ADMINISTRATIVE LAW

Describe the Administrative Code of 19 !" #e$d% The Code is a &enera$ $a' and (incor)orates in a *nified doc*ment the ma+or str*ct*ra$, f*nctiona$ and )roced*ra$ )rinci)$es of &overnance -Third Whereas C$a*se, Administrative Code of 19 !. and (embodies chan&es in administrative str*ct*res and )roced*res desi&ned to serve the )eo)$e"/ -0o*rth Whereas C$a*se, Administrative Code of 19 !. The Code is divided into seven -!. boo1s" These boo1s contain )rovisions on the or&ani2ation, )o'ers and &enera$ administration of de)artments, b*rea*s and offices *nder the e3ec*tive branch, the or&ani2ation and f*nctions of the Constit*tiona$ Commissions and other constit*tiona$ bodies, the r*$es on the nationa$ &overnment b*d&et, as 'e$$ as &*ide$ines for the e3ercise b4 administrative a&encies of 5*asi6$e&is$ative and 5*asi6+*dicia$ )o'ers" The Code covers both the interna$ administration, i"e", interna$ or&ani2ation, )ersonne$ and recr*itment, s*)ervision and disci)$ine, and the effects of the f*nctions )erformed b4 administrative officia$s on )rivate individ*a$s or )arties o*tside &overnment" -7)$e v" Torres, 8"R" No" 19!: ;, <*$4 9=, 199 >?*no@. What is Administrative ?o'erA #e$d% Administrative )o'er is concerned 'ith the 'or1 of a))$4in& )o$icies and enforcin& orders as determined b4 )ro)er &overnmenta$ or&ans" It enab$es the ?resident to fi3 a *niform standard of administrative efficienc4 and chec1 the officia$ cond*ct of his a&ents" To this end, he can iss*e administrative orders, r*$es and re&*$ations" -7)$e v" Torres, 8"R" No" 19!: ;, <*$4 9=, 199 >?*no@. What is an Administrative 7rderA #e$d% An administrative order is an ordinance iss*ed b4 the ?resident 'hich re$ates to s)ecific as)ects in the administrative o)eration of &overnment" It m*st be in harmon4 'ith the $a' and sho*$d be for the so$e )*r)ose of im)$ementin& the $a' and carr4in& o*t the $e&is$ative )o$ic4" -7)$e v" Torres, 8"R" No" 19!: ;, <*$4 9=, 199 >?*no@. What is the 8overnment of the Re)*b$ic of the ?hi$i))inesA Ans.: The Government of the Republic of the Philippines refers to the cor)orate &overnmenta$ entit4 thro*&h 'hich the f*nctions of the &overnment are e3ercised thro*&ho*t the ?hi$i))ines, inc$*din&, save as the contrar4 a))ears from the conte3t, the vario*s arms thro*&h 'hich )o$itica$ a*thorit4 is made effective in the ?hi$i))ines, 'hether )ertainin& to the a*tonomo*s re&ions, the )rovincia$, cit4, m*nici)a$ or baran&a4 s*bdivisions or other forms of $oca$ &overnment" (Sec. 2[1], Introductory Provisions, !ecutive "rder #o. 2$2% What is an A&enc4 of the 8overnmentA Ans.: &'ency of the Government refers to an4 of the vario*s *nits of the 8overnment, inc$*din& a de)artment, b*rea*, office, instr*menta$it4, or &overnment6o'ned or contro$$ed cor)oration, or a $oca$ &overnment or a distinct *nit therein" (Sec. 2[(], Introductory Provisions, !ecutive "rder #o. 2$2% What is a De)artmentA Ans"% De)artment refers to an e3ec*tive de)artment created b4 $a'" 0or )*r)oses of Boo1 IV, this sha$$ inc$*de an4 instr*menta$it4, as herein defined, havin& or assi&ned the ran1 of a de)artment, re&ard$ess of its name or desi&nation" -Sec" 9>!@, Introd*ctor4 ?rovisions, E3ec*tive 7rder No" 999. What is a B*rea*A Ans"% B*rea* refers to an4 )rinci)a$ s*bdivision or *nit of an4 de)artment" 0or )*r)oses of Boo1 IV, this sha$$ inc$*de an4 )rinci)a$ s*bdivision or *nit of an4 instr*menta$it4 &iven or assi&ned the ran1 of a b*rea*, re&ard$ess of act*a$ name or desi&nation, as in the case of de)artment6'ide re&iona$ offices" -Sec" 9> @, Introd*ctor4 ?rovisions, E3ec*tive 7rder No" 999. What is an 7fficeA Ans"% 7ffice refers, 'ithin the frame'or1 of &overnmenta$ or&ani2ation, to an4 ma+or f*nctiona$ *nit of a de)artment or b*rea* inc$*din& re&iona$ offices" It ma4 a$so refer to an4 )osition he$d or occ*)ied b4 individ*a$ )ersons, 'hose f*nctions are defined b4 $a' or re&*$ation" -Sec" 9>9@, Introd*ctor4 ?rovisions, E3ec*tive 7rder No" 999. What is a 8overnment Instr*menta$it4A What are inc$*ded in the term 8overnment Instr*menta$it4A Ans"% A &overnment instr*menta$it4 refers to an4 a&enc4 of the nationa$ &overnment, not inte&rated 'ithin the de)artment frame'or1, vested 'ith s)ecia$ f*nctions or +*risdiction b4 $a', endo'ed 'ith some if not a$$ cor)orate )o'ers, administerin& s)ecia$ f*nds, en+o4in& o)erationa$ a*tonom4, *s*a$$4 thro*&h a charter" The term inc$*des re&*$ator4 a&encies, chartered instit*tions and &overnment6o'ned or contro$$ed cor)orations" -Sec" 9>1C@, Introd*ctor4 ?rovisions, E3ec*tive 7rder No" 999. What is a Re&*$ator4 A&enc4A Ans"% A re&*$ator4 a&enc4 refers to an4 a&enc4 e3)ress$4 vested 'ith +*risdiction to re&*$ate, administer or ad+*dicate matters affectin& s*bstantia$ ri&hts and interest of )rivate )ersons, the )rinci)a$ )o'ers of 'hich are e3ercised b4 a co$$ective bod4, s*ch as a commission, board or co*nci$" -Sec" 9>11@, Introd*ctor4 ?rovisions,

E3ec*tive 7rder No" 999. What is a Chartered Instit*tionA Ans"% A chartered instit*tion refers to an4 a&enc4 or&ani2ed or o)eratin& *nder a s)ecia$ charter, and vested b4 $a' 'ith f*nctions re$atin& to s)ecific constit*tiona$ )o$icies or ob+ectives" This term inc$*des state *niversities and co$$e&es and the monetar4 a*thorit4 of the State" -Section 9>19@, Introd*ctor4 ?rovisions, E3ec*tive 7rder No" 999. What is a 8overnment67'ned or Contro$$ed Cor)orationA Ans"% 8overnment6o'ned or contro$$ed cor)oration refers to an4 a&enc4 or&ani2ed as a stoc1 or non6stoc1 cor)oration, vested 'ith f*nctions re$atin& to )*b$ic needs 'hether &overnmenta$ or )ro)rietar4 in nat*re, and o'ned b4 the 8overnment direct$4 or thro*&h its instr*menta$ities either 'ho$$4, or, 'here a))$icab$e as in the case of stoc1 cor)orations, to the e3tent of at $east fift46one -;1. )er cent of its ca)ita$ stoc1D 3 3 3 -Sec" 9>1=@, Introd*ctor4 ?rovisions, E3ec*tive 7rder No" 999. When is a 8overnment67'ned or Contro$$ed Cor)oration deemed to be )erformin& )ro)rietar4 f*nctionA When is it deemed to be )erformin& &overnmenta$ f*nctionA #e$d% 8overnment6o'ned or contro$$ed cor)orations ma4 )erform &overnmenta$ or )ro)rietar4 f*nctions or both, de)endin& on the )*r)ose for 'hich the4 have been created" If the )*r)ose is to obtain s)ecia$ cor)orate benefits or earn )ec*niar4 )rofit, the f*nction is )ro)rietar4" If it is in the interest of hea$th, safet4 and for the advancement of )*b$ic &ood and 'e$fare, affectin& the )*b$ic in &enera$, the f*nction is &overnmenta$" ?o'ers c$assified as ()ro)rietar4/ are those intended for )rivate advanta&e and benefit" -B$a5*era v" A$ca$a, 99; SCRA =::, E9;, Se)t" 11, 199 , En Banc >?*risima@. The ?hi$i))ine Nationa$ Red Cross -?NRC. is a &overnment6o'ned and contro$$ed cor)oration 'ith an ori&ina$ charter *nder R"A" No" 9;, as amended" Its charter, ho'ever, 'as amended to vest in it the a*thorit4 to sec*re $oans, be e3em)ted from )a4ment of a$$ d*ties, ta3es, fees and other char&es, etc" With the amendnt of its charter, has it been (im)$ied$4 converted to a )rivate cor)oration/A Held: The test to determine 'hether a cor)oration is &overnment o'ned or contro$$ed, or )rivate in nat*re is sim)$e" Is it created b4 its o'n charter for the e3ercise of a )*b$ic f*nction, or b4 incor)oration *nder the &enera$ cor)oration $a'A Those 'ith s)ecia$ charters are &overnment cor)orations s*b+ect to its )rovisions, and its em)$o4ees are *nder the +*risdiction of the Civi$ Service Commission" The ?NRC 'as not (im)$ied$4 converted to a )rivate cor)oration/ sim)$4 beca*se its charter 'as amended to vest in it the a*thorit4 to sec*re $oans, be e3em)ted from )a4ment of a$$ d*ties, ta3es, fees and other char&es, etc" ()*mporedondo v. #+R), G.R. #o. 12$,($, &u'. -, 1$$$, 1st .iv. [P*rdo]% When ma4 the 8overnment not va$id$4 invo1e the r*$e that )rescri)tion does not r*n a&ainst the StateA I$$*strative Case" #e$d% Whi$e it is tr*e that )rescri)tion does not r*n a&ainst the State, the same ma4 not be invo1ed b4 the &overnment in this case since it is no $on&er interested in the s*b+ect matter" Whi$e Cam) Wa$$ace ma4 have be$on&ed to the &overnment at the time Rafae$ 8a$ve2Fs tit$e 'as ordered cance$$ed in Land Re&istration Case No" N6=:1, the same no $on&er ho$ds tr*e toda4" Re)*b$ic Act No" !99!, other'ise 1no'n as the Base Conversion and Deve$o)ment Act of 1999, created the Bases Conversion and Deve$o)ment A*thorit4" G 3 3 With the transfer of Cam) Wa$$ace to the BCDA, the &overnment no $on&er has a ri&ht or interest to )rotect" Conse5*ent$4, the Re)*b$ic is not a rea$ )art4 in interest and it ma4 not instit*te the instant action" Nor ma4 it raise the defense of im)rescri)tibi$it4, the same bein& a))$icab$e on$4 in cases 'here the &overnment is a )art4 in interest" 3 3 3" Bein& the o'ner of the areas covered b4 Cam) Wa$$ace, it is the Bases Conversion and Deve$o)ment A*thorit4, not the 8overnment, 'hich stands to be benefited if the $and covered b4 TCT No" T6;!1C iss*ed in the name of )etitioner is cance$$ed" Nonethe$ess, it has been )osited that the transfer of mi$itar4 reservations and their e3tensions to the BCDA is basica$$4 for the )*r)ose of acce$eratin& the so*nd and ba$anced conversion of these mi$itar4 reservations into a$ternative )rod*ctive *ses and to enhance the benefits to be derived from s*ch )ro)ert4 as a meas*re of )romotin& the economic and socia$ deve$o)ment, )artic*$ar$4 of Centra$ L*2on and, in &enera$, the co*ntr4Fs &oa$ for enhancement -Section 9, Re)*b$ic Act No" !99!." It is contended that the transfer of these mi$itar4 reservations to the Conversion A*thorit4 does not amo*nt to an abdication on the )art of the Re)*b$ic of its interests, b*t sim)$4 a reco&nition of the need to create a bod4 cor)orate 'hich 'i$$ act as its a&ent for the rea$i2ation of its )ro&ram" It is conse5*ent$4 asserted that the Re)*b$ic remains to be the rea$ )art4 in interest and the Conversion A*thorit4 mere$4 its a&ent" We, ho'ever, m*st not $ose si&ht of the fact that the BCDA is an entit4 invested 'ith a )ersona$it4 se)arate and distinct from the &overnment" G 3 3

It ma4 not be amiss to state at this )oint that the f*nctions of &overnment have been c$assified into &overnmenta$ or constit*ent and )ro)rietar4 or ministrant" Whi$e )*b$ic benefit and )*b$ic 'e$fare, )artic*$ar$4, the )romotion of the economic and socia$ deve$o)ment of Centra$ L*2on, ma4 be attrib*tab$e to the o)eration of the BCDA, 4et it is certain that the f*nctions )erformed b4 the BCDA are basica$$4 )ro)rietar4 in nat*re" The )romotion of economic and socia$ deve$o)ment of Centra$ L*2on, in )artic*$ar, and the co*ntr4Fs &oa$ for enhancement, in &enera$, do not ma1e the BCDA e5*iva$ent to the 8overnment" 7ther cor)orations have been created b4 &overnment to act as its a&ents for the rea$i2ation of its )ro&rams, the SSS, 8SIS, NAWASA and the NIA, to co*nt a fe', and 4et, the Co*rt has r*$ed that these entities, a$tho*&h )erformin& f*nctions aimed at )romotin& )*b$ic interest and )*b$ic 'e$fare, are not &overnment6f*nction cor)orations invested 'ith &overnmenta$ attrib*tes" It ma4 th*s be said that the BCDA is not a mere a&enc4 of the 8overnment b*t a cor)orate bod4 )erformin& )ro)rietar4 f*nctions" #avin& the ca)acit4 to s*e or be s*ed, it sho*$d th*s be the BCDA 'hich ma4 fi$e an action to cance$ )etitionerFs tit$e, not the Re)*b$ic, the former bein& the rea$ )art4 in interest" 7ne havin& no ri&ht or interest to )rotect cannot invo1e the +*risdiction of the co*rt as a )art4 )$aintiff in an action" A s*it ma4 be dismissed if the )$aintiff or the defendant is not a rea$ )art4 in interest" 3 3 3 #o'ever, E"B" Marcha Trans)ort Co", Inc" v" IAC is cited as a*thorit4 that the Re)*b$ic is the )ro)er )art4 to s*e for the recover4 of )ossession of )ro)ert4 'hich at the time of the insta$$ation of the s*it 'as no $on&er he$d b4 the nationa$ &overnment bod4 b*t b4 the ?hi$i))ine ?orts A*throti4" In E"B" Marcha, the Co*rt r*$ed% It can be said that in s*in& for the recover4 of the renta$s, the Re)*b$ic of the ?hi$i))ines, acted as )rinci)a$ of the ?hi$i))ine ?orts A*thorit4, direct$4 e3ercisin& the commission it had ear$ier conferred on the $atter as its a&ent" We ma4 )res*me that, b4 doin& so, the Re)*b$ic of the ?hi$i))ines did not intend to retain the said renta$s for its o'n *se, considerin& that b4 its vo$*ntar4 act it had transferred the $and in 5*estion to the ?hi$i))ine ?orts A*thorit4 effective <*$4 11, 19!E" The Re)*b$ic of the ?hi$i))ines had sim)$4 so*&ht to assist, not s*))$ant, the ?hi$i))ine ?orts A*thorit4, 'hose tit$e to the dis)*ted )ro)ert4 it contin*es to reco&ni2e" We ma4 e3)ect the that the said renta$s, once co$$ected b4 the Re)*b$ic of the ?hi$i))ines, sha$$ be t*rned over b4 it to the ?hi$i))ine ?orts A*thorit4 conformab$4 to the )*r)oses of ?"D" No" ;!" E"B" Marcha is, ho'ever, not on a$$ fo*rs 'ith the case at bar" In the former, the Co*rt considered the Re)*b$ic a )ro)er )art4 to s*e since the c$aims of the Re)*b$ic and the ?hi$i))ine ?orts A*thorit4 a&ainst the )etitioner therein 'ere the same" To dismiss the com)$aint in E"B" Marcha 'o*$d have bro*&ht need$ess de$a4 in the sett$ement of the matter since the ??A 'o*$d have to refi$e the case on the same c$aim a$read4 $iti&ated *)on" S*ch is not the case here since to a$$o' the &overnment to s*e herein enab$es it to raise the iss*e of im)rescri)tibi$it4, a c$aim 'hich is not avai$ab$e to the BCDA" The r*$e that )rescri)tion does not r*n a&ainst the State does not a))$4 to cor)orations or artificia$ bodies created b4 the State for s)ecia$ )*r)oses, it bein& said that 'hen the tit$e of the Re)*b$ic has been divested, its &rantees, a$tho*&h artificia$ bodies of its o'n creation, are in the same cate&or4 as ordinar4 )ersons" B4 raisin& the c$aim of im)rescri)tibi$it4, a c$aim 'hich cannot be raised b4 the BCDA, the 8overnment not on$4 assists the BCDA, as it did in E"B" Marcha, it even s*))$ants the $atter, a co*rse of action )roscribed b4 said case" Moreover, to reco&ni2e the 8overnment as a )ro)er )art4 to s*e in this case 'o*$d set a bad )recedent as it 'o*$d a$$o' the Re)*b$ic to )rosec*te, on beha$f of &overnment6o'ned or contro$$ed cor)orations, ca*ses of action 'hich have a$read4 )rescribed, on the )rete3t that the 8overnment is the rea$ )art4 in interest a&ainst 'hom )rescri)tion does not r*n, said cor)orations havin& been created mere$4 as a&ents for the rea$i2ation of &overnment )ro&rams" It sho*$d a$so be noted that )etitioner is *n5*estionab$4 a b*4er in &ood faith and for va$*e, havin& ac5*ired the )ro)ert4 in 19:=, or ; 4ears after the iss*ance of the ori&ina$ certificate of tit$e, as a third transferee" If on$4 not to do vio$ence and to &ive some meas*re of res)ect to the Torrens S4stem, )etitioner m*st be afforded some meas*re of )rotection" (Shipside Incorpor*ted v. )ourt of &ppe*ls, /02 S)R& //(, 1eb. 2,, 2,,1, /rd .iv. [2elo]% Disc*ss the nat*re and f*nctions of the Nationa$ Te$ecomm*nications Commission -NTC., and ana$42e its )o'ers and a*thorit4 as 'e$$ as the $a's, r*$es and re&*$ations that &overn its e3istence and o)erations" #e$d% The NTC 'as created )*rs*ant to E3ec*tive 7rder No" ;E: 3 3 3" It ass*med the f*nctions former$4 assi&ned to the Board of Comm*nications and the Comm*nications Contro$ B*rea*, 'hich 'ere both abo$ished *nder the said E3ec*tive 7rder" ?revio*s$4, the NTCFs f*nction 'ere mere$4 those of the def*nct ?*b$ic Service Commission -?SC., created *nder Common'ea$th Act No" 1E:, as amended, other'ise 1no'n as the ?*b$ic Service Act, considerin& that the Board of Comm*nications 'as the s*ccessor6in6interest of the ?SC" Hnder E3ec*tive 7rder No" 19;6A, iss*ed in A)ri$ 19 !, the NTC became an attached a&enc4 of the De)artment of Trans)ortation and Comm*nications" In the re&*$ator4 comm*nications ind*str4, the NTC has the so$e a*thorit4 to iss*e Certificates of ?*b$ic

Convenience and Necessit4 -C?CN. for the insta$$ation, o)eration, and maintenance of comm*nications faci$ities and services, radio comm*nications s4stems, te$e)hone and te$e&ra)h s4stems" S*ch )o'er inc$*des the a*thorit4 to determine the areas of o)erations of a))$icants for te$ecomm*nications services" S)ecifica$$4, Section 1: of the ?*b$ic Service Act a*thori2es the then ?SC, *)on notice and hearin&, to iss*e Certificates of ?*b$ic Convenience for the o)eration of )*b$ic services 'ithin the ?hi$i))ines ('henever the Commission finds that the o)eration of the )*b$ic service )ro)osed and the a*thori2ation to do b*siness 'i$$ )romote the )*b$ic interests in a )ro)er and s*itab$e manner"/ ()ommon3e*lth &ct #o. 1(-, Section 1-[*]% The )roced*re &overnin& the iss*ance of s*ch a*thori2ations is set forth in Section 99 of the said Act 3 3 3" (Republic v. !press 4elecommunic*tion )o., Inc., /5/ S)R& /1-, 6*n. 10, 2,,2, 1st .iv. [7n*res8S*nti*'o]% Is the fi$in& of the administrative r*$es and re&*$ations 'ith the H? La' Center the o)erative act that &ives the r*$es force and effectA #e$d% In &rantin& Ba4ante$ the )rovisiona$ a*thorit4 to o)erate a CMTS, the NTC a))$ied R*$e 1;, Section = of its 19! R*$es of ?ractice and ?roced*re, 'hich )rovides% Sec" =" Provision*l Relief" I H)on the fi$in& of an a))$ication, com)$aint or )etition or at an4 sta&e thereafter, the Board ma4 &rant on motion of the )$eader or on its o3n initi*tive, the re$ief )ra4ed for, based on the )$eadin&, to&ether 'ith the affidavits and s*))ortin& doc*ments attached thereto, 'itho*t )re+*dice to a fina$ decision after com)$etion of the hearin& 'hich sha$$ be ca$$ed 'ithin thirt4 -=C. da4s from &rant of a*thorit4 as1ed for" Res)ondent E3te$com, ho'ever, contends that the NTC sho*$d have a))$ied the Revised R*$es 'hich 'ere fi$ed 'ith the 7ffice of the Nationa$ Administrative Re&ister on 0ebr*ar4 =, 199=" These Revised R*$es de$eted the )hrase (on its o'n initiative/D accordin&$4, a )rovisiona$ a*thorit4 ma4 be iss*ed on$4 *)on fi$in& of the )ro)er motion before the Commission" In ans'er to this ar&*ment, the NTC, thro*&h the Secretar4 of the Commission, iss*ed a certification to the effect that inasm*ch as the 199= Revised R*$es have not been )*b$ished in a ne's)a)er of &enera$ circ*$ation, the NTC has been a))$4in& the 19! R*$es" The absence of )*b$ication, co*)$ed 'ith the certification b4 the Commissioner of the NTC statin& that the NTC 'as sti$$ &overned b4 the 19 ! R*$es, c$ear$4 indicate that the 199= Revised R*$es have not ta1en effect at the time of the &rant of the )rovisiona$ a*thorit4 to Ba4ante$" The fact that the 199= Revised R*$es 'ere fi$ed 'ith the H? La' Center on 0ebr*ar4 =, 199= is of no moment" There is nothin& in the Administrative Code of 19 ! 'hich im)$ies that the fi$in& of the r*$es 'ith the H? La' Center is the o)erative act that &ives the r*$es force and effect" Boo1 VII, Cha)ter 9, Section = thereof mere$4 states% 0i$in&" I -1. Ever4 a&enc4 sha$$ fi$e 'ith the Hniversit4 of the ?hi$i))ines La' Center three -=. certified co)ies of ever4 r*$e ado)ted b4 it" R*$es in force on the date of effectivit4 of this Code 'hich are not fi$ed 'ithin three -=. months from the date sha$$ not thereafter be the basis of an4 sanction a&ainst an4 )art4 or )ersons" -9. The records officer of the a&enc4, or his e5*iva$ent f*nctionar4, sha$$ carr4 o*t the re5*irements of this section *nder )ain of disci)$inar4 action" -=. A )ermanent re&ister of a$$ r*$es sha$$ be 1e)t b4 the iss*in& a&enc4 and sha$$ be o)en to )*b$ic ins)ection" The Nationa$ Administrative Re&ister is mere$4 a b*$$etin of codified r*$es and it is f*rnished on$4 to the 7ffice of the ?resident, Con&ress, a$$ a))e$$ate co*rts, the Nationa$ Librar4, other )*b$ic offices or a&encies as the Con&ress ma4 se$ect, and to other )ersons at a )rice s*fficient to cover )*b$ication and mai$in& or distrib*tion costs -Administrative Code of 19 !, Boo1 VII, Cha)ter 9, Section !." In a simi$ar case, 'e he$d% This does not im)$4, ho'ever, that the s*b+ect Administrative 7rder is a va$id e3ercise of s*ch 5*asi6$e&is$ative )o'er" The ori&ina$ Administrative 7rder iss*ed on A*&*st =C, 19 9, *nder 'hich the res)ondents fi$ed their a))$ications for im)ortations, 'as not )*b$ished in the 7fficia$ 8a2ette or in a ne's)a)er of &enera$ circ*$ation" The 5*estioned Administrative 7rder, $e&a$$4, *nti$ it is )*b$ished, is inva$id 'ithin the conte3t of Artic$e 9 of Civi$ Code, 'hich reads%

Artic$e 9"

La's sha$$ ta1e effect after fifteen da4s fo$$o'in& the com)$etion of their )*b$ication in the 7fficia$ 8a2ette -or in a ne's)a)er of &enera$ circ*$ation in the ?hi$i))ines., *n$ess it is other'ise )rovided" G 3 3/ The fact that the amendments to Administrative 7rder No" S7C?EC 96C 6C1 'ere fi$ed 'ith, and )*b$ished b4 the H? La' Center in the Nationa$ Administrative Re&ister, does not c*re the defect re$ated to the effectivit4 of the Administrative 7rder"

This Co*rt, in 4*n*d* v. 4uver* stated, th*s%

We ho$d therefore that a$$ stat*tes, inc$*din& those of $oca$ a))$ication and )rivate $a's, sha$$ be )*b$ished as a
condition for their effectivit4, 'hich sha$$ be&in fifteen da4s after )*b$ication *n$ess a different effectivit4 is fi3ed b4 the $e&is$at*re" Covered b4 this r*$e are )residentia$ decrees and e3ec*tive orders )rom*$&ated b4 the ?resident in the e3ercise of $e&is$ative )o'er or, at )resent, direct$4 conferred b4 the Constit*tion" Administrative R*$es and Re&*$ations m*st a$so be )*b$ished if their )*r)ose is to enforce or im)$ement e3istin& $a' )*rs*ant a$so to a va$id de$e&ation" Inter)retative re&*$ations and those mere$4 interna$ in nat*re, that is, re&*$atin& on$4 the )ersonne$ of the administrative a&enc4 and not the )*b$ic, need not be )*b$ished" Neither is )*b$ication re5*ired of the so6ca$$ed $etters of instr*ctions iss*ed b4 administrative s*)eriors concernin& the r*$es or &*ide$ines to be fo$$o'ed b4 their s*bordinates in the )erformance of their d*ties" We a&ree that the )*b$ication m*st be in f*$$ or it is no )*b$ication at a$$ since its )*r)ose is to inform the )*b$ic of the contents of the $a's"/ The Administrative 7rder *nder consideration is one of those iss*ances 'hich sho*$d be )*b$ished for its effectivit4, since its )*r)ose is to enforce and im)$ement an e3istin& $a' )*rs*ant to a va$id de$e&ation, i.e", ?"D" 1C!1, in re$ation to L7I EEE and E7 1==. Th*s, )*b$ication in the 7fficia$ 8a2ette or a ne's)a)er of &enera$ circ*$ation is a condition sine 5*a non before stat*tes, r*$es or re&*$ations can ta1e effect" This is e3)$icit from E3ec*tive 7rder No" 9CC, 'hich re)ea$ed Artic$e 9 of the Civi$ Code, and 'hich states that% La's sha$$ ta1e effect after fifteen da4s fo$$o'in& the com)$etion of their )*b$ication either in the 7fficia$ 8a2ette or in a ne's)a)er of &enera$ circ*$ation in the ?hi$i))ines, *n$ess it is other'ise )rovided ( .". 2,,, Section 1%. The R*$es of ?ractice and ?roced*re of the NTC, 'hich im)$ements Section 99 of the ?*b$ic Service Act, fa$$ s5*are$4 'ithin the sco)e of these $a's, as e3)$icit$4 mentioned in the case of Tanada v" T*vera" 7*r )rono*ncement in 4*n*d* v. 4uver* is c$ear and cate&orica$" Administrative r*$es and re&*$ations m*st be )*b$ished if their )*r)ose is to enforce or im)$ement e3istin& $a' )*rs*ant to a va$id de$e&ation" The on$4 e3ce)tion are inter)retative re&*$ations, those mere$4 interna$ in nat*re, or those so6ca$$ed $etters of instr*ctions iss*ed b4 administrative s*)eriors concernin& the r*$es and &*ide$ines to be fo$$o'ed b4 their s*bordinates in the )erformance of their d*ties (P9I+S& Intern*tion*l Pl*cement : Services )orp. v. Secret*ry of +*bor, G.R. #o. 1,/1((, &pril (, 2,,1, /0- S)R& 15(%. #ence, the 199= Revised R*$es sho*$d be )*b$ished in the 7fficia$ 8a2ette or in a ne's)a)er of &enera$ circ*$ation before it can ta1e effect" Even the 199= Revised R*$es itse$f mandates that said R*$es sha$$ ta1e effect on$4 after their )*b$ication in a ne's)a)er of &enera$ circ*$ation (Section 2, thereof%" In the absence of s*ch )*b$ication, therefore, it is the 19! R*$es that &overn" (Republic v. !press 4elecommunic*tion )o., Inc., /5/ S)R& /1-, 6*n. 10, 2,,2, 1st .iv. [7n*res8S*nti*'o]% Ma4 a )erson be he$d $iab$e for vio$ation of an administrative re&*$ation 'hich 'as not )*b$ishedA #e$d% ?etitioner insists, ho'ever, that it cannot be he$d $iab$e for i$$e&a$ e3action as ?7EA Memorand*m Circ*$ar No" II, Series of 19 =, 'hich en*merated the a$$o'ab$e fees 'hich ma4 be co$$ected from a))$icants, is void for $ac1 of )*b$ication" There is merit in the ar&*ment" In 4*n*d* v. 4uver*, the Co*rt he$d, as fo$$o's%

We ho$d therefore that a$$ stat*tes, inc$*din& those of $oca$ a))$ication and )rivate $a's, sha$$ be )*b$ished as a
condition for their effectivit4, 'hich sha$$ be&in fifteen da4s after )*b$ication *n$ess a different effectivit4 date is fi3ed b4 the $e&is$at*re" Covered b4 this r*$e are )residentia$ decrees and e3ec*tive orders )rom*$&ated b4 the ?resident in the e3ercise of $e&is$ative )o'ers 'henever the same are va$id$4 de$e&ated b4 the $e&is$at*re or, at )resent, direct$4 conferred b4 the Constit*tion" Administrative r*$es and re&*$ations m*st a$so be )*b$ished if their )*r)ose is to enforce or im)$ement e3istin& $a' )*rs*ant to a va$id de$e&ation" Inter)retative re&*$ations and those mere$4 interna$ in nat*re, that is, re&*$atin& on$4 the )ersonne$ of the administrative a&enc4 and the )*b$ic, need not be )*b$ished" Neither is )*b$ication re5*ired of the so6ca$$ed $etter of instr*ctions iss*ed b4 the administrative s*)eriors concernin& the r*$es or &*ide$ines to be fo$$o'ed b4 their

s*bordinates in the )erformance of their d*ties"/ A))$4in& this doctrine, 'e have )revio*s$4 dec$ared as havin& no force and effect the fo$$o'in& administrative iss*ances% a. R*$es and Re&*$ations iss*ed b4 the <oint Ministr4 of #ea$th6Ministr4 of Labor and Em)$o4ment Accreditation Committee re&ardin& the accreditation of hos)ita$s, medica$ c$inics and $aboratoriesD b. Letter of Instr*ction No" E1: orderin& the s*s)ension of )a4ments d*e and )a4ab$e b4 distressed co))er minin& com)anies to the nationa$ &overnmentD c. Memorand*m Circ*$ars iss*ed b4 the ?7EA re&*$atin& the recr*itment of domestic he$)ers to #on& Jon&D d. Administrative 7rder No" S7C?EC 96C 6C1 iss*ed b4 the ?hi$i))ine Internationa$ Tradin& Cor)oration re&*$atin& a))$ications for im)ortation from the ?eo)$eFs Re)*b$ic of ChinaD and e. Cor)orate Com)ensation Circ*$ar No" 1C iss*ed b4 the De)artment of B*d&et and Mana&ement discontin*in& the )a4ment of other a$$o'ances and frin&e benefits to &overnment officia$s and em)$o4ees" In a$$ these cited cases, the administrative iss*ances 5*estioned therein 'ere *niform$4 str*c1 do'n as the4 'ere not )*b$ished or fi$ed 'ith the Nationa$ Administrative Re&ister as re5*ired b4 the Administrative Code of 19 ! . ?7EA Memorand*m Circ*$ar No" 9, Series of 19 = m*st $i1e'ise be dec$ared ineffective as the same 'as never )*b$ished or fi$ed 'ith the Nationa$ Administrative Re&ister" ?7EA Memorand*m Circ*$ar No" 9, Series of 19 = )rovides for the a))$icab$e sched*$e of )$acement and doc*mentation fees for )rivate em)$o4ment a&encies or a*thorit4 ho$ders" Hnder the said 7rder, the ma3im*m amo*nt 'hich ma4 be co$$ected from )ros)ective 0i$i)ino overseas 'or1ers is ?9,;CC"CC" The said circ*$ar 'as a))arent$4 iss*ed in com)$iance 'ith the )rovisions of Artic$e =9 of the Labor Code 3 3 3" It is th*s c$ear that the administrative circ*$ar *nder consideration is one of those iss*ances 'hich sho*$d be )*b$ished for its effectivit4, since its )*r)ose is to enforce and im)$ement an e3istin& $a' )*rs*ant to a va$id de$e&ation" Considerin& that ?7EA Administrative Circ*$ar No" 9, Series of 19 = has not as 4et been )*b$ished or fi$ed 'ith the Nationa$ Administrative Re&ister, the same is ineffective and ma4 not be enforced" -?hi$sa Internationa$ ?$acement and Services Cor)oration v" Secretar4 of Labor and Em)$o4ment, =;: SCRA 1!E, A)ri$ E, 9CC1, =rd Div", >8on2a&a6Re4es@. .oes the public*tion re;uirement *pply *s 3ell to *dministr*tive re'ul*tions *ddressed only to * specific 'roup *nd not to the 'ener*l public< #e$d% The 7ffice of the So$icitor 8enera$ $i1e'ise ar&*es that the 5*estioned administrative circ*$ar is not amon& those re5*irin& )*b$ication contem)$ated b4 4*n*d* v. 4uver* as it is addressed on$4 to a s)ecific &ro*) of )ersons and not to the &enera$ )*b$ic" A&ain, there is no merit in this ar&*ment" The fact that the said circ*$ar is addressed on$4 to a s)ecified &ro*), name$4 )rivate em)$o4ment a&encies or a*thorit4 ho$ders, does not ta1e it a'a4 from the ambit of o*r r*$in& in 4*n*d* v. 4uver*" In the case of Phil. &ssoci*tion of Service !porters v. 4orres, the administrative circ*$ars 5*estioned therein 'ere addressed to an even sma$$er &ro*), name$4 ?hi$i))ine and #on& Jon& a&encies en&a&ed in the recr*itment of 'or1ers for #on& Jon&, and sti$$ the Co*rt r*$ed therein that, for $ac1 of )ro)er )*b$ication, the said circ*$ars ma4 not be enforced or im)$emented" 7*r )rono*ncement in Tanada v" T*vera is c$ear and cate&orica$" Administrative r*$es and re&*$ations m*st be )*b$ished if their )*r)ose is to enforce or im)$ement e3istin& $a' )*rs*ant to a va$id de$e&ation" The on$4 e3ce)tions are inter)retative re&*$ations, those mere$4 interna$ in nat*re, or those so6ca$$ed $etters of instr*ctions iss*ed b4 administrative s*)eriors concernin& the r*$es and &*ide$ines to be fo$$o'ed b4 their s*bordinates in the )erformance of their d*ties" Administrative Circ*$ar No" 9, Series of 19 = has not been sho'n to fa$$ *nder an4 of these e3ce)tions" In this re&ard, the So$icitor 8enera$Fs re$iance on the case of Kao1asin v" Commissioner of C*stoms is mis)$aced" In the said case, the va$idit4 of certain C*stoms Memorand*m 7rders 'ere *)he$d des)ite their $ac1 of )*b$ication as the4 'ere addressed to a )artic*$ar c$ass of )ersons, the c*stoms co$$ectors, 'ho 'ere a$so the s*bordinates of the Commissioner of the B*rea* of C*stoms" As s*ch, the said Memorand*m 7rders c$ear$4 fa$$ *nder one of the e3ce)tions to the )*b$ication re5*irement, name$4 those dea$in& 'ith instr*ctions from an administrative s*)erior to a s*bordinate re&ardin& the )erformance of their d*ties, a circ*mstance 'hich does not obtain in the case at bench" G 3 3 To s*mmari2e, )etitioner sho*$d be abso$ved from the three -=. co*nts of e3action as ?7EA Administrative Circ*$ar No" 9, Series of 19 = co*$d not be the basis of administrative sanctions a&ainst )etitioner for $ac1 of )*b$ication" -?hi$sa Internationa$ ?$acement and Services Cor)oration v" Secretar4 of Labor and Em)$o4ment, =;: SCRA 1!E, A)ri$ E, 9CC1, =rd Div", >8on2a&a6Re4es@.

Ma4 a s*ccessf*$ bidder com)e$ a &overnment a&enc4 to forma$i2e a contract 'ith it not'ithstandin& that its bid e3ceeds the amo*nt a))ro)riated b4 Con&ress for the )ro+ectA #e$d% Enshrined in the 19 ! ?hi$i))ine Constit*tion is the mandate that (no mone4 sha$$ be )aid o*t of the Treas*r4 e3ce)t in )*rs*ance of an a))ro)riation made b4 $a'"/ -Sec" 99>1@, Artic$e VI of the 19 ! Constit*tion. Th*s, in the e3ec*tion of &overnment contracts, the )recise im)ort of this constit*tiona$ restriction is to re5*ire the vario*s a&encies to $imit their e3)endit*res 'ithin the a))ro)riations made b4 $a' for each fisca$ 4ear" It is 5*ite evident from the tenor of the $an&*a&e of the $a' that the e3istence of a))ro)riations and the avai$abi$it4 of f*nds are indis)ensab$e )re6re5*isites to or conditions sine ;u* non for the e3ec*tion of &overnment contracts" The obvio*s intent is to im)ose s*ch conditions as * priori re5*isites to the va$idit4 of the )ro)osed contract. Hsin& this as o*r )remise, 'e cannot accede to ?#7T7JINAFs contention that there is a$read4 a )erfected contract" Whi$e 'e he$d in 2etropolit*n 2*nil* .evelopment &uthority v. 6*ncom nvironment*l )orpor*tion that (the effect of an *n5*a$ified acce)tance of the offer or )ro)osa$ of the bidder is to )erfect a contract, *)on notice of the a'ard to the bidder,/ ho'ever, s*ch statement 'o*$d be inconse5*entia$ in a &overnment 'here the acce)tance referred to is 4et to meet certain conditions" To ho$d other'ise is to a$$o' a )*b$ic officer to e3ec*te a bindin& contract that 'o*$d ob$i&ate the &overnment in an amo*nt in e3cess of the a))ro)riations for the )*r)ose for 'hich the contract 'as attem)ted to be made. This is a dan&ero*s )recedent" In the case at bar, there seems to be an oversi&ht of the $e&a$ re5*irements as ear$4 as the biddin& sta&e" The first ste) of a Bids and A'ards Committee -BAC. is to determine 'hether the bids com)$4 'ith the re5*irements" The BAC sha$$ rate a bid ()assed/ on$4 if it com)$ies 'ith a$$ the re5*irements and the s*bmitted )rice does not e3ceed the a))roved b*d&et for the contract"/(Implementin' Rules *nd Re'ul*tions [IRR] for !ecutive "rder #o. 2-2, supr*.% E3tant on the record is the fact that the VRIS ?ro+ect 'as a'arded to ?#7T7JINA on acco*nt of its bid in the amo*nt of ?:"; Bi$$ion ?esos" #o'ever, *nder Re)*b$ic Act No" !:C (Gener*l &ppropri*tions &ct, 17 2,,,, p. 1,1=, supr*.%,the on$4 f*nd a))ro)riated for the )ro+ect 'as ?1 Bi$$ion ?esos and *nder the Certification of Avai$ab$e 0*nds -CA0. on$4 ?1"9 Bi$$ion ?esos 'as avai$ab$e" C$ear$4, the amo*nt a))ro)riated is ins*fficient to cover the cost of the entire VRIS ?ro+ect" There is no 'a4 that the C7MELEC co*$d enter into a contract 'ith ?#7T7JINA 'hose acce)ted bid 'as 'a4 be4ond the amo*nt a))ro)riated b4 $a' for the )ro+ect" This bein& the case, the BAC sho*$d have re+ected the bid for bein& e3cessive or sho*$d have 'ithdra'n the Notice of A'ard on the &ro*nd that in the e4es of the $a', the same is n*$$ and void" Even the draft contract s*bmitted b4 Commissioner Sadain that )rovides for a contract )rice in the amo*nt of ?1"9 Bi$$ion ?esos is *nacce)tab$e" 3 3 3 Whi$e the contract )rice *nder the draft contract is on$4 ?1"9 Bi$$ion and, th*s, 'ithin the certified avai$ab$e f*nds, the same covers on$4 ?hase I of the VRIS ?ro+ect, i.e., the iss*ance of identification cards for on$4 1,CCC,CCC voters in s)ecified areas . In effect, the im)$ementation of the VRIS ?ro+ect 'i$$ be (se&mented/ or (cho))ed/ into severa$ )hases" Not on$4 is s*ch arran&ement disa$$o'ed b4 o*r b*d&etar4 $a's and )ractices, it is a$so disadvanta&eo*s to the C7MELEC beca*se of the *ncertaint4 that 'i$$ $oom over its moderni2ation )ro+ect for an indefinite )eriod of time" Sho*$d Con&ress fai$ to a))ro)riate the amo*nt necessar4 for the com)$etion of the entire )ro+ect, 'hat &ood 'i$$ the accom)$ished ?hase I serveA As e3)ected, the )ro+ect fai$ed (to se$$/ 'ith the De)artment of B*d&et and Mana&ement" Th*s, Secretar4 Ben+amin Dio1no, )er his $etter of December 1, 9CCC, dec$ined the C7MELECFs re5*est for the iss*ance of the Notice of Cash Avai$abi$it4 -NCA. and a m*$ti64ear ob$i&ator4 a*thorit4 to ass*me )a4ment of the tota$ VRIS ?ro+ect for $ac1 of $e&a$ basis" Coro$$ari$4, *nder Section == of R"A" No" !:C, no a&enc4 sha$$ enter into a m*$ti64ear contract 'itho*t a m*$ti64ear ob$i&ationa$ a*thorit4, th*s%

SECTI7N =="

Contractin& M*$ti6Kear ?ro+ects" 6 In the im)$ementation of m*$ti64ear )ro+ects, no a&enc4 sha$$ enter into a m*$ti64ear contract 'itho*t a m*$ti64ear 7b$i&ationa$ A*thorit4 iss*ed b4 the De)artment of B*d&et and Mana&ement for the )*r)ose" Not'ithstandin& the iss*ance of the m*$ti64ear 7b$i&ationa$ A*thorit4, the ob$i&ation to be inc*rred in an4 &iven ca$endar 4ear, sha$$ in no case e3ceed the amo*nt )ro&rammed for im)$ementation d*rin& said ca$endar 4ear"/ ?etitioners are +*stified in ref*sin& to forma$i2e the contract 'ith ?#7T7JINA" ?r*dence dictated them not to enter into a contract not bac1ed *) b4 s*fficient a))ro)riation and avai$ab$e f*nds" Definite$4, to act other'ise 'o*$d be a f*ti$e e3ercise for the contract 'o*$d inevitab$4 s*ffer the vice of n*$$it4" 3 3 3 Veri$4, the contract, as e3)ress$4 dec$ared b4 $a', is ine3istent and void ab initio -Artic$e 1EC9 of the Civi$ Code of the ?hi$i))ines." This is to sa4 that the )ro)osed contract is 'itho*t force and effect from the ver4 be&innin& or from its inci)ienc4, as if it had never been entered into, and hence, cannot be va$idated either b4 $a)se of time or ratification" In fine, 'e r*$e that ?#7T7JINA, tho*&h the 'innin& bidder, cannot com)e$ the C7MELEC to forma$i2e the contract" Since ?#7T7JINAFs bid is be4ond the amo*nt a))ro)riated b4 Con&ress for the VRIS ?ro+ect, the )ro)osed contract is not bindin& *)on the C7MELEC and is considered void 3 3 3" ()ommission on lections v.

6ud'e 2*. +uis* >ui?*no8P*dill*, G.R. #o. 101$$2, Sept. 1=, 2,,2, n @*nc [S*ndov*l8GutierreA]% What is the remed4 avai$ab$e to a )art4 'ho contracts 'ith the &overnment contrar4 to the re5*irements of the $a' and, therefore, void ab initioA Held: 7f co*rse, 'e are not sa4in& that the )art4 'ho contracts 'ith the &overnment has no other reco*rse in $a'" The $a' itse$f affords him the remed4" Section E of E"7" No" 999 e3)$icit$4 )rovides that an4 contract entered into contrar4 to the above6mentioned re5*irements sha$$ be void, and Bthe officers enterin' into the contr*ct sh*ll be li*ble to the Government or other contr*ctin' p*rty for *ny conse;uent d*m*'e to the s*me *s if the tr*ns*ction h*d been 3holly bet3een priv*te p*rties.C So 'hen the contractin& officer transcends his $a'f*$ and $e&itimate )o'ers b4 actin& in e3cess of or be4ond the $imits of his contractin& a*thorit4, the 8overnment is not bo*nd *nder the contract" It 'o*$d be as if the contract in s*ch case 'ere a )rivate one, 'here*)on, he binds himse$f, and th*s, ass*mes )ersona$ $iabi$it4 there*nder" 7ther'ise stated, the )ro)osed contract is *nenforceab$e as to the 8overnment" Whi$e this is not the )roceedin& to determine 'here the c*$)abi$it4 $ies, ho'ever, the constit*tiona$ mandate cited above constrains *s to remind a$$ )*b$ic officers that )*b$ic office is a )*b$ic tr*st and a$$ )*b$ic officers m*st at a$$ times be acco*ntab$e to the )eo)$e" The a*thorit4 of )*b$ic officers to enter into &overnment contracts is circ*mscribed 'ith a heav4 b*rden of res)onsibi$it4" In the e3ercise of their contractin& )rero&ative, the4 sho*$d be the first +*d&es of the $e&a$it4, )ro)riet4 and 'isdom of the contract the4 entered into" The4 m*st e3ercise a hi&h de&ree of ca*tion so that the 8overnment ma4 not be the victim of i$$6advised or im)rovident action" -Commission on E$ections v" <*d&e Ma" L*isa L*i+ano6?adi$$a, 8"R" No" 1;1999, Se)t" 1 , 9CC9, En Banc >Sandova$68*tierre2@. .oes the )ommission on 9um*n Ri'hts h*ve the po3er to *d?udic*te< #e$d% In its 7rder 3 3 3 den4in& )etitionersF motion to dismiss, the C#R theori2es that the intention of the members of the Constit*tiona$ Commission is to ma1e C#R a 5*asi6+*dicia$ bod4" This vie', ho'ever, has not heretofore been shared b4 this Co*rt" In )*rino v. )ommission on 9um*n Ri'hts, the Co*rt 3 3 3 has observed that it is (on$4 the first of the en*merated )o'ers and f*nctions that bears an4 resemb$ance to ad+*dication of ad+*d&ment,/ b*t that resemb$ance can in no 'a4 be s4non4mo*s to the ad+*dicator4 )o'er itse$f" The Co*rt e3)$ained%

3 3 3 >T@he Commission on #*man Ri&hts 3 3 3 'as not meant b4 the f*ndamenta$ $a' to be another co*rt or
5*asi6+*dicia$ a&enc4 in this co*ntr4, or d*)$icate m*ch $ess ta1e over the f*nctions of the $atter"

The most that ma4 be conceded to the Commission in the 'a4 of ad+*dicative )o'er is that it ma4 investi&ate,
i"e", receive evidence and ma1e findin&s of fact as re&ards c$aimed h*man ri&hts vio$ations invo$vin& civi$ and )o$itica$ ri&hts" B*t fact findin& is not ad+*dication, and cannot be $i1ened to the +*dicia$ f*nction of a co*rt of +*stice, or even a 5*asi6+*dicia$ a&enc4 or officia$" The f*nction of receivin& evidence and ascertainin& therefrom the facts of a controvers4 is not a +*dicia$ f*nction, )ro)er$4 s)ea1in&" To be considered s*ch, the fac*$t4 of receivin& evidence and ma1in& fact*a$ conc$*sions in a controvers4 m*st be accom)anied b4 the a*thorit4 of a))$4in& the $a' to those fact*a$ conc$*sions to the end that the controvers4 ma4 be decided or determined a*thoritative$4, fina$$4 and definitive$4, s*b+ect to s*ch a))ea$s or modes of revie' as ma4 be )rovided b4 $a'" This f*nction, to re)eat, the Commission does not have" (Simon, 6r. v. )ommission on 9um*n Ri'hts, 22$ S)R& 115, 120, 6*n. 0, 1$$(, n @*nc [Ditu', 6.]% Does the Commission on #*man Ri&hts have +*risdiction to iss*e TR7 or 'rit of )re$iminar4 in+*nctionA #e$d% In !port Processin' Eone &uthority v. )ommission on 9um*n Ri'hts, the Co*rt 3 3 3 e3)$ained%

The constit*tiona$ )rovision directin& the C#R to M)rovide for )reventive meas*res and $e&a$ aid services to the
*nder)rivi$e&ed 'hose h*man ri&hts have been vio$ated or need )rotectionF ma4 not be constr*ed to confer +*risdiction on the Commission to iss*e a restrainin& order or 'rit of in+*nction for, if that 'ere the intention, the Constit*tion 'o*$d have e3)ress$4 said so" M<*risdiction is conferred on$4 b4 the Constit*tion or b4 $a'"F It is never derived b4 im)$ication"/

Evident$4, the M)reventive meas*res and $e&a$ aid servicesF mentioned in the Constit*tion refer to e3tra+*dicia$ and
+*dicia$ remedies -inc$*din& a 'rit of )re$iminar4 in+*nction. 'hich the C#R ma4 see1 from the )ro)er co*rts on beha$f of the victims of h*man ri&hts vio$ations" Not bein& a co*rt of +*stice, the C#R itse$f has no +*risdiction to iss*e the 'rit, for a 'rit of )re$iminar4 in+*nction ma4 on$4 be iss*ed Mb4 the +*d&e of an4 co*rt in 'hich the action is )endin& >'ithin his district@, or b4 a <*stice of the Co*rt of A))ea$s, or of the S*)reme Co*rt" 3 3 3" A 'rit of )re$iminar4 in+*nction is an anci$$ar4 remed4" It is avai$ab$e on$4 in a )endin& )rinci)a$ action, for the )reservation or )rotection of the ri&hts and interest of a )art4 thereto, and for no other )*r)ose"/ The Commission does have $e&a$ standin& to indorse, for a))ro)riate action, its findin&s and recommendations to

an4 a))ro)riate a&enc4 of &overnment" -Simon, <r" v" Commission on #*man Ri&hts, 999 SCRA 11!, 1=E61=;, <an" ;, 199E, En Banc >Vit*&, <"@. Does the )etition for ann*$ment of )roc$amation of a candidate mere$4 invo$ve the e3ercise b4 the C7MELEC of its administrative )o'er to revie', revise and reverse the actions of the board of canvassers and, therefore, +*stifies non6observance of )roced*ra$ d*e )rocess, or does it invo$ve the e3ercise of the C7MELECFs 5*asi6+*dicia$ f*nctionA #e$d% Ta1in& co&ni2ance of )rivate res)ondentFs )etitions for ann*$ment of )etitionerFs )roc$amation, C7MELEC 'as not mere$4 )erformin& an administrative f*nction" The administrative )o'ers of the C7MELEC inc$*de the )o'er to determine the n*mber and $ocation of )o$$in& )$aces, a))oint e$ection officia$s and ins)ectors, cond*ct re&istration of voters, de)*ti2e $a' enforcement a&encies and &overnmenta$ instr*menta$ities to ens*re free, order$4, honest, )eacef*$ and credib$e e$ections, re&ister )o$itica$ )arties, or&ani2ations or coa$ition, accredit citi2enFs arms of the Commission, )rosec*te e$ection offenses, and recommend to the ?resident the remova$ of or im)osition of an4 other disci)$inar4 action *)on an4 officer or em)$o4ee it has de)*ti2ed for vio$ation or disre&ard of its directive, order or decision" In addition, the Commission a$so has direct contro$ and s*)ervision over a$$ )ersonne$ invo$ved in the cond*ct of e$ection" #o'ever, the reso$*tion of the adverse c$aims of )rivate res)ondent and )etitioner as re&ards the e3istence of a manifest error in the 5*estioned certificate of canvass re5*ires the C7MELEC to act as an arbiter" It behooves the Commission to hear both )arties to determine the veracit4 of their a$$e&ations and to decide 'hether the a$$e&ed error is a manifest error" #ence, the reso$*tion of this iss*e ca$$s for the e3ercise b4 the C7MELEC of its 5*asi6+*dicia$ )o'er" It has been said that 'here a )o'er rests in +*d&ment or discretion, so that it is of +*dicia$ nat*re or character, b*t does not invo$ve the e3ercise of f*nctions of a +*d&e, or is conferred *)on an officer other than a +*dicia$ officer, it is deemed 5*asi6+*dicia$" The C7MELEC therefore, actin& as 5*asi6+*dicia$ trib*na$, cannot i&nore the re5*irements of )roced*ra$ d*e )rocess in reso$vin& the )etitions fi$ed b4 )rivate res)ondent" -0ederico S" Sandova$ v" C7MELEC, 8"R" No" 1== E9, <an" 9:, 9CCC >?*no@. .iscuss the contempt po3er of the )ommission on 9um*n Ri'hts ()9R%. Fhen m*y it be v*lidly e!ercised. #e$d% 7n its contem)t )o'ers, the C#R is constit*tiona$$4 a*thori2ed to (ado)t its o)erationa$ &*ide$ines and r*$es of )roced*re, and cite for contem)t for vio$ations thereof in accordance 'ith the R*$es of Co*rt"/ Accordin&$4, the C#R acted 'ithin its a*thorit4 in )rovidin& in its revised r*$es, its )o'er (to cite or ho$d an4 )erson in direct or indirect contem)t, and to im)ose the a))ro)riate )ena$ties in accordance 'ith the )roced*re and sanctions )rovided for in the R*$es of Co*rt"/ That )o'er to cite for contem)t, ho'ever, sho*$d be *nderstood to a))$4 on$4 to vio$ations of its ado)ted o)erationa$ &*ide$ines and r*$es of )roced*re essentia$ to carr4 o*t its investi&atoria$ )o'ers" To e3em)$if4, the )o'er to cite for contem)t co*$d be e3ercised a&ainst )ersons 'ho ref*se to coo)erate 'ith the said bod4, or 'ho *nd*$4 'ithho$d re$evant information, or 'ho dec$ine to honor s*mmons, and the $i1e, in )*rs*in& its investi&ative 'or1" The (order to desist/ -a semantic inter)$a4 for a restrainin& order. in the instance before *s, ho'ever, is not investi&atoria$ in character b*t )rescinds from an ad+*dicative )o'er that it does not )ossess" 3 3 3 (Simon, 6r. v. )ommission on 9um*n Ri'hts, 22$ S)R& 115, 1/(, 6*n. 0, 1$$(, n @*nc [Ditu', 6.]% Disc*ss the Doctrine of ?rimar4 <*risdiction -or ?rior Resort." #e$d% Co*rts cannot and 'i$$ not reso$ve a controvers4 invo$vin& a 5*estion 'hich is 'ithin the +*risdiction of an administrative trib*na$, es)ecia$$4 'here the 5*estion demands the e3ercise of so*nd administrative discretion re5*irin& the s)ecia$ 1no'$ed&e, e3)erience and services of the administrative trib*na$ to determine technica$ and intricate matters of fact" In recent 4ears, it has been the +*ris)r*dentia$ trend to a))$4 this doctrine to cases invo$vin& matters that demand the s)ecia$ com)etence of administrative a&encies even if the 5*estion invo$ved is a$so +*dicia$ in character" It a))$ies ('here a c$aim is ori&ina$$4 co&ni2ab$e in the co*rts, and comes into )$a4 'henever enforcement of the c$aim re5*ires the reso$*tion of iss*es 'hich, *nder a re&*$ator4 scheme, have been )$aced 'ithin the s)ecia$ com)etence of an administrative bod4D in s*ch case, the +*dicia$ )rocess is s*s)ended )endin& referra$ of s*ch iss*es to the administrative bod4 for its vie'"/ In cases 'here the doctrine of )rimar4 +*risdiction is c$ear$4 a))$icab$e, the co*rt cannot arro&ate *nto itse$f the a*thorit4 to reso$ve a controvers4, the +*risdiction over 'hich is $od&ed 'ith an administrative bod4 of s)ecia$ com)etence" -Vi$$af$or v" CA, 9 C SCRA 99!, 7ct" 9, 1999, =rd Div" >?an&aniban@. Disc*ss the Doctrine of E3ha*stion of Administrative Remedies" What are the e3ce)tions theretoA #e$d% 1" Before a )art4 is a$$o'ed to see1 the intervention of the co*rt, it is a )re6condition that he sho*$d have avai$ed of a$$ the means of administrative )rocesses afforded him" #ence, if a remed4 'ithin the administrative machiner4 can sti$$ be resorted to b4 &ivin& the administrative officer concerned ever4 o))ort*nit4 to decide on a matter that comes 'ithin his +*risdiction then s*ch remed4 sho*$d be e3ha*sted first before the co*rtFs +*dicia$ )o'er can be so*&ht" The )remat*re invocation of co*rtFs +*risdiction is fata$ to oneFs ca*se of action" Accordin&$4, absent an4 findin& of 'aiver or esto))e$ the case is s*sce)tib$e of dismissa$ for $ac1 of ca*se of action" This doctrine of e3ha*stion of administrative remedies 'as not 'itho*t its )ractica$ and $e&a$ reasons, for one thin&,

avai$ment of administrative remed4 entai$s $esser e3)enses and )rovides for a s)eedier dis)osition of controversies" It is no $ess tr*e to state that the co*rts of +*stice for reasons of comit4 and convenience 'i$$ sh4 a'a4 from a dis)*te *nti$ the s4stem of administrative redress has been com)$eted and com)$ied 'ith so as to &ive the administrative a&enc4 concerned ever4 o))ort*nit4 to correct its error and to dis)ose of the case" This doctrine is disre&arded% 'hen there is a vio$ation of d*e )rocessD 'hen the iss*e invo$ved is )*re$4 a $e&a$ 5*estionD 'hen the administrative action is )atent$4 i$$e&a$ amo*ntin& to $ac1 or e3cess of +*risdictionD 'hen there is esto))e$ on the )art of the administrative a&enc4 concernedD 'hen there is irre)arab$e in+*r4D 'hen the res)ondent is a de)artment secretar4 'hose acts as an a$ter e&o of the ?resident bears the im)$ied and ass*med a))rova$ of the $atterD 'hen to re5*ire e3ha*stion of administrative remedies 'o*$d be *nreasonab$eD 'hen it 'o*$d amo*nt to a n*$$ification of a c$aimD 'hen the s*b+ect matter is a )rivate $and in $and case )roceedin&D 'hen the r*$e does not )rovide a )$ain, s)eed4 and ade5*ate remed4, and 'hen there are circ*mstances indicatin& the *r&enc4 of +*dicia$ intervention" -?aat v" CA, 9:: SCRA 1:! >199!@. 9" Non6e3ha*stion of administrative remedies is not +*risdictiona$" It on$4 renders the action )remat*re, i.e., c$aimed ca*se of action is not ri)e for +*dicia$ determination and for that reason a )art4 has no ca*se of action to venti$ate in co*rt" ()*r*le v. &b*rintos, 2-$ S)R& 1/2, 2*rch /, 1$$5, /rd .iv. [.*vide]%