CHAPTER I

CONSTITUTIONAL LAW, VOLUME 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 administration 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 organization and operation of the governmental organs of the State and
denes the relations of the State with the inhabitants of its territory. (People vs. Perfecto, 43 Phil. 887)
CONSTITUTIONAL LAW: It is that department of the science of law which treats of the nature of constitutions, their establishment, construction and interpretation, and of the validity of legal
enactments as tested by the criterion of conformity to the fundamental 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 authority 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 accordance with which the powers of sovereignty are habitually exercised. 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 govern1

SIX MONTHS BEFORE THE BAR OUTLINE/REVIEWER

ment are established, limited and dened, and by which those powers are distributed among the several departments for their safe and
useful 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 circumstances. No doctrine involving more pernicious consequences
was ever invented by the wit of man than that any of its provisions can be suspended during any of the great exigencies of
government. (Marcos vs. Manglapus, 177 SCRA 668, September 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 legislation 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 departments 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-

CHAPTER I
CONSTITUTIONAL LAW, VOLUME 1

litical persuasion. In times of peace and war, it holds the State together.
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 constitution is one which has not been reduced to writing at any specic
time but it is the collective product of a gradual political development, consisting of unwritten usages and customary rules, judicial
decisions, dicta of statesmen, and legislative enactments of a fundamental character written but scattered in various records without having any compact form in writing. (Malcolm and Laurel, Phil.
Constitutional Law, pp. 9-13)
(b) Conventional or Cumulative A Conventional constitution is enacted deliberately and consciously by a constituent
body or ruler at a certain time and place. A cumulative constitution 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 difcult 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 organization (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).

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 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 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 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 particularly, 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 universities in the Philippines.
January 21, 2009, Paraaque City

ROLANDO A. SUAREZ

iii

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 arrangement of the final 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.

iv

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 professors who are guiding them as they go
through, may this modest piece of work be a
humble contribution to all of your efforts.

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 Lautchang
Vda. 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 hardworking 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.

vi

CONTENTS
Preface
...................................................................................
Acknowledgement ......................................................................
Dedication...................................................................................

iii
iv
vi

CHAPTER I
CONSTITUTIONAL LAW, VOLUME I
PART I
General principles ......................................................................
The Philippine Constitution: Its definition, nature,
purpose and classification .................................................
The Philippines as a State .........................................................

1
1
8

The 1987 Constitution of the Philippines involving

the following subject matters:
A.
B.
C.
D.
E.
F.
G.
H.
I.

Preamble ............................................................................
National Territory .............................................................
Declaration of Principles and State Policies ....................
Citizenship .........................................................................
Suffrage ..............................................................................
Legislative Department ....................................................
Executive Department ......................................................
Judicial Department .........................................................
Constitutional Commissions .............................................

20
20
21
46
67
71
135
173
203

PART II
The 1987 Constitution of the Philippines involving
the following subject matters:
A.
B.
C.

Local Government .............................................................

Accountability of Public Officers ......................................
National Economy and Patrimony ...................................
vii

244
324
356

D.
E.
F.
G.
H.

Social Justice and Human Rights ....................................

Education, Science and Technology, Arts, Culture
and Sports ..........................................................................
Family ................................................................................
General Provisions ............................................................
Transitory Provisions ........................................................

372
390
405
406
416

PART III
CONSTITUTIONAL LAW, VOLUME II
Bill of Rights...............................................................................
Sections 1 to 22, Article III ........................................................
The Fundamental and Inherent Powers of the State ..............

429
430
546

CHAPTER II
ADMINISTRATIVE LAW REVIEWER
I.
II.

General principles .............................................................

Administrative agencies: Their nature, creation,
establishment and abolition .............................................
III. Powers of administrative agencies: (a) Quasi-legislative
or rule making power; (b) Quasi- judicial power .............
A.

550
560
561

Quasi-legislative or rule making power

1. Kinds of administrative rules
or regulations ...........................................
2. Requisites of a valid administrative
rule or regulation .....................................
3. Requisites of administrative regulation
with a penalty ..........................................
4. Powers and functions exercised in the
course in exercising quasi-legislative
power ........................................................
5. Is notice and hearing necessary in the
promulgation of a general regulation
issued or to be issued by an
administrative body? ...............................
6. When is it necessary ........................................
7. Can legislative powers be delegated ...............
8. What is the test to determine whether a
given power has been validly exercised
by a particular department? ...................
viii

561
562
570

575

577
577
579

579

9. Distinguish legislative power from

quasi-judicial power ................................
10. What is the guideline to observe in order
to ensure that there is a valid and
lawful delegation of power?.....................
11. What is the classification of administrative
regulations?..............................................
12. Distinguish legislative regulations from
interpretative regulation.........................
B.

581

581
582
582

Quasi-judicial power
1. Definition of quasi-judicial power ...................
2. Why is quasi-judicial power granted to
an administrative agency? ......................
3. What is the limitation to the legislature
whenever it grants quasi-judicial
power to an administrative agency? .......
4. What is the main function of administrative
agencies and the administrative
officers in-charge of said boards,
bureaus and offices? ................................
5. Powers included in the term quasi judicial
(1) determinative power (2) summary
power ........................................................
6. Different powers ...............................................
7. What is the nature of the proceedings
arising from the exercise of the
said powers? .............................................
8. Why do they partake of the nature
of judicial proceedings? ...........................
9. Are the proceedings before administrative
agencies adversarial in nature? ..............
10. When are proceedings adversarial and
when are they held ex-parte? ..................
11. Jurisdiction. Classifications of jurisdiction.....
12. Source of authority and jurisdiction of
administrative boards, bureaus
and offices ................................................
13. Are the orders and the decisions of
administrative boards, bureaus
and offices final? ......................................
14. When is an administrative decision
considered res judicata? ..........................
ix

583
583

583

583

584
584

585
585
585
585
586

588

588
589

15.

What is the doctrine of res judicata in

administrative proceedings? ...................

IV. Important principles in administrative law ....................

V. Other ancilliary principles ................................................
VI. Relief from within the administrative agency
itself .. .......
VII. Relief after the resolution of the highest level
of authority in the administrative agency
concerned...................................................................
VIII. Appeal from, or review of, decisions of
administrative agency ..............................................
IX. Methods of review of administrative action ....................
X.

Administrative agencies created by the Constitution .....

589
592
626
632

633
636
650
653

CHAPTER III
LAW OF PUBLIC OFFICES AND PUBLIC OFFICERS
1. Definition and general principles ............................
2. Characteristics of a public office ..............................
3. Requirements for public office: (a) Appointment;
(b) Designation; (c) Commission ......................
4. Classification of appointment; (a) Regular
appointment; (b) Ad Interim appointment;
(c) Permanent appointment; (d) Temporary
appointment .....................................................
5. Different steps in the process of appointment ........
6. What is the best evidence of an appointment? ........
7. Kinds of acceptance: (a) Express; (b) Implied .........
8. Distinction, appointment and election ....................
9. What is required for an office to be filled up
either by an appointment or by election? .......
10. Eligibility and qualification......................................
(a)
(b)
11.
12.
13.
14.
15.

661
666
667

668
671
672
673
673
677
678

Meaning of the term qualification ................

Qualifications are continuing requirements ...

678
680

Disqualifications: Different disqualifications .........

Failure to qualify ......................................................
De Facto officers; distinctions, de jure officer
and de facto officer ...........................................
Commencement of official relations .........................
Eight (8) Important principles .................................

681
683

(1)

689

Appointment .....................................................
x

683
689
689

(2)
(3)
(4)
(5)

Torio vs. CSC ....................................................

The next-in-rank rule ......................................
De facto/De jure ................................................
Matters that fall within the exclusive
jurisdiction of the CSC ............................
Kinds of Personnel Actions ..............................
Modes of termination of official
relationship ..............................................
Liability of Public Officers ...............................

695
720

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

721

(1)
(2)

722

(6)
(7)
(8)
16.

(3)
(4)
(5)
(6)
(7)
(8)

Preference for appointment to new position ...

Can a person be compelled to accept
an office?...................................................
Presidential power of appointment .................
Authority to determine the kind or
nature of appointment.............................
Revocation of appointment by CSC .................
Meaning of the term qualification ...................
Determination through competitive
examination .............................................
Hold-over rule...................................................

690
690
691
691
691

722
722
723
724
724
725
725

CHAPTER IV
ELECTION LAW
I.

GENERAL PRINCIPLES
1.
2.
3.
4.
5.
6.
7.

II.

Election......................................................................
Two (2) kinds of election ...........................................
Suffrage .....................................................................
Distinction: suffrage and election ............................
Suffrage is both a right and privilege under
the Constitution ...............................................
Theory upon which suffrage is based ......................
Interpretation of election law.
Imelda vs. Comelec ..........................................

733
733
733
734
734
734
738

STAGES BEFORE, DURING AND

AFTER ELECTION
PART I. BEFORE THE ELECTIONS
1.
2.

Pointers .....................................................................
Procedure ..................................................................
xi

740
740

3.
4.

Petition for Inclusion ................................................

Petition for Exclusion ...............................................

742
742

PART II. DURING THE ELECTIONS

1.
Casting of votes .........................................................
2.
Records of challenges and oaths ..............................
3.
Minutes of voting and counting of votes ..................

763
767
768

PART III. AFTER THE ELECTIONS

1.
Counting of votes ......................................................
2.
Ballots........................................................................
3.
Appreciation of ballots ..............................................
4.
Rules for appreciation of ballots ..............................
5.
Pre-proclamation controversy ..................................
6.
Partial Proclamation ................................................

769
773
774
775
792
795

III. DISTINCTION
Election Protest and Quo Warranto .................................
Election protest..................................................................

804
806

CASES:
Makalintal vs. Comelec, G.R. No. 157013, July 10, 2003 ........
Legarda v. De Castro, P.E.T. Case No. 003, March 31, 2005 ..
Alan Peter Cayetano vs. Commission on Elections, et al.,
G.R. Nos. 166388 and 166652, January 23, 2006 ............
Partido ng Manggagawa, et al. vs. Comelec,
G.R. No. 164712, March 12, 2006 .....................................
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 .....................................................................
Lambino vs. Commission on Elections
G.R. No. 174153, Oct. 25, 2006 .........................................

824
825
826
827

828
830

CHAPTER V
PUBLIC INTERNATIONAL LAW
Part I Important Topics of Public International Law .
1. Distinction, Private International Law and Public
International Law .....................................................
xii

837

2. Distinction, Public International Law and

Municipal Law ..........................................................
3. Recognition of States. Kinds of recognition .....................
4. De Facto and De jure Government ...................................
5. Succession of States, Succession of Government .............
6. Subjects and objects of Public International Law ...........
7. Vatican City and the Holy See..........................................
8. Doctrine of State Continuity .............................................
9. Act of State Doctrine .........................................................
10. Belligerent and insurgent communities ...........................
11. United Nations, principles of UN, organs of UN .............
12. Rights of States .................................................................
13. Jurisdiction of States ........................................................
14. Exemptions from jurisdiction ...........................................
15. Principles concerning treaties ..........................................
16. Law of War, rules of warfare, sanctions,
prisoners of war ........................................................
17. Peaceful and Forcible Sanctions .......................................
18. Belligerent occupation, military occupation ....................
19. Effect of belligerent occupation on the sovereignty
of the legitimate government ...................................
20. Rights of stateless persons................................................
21. Law of the Sea ...................................................................
22. Air and Space Law ............................................................

839
842
844
847
848
849
850
851
854
856
866
893
901
908
921
938
940
941
944
945
965

Part II At a Glance (Terms/Phrases/Maxims/

Principles in Public International Law)
I.
II.

In connection with treaties ...............................................

In connection with the right of property
and jurisdiction .........................................................
III. In connection with the right of legation
or diplomatic intercourse..........................................
IV. In connection with diplomatic immunities
and privileges ............................................................
V. In connection with consular officials ................................
VI. In connection with exemptions from jurisdiction ............
VII. In connection with participants in the war......................
VIII. Conditional for jus ad bellum ...........................................
IX. In connection with termination of war .............................
X. In connection with forbidden methods of warfare ...........
XI. In connection with peaceful and forcible sanctions .........
XII. In connection with international custom/
customary international law ....................................
xiii

971
973
974
975
976
976
977
977
977
978
978
979

XIII. In connection with modes of acquiring territories ...........

XIV. In connection with subjects of international law .............
XV. Other terms/phrases/Doctrines ........................................

979
980
981

Part III Other Relevant Information

1.
2.
3.
4.
5.
6.
7.
8.
9.
10.

UN (United Nations)/LEAGUE OF NATIONS ...............

SEATO (Southeast Asia Treaty Organization)................
ASEAN (Association of South East Asian Nation) ..........
NATO (North Atlantic Treaty Organization) ..................
AFTA (Asean Free Trade Area) ........................................
European Court of Human Rights....................................
International Bill of Human Rights .................................
Universal Declaration of Human Rights..........................
International Law of the Sea ............................................
Baselines ............................................................................

xiv

985
986
986
987
987
987
987
988
988
989