Consti Law Suarez

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1CHAPTER I

CONSTITUTIONAL LAW, VOLUME 1

1

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. (Blacks Law Dictionary, Sixth Edition, 1158)

Our Supreme Court dened political law in more specic 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

denes 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 denition 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-


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SIX MONTHS BEFORE THE BAR OUTLINE/REVIEWER2

ment are established, limited and dened, and by which those pow-

ers are distributed among the several departments for their safe anduseful exercise and for the benet 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 fromthe 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 peoples representatives subject to limitations

prescribed by the Constitution.

2. It is the symbol and monument of the peoples will. As such, it

should be submitted for ratication 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 certainxed 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-


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3CHAPTER I

CONSTITUTIONAL 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) Awritten 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 specic

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 AConventional con-stitution is enacted deliberately and consciously by a constituent

body or ruler at a certain time and place. Acumulative constitu-

tion is a product of a gradual political development.

(c) Rigid or exible Arigid constitution is one which

can be amended through a formal and difcult process. Aexible

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 theprinciples 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 first 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 mostrecent 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 modifications 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, Paraaque 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 final layout of the manuscript, to my partner and bosom

friend, Atty. Antonio L. Zamora and my son, Atty. Roland RhonnelM. 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 ahumble 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 first 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, Niflea LautchangVda. De Manalese, who just passed away; to my deceased brothers

and sisters, Buendegardo, Proserfina, 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 ................................................................................... iii

Acknowledgement ...................................................................... iv

Dedication ................................................................................... vi

CHAPTER I

CONSTITUTIONAL LAW, VOLUME I

PART I

General principles ...................................................................... 1

The Philippine Constitution: Its definition, nature,

purpose and classification ................................................. 1

The Philippines as a State ......................................................... 8

The 1987 Constitution of the Philippines involving

the following subject matters:

A. Preamble ............................................................................ 20

B. National Territory ............................................................. 20

C. Declaration of Principles and State Policies .................... 21

D. Citizenship ......................................................................... 46

E. Suffrage .............................................................................. 67

F. Legislative Department .................................................... 71

G. Executive Department ...................................................... 135H. Judicial Department ......................................................... 173

I. Constitutional Commissions ............................................. 203

PART II

The 1987 Constitution of the Philippines involving

the following subject matters:

A. Local Government ............................................................. 244B. Accountability of Public Officers ...................................... 324

C. National Economy and Patrimony ................................... 356


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D. Social Justice and Human Rights .................................... 372

E. Education, Science and Technology, Arts, Culture

and Sports .......................................................................... 390

F. Family ................................................................................ 405

G. General Provisions ............................................................ 406H. Transitory Provisions ........................................................ 416

PART III

CONSTITUTIONAL LAW, VOLUME II

Bill of Rights ............................................................................... 429

Sections 1 to 22, Article III ........................................................ 430

The Fundamental and Inherent Powers of the State .............. 546

CHAPTER II

ADMINISTRATIVE LAW REVIEWER

I. General principles ............................................................. 550

II. Administrative agencies: Their nature, creation,

establishment and abolition ............................................. 560

III. 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 ................................ 581

10. What is the guideline to observe in order

to ensure that there is a valid and

lawful delegation of power? ..................... 58111. What is the classification of administrative

regulations?.............................................. 582

12. Distinguish legislative regulations from

interpretative regulation......................... 582

B. Quasi-judicial power

1. Definition of quasi-judicial power ................... 583

2. Why is quasi-judicial power granted to

an administrative agency? ...................... 5833. 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

officers in-charge of said boards,

bureaus and offices? ................................ 583

5. Powers included in the term quasi judicial

(1) determinative power (2) summarypower ........................................................ 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? .................. 585

11. Jurisdiction. Classifications of jurisdiction..... 586

12. Source of authority and jurisdiction of

administrative boards, bureaus

and offices ................................................ 588

13. Are the orders and the decisions of

administrative boards, bureaus

and offices final? ...................................... 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 .................... 592

V. Other ancilliary principles ................................................ 626

VI. Relief from within the administrative agencyitself .. ....... 632

VII. Relief after the resolution of the highest level

of authority in the administrative agency

concerned ................................................................... 633

VIII. Appeal from, or review of, decisions of

administrative agency .............................................. 636

IX. 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. Definition and general principles ............................ 661

2. Characteristics of a public office .............................. 666

3. Requirements for public office: (a) Appointment;

(b) Designation; (c) Commission ...................... 667

4. Classification of appointment; (a) Regularappointment; (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 office to be filled up

either by an appointment or by election? ....... 67710. Eligibility and qualification...................................... 678

(a) Meaning of the term qualification ................ 678

(b) Qualifications are continuing requirements ... 680

11. Disqualifications: Different disqualifications ......... 681

12. Failure to qualify ...................................................... 683

13. De Facto officers; distinctions, de jure officer

and de facto officer ........................................... 683

14. Commencement of official 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 official

relationship .............................................. 695

(8) Liability of Public Officers ............................... 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 qualification ................... 724

(7) Determination through competitive

examination ............................................. 725

(8) Hold-over rule ................................................... 725

CHAPTER IV

ELECTION LAW

I. GENERAL PRINCIPLES

1. Election ...................................................................... 733

2. Two (2) kinds of election ........................................... 733

3. Suffrage ..................................................................... 733

4. Distinction: suffrage and election ............................ 7345. Suffrage is both a right and privilege under

the Constitution ............................................... 734

6. Theory upon which suffrage is based ...................... 734

7. Interpretation of election law.

Imelda vs. Comelec .......................................... 738

II. STAGES BEFORE, DURING AND

AFTER ELECTION

PART I. BEFORE THE ELECTIONS

1. Pointers ..................................................................... 740

2. Procedure .................................................................. 740


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3. Petition for Inclusion ................................................ 742

4. Petition for Exclusion ............................................... 742

PART II. DURING THE ELECTIONS

1. Casting of votes ......................................................... 763

2. Records of challenges and oaths .............................. 767

3. Minutes of voting and counting of votes .................. 768

PART III. AFTER THE ELECTIONS

1. Counting of votes ...................................................... 769

2. Ballots........................................................................ 773

3. Appreciation of ballots .............................................. 774

4. Rules for appreciation of ballots .............................. 775

5. Pre-proclamation controversy .................................. 792

6. 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 ........ 824

Legarda v. De Castro, P.E.T. Case No. 003, March 31, 2005 .. 825

Alan Peter Cayetano vs. Commission on Elections, et al.,

G.R. Nos. 166388 and 166652, January 23, 2006 ............ 826

Partido ng Manggagawa, et al. vs. Comelec,

G.R. No. 164712, March 12, 2006 ..................................... 827

Antonio 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 ..................................................................... 828

Lambino 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 .......................................................... 839

3. Recognition of States. Kinds of recognition ..................... 842

4. De Facto and De jure Government ................................... 844

5. Succession of States, Succession of Government ............. 8476. Subjects and objects of Public International Law ........... 848

7. Vatican City and the Holy See.......................................... 849

8. Doctrine of State Continuity ............................................. 850

9. Act of State Doctrine ......................................................... 851

10. Belligerent and insurgent communities ........................... 854

11. United Nations, principles of UN, organs of UN ............. 856

12. Rights of States ................................................................. 866

13. Jurisdiction of States ........................................................ 893

14. Exemptions from jurisdiction ........................................... 90115. Principles concerning treaties .......................................... 908

16. Law of War, rules of warfare, sanctions,

prisoners of war ........................................................ 921

17. Peaceful and Forcible Sanctions ....................................... 938

18. Belligerent occupation, military occupation .................... 940

19. Effect of belligerent occupation on the sovereignty

of the legitimate government ................................... 941

20. Rights of stateless persons ................................................ 944

21. 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 ............................................... 971

II. In connection with the right of property

and jurisdiction ......................................................... 973

III. In connection with the right of legation

or diplomatic intercourse.......................................... 974IV. In connection with diplomatic immunities

and privileges ............................................................ 975

V. In connection with consular officials ................................ 976

VI. In connection with exemptions from jurisdiction ............ 976

VII. In connection with participants in the war ...................... 977

VIII. Conditional for jus ad bellum ........................................... 977

IX. In connection with termination of war ............................. 977

X. In connection with forbidden methods of warfare ........... 978

XI. 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 ........... 979

XIV. In connection with subjects of international law ............. 980

XV. Other terms/phrases/Doctrines ........................................ 981

Part III Other Relevant Information1. UN (United Nations)/LEAGUE OF NATIONS ............... 985

2. SEATO (Southeast Asia Treaty Organization) ................ 986

3. ASEAN (Association of South East Asian Nation) .......... 986

4. NATO (North Atlantic Treaty Organization) .................. 987

5. AFTA (Asean Free Trade Area) ........................................ 987

6. European Court of Human Rights.................................... 987

7. International Bill of Human Rights ................................. 987

8. Universal Declaration of Human Rights.......................... 988

9. International Law of the Sea ............................................ 98810. Baselines ............................................................................ 989

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Consti Law Suarez