance rendered by the members of my present staff, Irish May Lindo and Daria Mauleon-Calinagan. I am grateful to my daughter, Rhina Rizza M. Suarez, for her valuable efforts and assistance to me in the printing, encoding and arrange-ment of the fi nal layout of the manuscript, to my partner and bosom friend, Atty. Antonio L. Zamora and my son, Atty. Roland Rhonnel M. Suarez, also for their time and effort in the proofreading of the computer copy of the manuscript. Their contributions are valuable.

I also wish to thank the whole staff of Rex Printing for helping me throughout the entire printing process.

Above all, I am immensely grateful to God for all the blessings, guidance and fortune that I have received and those still to come.

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“To the academic community, particularly to the present generation of students and those who are yet to come who have intense aspiration to pass the bar examinations and be members of the bar, and to the pro-fessors who are guiding them as they go through, may this modest piece of work be a humble contribution to all of your efforts.”

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DEDICATION

To my wife, Nora, and children, Revelyn, Roland Rhonnel, Reina Ricci and Rhina Rizza; to my beloved and deceased parents, Marcelo A. Suarez and Elena Arevalo Suarez, my fi rst teachers, who taught me the rudiments of writing and the value of hardwork; to my thoughtful and loving aunt, Cornelia Arevalo Vda. De Capul; to my kind and equally thoughtful mother-in-law, Nifl ea Lautchang Vda. De Manalese, who just passed away; to my deceased brothers and sisters, Buendegardo, Proserfi na, Elvira, Manolo and Rodolfo, with whom I have shared the blessings of a modest home and hard-working parents; to all my former teachers who guided me in my quest for knowledge; to my townmates and friends who share my thoughts and aspirations for a better society; and above all to my dear God who is always generous to help me in any of my endeavors, I dedicate this humble work.

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CONTENTS

Preface ................................................................................... iiiAcknowledgement ...................................................................... ivDedication ................................................................................... vi

CHAPTER I

CONSTITUTIONAL LAW, VOLUME I

PART I

General principles ...................................................................... 1The Philippine Constitution: Its defi nition, nature, purpose and classifi cation ................................................. 1The Philippines as a State ......................................................... 8

The 1987 Constitution of the Philippines involving the following subject matters:

A. Preamble ............................................................................ 20B. National Territory ............................................................. 20C. Declaration of Principles and State Policies .................... 21D. Citizenship ......................................................................... 46E. Suffrage .............................................................................. 67F. Legislative Department .................................................... 71G. Executive Department ...................................................... 135H. Judicial Department ......................................................... 173I. Constitutional Commissions ............................................. 203

PART II

The 1987 Constitution of the Philippines involving the following subject matters:

A. Local Government ............................................................. 244B. Accountability of Public Offi cers ...................................... 324C. National Economy and Patrimony ................................... 356

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D. Social Justice and Human Rights .................................... 372E. Education, Science and Technology, Arts, Culture and Sports .......................................................................... 390F. Family ................................................................................ 405G. General Provisions ............................................................ 406H. Transitory Provisions ........................................................ 416

PART III

CONSTITUTIONAL LAW, VOLUME II

Bill of Rights ............................................................................... 429Sections 1 to 22, Article III ........................................................ 430The Fundamental and Inherent Powers of the State .............. 546

CHAPTER II

ADMINISTRATIVE LAW REVIEWER

I. General principles ............................................................. 550II. Administrative agencies: Their nature, creation, establishment and abolition ............................................. 560III. Powers of administrative agencies: (a) Quasi-legislative or rule making power; (b) Quasi- judicial power ............. 561

A. Quasi-legislative or rule making power

1. Kinds of administrative rules or regulations ........................................... 561 2. Requisites of a valid administrative rule or regulation ..................................... 562 3. Requisites of administrative regulation with a penalty .......................................... 570

4. Powers and functions exercised in the course in exercising quasi-legislative power ........................................................ 575 5. Is notice and hearing necessary in the promulgation of a general regulation issued or to be issued by an administrative body? ............................... 577 6. When is it necessary ........................................ 577 7. Can legislative powers be delegated ............... 579 8. What is the test to determine whether a given power has been validly exercised by a particular department? ................... 579

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9. Distinguish legislative power from quasi-judicial power ................................ 58110. What is the guideline to observe in order to ensure that there is a valid and lawful delegation of power? ..................... 58111. What is the classifi cation of administrative regulations?.............................................. 58212. Distinguish legislative regulations from interpretative regulation......................... 582

B. Quasi-judicial power

1. Defi nition of quasi-judicial power ................... 583 2. Why is quasi-judicial power granted to an administrative agency? ...................... 583 3. What is the limitation to the legislature whenever it grants quasi-judicial power to an administrative agency? ....... 583 4. What is the main function of administrative agencies and the administrative offi cers in-charge of said boards, bureaus and offi ces? ................................ 583 5. Powers included in the term quasi judicial — (1) determinative power (2) summary power ........................................................ 584 6. Different powers ............................................... 584 7. What is the nature of the proceedings arising from the exercise of the said powers? ............................................. 585 8. Why do they partake of the nature of judicial proceedings? ........................... 585 9. Are the proceedings before administrative agencies adversarial in nature? .............. 58510. When are proceedings adversarial and when are they held ex-parte? .................. 58511. Jurisdiction. Classifi cations of jurisdiction..... 58612. Source of authority and jurisdiction of administrative boards, bureaus and offi ces ................................................ 58813. Are the orders and the decisions of administrative boards, bureaus and offi ces fi nal? ...................................... 58814. When is an administrative decision considered res judicata? .......................... 589

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15. What is the doctrine of res judicata in administrative proceedings? ................... 589

IV. Important principles in administrative law .................... 592V. Other ancilliary principles ................................................ 626VI. Relief from within the administrative agency itself ……………………………………………….. ....... 632VII. Relief after the resolution of the highest level of authority in the administrative agency concerned ................................................................... 633VIII. Appeal from, or review of, decisions of administrative agency .............................................. 636IX. Methods of review of administrative action .................... 650

X. Administrative agencies created by the Constitution ..... 653

CHAPTER III

LAW OF PUBLIC OFFICES AND PUBLIC OFFICERS

1. Defi nition and general principles ............................ 661 2. Characteristics of a public offi ce .............................. 666 3. Requirements for public offi ce: (a) Appointment; (b) Designation; (c) Commission ...................... 667 4. Classifi cation of appointment; (a) Regular appointment; (b) Ad Interim appointment; (c) Permanent appointment; (d) Temporary appointment ..................................................... 668 5. Different steps in the process of appointment ........ 671 6. What is the best evidence of an appointment? ........ 672 7. Kinds of acceptance: (a) Express; (b) Implied ......... 673 8. Distinction, appointment and election .................... 673 9. What is required for an offi ce to be fi lled up either by an appointment or by election? ....... 67710. Eligibility and qualifi cation...................................... 678

(a) Meaning of the term “qualifi cation” ................ 678(b) Qualifi cations are continuing requirements ... 680

11. Disqualifi cations: Different disqualifi cations ......... 68112. Failure to qualify ...................................................... 68313. De Facto offi cers; distinctions, de jure offi cer and de facto offi cer ........................................... 68314. Commencement of offi cial relations ......................... 68915. Eight (8) Important principles ................................. 689

(1) Appointment ..................................................... 689

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(2) Torio vs. CSC .................................................... 690(3) The next-in-rank rule ...................................... 690(4) De facto/De jure ................................................ 691(5) Matters that fall within the exclusive jurisdiction of the CSC ............................ 691(6) Kinds of Personnel Actions .............................. 691(7) Modes of termination of offi cial relationship .............................................. 695(8) Liability of Public Offi cers ............................... 720

16. Eight (8) other ancilliary principles ......................... 721

(1) Preference for appointment to new position ... 722(2) Can a person be compelled to accept an offi ce? ................................................... 722(3) Presidential power of appointment ................. 722(4) Authority to determine the kind or nature of appointment............................. 723(5) Revocation of appointment by CSC ................. 724(6) Meaning of the term qualifi cation ................... 724(7) Determination through competitive examination ............................................. 725(8) Hold-over rule ................................................... 725

CHAPTER IV

ELECTION LAW

I. GENERAL PRINCIPLES

1. Election ...................................................................... 7332. Two (2) kinds of election ........................................... 7333. Suffrage ..................................................................... 7334. Distinction: suffrage and election ............................ 7345. Suffrage is both a right and privilege under the Constitution ............................................... 7346. Theory upon which suffrage is based ...................... 7347. Interpretation of election law. Imelda vs. Comelec .......................................... 738

II. STAGES BEFORE, DURING AND AFTER ELECTION

PART I. BEFORE THE ELECTIONS

1. Pointers ..................................................................... 7402. Procedure .................................................................. 740

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3. Petition for Inclusion ................................................ 7424. Petition for Exclusion ............................................... 742

PART II. DURING THE ELECTIONS1. Casting of votes ......................................................... 7632. Records of challenges and oaths .............................. 7673. Minutes of voting and counting of votes .................. 768

PART III. AFTER THE ELECTIONS1. Counting of votes ...................................................... 7692. Ballots........................................................................ 7733. Appreciation of ballots .............................................. 7744. Rules for appreciation of ballots .............................. 7755. Pre-proclamation controversy .................................. 7926. Partial Proclamation ................................................ 795

III. DISTINCTION

Election Protest and Quo Warranto ................................. 804 Election protest.................................................................. 806

CASES:

Makalintal vs. Comelec, G.R. No. 157013, July 10, 2003 ........ 824Legarda v. De Castro, P.E.T. Case No. 003, March 31, 2005 .. 825Alan Peter Cayetano vs. Commission on Elections, et al., G.R. Nos. 166388 and 166652, January 23, 2006 ............ 826Partido ng Manggagawa, et al. vs. Comelec, G.R. No. 164712, March 12, 2006 ..................................... 827Antonio F. Trillanes IV vs. Hon. Oscar Pimentel, Sr., In his capacity as presiding Judge, Regional Trial Court Branch 148, Makati City, et al., G.R. No. 179817, June 27, 2008 ..................................................................... 828Lambino vs. Commission on Elections G.R. No. 174153, Oct. 25, 2006 ......................................... 830

CHAPTER V

PUBLIC INTERNATIONAL LAW

Part I Important Topics of Public International Law .

1. Distinction, Private International Law and Public International Law ..................................................... 837

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2. Distinction, Public International Law and Municipal Law .......................................................... 8393. Recognition of States. Kinds of recognition ..................... 8424. De Facto and De jure Government ................................... 8445. Succession of States, Succession of Government ............. 8476. Subjects and objects of Public International Law ........... 8487. Vatican City and the Holy See.......................................... 8498. Doctrine of State Continuity ............................................. 8509. Act of State Doctrine ......................................................... 851

10. Belligerent and insurgent communities ........................... 85411. United Nations, principles of UN, organs of UN ............. 85612. Rights of States ................................................................. 86613. Jurisdiction of States ........................................................ 89314. Exemptions from jurisdiction ........................................... 90115. Principles concerning treaties .......................................... 90816. Law of War, rules of warfare, sanctions, prisoners of war ........................................................ 92117. Peaceful and Forcible Sanctions ....................................... 93818. Belligerent occupation, military occupation .................... 94019. Effect of belligerent occupation on the sovereignty of the legitimate government ................................... 94120. Rights of stateless persons ................................................ 94421. Law of the Sea ................................................................... 94522. Air and Space Law ............................................................ 965

Part II At a Glance (Terms/Phrases/Maxims/Principles in Public International Law)

I. In connection with treaties ............................................... 971II. In connection with the right of property and jurisdiction ......................................................... 973III. In connection with the right of legation or diplomatic intercourse .......................................... 974IV. In connection with diplomatic immunities and privileges ............................................................ 975V. In connection with consular offi cials ................................ 976VI. In connection with exemptions from jurisdiction ............ 976VII. In connection with participants in the war ...................... 977VIII. Conditional for jus ad bellum ........................................... 977IX. In connection with termination of war ............................. 977X. In connection with forbidden methods of warfare ........... 978XI. In connection with peaceful and forcible sanctions ......... 978XII. In connection with international custom/ customary international law .................................... 979

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XIII. In connection with modes of acquiring territories ........... 979XIV. In connection with subjects of international law ............. 980XV. Other terms/phrases/Doctrines ........................................ 981

Part III Other Relevant Information

1. UN (United Nations)/LEAGUE OF NATIONS ............... 9852. SEATO (Southeast Asia Treaty Organization) ................ 9863. ASEAN (Association of South East Asian Nation) .......... 9864. NATO (North Atlantic Treaty Organization) .................. 9875. AFTA (Asean Free Trade Area) ........................................ 9876. European Court of Human Rights.................................... 9877. International Bill of Human Rights ................................. 9878. Universal Declaration of Human Rights.......................... 9889. International Law of the Sea ............................................ 988

10. Baselines ............................................................................ 989