1

uescribe the 4dministrotive code of 1987

1he Code ls a general law and lncorporaLes ln a unlfled documenL Lhe ma[or
sLrucLural funcLlonal and procedural prlnclples of governance (1bltJ wbeteos
cloose AJmlolsttotlve coJe of 1987) and embodles changes ln admlnlsLraLlve
sLrucLures and procedures deslgned Lo serve Lhe people" (loottb wbeteos cloose
AJmlolsttotlve coJe of 1987) 1he Code ls dlvlded lnLo seven (7) books 1hese books
conLaln provlslons on Lhe organlzaLlon powers and general admlnlsLraLlon of
deparLmenLs bureaus and offlces under Lhe execuLlve branch Lhe organlzaLlon and
funcLlons of Lhe ConsLlLuLlonal Commlsslons and oLher consLlLuLlonal bodles Lhe
rules on Lhe naLlonal governmenL budgeL as well as guldellnes for Lhe exerclse by
admlnlsLraLlve agencles of quaslleglslaLlve and quasl[udlclal powers 1he Code
covers boLh Lhe lnLernal admlnlsLraLlon le lnLernal organlzaLlon personnel and
recrulLmenL supervlslon and dlsclpllne and Lhe effecLs of Lhe funcLlons performed
by admlnlsLraLlve offlclals on prlvaLe lndlvlduals or parLles ouLslde governmenL
%e v 1orres 6k No 12785 lu 2l 1998 Puno)
whot is 4dministrotive Power?
AJmlolsttotlve powet ls concerned wlLh Lhe work of applylng pollcles and
enforclng orders as deLermlned by proper governmenLal organs lL enables Lhe
resldenL Lo flx a unlform sLandard of admlnlsLraLlve efflclency and check Lhe offlclal
conducL of hls agenLs 1o Lhls end he can lssue admlnlsLraLlve orders rules and
regulaLlons %e v 1orres 6k No 12785 lu 2l 1998 Puno)
whot is on 4dministrotive rder?
An oJmlolsttotlve otJet ls an ordlnance lssued by Lhe resldenL whlch relaLes
Lo speclflc aspecLs ln Lhe admlnlsLraLlve operaLlon of governmenL lL musL be ln
harmony wlLh Lhe law and should be for Lhe sole purpose of lmplemenLlng Lhe law
and carrylng ouL Lhe leglslaLlve pollcy %e v 1orres 6k No 12785 lu 2l
1998 Puno)
whot is the 6overnment of the keubic of the Phiiines?
1he ovetomeot of tbe kepobllc of tbe lblllpploes refers Lo Lhe corporaLe
governmenLal enLlLy Lhrough whlch Lhe funcLlons of Lhe governmenL are exerclsed
LhroughouL Lhe hlllpplnes lncludlng save as Lhe conLrary appears from Lhe conLexL
Lhe varlous arms Lhrough whlch pollLlcal auLhorlLy ls made effecLlve ln Lhe
hlllpplnes wheLher perLalnlng Lo Lhe auLonomous reglons Lhe provlnclal clLy
munlclpal or barangay subdlvlslons or oLher forms of local governmenL %ec 21
lntroductor Provisions xecutive rder No 292)
whot is on 4qenc of the 6overnment?
Aqeocy of tbe ovetomeot refers Lo any of Lhe varlous unlLs of Lhe
CovernmenL lncludlng a deparLmenL bureau offlce lnsLrumenLallLy or
governmenLowned or conLrolled corporaLlon or a local governmenL or a dlsLlncL
unlL Lhereln %ec 24 lntroductor Provisions xecutive rder No 292)
whot is o ueortment?
epottmeot refers Lo an execuLlve deparLmenL creaLed by law lor purposes
of 8ook lv Lhls sboll locloJe any lnsLrumenLallLy as hereln deflned havlng or
asslgned Lhe rank of a deparLmenL regardless of lLs name or deslgnaLlon%ec 27
lntroductor Provisions xecutive rder No 292)
whot is o 8ureou?
oteoo refers Lo any prlnclpal subdlvlslon or unlL of any deparLmenL lor
purposes of 8ook lv Lhls sboll locloJe any prlnclpal subdlvlslon or unlL of any
lnsLrumenLallLy glven or asslgned Lhe rank of a bureau regardless of acLual name or
deslgnaLlon as ln Lhe case of deparLmenLwlde reglonal offlces %ec 28
lntroductor Provisions xecutive rder No 292)

2

whot is on ffice?
fflce refers wlLhln Lhe framework of governmenLal organlzaLlon Lo any
ma[or funcLlonal unlL of a deparLmenL or bureau locloJloq reglonal offlces lL moy
olso refer Lo any poslLlon held or occupled by lndlvldual persons whose funcLlons
are deflned by law or regulaLlon %ec 29 lntroductor Provisions xecutive
rder No 292)
whot is o 6overnment lnstrumentoit? whot ore incuded in the term
6overnment lnstrumentoit?
A qovetomeot losttomeotollty refers Lo any agency of Lhe naLlonal
governmenL noL lnLegraLed wlLhln Lhe deparLmenL framework vesLed wlLh speclal
funcLlons or [urlsdlcLlon by law endowed wlLh some lf noL all corporaLe powers
admlnlsLerlng speclal funds en[oylng operaLlonal auLonomy usually Lhrough a
charLer 1he Lerm lncludes regulaLory agencles charLered lnsLlLuLlons and
governmenLowned or conLrolled corporaLlons %ec 210 lntroductor Provisions
xecutive rder No 292)
whot is o kequotor 4qenc?
A teqolototy oqeocy refers Lo any agency expressly vesLed wlLh [urlsdlcLlon Lo
regulaLe admlnlsLer or ad[udlcaLe maLLers affecLlng subsLanLlal rlghLs and lnLeresL of
prlvaLe persons Lhe prlnclpal powers of whlch are exerclsed by a collecLlve body
such as a commlsslon board or councll %ec 211 lntroductor Provisions
xecutive rder No 292)
whot is o chortered lnstitution?
A cbotteteJ lostltotloo refers Lo any agency organlzed or operaLlng under a
speclal charLer and vesLed by law wlLh funcLlons relaLlng Lo speclflc consLlLuLlonal
pollcles or ob[ecLlves 1hls Lerm lncludes sLaLe unlverslLles and colleges and Lhe
moneLary auLhorlLy of Lhe SLaLe %ection 212 lntroductor Provisions xecutive
rder No 292)
whot is o 6overnmentwned or controed cororotion?
ovetomeotowoeJ ot coottolleJ cotpototloo refers Lo any agency organlzed
as a sLock or nonsLock corporaLlon vesLed wlLh funcLlons relaLlng Lo publlc needs
wheLher governmenLal or proprleLary ln naLure and owned by Lhe CovernmenL
dlrecLly or Lhrough lLs lnsLrumenLallLles elLher wholly or where appllcable as ln Lhe
case of sLock corporaLlons Lo Lhe exLenL of aL leasL flfLyone (31) per cenL of lLs
caplLal sLock x x x%ec 21l lntroductor Provisions xecutive rder No 292)
when is o 6overnmentwned or controed cororotion deemed to be erforminq
rorietor function? when is it deemed to be erforminq qovernmento
function?
CovernmenLowned or conLrolled corporaLlons may perform governmenLal or
proprleLary funcLlons or boLh dependlng on Lhe purpose for whlch Lhey have been
creaLed lf Lhe purpose ls Lo obLaln speclal corporaLe beneflLs or earn pecunlary
proflL Lhe funcLlon ls proprleLary lf lL ls ln Lhe lnLeresL of healLh safeLy and for Lhe
advancemenL of publlc good and welfare affecLlng Lhe publlc ln general Lhe
funcLlon ls governmenLal owers classlfled as proprleLary" are Lhose lnLended for
prlvaLe advanLage and beneflL %8oquero v 4coo 295 ck4 l 425 et 11
1998 n 8onc Purisimo)
1he Phiiine Notiono ked cross %PNkc) is o qovernmentowned ond controed
cororotion with on oriqino chorter under k4 No 95 os omended lts chorter
however wos omended to vest in it the outhorit to secure oons be exemted
from oment of o duties toxes fees ond other chorqes etc with the omendnt
of its chorter hos it been "imied converted to o rivote cororotion"?

3

1he LesL Lo deLermlne wheLher a corporaLlon ls governmenL owned or
conLrolled or prlvaLe ln naLure ls slmple ls lL creaLed by lLs own charLer for Lhe
exerclse of a publlc funcLlon or by lncorporaLlon under Lhe general corporaLlon
law? 1hose wlLh speclal charLers are governmenL corporaLlons sub[ecL Lo lLs
provlslons and lLs employees are under Lhe [urlsdlcLlon of Lhe Clvll Servlce
Commlsslon 1he n8C was noL lmplledly converLed Lo a prlvaLe corporaLlon"
slmply because lLs charLer was amended Lo vesL ln lL Lhe auLhorlLy Lo secure loans
be exempLed from paymenL of all duLles Laxes fees and oLher charges eLc
%comoredondo v NLkc 6k No 129049 4uq 1999 1
st
uiv Pordo)
when mo the 6overnment not void invoke the rue thot rescrition does not
run oqoinst the tote? lustrotive cose
Whlle lL ls Lrue LhaL prescrlpLlon does noL run agalnsL Lhe SLaLe Lhe same may
noL be lnvoked by Lhe governmenL ln Lhls case slnce lL ls no longer lnLeresLed ln Lhe
sub[ecL maLLer Whlle Camp Wallace may have belonged Lo Lhe governmenL aL Lhe
Llme 8afael Calvez's LlLle was ordered cancelled ln Land 8eglsLraLlon Case no n361
Lhe same no longer holds Lrue Loday
8epubllc AcL no 7227 oLherwlse known as Lhe 8ase Converslon and uevelopmenL
AcL of 1992 creaLed Lhe 8ases Converslon and uevelopmenL AuLhorlLy x x x
WlLh Lhe Lransfer of Camp Wallace Lo Lhe 8CuA Lhe governmenL no longer has a
rlghL or lnLeresL Lo proLecL ConsequenLly Lhe 8epubllc ls noL a real parLy ln lnLeresL
and lL may noL lnsLlLuLe Lhe lnsLanL acLlon nor may lL ralse Lhe defense of
lmprescrlpLlblllLy Lhe same belng appllcable only ln cases where Lhe governmenL ls a
parLy ln lnLeresL x x x 8elng Lhe owner of Lhe areas covered by Camp Wallace lL ls
Lhe 8ases Converslon and uevelopmenL AuLhorlLy noL Lhe CovernmenL whlch
sLands Lo be beneflLed lf Lhe land covered by 1C1 no 13710 lssued ln Lhe name of
peLlLloner ls cancelled
noneLheless lL has been poslLed LhaL Lhe Lransfer of mlllLary reservaLlons and Lhelr
exLenslons Lo Lhe 8CuA ls baslcally for Lhe purpose of acceleraLlng Lhe sound and
balanced converslon of Lhese mlllLary reservaLlons lnLo alLernaLlve producLlve uses
and Lo enhance Lhe beneflLs Lo be derlved from such properLy as a measure of
promoLlng Lhe economlc and soclal developmenL parLlcularly of CenLral Luzon and
ln general Lhe counLry's goal for enhancemenL (SecLlon 2 8epubllc AcL no 7227) lL
ls conLended LhaL Lhe Lransfer of Lhese mlllLary reservaLlons Lo Lhe Converslon
AuLhorlLy does noL amounL Lo an abdlcaLlon on Lhe parL of Lhe 8epubllc of lLs
lnLeresLs buL slmply recognlLlon of Lhe need Lo creaLe a body corporaLe whlch wlll
acL as lLs agenL for Lhe reallzaLlon of lLs program lL ls consequenLly asserLed LhaL
Lhe 8epubllc remalns Lo be Lhe real parLy ln lnLeresL and Lhe Converslon AuLhorlLy
merely lLs agenL
We however musL noL lose slghL of Lhe facL LhaL Lhe 8CuA ls an enLlLy lnvesLed wlLh
a personallLy separaLe and dlsLlncL from Lhe governmenL x x x
lL may noL be amlss Lo sLaLe aL Lhls polnL LhaL Lhe funcLlons of governmenL have
been classlfled lnLo governmenLal or consLlLuenL and proprleLary or mlnlsLranL
Whlle publlc beneflL and publlc welfare parLlcularly Lhe promoLlon of Lhe economlc
and soclal developmenL of CenLral Luzon may be aLLrlbuLable Lo Lhe operaLlon of
Lhe 8CuA yeL lL ls cerLaln LhaL Lhe funcLlons performed by Lhe 8CuA are baslcally
proprleLary ln naLure 1he promoLlon of economlc and soclal developmenL of
CenLral Luzon ln parLlcular and Lhe counLry's goal for enhancemenL ln general do
noL make Lhe 8CuA equlvalenL Lo Lhe CovernmenL CLher corporaLlons have been
creaLed by governmenL Lo acL as lLs agenLs for Lhe reallzaLlon of lLs programs Lhe
SSS CSlS nAWASA and Lhe nlA Lo counL a few and yeL Lhe CourL has ruled LhaL
Lhese enLlLles alLhough performlng funcLlons almed aL promoLlng publlc lnLeresL
and publlc welfare are noL governmenLfuncLlon corporaLlons lnvesLed wlLh
governmenLal aLLrlbuLes lL may Lhus be sald LhaL Lhe 8CuA ls noL a mere agency of
Lhe CovernmenL buL a corporaLe body performlng proprleLary funcLlons

4

Pavlng Lhe capaclLy Lo sue or be sued lL should Lhus be Lhe 8CuA whlch may flle an
acLlon Lo cancel peLlLloner's LlLle noL Lhe 8epubllc Lhe former belng Lhe real parLy ln
lnLeresL Cne havlng no rlghL or lnLeresL Lo proLecL cannoL lnvoke Lhe [urlsdlcLlon of
Lhe courL as a parLy plalnLlff ln an acLlon A sulL may be dlsmlssed lf Lhe plalnLlff or
Lhe defendanL ls noL a real parLy ln lnLeresL x x x
Powever Motcbo 1toospott co loc v lAc ls clLed as auLhorlLy LhaL Lhe
8epubllc ls Lhe proper parLy Lo sue for Lhe recovery of possesslon of properLy whlch
aL Lhe Llme of Lhe lnsLallaLlon of Lhe sulL was no longer held by Lhe naLlonal
governmenL body buL by Lhe hlllpplne orLs AuLhroLly ln Motcbo Lhe CourL
ruled
lL can be sald LhaL ln sulng for Lhe recovery of Lhe renLals Lhe 8epubllc of Lhe
hlllpplnes acLed as prlnclpal of Lhe hlllpplne orLs AuLhorlLy dlrecLly exerclslng
Lhe commlsslon lL had earller conferred on Lhe laLLer as lLs agenL We may presume
LhaL by dolng so Lhe 8epubllc of Lhe hlllpplnes dld noL lnLend Lo reLaln Lhe sald
renLals for lLs own use conslderlng LhaL by lLs volunLary acL lL had Lransferred Lhe
land ln quesLlon Lo Lhe hlllpplne orLs AuLhorlLy effecLlve !uly 11 1974 1he
8epubllc of Lhe hlllpplnes had slmply soughL Lo asslsL noL supplanL Lhe hlllpplne
orLs AuLhorlLy whose LlLle Lo Lhe dlspuLed properLy lL conLlnues Lo recognlze We
may expecL Lhe LhaL Lhe sald renLals once collecLed by Lhe 8epubllc of Lhe
hlllpplnes shall be Lurned over by lL Lo Lhe hlllpplne orLs AuLhorlLy conformably
Lo Lhe purposes of u no 837
Motcbo ls however noL on all fours wlLh Lhe case aL bar ln Lhe former Lhe
CourL consldered Lhe 8epubllc a proper parLy Lo sue slnce Lhe clalms of Lhe 8epubllc
and Lhe hlllpplne orLs AuLhorlLy agalnsL Lhe peLlLloner Lhereln were Lhe same 1o
dlsmlss Lhe complalnL ln Motcbo would have broughL needless delay ln Lhe
seLLlemenL of Lhe maLLer slnce Lhe A would have Lo reflle Lhe case on Lhe same
clalm already llLlgaLed upon Such ls noL Lhe case here slnce Lo allow Lhe
governmenL Lo sue hereln enables lL Lo ralse Lhe lssue of lmprescrlpLlblllLy a clalm
whlch ls noL avallable Lo Lhe 8CuA 1he rule LhaL prescrlpLlon does noL run agalnsL
Lhe SLaLe does noL apply Lo corporaLlons or arLlflclal bodles creaLed by Lhe SLaLe for
speclal purposes lL belng sald LhaL when Lhe LlLle of Lhe 8epubllc has been dlvesLed
lLs granLees alLhough arLlflclal bodles of lLs own creaLlon are ln Lhe same caLegory
as ordlnary persons 8y ralslng Lhe clalm of lmprescrlpLlblllLy a clalm whlch cannoL
be ralsed by Lhe 8CuA Lhe CovernmenL noL only asslsLs Lhe 8CuA as lL dld ln
Motcbo lL even supplanLs Lhe laLLer a course of acLlon proscrlbed by sald case
Moreover Lo recognlze Lhe CovernmenL as a proper parLy Lo sue ln Lhls case would
seL a bad precedenL as lL would allow Lhe 8epubllc Lo prosecuLe on behalf of
governmenLowned or conLrolled corporaLlons causes of acLlon whlch have already
prescrlbed on Lhe preLexL LhaL Lhe CovernmenL ls Lhe real parLy ln lnLeresL agalnsL
whom prescrlpLlon does noL run sald corporaLlons havlng been creaLed merely as
agenLs for Lhe reallzaLlon of governmenL programs
lL should also be noLed LhaL peLlLloner ls unquesLlonably a buyer ln good falLh and
for value havlng acqulred Lhe properLy ln 1963 or 3 years afLer Lhe lssuance of Lhe
orlglnal cerLlflcaLe of LlLle as a Lhlrd Lransferee lf only noL Lo do vlolence and Lo
glve some measure of respecL Lo Lhe 1orrens SysLem peLlLloner musL be afforded
some measure of proLecLlon %hiside lncororoted v court of 4eos l52 ck4
ll4 leb 20 2001 l
rd
uiv Meo)
uiscuss the noture ond functions of the Notiono 1eecommunicotions
commission %N1c) ond onoe its owers ond outhorit os we os the ows rues
ond requotions thot qovern its existence ond oerotions
1he n1C was creaLed pursuanL Lo LxecuLlve Crder no 346 x x x lL
assumed Lhe funcLlons formerly asslgned Lo Lhe 8oard of CommunlcaLlons and Lhe
CommunlcaLlons ConLrol 8ureau whlch were boLh abollshed under Lhe sald
LxecuLlve Crder revlously Lhe n1C's funcLlon were merely Lhose of Lhe defuncL
ubllc Servlce Commlsslon (SC) creaLed under CommonwealLh AcL no 146 as
amended oLherwlse known as Lhe ubllc Servlce AcL conslderlng LhaL Lhe 8oard of
CommunlcaLlons was Lhe successorlnlnLeresL of Lhe SC under LxecuLlve Crder

3

no 123A lssued ln Aprll 1987 Lhe n1C became an aLLached agency of Lhe
ueparLmenL of 1ransporLaLlon and CommunlcaLlons
ln Lhe regulaLory communlcaLlons lndusLry Lhe n1C has Lhe sole auLhorlLy
Lo lssue CerLlflcaLes of ubllc Convenlence and necesslLy (CCn) for Lhe lnsLallaLlon
operaLlon and malnLenance of communlcaLlons faclllLles and servlces radlo
communlcaLlons sysLems Lelephone and Lelegraph sysLems Such power lncludes
Lhe auLhorlLy Lo deLermlne Lhe areas of operaLlons of appllcanLs for
LelecommunlcaLlons servlces Speclflcally SecLlon 16 of Lhe ubllc Servlce AcL
auLhorlzes Lhe Lhen SC upon noLlce and hearlng Lo lssue CerLlflcaLes of ubllc
Convenlence for Lhe operaLlon of publlc servlces wlLhln Lhe hlllpplnes whenever
Lhe Commlsslon flnds LhaL Lhe operaLlon of Lhe publlc servlce proposed and Lhe
auLhorlzaLlon Lo do buslness wlll promoLe Lhe publlc lnLeresLs ln a proper and
sulLable manner" (commooweoltb Act No 146 5ectloo 16o) 1he procedure
governlng Lhe lssuance of such auLhorlzaLlons ls seL forLh ln SecLlon 29 of Lhe sald
AcL x x x %keubic v xress 1eecommunicotion co lnc l7l ck4 l1 lon 15
2002 1
st
uiv Ynoresontioqo)
ls the fiinq of the odministrotive rues ond requotions with the uP Low center the
oerotive oct thot qives the rues force ond effect?
ln granLlng 8ayanLel Lhe provlslonal auLhorlLy Lo operaLe a CM1S Lhe
n1C applled 8ule 13 SecLlon 3 of lLs 1978 8ules of racLlce and rocedure whlch
provldes
Sec 3 ltovlsloool kellef upon Lhe flllng of an appllcaLlon complalnL or peLlLlon or
aL any sLage LhereafLer Lhe 8oard may granL on moLlon of Lhe pleader or oo lts owo
loltlotlve Lhe rellef prayed for based on Lhe pleadlng LogeLher wlLh Lhe affldavlLs
and supporLlng documenLs aLLached LhereLo wlLhouL pre[udlce Lo a flnal declslon
afLer compleLlon of Lhe hearlng whlch shall be called wlLhln LhlrLy (30) days from
granL of auLhorlLy asked for
8espondenL LxLelcom however conLends LhaL Lhe n1C should have applled
Lhe 8evlsed 8ules whlch were flled wlLh Lhe Cfflce of Lhe naLlonal AdmlnlsLraLlve
8eglsLer on lebruary 3 1993 1hese 8evlsed 8ules deleLed Lhe phrase on lLs own
lnlLlaLlve" accordlngly a provlslonal auLhorlLy may be lssued only upon flllng of Lhe
proper moLlon before Lhe Commlsslon
ln answer Lo Lhls argumenL Lhe n1C Lhrough Lhe SecreLary of Lhe
Commlsslon lssued a cerLlflcaLlon Lo Lhe effecL LhaL lnasmuch as Lhe 1993 8evlsed
8ules have noL been publlshed ln a newspaper of general clrculaLlon Lhe n1C has
been applylng Lhe 1978 8ules
1he absence of publlcaLlon coupled wlLh Lhe cerLlflcaLlon by Lhe
Commlssloner of Lhe n1C sLaLlng LhaL Lhe n1C was sLlll governed by Lhe 1987 8ules
clearly lndlcaLe LhaL Lhe 1993 8evlsed 8ules have noL Laken effecL aL Lhe Llme of Lhe
granL of Lhe provlslonal auLhorlLy Lo 8ayanLel 1he facL LhaL Lhe 1993 8evlsed 8ules
were flled wlLh Lhe u Law CenLer on lebruary 3 1993 ls of no momenL 1here ls
noLhlng ln Lhe AdmlnlsLraLlve Code of 1987 whlch lmplles LhaL Lhe flllng of Lhe rules
wlLh Lhe u Law CenLer ls Lhe operaLlve acL LhaL glves Lhe rules force and effecL
8ook vll ChapLer 2 SecLlon 3 Lhereof merely sLaLes
lllloq (1) Lvery agency shall flle wlLh Lhe unlverslLy of Lhe hlllpplnes Law CenLer
Lhree (3) cerLlfled coples of every rule adopLed by lL 8ules ln force on Lhe daLe of
effecLlvlLy of Lhls Code whlch are noL flled wlLhln Lhree (3) monLhs from Lhe daLe
shall noL LhereafLer be Lhe basls of any sancLlon agalnsL any parLy or persons
(2) 1he records offlcer of Lhe agency or hls equlvalenL funcLlonary shall carry ouL
Lhe requlremenLs of Lhls secLlon under paln of dlsclpllnary acLlon
(3) A permanenL reglsLer of all rules shall be kepL by Lhe lssulng agency and shall be
open Lo publlc lnspecLlon

6

1he naLlonal AdmlnlsLraLlve 8eglsLer ls merely a bulleLln of codlfled rules
and lL ls furnlshed only Lo Lhe Cfflce of Lhe resldenL Congress all appellaLe courLs
Lhe naLlonal Llbrary oLher publlc offlces or agencles as Lhe Congress may selecL and
Lo oLher persons aL a prlce sufflclenL Lo cover publlcaLlon and malllng or dlsLrlbuLlon
cosLs (AJmlolsttotlve coJe of 1987 ook vll cboptet 2 5ectloo 7) ln a slmllar case
we held
1hls does noL lmply however LhaL Lhe sub[ecL AdmlnlsLraLlve Crder ls a valld
exerclse of such quaslleglslaLlve power 1he orlglnal AdmlnlsLraLlve Crder lssued on
AugusL 30 1989 under whlch Lhe respondenLs flled Lhelr appllcaLlons for
lmporLaLlons was noL publlshed ln Lhe Cfflclal CazeLLe or ln a newspaper of general
clrculaLlon 1he quesLloned AdmlnlsLraLlve Crder legally unLll lL ls publlshed ls
lnvalld wlLhln Lhe conLexL of ArLlcle 2 of Clvll Code whlch reads
ArLlcle 2 Laws shall Lake effecL afLer flfLeen days followlng Lhe compleLlon of Lhelr
publlcaLlon ln Lhe Cfflclal CazeLLe (or ln a newspaper of general clrculaLlon ln Lhe
hlllpplnes) unless lL ls oLherwlse provlded x x x"
1he facL LhaL Lhe amendmenLs Lo AdmlnlsLraLlve Crder no SCCLC 890801 were
flled wlLh and publlshed by Lhe u Law CenLer ln Lhe naLlonal AdmlnlsLraLlve
8eglsLer does noL cure Lhe defecL relaLed Lo Lhe effecLlvlLy of Lhe AdmlnlsLraLlve
Crder
1hls CourL ln 1oooJo v 1oveto sLaLed Lhus
We hold Lherefore LhaL all sLaLuLes lncludlng Lhose of local appllcaLlon and prlvaLe
laws shall be publlshed as a condlLlon for Lhelr effecLlvlLy whlch shall begln flfLeen
days afLer publlcaLlon unless a dlfferenL effecLlvlLy ls flxed by Lhe leglslaLure
Covered by Lhls rule are presldenLlal decrees and execuLlve orders promulgaLed by
Lhe resldenL ln Lhe exerclse of leglslaLlve power or aL presenL dlrecLly conferred by
Lhe ConsLlLuLlon AdmlnlsLraLlve 8ules and 8egulaLlons musL also be publlshed lf
Lhelr purpose ls Lo enforce or lmplemenL exlsLlng law pursuanL also Lo a valld
delegaLlon
lnLerpreLaLlve regulaLlons and Lhose merely lnLernal ln naLure LhaL ls regulaLlng
only Lhe personnel of Lhe admlnlsLraLlve agency and noL Lhe publlc need noL be
publlshed nelLher ls publlcaLlon requlred of Lhe socalled leLLers of lnsLrucLlons
lssued by admlnlsLraLlve superlors concernlng Lhe rules or guldellnes Lo be followed
by Lhelr subordlnaLes ln Lhe performance of Lhelr duLles
We agree LhaL Lhe publlcaLlon musL be ln full or lL ls no publlcaLlon aL all slnce lLs
purpose ls Lo lnform Lhe publlc of Lhe conLenLs of Lhe laws"
1he AdmlnlsLraLlve Crder under conslderaLlon ls one of Lhose lssuances whlch
should be publlshed for lLs effecLlvlLy slnce lLs purpose ls Lo enforce and lmplemenL
an exlsLlng law pursuanL Lo a valld delegaLlon le u 1071 ln relaLlon Lo LCl 444
and LC 133
1hus publlcaLlon ln Lhe Cfflclal CazeLLe or a newspaper of general
clrculaLlon ls a condlLlon sloe poo ooo before sLaLuLes rules or regulaLlons can Lake
effecL 1hls ls expllclL from LxecuLlve Crder no 200 whlch repealed ArLlcle 2 of Lhe
Clvll Code and whlch sLaLes LhaL
Laws shall Lake effecL afLer flfLeen days followlng Lhe compleLlon of Lhelr publlcaLlon
elLher ln Lhe Cfflclal CazeLLe or ln a newspaper of general clrculaLlon ln Lhe
hlllpplnes unless lL ls oLherwlse provlded ( 200 5ectloo 1)
1he 8ules of racLlce and rocedure of Lhe n1C whlch lmplemenLs SecLlon
29 of Lhe ubllc Servlce AcL fall squarely wlLhln Lhe scope of Lhese laws as expllclLly
menLloned ln Lhe case of 1oooJo v 1oveto
Cur pronouncemenL ln 1oooJo v 1oveto ls clear and caLegorlcal AdmlnlsLraLlve
rules and regulaLlons musL be publlshed lf Lhelr purpose ls Lo enforce or lmplemenL

7

exlsLlng law pursuanL Lo a valld delegaLlon 1he only excepLlon are lnLerpreLaLlve
regulaLlons Lhose merely lnLernal ln naLure or Lhose socalled leLLers of lnsLrucLlons
lssued by admlnlsLraLlve superlors concernlng Lhe rules and guldellnes Lo be
followed by Lhelr subordlnaLes ln Lhe performance of Lhelr duLles (lnll5A
lotetootloool llocemeot 5etvlces cotp v 5ectetoty of lobot k No 10J144 Aptll
4 2001 J56 5ckA 174)
Pence Lhe 1993 8evlsed 8ules should be publlshed ln Lhe Cfflclal CazeLLe
or ln a newspaper of general clrculaLlon before lL can Lake effecL Lven Lhe 1993
8evlsed 8ules lLself mandaLes LhaL sald 8ules shall Lake effecL only afLer Lhelr
publlcaLlon ln a newspaper of general clrculaLlon (5ectloo 20 tbeteof) ln Lhe
absence of such publlcaLlon Lherefore lL ls Lhe 1978 8ules LhaL govern %keubic v
xress 1eecommunicotion co lnc l7l ck4 l1 lon 15 2002 1
st
uiv Ynores
ontioqo)
Mo o erson be hed iobe for viootion of on odministrotive requotion which
wos not ubished?
eLlLloner lnslsLs however LhaL lL cannoL be held llable for lllegal
exacLlon as CLA Memorandum Clrcular no ll Serles of 1983 whlch enumeraLed
Lhe allowable fees whlch may be collecLed from appllcanLs ls vold for lack of
publlcaLlon
1here ls merlL ln Lhe argumenL
ln 1oooJo v 1oveto Lhe CourL held as follows
We hold Lherefore LhaL all sLaLuLes lncludlng Lhose of local appllcaLlon and prlvaLe
laws shall be publlshed as a condlLlon for Lhelr effecLlvlLy whlch shall begln flfLeen
days afLer publlcaLlon unless a dlfferenL effecLlvlLy daLe ls flxed by Lhe leglslaLure
Covered by Lhls rule are presldenLlal decrees and execuLlve orders promulgaLed by
Lhe resldenL ln Lhe exerclse of leglslaLlve powers whenever Lhe same are valldly
delegaLed by Lhe leglslaLure or aL presenL dlrecLly conferred by Lhe ConsLlLuLlon
AdmlnlsLraLlve rules and regulaLlons musL also be publlshed lf Lhelr purpose ls Lo
enforce or lmplemenL exlsLlng law pursuanL Lo a valld delegaLlon
lnLerpreLaLlve regulaLlons and Lhose merely lnLernal ln naLure LhaL ls regulaLlng
only Lhe personnel of Lhe admlnlsLraLlve agency and Lhe publlc need noL be
publlshed nelLher ls publlcaLlon requlred of Lhe socalled leLLer of lnsLrucLlons
lssued by Lhe admlnlsLraLlve superlors concernlng Lhe rules or guldellnes Lo be
followed by Lhelr subordlnaLes ln Lhe performance of Lhelr duLles"
Applylng Lhls docLrlne we have prevlously declared as havlng no force and
effecL Lhe followlng admlnlsLraLlve lssuances a) 8ules and 8egulaLlons lssued by Lhe
!olnL MlnlsLry of PealLhMlnlsLry of Labor and LmploymenL AccredlLaLlon CommlLLee
regardlng Lhe accredlLaLlon of hosplLals medlcal cllnlcs and laboraLorles b) LeLLer of
lnsLrucLlon no 416 orderlng Lhe suspenslon of paymenLs due and payable by
dlsLressed copper mlnlng companles Lo Lhe naLlonal governmenL c) Memorandum
Clrculars lssued by Lhe CLA regulaLlng Lhe recrulLmenL of domesLlc helpers Lo Pong
kong d) AdmlnlsLraLlve Crder no SCCLC 890801 lssued by Lhe hlllpplne
lnLernaLlonal 1radlng CorporaLlon regulaLlng appllcaLlons for lmporLaLlon from Lhe
eople's 8epubllc of Chlna and e) CorporaLe CompensaLlon Clrcular no 10 lssued by
Lhe ueparLmenL of 8udgeL and ManagemenL dlsconLlnulng Lhe paymenL of oLher
allowances and frlnge beneflLs Lo governmenL offlclals and employees ln all Lhese
clLed cases Lhe admlnlsLraLlve lssuances quesLloned Lhereln were unlformly sLruck
down as Lhey were noL publlshed or flled wlLh Lhe naLlonal AdmlnlsLraLlve 8eglsLer
as requlred by Lhe AdmlnlsLraLlve Code of 1987
CLA Memorandum Clrcular no 2 Serles of 1983 musL llkewlse be
declared lneffecLlve as Lhe same was never publlshed or flled wlLh Lhe naLlonal
AdmlnlsLraLlve 8eglsLer

8

CLA Memorandum Clrcular no 2 Serles of 1983 provldes for Lhe
appllcable schedule of placemenL and documenLaLlon fees for prlvaLe employmenL
agencles or auLhorlLy holders under Lhe sald Crder Lhe maxlmum amounL whlch
may be collecLed from prospecLlve llllplno overseas workers ls 230000 1he sald
clrcular was apparenLly lssued ln compllance wlLh Lhe provlslons of ArLlcle 32 of Lhe
Labor Code x x x
lL ls Lhus clear LhaL Lhe admlnlsLraLlve clrcular under conslderaLlon ls one of
Lhose lssuances whlch should be publlshed for lLs effecLlvlLy slnce lLs purpose ls Lo
enforce and lmplemenL an exlsLlng law pursuanL Lo a valld delegaLlon Conslderlng
LhaL CLA AdmlnlsLraLlve Clrcular no 2 Serles of 1983 has noL as yeL been
publlshed or flled wlLh Lhe naLlonal AdmlnlsLraLlve 8eglsLer Lhe same ls lneffecLlve
and may noL be enforced %Phiso lnternotiono Pocement ond ervices
cororotion v ecretor of Lobor ond moment l5 ck4 174 4ri 4 2001 l
rd

uiv 6onoqokees)
uoes the ubicotion requirement o os we to odministrotive requotions
oddressed on to o secific qrou ond not to the qenero ubic?
1he Cfflce of Lhe SollclLor Ceneral llkewlse argues LhaL Lhe
quesLloned admlnlsLraLlve clrcular ls noL among Lhose requlrlng publlcaLlon
conLemplaLed by 1oooJo v 1oveto as lL ls addressed only Lo a speclflc group of
persons and noL Lo Lhe general publlc
Agaln Lhere ls no merlL ln Lhls argumenL
1he facL LhaL Lhe sald clrcular ls addressed only Lo a speclfled group namely
prlvaLe employmenL agencles or auLhorlLy holders does noL Lake lL away from Lhe
amblL of our rullng ln 1oooJo v 1oveto ln Lhe case of lbll Assoclotloo of 5etvlce
pottets v 1ottes Lhe admlnlsLraLlve clrculars quesLloned Lhereln were addressed
Lo an even smaller group namely hlllpplne and Pong kong agencles engaged ln Lhe
recrulLmenL of workers for Pong kong and sLlll Lhe CourL ruled Lhereln LhaL for lack
of proper publlcaLlon Lhe sald clrculars may noL be enforced or lmplemenLed
Cur pronouncemenL ln 1oooJo v 1oveto ls clear and caLegorlcal
AdmlnlsLraLlve rules and regulaLlons musL be publlshed lf Lhelr purpose ls Lo enforce
or lmplemenL exlsLlng law pursuanL Lo a valld delegaLlon 1he only excepLlons are
lnLerpreLaLlve regulaLlons Lhose merely lnLernal ln naLure or Lhose socalled leLLers
of lnsLrucLlons lssued by admlnlsLraLlve superlors concernlng Lhe rules and
guldellnes Lo be followed by Lhelr subordlnaLes ln Lhe performance of Lhelr duLles
AdmlnlsLraLlve Clrcular no 2 Serles of 1983 has noL been shown Lo fall under any of
Lhese excepLlons
ln Lhls regard Lhe SollclLor Ceneral's rellance on Lhe case of ookoslo v
commlsslooet of costoms ls mlsplaced ln Lhe sald case Lhe valldlLy of cerLaln
CusLoms Memorandum Crders were upheld desplLe Lhelr lack of publlcaLlon as Lhey
were addressed Lo a parLlcular class of persons Lhe cusLoms collecLors who were
also Lhe subordlnaLes of Lhe Commlssloner of Lhe 8ureau of CusLoms As such Lhe
sald Memorandum Crders clearly fall under one of Lhe excepLlons Lo Lhe publlcaLlon
requlremenL namely Lhose deallng wlLh lnsLrucLlons from an admlnlsLraLlve superlor
Lo a subordlnaLe regardlng Lhe performance of Lhelr duLles a clrcumsLance whlch
does noL obLaln ln Lhe case aL bench x x x
1o summarlze peLlLloner should be absolved from Lhe Lhree (3) counLs of exacLlon
as CLA AdmlnlsLraLlve Clrcular no 2 Serles of 1983 could noL be Lhe basls of
admlnlsLraLlve sancLlons agalnsL peLlLloner for lack of publlcaLlon %Phiso
lnternotiono Pocement ond ervices cororotion v ecretor of Lobor ond
moment l5 ck4 174 4ri 4 2001 l
rd
uiv 6onoqokees)
Mo o successfu bidder come o qovernment oqenc to formoie o controct with
it notwithstondinq thot its bid exceeds the omount ororioted b conqress for
the roject?

9

Lnshrlned ln Lhe 1987 hlllpplne ConsLlLuLlon ls Lhe mandaLe LhaL no money
shall be pald ouL of Lhe 1reasury excepL ln pursuance of an approprlaLlon made by
law" (Sec 291 ArLlcle vl of Lhe 1987 ConsLlLuLlon) 1hus ln Lhe execuLlon of
governmenL conLracLs Lhe preclse lmporL of Lhls consLlLuLlonal resLrlcLlon ls Lo
requlre Lhe varlous agencles Lo llmlL Lhelr expendlLures wlLhln Lhe approprlaLlons
made by law for each flscal year
lL ls qulLe evldenL from Lhe Lenor of Lhe language of Lhe law LhaL Lhe exlsLence of
approprlaLlons and Lhe avallablllLy of funds are lndlspensable prerequlslLes Lo or
condlLlons sloe poo ooo for Lhe execuLlon of governmenL conLracLs 1he obvlous
lnLenL ls Lo lmpose such condlLlons as o ptlotl requlslLes Lo Lhe valldlLy of Lhe
proposed conLracL uslng Lhls as our premlse we cannoL accede Lo PC1CklnA's
conLenLlon LhaL Lhere ls already a perfecLed conLracL Whlle we held ln Mettopolltoo
Moollo evelopmeot Aotbotlty v Ioocom ovltoomeotol cotpototloo LhaL Lhe effecL
of an unquallfled accepLance of Lhe offer or proposal of Lhe bldder ls Lo perfecL a
conLracL upon noLlce of Lhe award Lo Lhe bldder" however such sLaLemenL would
be lnconsequenLlal ln a governmenL where Lhe accepLance referred Lo ls yeL Lo meeL
cerLaln condlLlons 1o hold oLherwlse ls Lo allow a publlc offlcer Lo execuLe a blndlng
conLracL LhaL would obllgaLe Lhe governmenL ln an amounL ln excess of Lhe
approprlaLlons for Lhe purpose for whlch Lhe conLracL was aLLempLed Lo be made
1hls ls a dangerous precedenL
ln Lhe case aL bar Lhere seems Lo be an overslghL of Lhe legal requlremenLs
as early as Lhe blddlng sLage 1he flrsL sLep of a 8lds and Awards CommlLLee (8AC) ls
Lo deLermlne wheLher Lhe blds comply wlLh Lhe requlremenLs 1he 8AC shall raLe a
bld passed" only lf lL complles wlLh all Lhe requlremenLs and Lhe submlLLed prlce
does noL exceed Lhe approved budgeL for Lhe conLracL" (lmplemeotloq koles ooJ
keqolotloos lkk fot ecotlve tJet No 262 sopto)
LxLanL on Lhe record ls Lhe facL LhaL Lhe v8lS ro[ecL was awarded Lo
PC1CklnA on accounL of lLs bld ln Lhe amounL of 6388 8llllon esos Powever
under 8epubllc AcL no 8760 (eoetol Apptoptlotloos Act l 2000 p 1018 sopto)
Lhe only fund approprlaLed for Lhe pro[ecL was 1 8llllon esos and under Lhe
CerLlflcaLlon of Avallable lunds (CAl) only 12 8llllon esos was avallable Clearly
Lhe amounL approprlaLed ls lnsufflclenL Lo cover Lhe cosL of Lhe enLlre v8lS ro[ecL
1here ls no way LhaL Lhe CCMLLLC could enLer lnLo a conLracL wlLh PC1CklnA
whose accepLed bld was way beyond Lhe amounL approprlaLed by law for Lhe
pro[ecL 1hls belng Lhe case Lhe 8AC should have re[ecLed Lhe bld for belng
excesslve or should have wlLhdrawn Lhe noLlce of Award on Lhe ground LhaL ln Lhe
eyes of Lhe law Lhe same ls null and vold
Lven Lhe drafL conLracL submlLLed by Commlssloner Sadaln LhaL provldes
for a conLracL prlce ln Lhe amounL of 12 8llllon esos ls unaccepLable x x x Whlle
Lhe conLracL prlce under Lhe drafL conLracL ls only 12 8llllon and Lhus wlLhln Lhe
cerLlfled avallable funds Lhe same covers only hase l of Lhe v8lS ro[ecL le Lhe
lssuance of ldenLlflcaLlon cards for only 1000000 voLers ln speclfled areas ln
effecL Lhe lmplemenLaLlon of Lhe v8lS ro[ecL wlll be segmenLed" or chopped"
lnLo several phases noL only ls such arrangemenL dlsallowed by our budgeLary laws
and pracLlces lL ls also dlsadvanLageous Lo Lhe CCMLLLC because of Lhe uncerLalnLy
LhaL wlll loom over lLs modernlzaLlon pro[ecL for an lndeflnlLe perlod of Llme Should
Congress fall Lo approprlaLe Lhe amounL necessary for Lhe compleLlon of Lhe enLlre
pro[ecL whaL good wlll Lhe accompllshed hase l serve? As expecLed Lhe pro[ecL
falled Lo sell" wlLh Lhe ueparLmenL of 8udgeL and ManagemenL 1hus SecreLary
8en[amln ulokno per hls leLLer of uecember 1 2000 decllned Lhe CCMLLLC's
requesL for Lhe lssuance of Lhe noLlce of Cash AvallablllLy (nCA) and a mulLlyear
obllgaLory auLhorlLy Lo assume paymenL of Lhe LoLal v8lS ro[ecL for lack of legal
basls Corollarlly under SecLlon 33 of 8A no 8760 no agency shall enLer lnLo a
mulLlyear conLracL wlLhouL a mulLlyear obllgaLlonal auLhorlLy Lhus
SLC1lCn 33 coottoctloq Moltleot ltojects ln Lhe lmplemenLaLlon of mulLlyear
pro[ecLs no agency shall enLer lnLo a mulLlyear conLracL wlLhouL a mulLlyear
CbllgaLlonal AuLhorlLy lssued by Lhe ueparLmenL of 8udgeL and ManagemenL for Lhe
purpose noLwlLhsLandlng Lhe lssuance of Lhe mulLlyear CbllgaLlonal AuLhorlLy Lhe

10

obllgaLlon Lo be lncurred ln any glven calendar year shall ln no case exceed Lhe
amounL programmed for lmplemenLaLlon durlng sald calendar year"
eLlLloners are [usLlfled ln refuslng Lo formallze Lhe conLracL wlLh PC1CklnA
rudence dlcLaLed Lhem noL Lo enLer lnLo a conLracL noL backed up by sufflclenL
approprlaLlon and avallable funds ueflnlLely Lo acL oLherwlse would be a fuLlle
exerclse for Lhe conLracL would lnevlLably suffer Lhe vlce of nulllLy x x x
verlly Lhe conLracL as expressly declared by law ls lnexlsLenL and vold ob
loltlo (Attlcle 1409 of tbe clvll coJe of tbe lblllpploes) 1hls ls Lo say LhaL Lhe
proposed conLracL ls wlLhouL force and effecL from Lhe very beglnnlng or from lLs
lnclplency as lf lL had never been enLered lnLo and hence cannoL be valldaLed
elLher by lapse of Llme or raLlflcaLlon
ln flne we rule LhaL PC1CklnA Lhough Lhe wlnnlng bldder cannoL compel Lhe
CCMLLLC Lo formallze Lhe conLracL Slnce PC1CklnA's bld ls beyond Lhe amounL
approprlaLed by Congress for Lhe v8lS ro[ecL Lhe proposed conLracL ls noL blndlng
upon Lhe CCMLLLC and ls consldered vold x x x %commission on ections v ludqe
Mo Luiso uijonoPodio 6k No 151992 et 18 2002 n 8onc ondovo
6utierre)
whot is the remed ovoiobe to o ort who controcts with the qovernment
contror to the requirements of the ow ond therefore void ob initio?
Cf course we are noL saylng LhaL Lhe parLy who conLracLs wlLh Lhe
governmenL has no oLher recourse ln law 1he law lLself affords hlm Lhe remedy
SecLlon 48 of LC no 292 expllclLly provldes LhaL any conLracL enLered lnLo conLrary
Lo Lhe abovemenLloned requlremenLs shall be vold and #tbe offlcets eotetloq loto
tbe coottoct sboll be lloble to tbe ovetomeot ot otbet coottoctloq potty fot ooy
coosepoeot Jomoqe to tbe some os lf tbe ttoosoctloo boJ beeo wbolly betweeo
ptlvote pottles So when Lhe conLracLlng offlcer Lranscends hls lawful and
leglLlmaLe powers by acLlng ln excess of or beyond Lhe llmlLs of hls conLracLlng
auLhorlLy Lhe CovernmenL ls noL bound under Lhe conLracL lL would be as lf Lhe
conLracL ln such case were a prlvaLe one whereupon he blnds hlmself and Lhus
assumes personal llablllLy Lhereunder CLherwlse sLaLed Lhe proposed conLracL ls
unenforceable as Lo Lhe CovernmenL
Whlle Lhls ls noL Lhe proceedlng Lo deLermlne where Lhe culpablllLy lles
however Lhe consLlLuLlonal mandaLe clLed above consLralns us Lo remlnd all publlc
offlcers LhaL publlc offlce ls a publlc LrusL and all publlc offlcers musL aL all Llmes be
accounLable Lo Lhe people 1he auLhorlLy of publlc offlcers Lo enLer lnLo governmenL
conLracLs ls clrcumscrlbed wlLh a heavy burden of responslblllLy ln Lhe exerclse of
Lhelr conLracLlng prerogaLlve Lhey should be Lhe flrsL [udges of Lhe legallLy
proprleLy and wlsdom of Lhe conLracL Lhey enLered lnLo 1hey musL exerclse a hlgh
degree of cauLlon so LhaL Lhe CovernmenL may noL be Lhe vlcLlm of llladvlsed or
lmprovldenL acLlon %commission on ections v ludqe Mo Luiso uijonoPodio
6k No 151992 et 18 2002 n 8onc ondovo6utierre)
uoes the commission on numon kiqhts hove the ower to odjudicote?
ln lLs Crder x x x denylng peLlLloners' moLlon Lo dlsmlss Lhe CP8
Lheorlzes LhaL Lhe lnLenLlon of Lhe members of Lhe ConsLlLuLlonal Commlsslon ls Lo
make CP8 a quasl[udlclal body 1hls vlew however has noL hereLofore been
shared by Lhls CourL ln cotloo v commlssloo oo nomoo klqbts Lhe CourL x x x has
observed LhaL lL ls only Lhe flrsL of Lhe enumeraLed powers and funcLlons LhaL bears
any resemblance Lo ad[udlcaLlon of ad[udgmenL" buL LhaL resemblance can ln no
way be synonymous Lo Lhe ad[udlcaLory power lLself 1he CourL explalned
x x x 1he Commlsslon on Puman 8lghLs x x x was noL meanL by Lhe fundamenLal
law Lo be anoLher courL or quasl[udlclal agency ln Lhls counLry or dupllcaLe much
less Lake over Lhe funcLlons of Lhe laLLer
1he mosL LhaL may be conceded Lo Lhe Commlsslon ln Lhe way of ad[udlcaLlve
power ls LhaL lL may lnvesLlgaLe le recelve evldence and make flndlngs of facL as

11

regards clalmed human rlghLs vlolaLlons lnvolvlng clvll and pollLlcal rlghLs 8uL facL
flndlng ls noL ad[udlcaLlon and cannoL be llkened Lo Lhe [udlclal funcLlon of a courL
of [usLlce or even a quasl[udlclal agency or offlclal 1he funcLlon of recelvlng
evldence and ascerLalnlng Lherefrom Lhe facLs of a conLroversy ls noL a [udlclal
funcLlon properly speaklng 1o be consldered such Lhe faculLy of recelvlng
evldence and maklng facLual concluslons ln a conLroversy musL be accompanled by
Lhe auLhorlLy of applylng Lhe law Lo Lhose facLual concluslons Lo Lhe end LhaL Lhe
conLroversy may be declded or deLermlned auLhorlLaLlvely flnally and deflnlLlvely
sub[ecL Lo such appeals or modes of revlew as may be provlded by law 1hls
funcLlon Lo repeaL Lhe Commlsslon does noL have (5lmoo It v commlssloo oo
nomoo klqbts 229 5ckA 117 125 Ioo 5 1994 o ooc vltoq I)
uoes the commission on numon kiqhts hove jurisdiction to issue 1k or writ of
reiminor injunction?
ln pott ltocessloq 2ooe Aotbotlty v commlssloo oo nomoo klqbts
Lhe CourL x x x explalned
1he consLlLuLlonal provlslon dlrecLlng Lhe CP8 Lo 'provlde for prevenLlve measures
and legal ald servlces Lo Lhe underprlvlleged whose human rlghLs have been vlolaLed
or need proLecLlon' may noL be consLrued Lo confer [urlsdlcLlon on Lhe Commlsslon
Lo lssue a resLralnlng order or wrlL of ln[uncLlon for lf LhaL were Lhe lnLenLlon Lhe
ConsLlLuLlon would have expressly sald so '!urlsdlcLlon ls conferred only by Lhe
ConsLlLuLlon or by law' lL ls never derlved by lmpllcaLlon"
LvldenLly Lhe 'prevenLlve measures and legal ald servlces' menLloned ln Lhe
ConsLlLuLlon refer Lo exLra[udlclal and [udlclal remedles (lncludlng a wrlL of
prellmlnary ln[uncLlon) whlch Lhe CP8 may seek from Lhe proper courLs on behalf of
Lhe vlcLlms of human rlghLs vlolaLlons noL belng a courL of [usLlce Lhe CP8 lLself
has no [urlsdlcLlon Lo lssue Lhe wrlL for a wrlL of prellmlnary ln[uncLlon may only be
lssued 'by Lhe [udge of any courL ln whlch Lhe acLlon ls pendlng wlLhln hls dlsLrlcL
or by a !usLlce of Lhe CourL of Appeals or of Lhe Supreme CourL x x x A wrlL of
prellmlnary ln[uncLlon ls an anclllary remedy lL ls avallable only ln a pendlng
prlnclpal acLlon for Lhe preservaLlon or proLecLlon of Lhe rlghLs and lnLeresL of a
parLy LhereLo and for no oLher purpose"
1he Commlsslon does have legal sLandlng Lo lndorse for approprlaLe acLlon lLs
flndlngs and recommendaLlons Lo any approprlaLe agency of governmenL %imon
lr v commission on numon kiqhts 229 ck4 117 1l41l5 lon 5 1994 n 8onc
vituq l)
uoes the etition for onnument of rocomotion of o condidote mere invove the
exercise b the cMLc of its odministrotive ower to review revise ond reverse
the octions of the boord of convossers ond therefore justifies nonobservonce of
roceduro due rocess or does it invove the exercise of the cMLcs quosi
judicio function?
1aklng cognlzance of prlvaLe respondenL's peLlLlons for annulmenL of
peLlLloner's proclamaLlon CCMLLLC was noL merely performlng an admlnlsLraLlve
funcLlon 1he admlnlsLraLlve powers of Lhe CCMLLLC lnclude Lhe power Lo
deLermlne Lhe number and locaLlon of polllng places appolnL elecLlon offlclals and
lnspecLors conducL reglsLraLlon of voLers depuLlze law enforcemenL agencles and
governmenLal lnsLrumenLallLles Lo ensure free orderly honesL peaceful and
credlble elecLlons reglsLer pollLlcal parLles organlzaLlons or coallLlon accredlL
clLlzen's arms of Lhe Commlsslon prosecuLe elecLlon offenses and recommend Lo
Lhe resldenL Lhe removal of or lmposlLlon of any oLher dlsclpllnary acLlon upon any
offlcer or employee lL has depuLlzed for vlolaLlon or dlsregard of lLs dlrecLlve order
or declslon ln addlLlon Lhe Commlsslon also has dlrecL conLrol and supervlslon over
all personnel lnvolved ln Lhe conducL of elecLlon Powever Lhe resoluLlon of Lhe
adverse clalms of prlvaLe respondenL and peLlLloner as regards Lhe exlsLence of a
manlfesL error ln Lhe quesLloned cerLlflcaLe of canvass requlres Lhe CCMLLLC Lo acL
as an arblLer lL behooves Lhe Commlsslon Lo hear boLh parLles Lo deLermlne Lhe
veraclLy of Lhelr allegaLlons and Lo declde wheLher Lhe alleged error ls a manlfesL
error Pence Lhe resoluLlon of Lhls lssue calls for Lhe exerclse by Lhe CCMLLLC of lLs

12

quasl[udlclal power lL has been sald LhaL where a power resLs ln [udgmenL or
dlscreLlon so LhaL lL ls of [udlclal naLure or characLer buL does noL lnvolve Lhe
exerclse of funcLlons of a [udge or ls conferred upon an offlcer oLher Lhan a [udlclal
offlcer lL ls deemed quasl[udlclal 1he CCMLLLC Lherefore acLlng as quasl[udlclal
Lrlbunal cannoL lgnore Lhe requlremenLs of procedural due process ln resolvlng Lhe
peLlLlons flled by prlvaLe respondenL %lederico ondovo v cMLc 6k No
1ll842 lon 2 2000 Puno)
uiscuss the contemt ower of the commission on numon kiqhts %cnk) when
mo it be void exercised
Cn lLs conLempL powers Lhe CP8 ls consLlLuLlonally auLhorlzed Lo
adopL lLs operaLlonal guldellnes and rules of procedure and clLe for conLempL for
vlolaLlons Lhereof ln accordance wlLh Lhe 8ules of CourL" Accordlngly Lhe CP8
acLed wlLhln lLs auLhorlLy ln provldlng ln lLs revlsed rules lLs power Lo clLe or hold
any person ln dlrecL or lndlrecL conLempL and Lo lmpose Lhe approprlaLe penalLles
ln accordance wlLh Lhe procedure and sancLlons provlded for ln Lhe 8ules of CourL"
1haL power Lo clLe for conLempL however should be undersLood Lo apply only Lo
vlolaLlons of lLs adopLed operaLlonal guldellnes and rules of procedure essenLlal Lo
carry ouL lLs lnvesLlgaLorlal powers 1o exempllfy Lhe power Lo clLe for conLempL
could be exerclsed agalnsL persons who refuse Lo cooperaLe wlLh Lhe sald body or
who unduly wlLhhold relevanL lnformaLlon or who decllne Lo honor summons and
Lhe llke ln pursulng lLs lnvesLlgaLlve work 1he order Lo deslsL" (a semanLlc
lnLerplay for a resLralnlng order) ln Lhe lnsLance before us however ls noL
lnvesLlgaLorlal ln characLer buL presclnds from an ad[udlcaLlve power LhaL lL does noL
possess x x x %imon lr v commission on numon kiqhts 229 ck4 117 1l4 lon
5 1994 n 8onc vituq l)
uiscuss the uoctrine of Primor lurisdiction %or Prior kesort)
CourLs cannoL and wlll noL resolve a conLroversy lnvolvlng a quesLlon whlch ls
wlLhln Lhe [urlsdlcLlon of an admlnlsLraLlve Lrlbunal especlally where Lhe quesLlon
demands Lhe exerclse of sound admlnlsLraLlve dlscreLlon requlrlng Lhe speclal
knowledge experlence and servlces of Lhe admlnlsLraLlve Lrlbunal Lo deLermlne
Lechnlcal and lnLrlcaLe maLLers of facL
ln recenL years lL has been Lhe [urlsprudenLlal Lrend Lo apply Lhls docLrlne Lo cases
lnvolvlng maLLers LhaL demand Lhe speclal compeLence of admlnlsLraLlve agencles
even lf Lhe quesLlon lnvolved ls also [udlclal ln characLer lL applles where a clalm ls
orlglnally cognlzable ln Lhe courLs and comes lnLo play whenever enforcemenL of
Lhe clalm requlres Lhe resoluLlon of lssues whlch under a regulaLory scheme have
been placed wlLhln Lhe speclal compeLence of an admlnlsLraLlve body ln such case
Lhe [udlclal process ls suspended pendlng referral of such lssues Lo Lhe
admlnlsLraLlve body for lLs vlew"
ln cases where Lhe docLrlne of prlmary [urlsdlcLlon ls clearly appllcable Lhe courL
cannoL arrogaLe unLo lLself Lhe auLhorlLy Lo resolve a conLroversy Lhe [urlsdlcLlon
over whlch ls lodged wlLh an admlnlsLraLlve body of speclal compeLence %viofor
v c4 280 ck4 297 ct 9 1992 l
rd
uiv Ponqonibon)
uiscuss the uoctrine of xhoustion of 4dministrotive kemedies whot ore the
excetions thereto?
1 8efore a parLy ls allowed Lo seek Lhe lnLervenLlon of Lhe courL lL ls a pre
condlLlon LhaL he should have avalled of all Lhe means of admlnlsLraLlve processes
afforded hlm Pence lf a remedy wlLhln Lhe admlnlsLraLlve machlnery can sLlll be
resorLed Lo by glvlng Lhe admlnlsLraLlve offlcer concerned every opporLunlLy Lo
declde on a maLLer LhaL comes wlLhln hls [urlsdlcLlon Lhen such remedy should be
exhausLed flrsL before Lhe courL's [udlclal power can be soughL 1he premaLure
lnvocaLlon of courL's [urlsdlcLlon ls faLal Lo one's cause of acLlon Accordlngly
absenL any flndlng of walver or esLoppel Lhe case ls suscepLlble of dlsmlssal for lack
of cause of acLlon 1hls docLrlne of exhausLlon of admlnlsLraLlve remedles was noL
wlLhouL lLs pracLlcal and legal reasons for one Lhlng avallmenL of admlnlsLraLlve
remedy enLalls lesser expenses and provldes for a speedler dlsposlLlon of

13

conLroversles lL ls no less Lrue Lo sLaLe LhaL Lhe courLs of [usLlce for reasons of
comlLy and convenlence wlll shy away from a dlspuLe unLll Lhe sysLem of
admlnlsLraLlve redress has been compleLed and complled wlLh so as Lo glve Lhe
admlnlsLraLlve agency concerned every opporLunlLy Lo correcL lLs error and Lo
dlspose of Lhe case
1hls docLrlne ls dlsregarded
when Lhere ls a vlolaLlon of due process
when Lhe lssue lnvolved ls purely a legal quesLlon
when Lhe admlnlsLraLlve acLlon ls paLenLly lllegal amounLlng Lo lack or excess of
[urlsdlcLlon
when Lhere ls esLoppel on Lhe parL of Lhe admlnlsLraLlve agency concerned
when Lhere ls lrreparable ln[ury
when Lhe respondenL ls a deparLmenL secreLary whose acLs as an oltet eqo of Lhe
resldenL bears Lhe lmplled and assumed approval of Lhe laLLer
when Lo requlre exhausLlon of admlnlsLraLlve remedles would be unreasonable
when lL would amounL Lo a nulllflcaLlon of a clalm
when Lhe sub[ecL maLLer ls a prlvaLe land ln land case proceedlng
when Lhe rule does noL provlde a plaln speedy and adequaLe remedy and
when Lhere are clrcumsLances lndlcaLlng Lhe urgency of [udlclal lnLervenLlon
%Poot v c4 2 ck4 17 1997)
2 nonexhausLlon of admlnlsLraLlve remedles ls noL [urlsdlcLlonal lL only renders
Lhe acLlon premaLure le clalmed cause of acLlon ls noL rlpe for [udlclal
deLermlnaLlon and for LhaL reason a parLy has no cause of acLlon Lo venLllaLe ln
courL %coroe v 4borintos 29 ck4 1l2 Morch l 1997 l
rd
uiv uovide)