STATUTORY CONSTRUCTION CHAPTER IPRELIMINARY CONSIDERATIONS STATUTORY CONSTRUCTION DEFINED Statutory Construction t h e a r t o r p r o c e s s o f d i s c o v e r i n g a n d e xp o u n d i n g t h e me a n i n g a n d i n t e n t i o n o f t h e a u t h o r s o f t h e l a w wi t h respect to its application to a given case,

, where that intention is rendereddoubtful, among others, by reason of the fact that the given case is not explicitly provided for in the law. Justice Martin defines statutory construction as the art of seeking the i n t e n t i o n o f t h e l e g i s l a t u r e i n e n a c t i n g a s t a t u t e a n d ap p l yi n g i t t o a given state of facts.A j u d i c ia l fu n c t i o n i s r eq u i re d wh e n a s t a t u t e i s i n v o k e d a n d d i f f e r e n t interpretations are in contention.Difference between judicial legislation and statutory construction:Where legislature attempts to do several things one which is invalid, itmay be discarded if the remainder of the act is workable and in no way depends upon the invalid portion, but if that portion is an integral part of t h e a c t , a n d i t s e x c i s i o n c h a n g e s t h e m a n i f e s t i n t e n t o f t h e a c t b y broadening its scope to include subject matter or territory which was notincluded therein as enacted, such excision is judicial legislation and not statutory construction. CONSTRUCTION AND INTERPRETATION, DISTINGUISHED Construction is the drawing of conclusions with respect to subjects thatare beyond the direct expression of the text, while interpretation is theprocess of discovering the true meaning of the language used.Interpretation is limited to exploring the written text. Construction onthe other hand is the drawing of conclusions, respecting subjects that liebeyond the direct expressions of the text. SITUS OF CONSTRUCTION AND INTERPRETATION In our system of government: Le g i s l a t i v e p o we r i s v e s t e d i n t h e C o n g r e s s o f th e P h i l ip p i n e s t h e Senate and the House of the Representatives E x e c u t i v e p o w e r i s v e s t e d i n t h e P r e s i d e n t o f t h e R e p u b l i c o f t h e Philippines (Art. VII, Sec.1, Phil. Const.) J u d ic i a l p o we r i s v e s t e d i n o n e S u p r e me C o u r t a n d i n s u c h l o we r courts as may be established by law. (Art VIII, Sec. 1, Phil. Const.)Legislative makes the lawExecutive - executes the law Judicial interprets the lawS i mp l y s t a t e d , t h e s i tu s o f c o n s t r u c t io n a n d in t e r p r e t a t io n o f wr i t t e n laws belong to the judicial department.I t i s t h e d u t y o f t h e C o u r t s o f J u s t i c e t o s e t t l e a c t u a l c o n t r o v e r s i e s i n v o l v i n g r i g h t s wh i c h a r e l e g a l ly d e ma n d a b l e a n d e n fo rc e a b le , a n d t o d e t e r mi n e wh e t h e r o r n o t t h e r e h a s b e e n a g r av e a b u s e o f d i s cr e t io n amounting to lack or excess of jurisdiction on the part of any branch or instrumentality of the government.Supreme Court is the one and only Constitutional Court and all otherlower courts are statutory courts and such lower courts have the powerto construe and interpret written laws. D U T Y O F T H E C O U R T S T O C O N S T R U E A N D I N T E R P R E T THE LAW; REQUISITES 1.There must be an actual case or controversy,2.There is ambiguity in the law involved in the controversy.Ambiguity exists if reasonable persons can find different meanings in a statute, document, etc.A s t a t u t e i s a m b i g u o u s i f i t i s a d m i s s i b l e o f t w o o r m o r e p o s s i b l e meanings.I f t h e l a w i s c l e a r a n d u n eq u i v o c a l , t h e C o ur t h a s n o o t h er a l te r n a t i v e but to apply the law and not to interpret. C o n s t r u c t i o n a n d i n t e r p r e t a t i o n o f l a w c o m e o n l y a f t e r i t h a s b e e n demonstrated that application is impossible or inadequate without them. D I F F E R E N T K I N D S O F C O N S T R U C T I O N A N D INTERPRETATION Hermeneutics the science or art of construction and interpretation. Le g a l h e r me n e u t i c s i s t h e s y s t e m a t i c b o d y o f r u l e s w h i c h a r e recognized as applicable to the construction and interpretation of legal writings.Dr. Lieber in his work on Hermeneutics gives the following classificationof the different kinds of interpretation : 1. C l o s e i n t e rp r e t a t io n ad o p t ed i f j u s t r e a s o n s co n n e c t e d wi t h t h e character and formation of the text induce as to take the words in then a r r o w e s t m e a n i n g . T h i s i s g e n e r a l l y known as literal interpretation.2 . E x t e n s i v e i n t e r p r e t a t i o n a l s o c a l l e d a s l i b e r a l i n t e r p r e t a t i o n , i t adopts a more comprehensive signification of the words.3 . E x t r a v ag a n t i n t e r p r e t a t io n s u b s t i t u t e s a me a n i n g e v i d e n t l y b e yo n d the true one. It is therefore not genuine interpretation.4 . F r e e o r u n r e s t r ic t e d i n t e r p r e t a t io n p r o c e ed s s i mp l y o n h e g e n e r a l principles of interpretation in good faith, not bound by any specific orsuperior principle.5 . Li mi t e d o r re s t r i c ted i n t er p r e t a t io n - i n fl u e n c e d b y o t h e r p r i n c ip l e s than the strictly hermeneutic ones.6.Predestined interpretation takes place when the interpreter, laboringu n d e r a s t r o n g b i a s o f m i n d , m a k e s t h e t e x t s u b s e r v i e n t t o h i s preconceived views and desires. SUBJECTS OF CONSTRUCTION AND INTERPRETATION

M o s t c o m m o n s u b j e c t s o f c o n s t r u c t i o n a n d i n t e r p r e t a t i o n a r e t h e constitution and statutes which include ordinances. But we may also add resolutions, executive orders and department circulars. CHAPTER II STATUTES LEGISLATIVE PROCEDURES T h e p o we r t o ma k e l a ws i s l o d g e d i n t h e l e g i s la t i v e d e p ar t me n t o f t h e government.A statute starts with a bill. Bill is the draft of a proposed law from the time of its introduction in al e g i s l a t i v e b o d y t h r o u g h a l l t h e v a r i o u s s t a g e s i n b o t h ho u s e s . I t i s e n a c t e d i n t o l a w b y a v o t e o f t h e l e g i s l a t i v e b o d y . An Act i s t h e a p p ro p r i a te t er m f o r i t a f t e r i t h a s b e e n ac t e d o n a nd p a s s e d b y t h e legislature. It then becomes a statute, the written will of the legislaturesolemnly expressed according to the form necessary to constitute it asthe law of the state. S t a t u t e L a w i s a t e r m o f t e n u s e d i n t e r c h a n g e a b l y w i t h t h e w o r d statute. Statute Law, however, is broader in meaning since it includesnot only statute but also the judicial interpretation and application of theenactment. HOW DOES A BILL BECOMES A LAW STEPS A bill before it becomes a law must pass the strict c o n s t i t u t i o n a l requirements explicit both in the 1973 Constitution and the 1 9 8 7 Constitution.Passage of a bill in a parliamentary system (unicameral assembly):a . A me mb e r o f t h e N a t i o n a l As s e mb l y ma y i n t r o d u ce t h e p ro p o s ed b i l l to the Secretary of the National Assembly who will calendar the samefor the first reading.b.In the first reading, the bill is read by its number and title only.c . A f t e r t h e f i r s t r e a d i n g , t h e b i l l i s r e f e r r e d b y t h e S p e a k e r t o t h e a p p ro p r i a te co m mi t t e e f o r s t u d y. At t h i s s t a g e , t h e ap p ro p r i a t e c o m m i t t e e w i l l c o n d u c t p u b l i c h e a r i n g s . T h e n a f t e r t h e p u b l i c hearings, the committee shall decide whether or not to report the billfavorably or whether a substitute bill should be considered. Shouldthere be an unfavorable report of the committee, then the proposed bill is dead.d . U p o n f a v o r a b l e a c t i o n b y t h e c o m m i t t e e , t h e b i l l i s r e t u r n e d t o t h e National Assembly and shall be calendared for the second reading.e.In the second reading, the bill is read in its entirety. f. I m me d i a t e l y a f t e r t h e s e co n d r e ad i n g , t h e b i l l i s s e t fo r o p e n d e b a t e s w h e r e m e m b e r s o f t h e a s s e m b l y m a y p r o p o s e a m e n d m e n t s a n d insertions to the proposed bill.g . Aft e r t h e a p p ro v a l o f t h e b il l i n i t s s e co n d r e ad i n g a n d a t l e a s t t h r ee (3) calendar days before its final passage, the bill is printed in its finalform and copies thereof distributed to each of the members.h . T h e b i l l i s t h e n c a l e n d a r e d f o r t h e t h i r d a n d f i n a l r e a d i n g . A t t h i s s t a g e , n o a me n d me n t s h a l l b e a ll o we d . O n l y t h e t i t l e o f t h e b i l l i s read and the National Assembly will then vote on the bill. Under thepresent 1987b Constitution, after the third and final reading at oneHouse where the bill originated, it will go to the other H ouse where it will undergo the same process.i . A f t e r t h e b i l l h a s b e e n p a s s e d , i t w i l l b e s u b m i t t e d t o t h e P r i m e Minister (President) for approval. If he disapproves, he shall veto ita n d r e t u r n t h e s a me wi t h h i s o b j e c t io n s t o t h e N a t i o n a l As s e mb l y( H o u s e wh e r e i t o r i g i n a t ed ), a n d i f ap p r o v e d b y t wo - t h i r d s o f a ll i t s m e m b e r s , s h a l l b e c o m e a l a w . U n d e r t h e p r e s e n t s e t - u p , i f t h e originating house will agree to pass the bill, it shall be sent, together with the objections to the other house by which it shall be likewise beconsidered and must be approved by two-thirds of the votes. Everybill passed by Congress shall be acted upon by the President withinthirty (30) days from receipt thereof. Otherwise, it shall become a law. CONSTITUTIONAL TEST IN THE PASSAGE OF A BILL Three (3) very important constitutional requirements in the enactment of statute:1 . E v e r y b i l l p a s s ed b y C o n g r e s s s h a l l e mb r a c e o n l y o n e s u b j ec t wh i c h s h a l l b e e x p r e s s e d i n t h e t i t l e t h e r e o f . T h e p u r p o s e s o f t h i s constitutional requirements are: To prevent hodge-podge or log-rolling legislation; To prevent surprise or fraud upon the legislature; and T o f a i r l y a p p r i s e t h e p e o p l e , t h r o u g h s u c h p u b l i c a t i o n s o f legislative p r o c e e d i n g s a s i s u s u a l l y m a d e , o f t h e s u b j e c t s o f legislation that are being considered, in order that they may haveopportunity of being heard thereon by petition or otherwise, if theyshall so desire. 2 . No b i l l p a s s ed b y e i t h e r Ho u s e s h a l l b e co me l a w u n l e s s i t h a s p a s s e d three readings on separate days, and printed copies thereof in its finalf o r m h a v e b e e n d i s t r ib u t e d t o e ac h me mb e r t h r e e d a ys b e fo re i t s passage.3 . E v er y b i l l p a s s e d b y t h e C o n g r e s s s h a l l , b e fo r e i t b e co me s a l a w, b e presented to the President. The executive approval and veto power of the President is the third important constitutional requirement in themechanical passage of a bill. PARTS OF STATUTE a. Title the heading on the preliminary part, furnishing the name by wh i c h t h e a c t is i n d i v i d u a l l y k n o wn . I t i s u s u a l l y p r e f i x e d t o t h e statute in the brief summary of its contents. b.

Preamble part of statute explaining the reasons for its enactmentand the objects sought to be accomplished. Usually, it starts withwhereas. c. Enacting clause part of statute which declares its enactment and serves to identify it as an act of legislation proceeding from the properlegislative authority. Be enacted is the usual formula used to start this clause. d. Body t h e m a i n a n d o p e r a t i v e p a r t o f t h e s t a t u t e c o n t a i n i n g i t s substantive and even procedural provisions. Provisos and exceptionsmay also be found. e. Repealing Clause - a n n o u n c e s t h e p r i o r s t a t u t e s o r s p e c i f i c provisions which have been abrogated by reason of the enactment of the new law. f. Saving Clause restriction in a repealing act, which is intended to save rights, pending proceedings, penalties, etc. from the annihilation which would result from an unrestricted repeal. g. Separability Clause p ro v i d e s t h a t i n t h e e v e n t t h a t o n e o r mo r e provisions or unconstitutional, the remaining provisions shall still bein force. h. Effectivity Clause announces the effective date of the law. KINDS OF STATUTES 1. General Law affects the community at large. That which affects all people of the state or all of a particular class.2. Special Law designed for a particular purpose, or limited in range or confined to a prescribed field of action on operation. 3. Local Law relates or operates over a particular locality instead of over the whole territory of the state. 4. Public Law a general classification of law, consisting generally of c o n s t i t u t i o n a l , a d m i n i s t r a t i v e , c r i m i n a l , a n d i n t e r n a t i o n a l l a w , concerned with the organization of the state, the relations betweenthe state and the people who compose it, the responsibilities of publico ffi c e r s o f t h e s t a t e, to e a c h o t h e r , a n d t o p r i v a t e p er s o n s , a n d t h e relations of state to one another. Public law may be general, local orspecial law. 5. Private Law d e f i n e s , r e g u l a t e s , e n f o r c e s a n d a d m i n i s t e r s relationships among individuals, associations and corporations. 6. Remedial Statute providing means or method whereby causes of action may be affectuated, wrongs redressed and relief obtained. 7. Curative Statute a form of retrospective legislation which reaches back into the past to operate upon past events, acts or transactions ino r d er to co r r e c t er r o r s a n d i r re g u l a r it i e s a n d t o r e nd e r v a l i d a n d effective many attempted acts which would otherwise be ineffective forthe purpose intended. 8. Penal Statute defines criminal offenses specify corresponding finesand punishments. 9. Prospective Law applicable only to cases which shall arise after its enactment. 10. Retrospective Law looks backward or contemplates the past; one which is made to affect acts or facts occurring, or rights occurring,before it came into force. 11. Affirmative Statute d i r ec t s t h e d o i n g o f an a c t , o r d e c l ar e s wh a t s h a l l b e d o n e i n c o n t r a s t t o a n e g a t i v e s t a t u t e w h i c h i s o n e t h a t prohibits the things from being done, or declares what shall not be done. 12. Mandatory Statutes generic term describing statutes which requireand not merely permit a course of action. CONCEPT OF VAGUE STATUTES

S t a t u e s o r a ct ma y b e s ai d to b e v a g u e wh e n i t l a c k s c o mp r e h e n s i b l e standards those men of common intelligence must necessarily guess at its meaning and differ as to its application.Statute is repugnant to the Constitution in two (2) respects:1 . I t v i o l a t e s d u e p r o c e s s f o r f a i l u r e t o a c c o r d p e r s o n s f a i r n o t i c e o f conduct to avoid; and2.It leaves law enforcers unbridled discretions. The Supreme Court held that the vagueness doctrine merely requires areasonable degree of certainty for the statute to be upheld--- not absoluteprecision or mathematical exactitude. Flexibility, rather than meticulousspecificity, is permissible as long as the metes and bounds of the statuteare clearly delineated REPEALS OF STATUTE MAY BE EXPRESSED OR IMPLIED Express repeal is the abrogation or annulling of a previously existingl a w b y t h e e n a c t me n t o f a s u b s e q u e n t s t a t u t e wh i c h d e c l ar e s th a t t h e former law shall be revoked and abrogated. Implied repeal when a later statute contains provisions so contrary toi r r e c o n c i l a b l e w i t h t h o s e o f t h e e a r l i e r l a w t h a t o n l y o n e o f t h e t w o statutes can stand in force. T h e r e p e a l o f a p e n a l la w d e p r i v e s t h e co u r t o f j u r i s d ic t i o n to p u n i s h persons charged with a violation of the old penal law prior to its repeal. Only a law can repeal a law . The intention to repeal must be clear and manifest, otherwise, at least,as a general rule, the later act is to be construed as a continuation of, and not a substitute for, the first act. Two (2) categories of repeal by implication:1.Where provision in the two acts on the same sub ject matter are in anirreconcilable conflict;2 . I f t h e l a t e r a c t c o v e r s t h e w h o l e s u b j e c t o f t h e e a r l i e r o n e a n d i s clearly intended as a substitute to be a complete and perfect systemin itself. ORDINANCE Ordinance an act passed by the local legislative body in the exercise of its law-making authority. TEST OF VALID ORDINANCE 1.Must not contravene the Constitution or any statute; 2 . M u s t n o t b e u n fa i r o r o p p r e s s i v e ; 3 . M u s t n o t b e p a r t ia l o r d i s cr i m i n a t o r y; 4 . M u s t n o t p r o hi b i t b u t ma y r e g u l a t e t rad e ; 5.Must be general and consistent with public policy; and 6 . M u s t n o t b e u n r e a s o n a b le . R E A S O N W H Y A N O R D I N A N C E S H O U L D N O T CONTRAVENE A STATUTE Lo c a l co u n c i l s e x e r ci s e o n l y d e l e g a t e d l e g i s l a t iv e p o we r s c o n fe rr e d o n them by Congress as the national law making body. The delegate cannot be superior to the principal. ROLE OF FOREIGN JURISPRUDENCE P h i l i p p i n e la ws mu s t n e c e s s a r i l y b e c o n s t r u ed in a c c o r d a n c e wi t h t h e intention of its own law makers and such intent may be deduced fromthe language of each law and the context of other local legislation relatedthereof. CHAPTER III BASIC GUIDELINES IN THE CONSTRUCTION ANDINTERPRETATION OF LAWS LEGISLATIVE INTENT T h e o b j e c t o f a l l i n t e r p r e t a t i o n a n d c o n s t r u c t i o n o f s t a t u t e s i s t o ascertain the meaning and intention of the legislature, to the end that the same may be enforced.Le g i s l a t i v e i n t e n t i s d e t er mi n e d p r i n c ip a l l y f r o m t h e l a n g u a g e o f t h e statute. VERBA LEGIS If the language of the statute is plain and free from ambiguity, and e x p r e s s a s i n g l e , d e f i n i t e , a n d s e n s i b l e m e a n i n g , t h a t m e a n i n g i s conclusively presumed to be the meaning which the legislature intended to convey. STATUTES AS A WHOLE A cardinal rule in statutory construction is that legislative intent must bea s c e r t a i n e d f r o m a c o n s i d e r a t i o n o f t h e s t a t u t e a s a w h o l e a n d n o t merely of a particular provision. A word or phrase might easily convey ameaning which is different from the one actually intended.A s t a t u t e s h o u l d b e c o n s t r u e d a s a w h o l e b e c a u s e i t i s n o t t o b e presumed that the legislature has used any useless words, and becauseit is dangerous practice to base the construction upon only a part of it, since one portion may be qualified by other portions. SPIRIT AND PURPOSE OF THE LAW When the interpretation of a statute according to the exact and literalimport of its words would lead to absurd or mischievous consequences,or would thwart or contravene the manifest purpose of the legislature in