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STATUTORY CONSTRUCTION
CHAPTER I • Judicial power is vested in one Supreme Court and in such lower courts
PRELIMINARY CONSIDERATIONS as may be established by law. (Art VIII, Sec. 1, Phil. Const.)
Legislative – makes the law
STATUTORY CONSTRUCTION DEFINED Executive - executes the law
Judicial – interprets the law
Statutory Construction – the art or process of discovering and expounding
the| 1meaning and intention of the authors of the law with respect to its
Page Simply stated, the situs of construction and interpretation of written laws
application to a given case, where that intention is rendered doubtful, among belong to the judicial department.
others, by reason of the fact that the given case is not explicitly provided for
in the law. It is the duty of the Courts of Justice to settle actual controversies involving
rights which are legally demandable and enforceable, and to determine
Justice Martin defines statutory construction as the art of seeking the whether or not there has been a grave abuse of discretion amounting to lack
intention of the legislature in enacting a statute and applying it to a given or excess of jurisdiction on the part of any branch or instrumentality of the
state of facts. government.

A judicial function is required when a statute is invoked and different Supreme Court is the one and only Constitutional Court and all other lower
interpretations are in contention. courts are statutory courts and such lower courts have the power to construe
and interpret written laws.
Difference between judicial legislation and statutory construction:
Where legislature attempts to do several things one which is invalid, it may DUTY OF THE COURTS TO CONSTRUE AND INTERPRET THE LAW;
be discarded if the remainder of the act is workable and in no way depends REQUISITES
upon the invalid portion, but if that portion is an integral part of the act, and its
excision changes the manifest intent of the act by broadening its scope to 1. There must be an actual case or controversy,
include subject matter or territory which was not included therein as enacted, 2. There is ambiguity in the law involved in the controversy.
such excision is “judicial legislation” and not “statutory construction”.
Ambiguity exists if reasonable persons can find different meanings in a
CONSTRUCTION AND INTERPRETATION, DISTINGUISHED statute, document, etc.

Construction is the drawing of conclusions with respect to subjects that are A statute is ambiguous if it is admissible of two or more possible meanings.
beyond the direct expression of the text, while interpretation is the process
of discovering the true meaning of the language used. If the law is clear and unequivocal, the Court has no other alternative but to
apply the law and not to interpret.
Interpretation is limited to exploring the written text. Construction on the
other hand is the drawing of conclusions, respecting subjects that lie beyond Construction and interpretation of law come only after it has been
the direct expressions of the text. demonstrated that application is impossible or inadequate without them.

DIFFERENT KINDS OF CONSTRUCTION AND INTERPRETATION

SITUS OF CONSTRUCTION AND INTERPRETATION
In our system of government: Hermeneutics – the science or art of construction and interpretation.

• Legislative power is vested in the Congress of the Philippines – the

Senate and the House of the Representatives Legal hermeneutics – is the systematic body of rules which are recognized
• Executive power is vested in the President of the Republic of the as applicable to the construction and interpretation of legal writings.
Philippines (Art. VII, Sec.1, Phil. Const.)

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STATUTORY CONSTRUCTION
Dr. Lieber in his work on Hermeneutics gives the following classification of
the different kinds of interpretation: HOW DOES A BILL BECOMES A LAW – STEPS

1. Close interpretation – adopted if just reasons connected with the A bill before it becomes a law must pass the strict constitutional requirements
character and formation of the text induce as to take the words in the explicit both in the 1973 Constitution and the 1987 Constitution.
narrowest meaning. This is generally known as “literal” interpretation.
Page | 2Extensive interpretation – also called as liberal interpretation, it adopts a
2. Passage of a bill in a parliamentary system (unicameral assembly):
more comprehensive signification of the words. a. A member of the National Assembly may introduce the proposed bill to
3. Extravagant interpretation – substitutes a meaning evidently beyond the the Secretary of the National Assembly who will calendar the same for
true one. It is therefore not genuine interpretation. the first reading.
4. Free or unrestricted interpretation – proceeds simply on he general b. In the first reading, the bill is read by its number and title only.
principles of interpretation in good faith, not bound by any specific or c. After the first reading, the bill is referred by the Speaker to the
superior principle. appropriate committee for study. At this stage, the appropriate
5. Limited or restricted interpretation - influenced by other principles than committee will conduct public hearings. Then after the public hearings,
the strictly hermeneutic ones. the committee shall decide whether or not to report the bill favorably or
6. Predestined interpretation – takes place when the interpreter, laboring whether a substitute bill should be considered. Should there be an
under a strong bias of mind, makes the text subservient to his unfavorable report of the committee, then the proposed bill is dead.
preconceived views and desires. d. Upon favorable action by the committee, the bill is returned to the
National Assembly and shall be calendared for the second reading.
SUBJECTS OF CONSTRUCTION AND INTERPRETATION e. In the second reading, the bill is read in its entirety.
f. Immediately after the second reading, the bill is set for open debates
Most common subjects of construction and interpretation are the constitution where members of the assembly may propose amendments and
and statutes which include ordinances. But we may also add resolutions, insertions to the proposed bill.
executive orders and department circulars. g. After the approval of the bill in its second reading and at least three (3)
calendar days before its final passage, the bill is printed in its final form
CHAPTER II and copies thereof distributed to each of the members.
STATUTES h. The bill is then calendared for the third and final reading. At this stage,
no amendment shall be allowed. Only the title of the bill is read and the
LEGISLATIVE PROCEDURES National Assembly will then vote on the bill. Under the present 1987b
Constitution, after the third and final reading at one House where the bill
The power to make laws is lodged in the legislative department of the originated, it will go to the other House where it will undergo the same
government. process.
i. After the bill has been passed, it will be submitted to the Prime Minister
A statute starts with a bill. (President) for approval. If he disapproves, he shall veto it and return the
same with his objections to the National Assembly (House where it
Bill – is the draft of a proposed law from the time of its introduction in a originated), and if approved by two-thirds of all its members, shall
legislative body through all the various stages in both houses. It is enacted become a law. Under the present set-up, if the originating house will
into law by a vote of the legislative body. An “Act” is the appropriate term for agree to pass the bill, it shall be sent, together with the objections to the
it after it has been acted on and passed by the legislature. It then becomes a other house by which it shall be likewise be considered and must be
statute, the written will of the legislature solemnly expressed according to the approved by two-thirds of the votes. Every bill passed by Congress shall
form necessary to constitute it as the law of the state. be acted upon by the President within thirty (30) days from receipt
thereof. Otherwise, it shall become a law.
“Statute Law” is a term often used interchangeably with the word “statute”.
Statute Law, however, is broader in meaning since it includes not only statute CONSTITUTIONAL TEST IN THE PASSAGE OF A BILL
but also the judicial interpretation and application of the enactment.

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STATUTORY CONSTRUCTION
Three (3) very important constitutional requirements in the enactment of KINDS OF STATUTES
statute:
1. General Law – affects the community at large. That which affects all
1. Every bill passed by Congress shall embrace only one subject which people of the state or all of a particular class.
shall be expressed in the title thereof. The purposes of this constitutional
requirements are: 2. Special Law – designed for a particular purpose, or limited in range or
•
Page | 3 To prevent hodge-podge or log-rolling legislation; confined to a prescribed field of action on operation.
• To prevent surprise or fraud upon the legislature; and
• To fairly apprise the people, through such publications of legislative 3. Local Law – relates or operates over a particular locality instead of over
proceedings as is usually made, of the subjects of legislation that are the whole territory of the state.
being considered, in order that they may have opportunity of being
heard thereon by petition or otherwise, if they shall so desire. 4. Public Law – a general classification of law, consisting generally of
2. No bill passed by either House shall become law unless it has passed constitutional, administrative, criminal, and international law, concerned
three readings on separate days, and printed copies thereof in its final with the organization of the state, the relations between the state and the
form have been distributed to each member three days before its people who compose it, the responsibilities of public officers of the state,
passage. to each other, and to private persons, and the relations of state to one
3. Every bill passed by the Congress shall, before it becomes a law, be another. Public law may be general, local or special law.
presented to the President. The executive approval and veto power of
the President is the third important constitutional requirement in the 5. Private Law – defines, regulates, enforces and administers relationships
mechanical passage of a bill. among individuals, associations and corporations.

PARTS OF STATUTE 6. Remedial Statute – providing means or method whereby causes of

action may be affectuated, wrongs redressed and relief obtained.
a. Title – the heading on the preliminary part, furnishing the name by which
the act is individually known. It is usually prefixed to the statute in the 7. Curative Statute – a form of retrospective legislation which reaches
brief summary of its contents. back into the past to operate upon past events, acts or transactions in
b. Preamble – part of statute explaining the reasons for its enactment and order to correct errors and irregularities and to render valid and effective
the objects sought to be accomplished. Usually, it starts with “whereas”. many attempted acts which would otherwise be ineffective for the
c. Enacting clause – part of statute which declares its enactment and purpose intended.
serves to identify it as an act of legislation proceeding from the proper
legislative authority. “Be enacted” is the usual formula used to start this 8. Penal Statute – defines criminal offenses specify corresponding fines
clause. and punishments.
d. Body – the main and operative part of the statute containing its
substantive and even procedural provisions. Provisos and exceptions 9. Prospective Law – applicable only to cases which shall arise after its
may also be found. enactment.
e. Repealing Clause - announces the prior statutes or specific provisions
which have been abrogated by reason of the enactment of the new law. 10. Retrospective Law – looks backward or contemplates the past; one
f. Saving Clause – restriction in a repealing act, which is intended to save which is made to affect acts or facts occurring, or rights occurring, before
rights, pending proceedings, penalties, etc. from the annihilation which it came into force.
would result from an unrestricted repeal.
g. Separability Clause – provides that in the event that one or more 11. Affirmative Statute – directs the doing of an act, or declares what shall
provisions or unconstitutional, the remaining provisions shall still be in be done in contrast to a negative statute which is one that prohibits the
force. things from being done, or declares what shall not be done.
h. Effectivity Clause – announces the effective date of the law.

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STATUTORY CONSTRUCTION
12. Mandatory Statutes – generic term describing statutes which require Ordinance – an act passed by the local legislative body in the exercise of its
and not merely permit a course of action. law-making authority.

CONCEPT OF VAGUE STATUTES TEST OF VALID ORDINANCE

Statues or act may be said to be vague when it lacks comprehensible
standards those men “of common intelligence must necessarily guess at its 1. Must not contravene the Constitution or any statute;
meaning
Page |4 and differ as to its application. 2. Must not be unfair or oppressive;
Statute is repugnant to the Constitution in two (2) respects: 3. Must not be partial or discriminatory;
1. It violates due process for failure to accord persons fair notice of conduct 4. Must not prohibit but may regulate trade;
to avoid; and 5. Must be general and consistent with public policy; and
2. It leaves law enforcers unbridled discretions. 6. Must not be unreasonable.

The Supreme Court held that the “vagueness” doctrine merely requires a REASON WHY AN ORDINANCE SHOULD NOT CONTRAVENE A
reasonable degree of certainty for the statute to be upheld--- not absolute STATUTE
precision or mathematical exactitude. Flexibility, rather than meticulous
specificity, is permissible as long as the metes and bounds of the statute are Local councils exercise only delegated legislative powers conferred on them
clearly delineated by Congress as the national law making body.

The delegate cannot be superior to the principal.

REPEALS OF STATUTE MAY BE EXPRESSED OR IMPLIED
ROLE OF FOREIGN JURISPRUDENCE
Express repeal – is the abrogation or annulling of a previously existing law
by the enactment of a subsequent statute which declares that the former law Philippine laws must necessarily be construed in accordance with the
shall be revoked and abrogated. intention of its own law makers and such intent may be deduced from the
Implied repeal – when a later statute contains provisions so contrary to language of each law and the context of other local legislation related
irreconcilable with those of the earlier law that only one of the two statutes thereof.
can stand in force.
CHAPTER III
The repeal of a penal law deprives the court of jurisdiction to punish persons BASIC GUIDELINES IN THE CONSTRUCTION AND INTERPRETATION
charged with a violation of the old penal law prior to its repeal. OF LAWS

Only a law can repeal a law. LEGISLATIVE INTENT

The object of all interpretation and construction of statutes is to ascertain the
The intention to repeal must be clear and manifest, otherwise, at least, as a meaning and intention of the legislature, to the end that the same may be
general rule, the later act is to be construed as a continuation of, and not a enforced.
substitute for, the first act. Legislative intent is determined principally from the language of the statute.

Two (2) categories of repeal by implication: VERBA LEGIS

1. Where provision in the two acts on the same subject matter are in an If the language of the statute is plain and free from ambiguity, and express a
irreconcilable conflict; single, definite, and sensible meaning, that meaning is conclusively
2. If the later act covers the whole subject of the earlier one and is clearly presumed to be the meaning which the legislature intended to convey.
intended as a substitute – to be a complete and perfect system in itself.
STATUTES AS A WHOLE
ORDINANCE A cardinal rule in statutory construction is that legislative intent must be
ascertained from a consideration of the statute as a whole and not merely of

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STATUTORY CONSTRUCTION
a particular provision. A word or phrase might easily convey a meaning WHEN THE LAW DOES NOT DISTINGUISH, COURTS SHOULD NOT
which is different from the one actually intended. DISTINGUISH

A statute should be construed as a whole because it is not to be presumed When the law does not distinguish, courts should not distinguish. The rule,
that the legislature has used any useless words, and because it is dangerous founded on logic, is a corollary of the principle that general words and
practice to base the construction upon only a part of it, since one portion may phrases of a statute should ordinarily be accorded their natural and general
be |qualified
Page 5 by other portions. significance.

SPIRIT AND PURPOSE OF THE LAW The courts should administer the law not as they think it ought to be but as
When the interpretation of a statute according to the exact and literal import they find it and without regard to consequences.
of its words would lead to absurd or mischievous consequences, or would
thwart or contravene the manifest purpose of the legislature in its enactment, • If the law makes no distinction, neither should the Court.
it should be construed according to its spirit and reason, disregarding or
modifying, so far as may be necessary, the strict letter of the law. EXCEPTIONS IN THE STATUTE
When the law does not make any exception, courts may not except
• When the reason of the law ceases, the law itself ceases. something unless compelling reasons exist to justify it.
• Doctrine of necessary implications. What is implied in a statute is as
much a part thereof as that which is expressed. GENERAL AND SPECIAL TERMS
General terms in a statute are to receive a general construction, unless
CASUS OMISSUS retrained by the context or by plain inferences from the scope and purpose of
When a statute makes specific provisions in regard to several enumerated the act.
cases or objects, but omits to make any provision for a case or object which
is analogous to those enumerated, or which stands upon the same reason, General terms or provisions in a statute may be restrained and limited by
and is therefore within the general scope of the statute, and it appears that specific terms or provisions with which they are associated.
such case or object was omitted by inadvertence or because it was
overlooked or unforeseen, it is called a “casus omissus”. Such omissions Special terms in a statute may sometimes be expanded to a general
or defects cannot be supplied by the courts. signification by the consideration that the reason of the law is general.
The rule of “casus omissus pro omisso habendus est” can operate and apply
only if and when the omission has been clearly established. GENERAL TERMS FOLLOWING SPECIAL TERMS (EJUSDEM GENERIS)
It is a general rule of statutory construction that where general words follow
STARE DECISIS an enumeration of persons or things, by words of a particular and specific
It is the doctrine that, when court has once laid down a principle, and apply it meaning, such general words are not to be construed in their widest extent,
to all future cases, where facts are substantially the same, regardless of but are to be held as applying only to persons or things of the same general
whether the parties and properties are the same. kind or class as those specifically mentioned. But this rule must be
Stare Decisis. Follow past precedents and do not disturb what has been discarded where the legislative intention is plain to the contrary.
settled. Matters already decided on the merits cannot be relitigated again
and again. This rule is commonly called the “ejusdem generis” rule, because it teaches
us that broad and comprehensive expressions in an act, such as “and all
“Stare decisis et non quieta movere” (follow past precedents and do not others”, or “any others”, are usually to be restricted to persons or things “of
disturb what has been settled. the same kind” or class with those specially named in the preceding words.

CHAPTER IV Rule of ejusdem generis merely a tool of statutory construction resorted to

CONSTRUCTION AND INTERPRETATION OF WORDS AND PHRASES when legislative intent is uncertain.

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STATUTORY CONSTRUCTION
COMPUTATION OF TIME
EXPRESS MENTION AND IMPLIED EXCLUSION When the laws speak of years, months, days or nights, it shall be understood
It is a general rule of statutory construction that the express mention of one that years are of three hundred sixty five days each; months of thirty days;
person, thing, or consequence is tantamount to an express exclusion of all days of twenty –four hours; and nights from sunset to sunrise.
others. “Expressio unius est exclusio alterius”.
If months are designated by their name, they shall be computed by the
Except:
Page | 6 number of days which they respectively have.
• When there is manifest of injustice
• When there is no reason for exception. In computing a period, the first day shall be excluded, and the last day
included (Art. 13, New Civil Code).
ASSOCIATED WORDS (NOSCITUR SOCIIS)
Where a particular word is equally susceptible of various meanings, its A “week” means a period of seven consecutive days without regard to the
correct construction may be made specific by considering the company of day of the week on which it begins.
terms in which it is found or with which it is associated.
FUNCTION OF THE PROVISO
USE OF NEGATIVE WORDS Proviso is a clause or part of a clause in the statute, the office of which is
Negative words and phrases regarded as mandatory while those affirmative either to except something from the enacting clause, or to qualify or restrain
are mere directory. its generality, or to exclude some possible ground of misinterpretation of its
extent.
The word “shall” emphasizes mandatory character and means imperative,
operating to impose a duty which may be enforced. “Provided” is the word used in introducing a proviso.

THE USE OF THE WORD “MAY” AND “SHALL” IN THE STATUTE CHAPTER V
Use of the word “may” in the statute generally connotes a permissible thing, PRESUMPTIONS IN AID OF CONSTRUCTION AND INTERPRETATION
and operates to confer discretion while the word “shall” is imperative,
operating to impose a duty which may be enforced. PRESUMPTIONS
In construing a doubtful or ambiguous statute, the Courts will presume that it
The term “shall” may be either as mandatory or directory depending upon a was the intention of the legislature to enact a valid, sensible and just law, and
consideration of the entire provision in which it is found, its object and one which should change the prior law no further than may be necessary to
consequences that would follow from construing it one way or the other. effectuate the specific purpose of the act in question.

USE OF THE WORD “MUST” PRESUMPTION AGAINST UNCONSTITUTIONALITY

The word “must” in a statute like “shall” is not always imperative and may be Laws are presumed constitutional. To justify nullification of law, there must
consistent with an exercise discretion. be a clear and unequivocal breach of the constitution.
THE USE OF THE TERM “AND” AND THE WORD “OR”
“And” means conjunction connecting words or phrases expressing the idea The theory is that, as the joint act of the legislative and executive authorities,
that the latter is to be added or taken along with the first. a law is supposed to have been carefully studied and determined to be
constitutional before it was finally enacted.
“Or” is a disjunctive particle used to express as alternative or to give a choice
of one among two or more things. It is also used to clarify what has already All laws are presumed valid and constitutional until or unless otherwise ruled
been said, and in such cases, means “in other words,” “to wit,” or “that is to by the Court.
say.”
PRESUMPTION AGAINST INJUSTICE
The law should never be interpreted in such a way as to cause injustice as
this never within the legislative intent.

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STATUTORY CONSTRUCTION
CHAPTER VII
We interpret and apply the law in consonance with justice. EXTRINSIC AIDS IN CONSTRUCTION AND INTERPRETATION

Judges do not and must not unfeelingly apply the law as it is worded, yielding EXTRINSIC AIDS
like robots to the literal command without regard to its cause and These are existing aids from outside sources, meaning outside of the four
consequence. corners of the statute. If there is any doubt as to the meaning of the statute,
Page | 7 the interpreter must first find that out within the statute.
PRESUMPTION AGAINST IMPLIED REPEALS
The two laws must be absolutely incompatible, and clear finding thereof must Extrinsic aids therefore are resorted to after exhausting all the available
surface, before the inference of implied repeal may be drawn. intrinsic aids and still there remain some ambiguity in the statute.

In the absence of an express repeal, a subsequent law cannot be construed Extrinsic aids resorted to by the courts are history of the enactment of the
as repealing a prior law unless an irreconcilable inconsistency and statute; opinions and rulings of officials of the government called upon to
repugnancy exists in terms of the new and old laws. execute or implement administrative laws; contemporaneous construction by
executive officers; actual proceedings of the legislative body; individual
PRESUMPTION AGAINST INEFFECTIVENESS statements by members of congress; and the author of the law.
In the interpretation of a statute, the Court should start with the assumption
that the legislature intended to enact an effective statute. Other sources of extrinsic aids can be the reports and recommendations of
legislative committees; public policy; judicial construction; and construction
PRESUMPTION AGAINST ABSURDITY by the bar.
Statutes must receive a sensible construction such as will give effect to the
legislative intention so as to avoid an unjust and absurd conclusion. CHAPTER VI
INTRINSIC AIDS IN CONSTRUCTION AND INTERPRETATION
Presumption against undesirable consequences were never intended by a
legislative measure. INTRINSIC AIDS
The very term “intrinsic” means internal or within.
PRESUMPTION AGAINST VIOLATION OF INTERNATIONAL LAW
Philippines as democratic and republican state adopts the generally Intrinsic aids, therefore, are those aids within the statute.
accepted principles of international law as part of the law of the land and
adheres to the policy of peace, equality, justice, freedom, cooperation, and If the language of the statute is clear and unequivocal, there is no need to
amity with all nations. (Art. II, Sec. 2, Phil. Constitution). resort to intrinsic aids.

In resorting to intrinsic aids, one must go back to the parts of the statute.
CHAPTER VI
INTRINSIC AIDS IN CONSTRUCTION AND INTERPRETATION
THE TITLE OF THE LAW IS A VALUABLE INTRINSIC AID IN
INTRINSIC AIDS DETERMINING LEGISLATIVE INTENT
The term “intrinsic” means internal or within. Intrinsic aids, therefore, are
those aids within the statute. TEXT OF THE STATUTE AS INTRINSIC AID
Subtitle of the statute as intrinsic aid in determining legislative intent.
Intrinsic aids are resorted to only if there is ambiguity. In resorting to intrinsic
aids, one must go back to the parts of the statute: the title, the preamble, PREAMBLE AS INTRINSIC AID
context or body, chapter and section headings, punctuation, and The intent of the law as culled from its preamble and from the situation,
interpretation. circumstances and conditions it sought to remedy, must be enforced.

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STATUTORY CONSTRUCTION
Preamble used as a guide in determining the intent of the lawmaker. GENERAL PRINCIPLES
If a statute should be strictly construed, nothing should be included within the
CHAPTER VII scope that does not come clearly within the meaning of the language used.
EXTRINSIC AIDS IN CONSTRUCTION AND INTERPRETATION
But the rule of strict construction is not applicable where the meaning of the
EXTRINSIC AIDS statute is certain and unambiguous , for under these circumstances, there is
Extrinsic
Page |8 aids are existing aids from outside sources, meaning outside from no need for construction.
the four corners of the statute.
On the other hand, there are many statutes which will be liberally construed.
Extrinsic aids are resorted to after exhausting all the available intrinsic aids The meaning of the statute may be extended to matters which come within
and still there remain some ambiguity in the statute. the spirit or reason of the law or within the evils which the law seeks to
suppress or correct.
Extrinsic aids resorted to by the courts are:
• History of the enactment of the statute; Liberal interpretation or construction of the law or rules, however, applies
• Opinions and rulings of officials of the government called upon to only in proper cases and under justifiable causes and circumstances. While
execute or implement administrative laws; it is true that litigation is not a game of technicalities, it is equally true that
• Contemporaneous construction by executive officers charged with every case must be prosecuted in accordance with the prescribed procedure
implementing and enforcing the provisions of the statutes unless to insure an orderly and speedy administration of justice.
such interpretation is clearly erroneous;
PENAL STATUTES
• Actual proceedings of the legislative body;
Penal laws are to be construed strictly against the state and in favor of the
• Individual statements by members of congress; and accused. Hence, in the interpretation of a penal statute, the tendency is to
• The author of the law subject it to careful scrutiny and to construe it with such strictness as to
• safeguard the right of the accused.
Other sources of extrinsic aids are:
• Reports and recommendations of legislative committees; If the statute is ambiguous and admits of two reasonable but contradictory
• Public policy; constructions, that which operates in favor of a party accused under its
• Judicial construction; and provisions is to be preferred.
• Construction by the bar
TAX LAWS
Taxation is a destructive power which interferes with the personal and
It is a well-accepted principle that where a statute is ambiguous, courts may
property rights of the people and takes from them a portion of their property
examine both the printed pages of the published Act as well as those
for the support of the government.
extrinsic matters that may aid in construing the meaning of the statute, such
as the history of its enactment, the reasons of the passage of the bill and
Accordingly, in case of doubt, tax statutes must be construed strictly against
purposes to be accomplished by the measure.
the government and liberally in favor of the taxpayer, for taxes, being
burdens, are not to be presumed beyond what the applicable statute
Individual statements by members of Congress on the floor do not
expressly and clearly declares.
necessarily reflect legislative intent.
Any claim for exemption from a tax statute is strictly construed against the
The best interpreter of the law or any of its provisions is the author of the law.
taxpayer and liberally in favor of the state.
CHAPTER VIII
NATURALIZATION LAW
STRICT AND LIBERAL CONSTRUCTION AND INTERPRETATION OF
Naturalization laws should be rigidly enforced and strictly construed in favor
STATUTES
of the government and against the applicant.

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STATUTORY CONSTRUCTION
the contrary is made manifest either by the express terms of the statute or by
INSURANCE LAW necessary implication.
Contracts of Insurance are to be construed liberally in favor of the insured
and strictly against the insurer. Thus, ambiguity in the words of an insurance The Civil Code of the Philippines follows the above rule thus: Laws shall
contract should be interpreted in favor of its beneficiary. have no retroactive effect, unless the contrary is provided.

LABOR
Page |9 AND SOCIAL LEGISLATIONS Retroactive legislation is looked upon with disfavor, as a general rule and
Doubts in the interpretation of Workmen’s Compensation and Labor Code properly so because of its tendency to be unjust and oppressive.
should be resolved in favor of the worker. It should be liberally construed to
attain their laudable objective, i.e., to give relief to the workman and/or his PENAL STATUTES
dependents in the event that the former should die or sustain in an injury. Penal statutes as a rule are applied prospectively. Felonies and
misdemeanors are punished under the laws in force at the time of their
The sympathy of the law on social security is towards its beneficiaries and commission. (Art. 366, RPC).
the law by its own terms, requires a construction of utmost liberality in their
favor. However, as an exception, it can be given retroactive effect if it is favorable to
the accused who is not a habitual criminal. (Art. 22, RPC).
RETIREMENT LAWS
Retirement laws are liberally interpreted in favor of the retiree because the PROCEDURAL LAWS ARE RETROSPECTIVE
intention is to provide for the retiree’s sustenance and comfort, when he is Statutes regulating the procedure of the Court will be construed as applicable
no longer capable of earning his livelihood. to actions pending and undermined at the time of their passage. However,
Rules of Procedure should not be given retroactive effect if it would result in
ELECTION RULES great injustice and impair substantive right.
Statute providing for election contests are to be liberally construed to the end
that the will of the people in the choice of public officer may not be defeated Procedural provisions of the Local Government Code are retrospective.
by mere technical objections. CURATIVE STATUTES
RULES OF COURT They are those which undertake to cure errors and irregularities and
Rule of court shall be liberally construed in order to promote their objective of administrative proceedings, and which are designed to give effect to
securing a just, speedy and inexpensive disposition of every action and contracts and other transactions between private parties which otherwise
proceeding. would fail of producing their intended consequences by reason of some
statutory disability or failure to comply with some technical requirement.
CHAPTER IX They are therefore retroactive in their character.
PROSPECTIVE AND RETROSPECTIVE STATUTES
CHAPTER X
GENERAL PRINCIPLES CONFLICTING STATUTES
Prospective statute – is a statute which operates upon acts and
transactions which have not occurred when the statute takes effect, that is, EFFECT SHOULD BE GIVEN TO THE ENTIRE STATUTE
which regulates the future. It may happen that in a statute, conflicting clauses and provisions may arise.
If such situation may occur, the statute must be construed as a whole.
Retrospective or retroactive law – is one which takes away or impairs
vested rights acquired under existing laws, or creates new obligations and STATUTES IN PARI MATERIA
imposes new duties, or attaches new disabilities in respect of transaction Statutes that relate to the same subject matter, or to the same class of
already past. persons or things, or have the same purpose or object.

A sound canon of statutory construction is that statutes operate

prospectively only and never retrospectively, unless the legislative intent to

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STATUTORY CONSTRUCTION
Statutes in pari materia are to be construed together; each legislative act is
to be interpreted with reference to other acts relating to the same matter or CHAPTER XI
subject. CONSTRUCTION AND INTERPRETATION OF THE CONSTITUTION

However, if statutes of equal theoritical application to a particular case cannot A constitution is a system of fundamental law for the governance and
be reconciled, the statute of later date must prevail being a later expression administration of a nation. It is supreme, imperious, absolute, and
of| legislative
Page 10 will. unalterable except by the authority from which it emanates.

GENERAL AND SPECIAL STATUTES Under the doctrine of constitutional supremacy, if a law or contract violates
Sometimes we find statutes treating a subject in general terms and another any norm of the constitution, that law or contract whether promulgated by the
treating a part of the same subject in particularly detailed manner. legislative, or by the executive branch or entered into by private persons for
private purposes is null and void and without any force or effect.
If both statutes are irreconcilable, the general statute must give way to the
special or particular provisions as an exception to the general provisions. ALL PROVISIONS OF THE CONSTITUTION ARE SELF-EXECUTING;
EXCEPTIONS
This is so even if the general statute is later enactment of the legislature and Some constitutions are merely declarations of policies. Their provisions
broad enough to include the cases in special law unless there is manifest command the legislature to enact laws and carry out the purposes of the
intent to repeal or alter the special law. framers who merely establish an outline of government providing for the
different departments of the governmental machinery and securing certain
STATUTE AND ORDINANCE fundamental and inalienable rights of citizens.
If there is conflict an ordinance and a statute, the ordinance must give way.
Thus a constitutional provision is self-executing if the nature and extent of the
It is a well-settled rule that a substantive law cannot be amended by a right conferred and the liability imposed are fixed by the constitution itself.
procedural law.
Unless it is expressly provided that a legislative act is necessary to enforce a
A general law cannot repeal a special law. constitutional mandate, the presumption now is that all provisions of the
constitution are self-executing.
In case of conflict between a general provision of a special law and a
particular provision of a general law, the latter will prevail. In case of doubt, the Constitution should be considered self-executing rather
than non-self-executing, unless the contrary is clearly intended.
When there is irreconcilable repugnancy between a proviso and the body of
a statute, the former prevails as latest expression of legislative intent. Non-self-executing provisions would give the legislature discretion to
determine when, or whether, they shall be effective, subordinated to the will
The enactment of a later legislation which is general law cannot be construed of the law-making body.
to have repealed a special law.
PROHIBITORY PROVISIONS GIVEN LITERAL AND STRICT
A statute is superior to an administrative circular, thus the later cannot repeal INTERPRETATION
or amend it. Guidelines in construction and interpretation of the constitution are stressed:

Where the instrument is susceptible of two interpretations, one which will 1. The Court in construing a Constitution should bear in mind the object
make it invalid and illegal and another which will make it valid and legal, the sought to be accomplished by its adoption, and the evils, if any, sought to
latter interpretation should be adopted. be prevented or remedied.
2. One provision of the Constitution is to be separated from all the others,
In case of conflict between an administrative order and the provisions of the to be considered alone, but that all provisions bearing upon a particular
Constitutions, the latter prevails.

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STATUTORY CONSTRUCTION
subject are to be brought into view and to be interpreted as to effectuate CONCLUSION
the great purposes of the instrument. The fundamental principle of constituitonal construction is to give effect to the
3. The proper interpretation of the Constitution depends more on how it intent of the framers of the organic law and of the people adopting it.
was understood by the people adopting it than the framer’s
understanding thereof. CHAPTER XII
RECENT CASES ON STATUTORY CONSTRUCTION
THE
Page | 11CONSTITUTIONAL PROVISION ON NATURAL-BORN CITIZENS OF
THE PHILIPPINES GIVEN RETROACTIVE EFFECT • The term “may” is indicative of a mere possibility, an opportunity or an
Under THE 1973 Constitution, those born of Filipino fathers and those born option.
of Filipino mothers with an alien father were placed on equal footing. They
were both considered as natural-born citizens. • An implied repeal is predicated on a substantial conflict between the new
and prior laws.
The constitutional provision is curative in nature.
• The abrogation or repeal of a law cannot be assumed; the intention to
THE CONSTITUTION MUST BE CONSTRUED IN ITS ENTIRETY AS ONE, revoke must be clear and manifest.
SINGLE DOCUMENT
• When the law speaks in clear and categorical language, there is no
LIBERAL CONSTRUCTION OF ONE TITLE OF ONE SUBJECT
occasion for interpretation.
A liberal construction of the “one title-one subject” rule has been invariably
adopted by the court so as not to cripple or impede legislation.
• Penal laws must be construed strictly. Such rule is founded on the
The title expresses the general subject and all the provisions are germane to tenderness of the law for the rights of individuals and on the plain
the general subject. principle that the power of punishment is vested in the Congress, not in
the Judicial department.
RESIGNATION OF THE PRESIDENT UNDER THE 1987 CONSTITUION IS
NOT GOVERNED BY ANY FORMAL REQUIREMENT AS TO FORM. IT • Where a requirement is made explicit and unambiguous terms, no
CAN BE ORAL. IT CAN BE WRITTEN. IT CAN BE EXPRESS. IT CAN discretion is left to the judiciary. It must see to it that the mandate is
BE IMPLIED. obeyed.

SPECIAL PROVISION PREVAILS OVER A GENERAL ONE • Statutes that are remedial, or that do not create new or take away vested
rights, do not fall…
Lex specialis derogant generali

SUPREMA LEX
It is time-honored that the Constitution is the Supreme Law of the land. It is
the law of all laws. Hence, if there is conflict between a statute and the
Constitution, the statute shall yield to the Constitution.

STARE DECISIS
The rule of precedents.

Judicial decisions applying or interpreting the laws or the Constitution shall

form part of the legal system of the Philippines.

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