UNIVERSITY OF THE PHILIPPINESCOLLEGE OF LAWDiliman, Quezon City

ADMINISTRATIVE LAW Second Semester, AY 2010-2011

Dr. Antonio G. M. La Viňa

I. COURSE INTRODUCTION AND OVERVIEW

1. Course Objectives:a. To help you become lawyers (Pass the bar)b. To help you become good lawyers (for your future clients)c. To teach law in a grand manner and to help you become great lawyers (for the poor, for

the country, and for the world)

2. Course Requirements: 50% Collective Recitation, 50% Final Exams

3. Sharing of Expectations and Course Overview

II. WHAT IS LAW? WHAT IS ADMINISTRATIVE LAW? WHAT IS PHILIPPINE ADMINISTRATIVE LAW?

1. Preliminary Reflections

Plato, The Statesman Rawls, Theory of Justice (Chapter 1) Sens, The Idea of Justice (Chapter 1)

2. History of Philippine Administrative Law

II. FUNDAMENTALS OF ADMINISTRATIVE LAW

Administrative Code of 1987; defined Ople v. Torres, 293 SCRA 141 Nasipit Integrated Arrastre and & Stevedoring Services vs. Tapucar, SP 07599, 29

September 1978

What is administrative power Ople v. Torres, 293 SCRA 141

Government of the Philippines; defined (Sec. 2[1], Introductory Provisions, Executive Order No. 292) 

Agency of the Government; defined (Sec. 2[4], Introductory Provisions, Executive Order No. 292)

Department, Bureau and Office; defined (Sec. 2[8-10], Introductory Provisions, Executive Order No. 292) 

Government Instrumentality, Regulatory Agency, Chartered Institution (Sec. 2[10-12], Introductory Provisions, Executive Order No. 292) 

Government owned and controlled corporation Sec. 2[13], Introductory Provisions, Executive Order No. 292)  Blaquera v. Alcala, 295 SCRA 366, 425 Camporedondo v. NLRC, 312 SCRA 47 Republic v. Express Telecommunication Co., Inc., 373 SCRA 316.

Creation, Reorganization and Abolition of Administrative Agencies Sec. of DOTC vs. Mabalot, 378 SCRA 129 Eugenio vs. CSC, 243 SCRA 196 Larin vs. Executive Secretary, 280 SCRA 713 Cebu United Enterprises v. Gallofin, 106 Phil 491 Crisostomo vs. CA, 258 SCRA 134

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Effect of finding of facts in Administrative Cases Opena v. Luna, 497 SCRA 153

Quasi-legislative or rule-making power of Administrative Agencies Equi-Asia Placement, Inc. vs. DFA, 502 SCRA 295 Abella, Jr. v. Civil Service Commission,  442 SCRA 507 Central Bank vs. Gabriel, 44 SCRA 315 Bustos v. Lucero, 81 Phil 653

III. THE DOCTRINE OF SEPARATION OF POWERS

Separation of powers as a basic concept Planas vs. Gil, 67 Phil 62

Legislative, executive and judicial powers; defined Government of Philippine Islands vs. Springer, 50 Phil. 276 Occena vs. Comelec, 95 SCRA 759 Alejandro vs. Quezon, 46 Phil. 129 Villena vs. Secretary of Interior, 67 Phil. 62 Sec. 1, Article VII and Sec. 1, Article VIII 1987 Constitution

Supremacy of the Constitution Angara vs. Electoral Commission, 63 Phil. 139 Meralco Securities Industrial Corporation vs. Central Board of Assessment Appeals,

114 SCRA 264

Requisites before courts assume jurisdiction over constitutional questions Garcia v. Executive Secretary, 204 SCRA 516, 522 Fernandez vs. Torres, 215 SCRA 489, 493

Authority of courts to declare law unconstitutional International Hardwood and Veneer Co. of the Philippines vs. University of the

Philippines, 200 SCRA 554 Galarosa vs. Valencia, 227 SCRA 728, 737

Checks and Balances Angara vs. Electoral Commission, 63 Phil. 156

IV. POWER of JUDICIAL REVIEW -- SIR

Constitutional Provisions Article VIII, Sections 1, 4(2), 5(2), 5(5)

Origin of Judicial Review Marbury v. Madison, 1 cranch (5 US) 137, 2 l. ed. 60 (1803) Angara v. Electoral Tribunal, 63 Phil. 139

Requisites of Judicial Review PACU v. Secretary of Education, 97 Phil. 806 Tan v. Macapagal, 43 SCRA 678 People v. Vera Phil. 58, 89

Actual Controversy Mariano v. COMELEC, 242 SCRA 211

Mootness Doctrine Alunan III v. Mirasol, 276 SCRA 501, 511

Legal Standing Macasiano v. NHA, 224 SCRA 236 Senate of the Philippines v. Ermita, 488 SCRA 1, at 39

Taxpayer’s suit Tatad v. Garcia, Jr, 243 SCRA 436 Pascual v. Secretary of Public Works & Communications, 110 Phil. 331

V. THE POLITICAL QUESTION DOCTRINE – SIR

What is political question doctrine

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Tanada vs. Cuenco, 103 Phil. 1051 Javellana vs. The Executive Secretary, 50 SCRA 31

1987 Constitution on Political Question Section 1, Article VIII, 1987 Constitution Estrada vs. Desierto, 353 SCRA 458, 490 Joint Resolution, Lawyers League for a Better Philippines vs. President Aquino,

737748, May 22, 1986 Letter of Associate Justice Reynato S. Puno, 210 SCRA 597

Congressional resolution on political question; effect Estrada vs. Desierto, 353 SCRA 452, 515 Arroyo vs. De Venecia, 277 SCRA 269

VI. THE PRINCIPLE OF NON-DELEGATION OF POWER – Thursday 1/20

Non-Delegation Principle Baltazar vs. Ombudsman, 510 SCRA 75 Equi-Asia Placement, Inc. vs. DFA, 502 SCRA 295 Bai Sandra S.A. Sema v. Commission on Elections, G.R. No. 177597 July 16, 2008;

see J. Tinga dissenting opinion Gerochi vs. Department of Energy, 527 SCRA 696, 719. Eastern Telecommunications Philippines, Inc. v. International Communication

Corporation, 481 SCRA 163. Eastern Shipping Lines, inc vs. POEA, 160 SCRA 533

Recognized Exceptions; Allowable delegation: (1) Delegation of tariff powers to the President under Section 28(2) ofArticle VI of the Constitution;(2) Delegation to an independent economic and panning agency under Section 9, Article XII(3) Delegation to the people at large;(4) Delegation to local governments; and(5) Delegation to administrative bodies.(6) Delegation of emergency powers to the President under Section 23(2)of Article VI of the Constitution.

Chavez vs. Romulo, 431 SCRA 534 People vs. Vera, 65 Phil. 56 [1937] David vs. Arroyo, 489 SCRA 160 Sanlakas v. Executive Secretary 421 SCRA 656 Lacson vs. Perez, 357 SCRA 756

Two (2) Test requirements for valid exercise Abakada Guro Party vs. Purisima, 562 SCRA 251

Completeness test

Equi-Asia Placement, Inc. vs. DFA, 502 SCRA 295 Edu v. Ericta, 35 SCRA 481, 496-497.

Sufficiency of Standard Test Equi-Asia Placement, Inc. vs. DFA, Supra Rafael vs. Embroidery Apparel and Control and Inspection Board, 21 SCRA 774

VII. PRINCIPLES OF QUALIFIED POLITICAL AGENCY

Qualified Political Agency, Defined;

Villena vs. Secretary of Interior, 67 Phil. 484 Perez vs. Sandiganbayan, 503 SCRA 352 Joson vs. Executive Secretary, 290 SCRA 279 

Scope of Presidential Control ------2/3----- start Rufino vs. Endriga, 496 SCRA 13 Director General, NEDA 487 SCRA 823

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VIII. QUASI-JUDICIAL FUNCTIONS

Quasi-judicial functions, Defined; Dole Philippines Inc. v. Esteva, 509 SCRA 332, 369-370. Metrobank vs. NWPC, 514 SCRA 316  The United Residents of Dominican Hill, Inc., vs. CONSLAP, 353 SCRA 782,  Cabral vs. CA, G.R. No. 101974*.  July 12, 2001

Quasi-judicial proceedings Cuenca vs. Fabrero, G.R. No. 146214 October 5, 2007 Scenarios, Inc. vs. Vinluan,  G.R. No. 173283  September 17, 2008 Pison-Arceo Agricultural and Development Corporation vs. NLRC, 344 Phil. 723, 736 San Miguel Corp. vs. NLRC, G.R. Nos. 146121-22, April 16, 2008 A.G. Development Corp. v.  Court of Appeals  346  Phil. 136 (1997)

Exhaustion of Administrative Remedies

Some Principles Hongkong Shanghai Bank Corporation vs. G.O. Sportswear Manufacturing Corp., 489

SCRA 578 Joson vs. CA, G.R. No. 160652, February 13, 2006 Castro vs. Secretary of Education, G.R. No.  132174.  August 20, 2001 Republic vs. Lacap, 517 SCRA 255, 268 Teotico vs. Baer, 490 SCRA 279, 285. Carale v. Abarintos, 269 SCRA 132

------ 2/3---- end Exceptions Paat v. CA, 266 SCRA 167 [1997] Cadwallader vs. Abeleda, 98 SCRA 145 Valmonte v. Belmonte, Jr., 170 SCRA 256, 263 (1989) Castro vs. DECS Secretary, G.R. No.  132174.  August 20, 2001

Doctrine of Primary Jurisdiction or Prior Resort Saavedra, Jr. v. Securities and Exchange Commission, 159 SCRA 57, 62 Republic vs. Lacap, G.R. No. 158253 March 2, 2007 Sherwill Development Corp. vs. Sitio Sto. Nino Residents Association, Inc., 461

SCRA 517, 531 Reyes vs. Belisario, G.R. No. 154652,  August 14, 2009 Fabia vs. CA, G.R. No. 132684.  August 20, 2001 Villaflor v. CA, 280 SCRA 297

IX. THE ADMINISTRATIVE POWERS OF THE OMBUDSMAN

Sec. 5, Art. XI, 1987 Constitution Hagad vs. Gozo-Dadole, 581 SCRA 242 Laxima vs. Office ofth e Ombudsman, 471 SCRA 542 Office of the Ombudsman vs. Laja, 488 SCRA 574

X. SELECTED ADMINISTRATIVE AGENCIES

i) Department of Agrarian Reform (DAR)

Mandate

The Department of Agrarian Reform (DAR) leads the implementation of the Comprehensive Agrarian Reform Program (CARP) through land tenure improvement, agrarian justice, and coordinated delivery of essential support services to client beneficiaries.

Legal Basis Article XIII Constitution Republic Act No. 6389 (September 10, 1971), An Act Amending RA 3844,

otherwise known as the Agricultural Land Reform Code, created a Department of

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Agrarian Reform (DAR) with the authority and responsibility to implement the policies of the State on agrarian reform. It abolished the Land Reform Project Administration, the National Land Reform Council, and the Land Authority and transferred their functions to the DAR.

Executive Order 129-A (July 26, 1987) provided for the organizational structure of DAR and the respective functions of each office under it. It mandated DAR to implement the Comprehensive Agrarian Reform Program*.

Republic Act No. 6657 (June 10, 1988), or the Comprehensive Agrarian Reform Law of 1988, mandated DAR, in coordination with the Presidential Agrarian Reform Council (PARC) to plan and program the acquisition and distribution of all agricultural lands through a period of 10 years from the effectivity of said Act (1988). It vested DAR with quasi-judicial powers to determine and adjudicate agrarian reform matters.

Republic Act No. 8532 (February 23, 1998) extended the implementation of the CARP Law of 1988 to 2008.

Executive Order 364 (September 27,2004) transformed the Department of Agrarian Reform into the Department of Land Reform (DLR) and stipulated that the Department shall be responsible for all land reform in the country i.e., agrarian, urban land and ancestral domain reform.

Republic Act No. 9700 (July 1, 2009)- an act strengthening the comprehensive agrarian reform program (carp),extending the acquisition and distribution of all agricultural lands, instituting necessary reforms, amending for the purpose certain provisions of republic act no. 6657, otherwise known as the comprehensive agrarian reform law of 1988, as amended, and appropriating funds therefor.

Rules and Procedure See 2009 DARAB Rules and Procedure

Significant Cases: See Hacienda Luisita Update

Constitutionality of the Agrarian Reform Act Association of Small Landowners vs Secretary of Agrarian Reform, 75 SCRA

366 [1989]Eminent Domain/Expropriation; meaning

Macawiwili Gold Mining and Development Co., Inc. vs. Court of Appeals, 297 SCRA 602, 615 (1998)

Requisite for valid exercisea) Public use Brgy. Sindalan, San Fernando, Pampanga vs. Court of Appeals, 518 SCRA 649 Municipality of La Carlota vs. The Spouses Felicidad Baltazar and Vicente

Gan45 SCRA 235 (May 30, 1972)b) Just compensation Brgy. Sindalan, San Fernando, Pampanga vs. Court of Appeals, 518 SCRA 649 Land Bank of the Philippines vs. Fortune Savings and Loan Association, Inc.,

represented by Philippine Deposit Insurance Corporation, G.R. No. 177511, June 29, 2010.

ii) Department of Transportation and Communications

MandateDevelops, promotes, implements, and maintains integrated and strategic transportations and communications systems that will ensure safe, reliable, responsive and viable servides to accelerate economic development and to better serve the transport and communications needs of the people.

Legal Basis Article II, Section of the Constitution Article XII Secs. 10, 11, 17, 18, 19. Constitution Article XVI (General Provisions), Sec. 11, Constitution Executive Order 546 (July 23, 1979) - creating a Ministry of public works and a

Ministry of transportation and communications

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Executive Order 125 (January 30, 1987) - reorganizing the ministry of transportation and communications defining its powers and functions and for other purposes. 

Executive Order 125-A (April 13, 1987) - amending executive order no. 125 ;reorganizing the ministry of transportation and communications, defining its powers and functions, and for other purposes

Attached Agencies:

Land Transportation Office (LTO) Land Transportation Franchising and Regulatory Board (LTFRB) Civil Aviation Authority of the Philippines (CAAP) Maritime Industry Authority (MARINA) Philippine Coast Guard (PCG) Philippine National Railways (PNR) Light Rail Transit Authority (LRTA) Metro Rail Transit Corporation (MRTC) Manila International Airport Authority (MIAA-NAIA) Mactan-Cebu International Airport Authority Philippine Ports Authority (PPA) Civil Aeronautics Board (CAB) Toll Regulatory Board (TRB) Office for Transportation Security (OTS) Cebu Port Authority (CPA)

Adjudication Procedures

National Telecommunications Commission – responsible for the supervision, adjudication and control over all telecommunications services throughout the Philippines. Created under Executive Order No. 546. Promulgated in 1979. See NTC Revised Rules and Procedure (2006) for procedures.

Civil Aviation Authority of the Philippines - responsible for implementing policies on civil aviation to assure safe, economic and efficient air travel.  The agency also investigates aviation accidents. See Civil Aviation Authority Act of 2008 for procedures

Land Transportation Office/Land Transportation Franchising Regulatory Board – governing bodies of land transportation system.

Significant Cases

Regulation of public utilities Globe telecom, inc., vs. NTC, 26 July 2004 Republic of the Philippines v. Manila Electric Company, 391 SCRA 700 Compare with: Freedom from Debt Coalition v.MWSS, 539 SCRA 621

Regulation of the transportation industry(Air)

PAL v. CAB, 23 SCRA 992(Land)

KMU Labor Center v. Garcia, 239 SCRA 386(Water)

Funa v. Ermita, G.R. No. 184740, 11 February 2010.

iii) Department of Environment and Natural Resources

Mandate

DENR as the primary government agency responsible for the conservation, management, development and proper use of the country’s natural resources and environment.

` Legal Basis

Presidential Decree No. 461 (May 17, 1974) reorganized the Department of Agriculture and Natural Resources (DANR) into a Department of Agriculture (DA) and a Department of Natural Resources (DNR) and provided for the functional and structural configuration of the two Departments.

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Executive Order No. 131 (January 30, 1987) created the Department of Environment, Energy and Natural Resources (DEENR).

Executive Order No. 192 (June 10, 1987) reorganized the DEENR and renamed it as the Department of Environment and Natural Resources (DENR). It established DENR’s mandate and defined the structure and functions/concerns of its various offices, staff bureaus, attached agencies, and field offices consisting of Regional, Provincial, and Community Offices.

Attached Agencies/bureaus

Laguna Lake Development Authority National Mapping and Resource Information Authority National Water Resources Board Natural Resources Development Corporation Pasig River Rehabilitation Commission Environmental Management Bureau Mines and Geosciences Bureau Forest Management Bureau Protected Areas and Wildlife Management Bureau Lands Management Bureau Ecosystems Research and Development Bureau

Adjudication Procedures/Practices

Mines Adjudication Board: See RULES ON PLEADING, PRACTICE AND PROCEDUREbefore the PANEL OF ARBITRATORS and the MINES ADJUDICATION BOARD

Pollution Adjudication Board - a quasi-judicial body created under Section 19 of Executive Order 192 for the adjudication of pollution cases. See: Philippine Clean Air Act of 1999 (R.A. 8749) and Philippine Clean Water Act of 2004 (R.A. 9275); See also: PAB Resolution No. 1-C for procedures in handling cases.

Significant cases Damage to future generations Oposa v. Factoran (224 SCRA 792 [1993])Waste of the country's forest resources Ysmael v. Deputy Executive Secretary (190 SCRA 673, 684 [1990])Protecting Manila Bay MMDA v. Concerned Residents of Manila Bay, G.R. Nos. 171947-

48Sanggunian to enact urgently needed legislation to pretect the environment Tano, et al. v. Socrates, et al. (278 SCRA 154 [1997]

iv) Department of Labor and Employment

Mandate

Promotes gainful employment opportunities and optimizes the development and utilization of the country’s manpower resources

Legal Basis

Act No. 1868 (June 18, 1908) established the Bureau of Labor (BOL) under the Department of Commerce and Police to regulate and provide information on the labor force and market, and to settle disputes between labor and employers.

Republic Act No. 4121 (December 8, 1933) established the Department of Labor ( DOL).

Reorganization Plan 20-A (June 1957) authorized a major revamp of the DOL, delineating staff and line functions and decentralizing DOL operations to regional offices.

Presidential Decree No. 422 (May 1, 1974), Labor Code of the Philippines, revised and consolidated labor and social laws to protect labor, promote employment and human resources development, and insure industrial peace.

Executive Order No. 591 (May 1, 1980) instituted certain critical changes in the organizational structure of the DOL, called Ministry of Labor (in view of

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the parliamentary form of government), renaming it to Ministry of Labor and Employment (MOLE).

Executive Order No. 126 (January 31, 1987), as amended, reorganized the MOLE, by then called Department of Labor and Employment (DOLE) due to change in government to presidential form.

Attached Agencies   Philippine Overseas Employment Administration (POEA)   Technical Education and Skills Development Authority (TESDA)   National Conciliation and Mediation Board (NCMB)   Maritime Training Council (MTC)  National Maritime Polytechnic (NMP)    Bureau of Working Conditions (BWC) 

 Bureau of Labor Relations(BLR)   Bureau of Women and Young Workers (BWYW) 

National Labor Relations Commission (NLRC) Overseas Workers Welfare Administration (OWWA)  Employees' Compensation Commission (ECC) Institute for Labor Studies (ILS)  Occupational Health Safety and Health Center (OSHC) Bureau of Local Employment (BLE) Bureau of Labor and Employment Statistics (BLES) Bureau of Rural Workers (BRW)

Adjudication Procedures

The New Rules of Procedure of the National Labor Relations Commission

Sample Case – 2010 PALEA and PAL labor dispute

XI. THE ADMINISTRATIVE CODE OF 1987 (Executive Order 292)

Legislative History of the Administrative Code of 1987

Introductory Provisions

BOOK I - Sovereignty and General AdministrationNational Territory

Consti. Art. 1 Straight baselines method Internal Waters; Territorial Sea; The Archipelagic Doctrine; Contiguous Zone;

Continental Shelf; High Seas; 200 Mile Exclusive Economic Zone (P.D. No. 1599); Deep Sea Bed

The United Nations Convention on the Law of the Sea The Philippine Declaration to the United Nations Convention on the Law of the Sea Kalayaan Islands Claim (P.D. 1596)

State Immunity CONST., Art. XVI Kawanakoa v. Polyblank, 205 U.S. 349 Syquia v. Almeda Lopez, 84 Phil. 312 Mobil Oil Philippines v. Customs Arrastre Service, 18 SCRA 1120 Providence Washington Insurance Company v. Republic of the Philippines, 29

SCRA 598

BOOK II – Distribution of Powers of Government (Pls. See Part III Doctrine of Separation of Powers)

BOOK III – Office of the President Caballero vs. PCG, G.R. No. 174312, September 22, 2008

BOOK IV – The Executive Branch Anak Mindanao Partylist vs. Executive Secretary, 531 SCRA 583, 591-592. Malaria Employees and Workers Association of the Philippines, Inc, v. Executive

Secretary, GR No. 160093, July 31, 2007

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BOOK V – Constitutional Commissions

Common Provisions Constitutional Commissions in General

Ombudsman v. Civil Service Commission (CSC), 451 SCRA 570

Fiscal autonomy CSC v. Department of Budget, 464 SCRA 115

Promulgation of its own rules by Commission en banc Aruelo, Jr. v. Court of Appeals, 227 SCRA 311 Macalintal v. COMELEC, 405 SCRA 614

Civil Service Commission Composition and Qualifications Mathay, Jr. v. Court of Appeals, 320 SCRA 703 Gaminde v. COA, 347 SCRA 655

Scope of the Civil Service; Appointments in the Civil Service; Abolition of office; Partisan political activity; Right to organize

CSC v. Salas, 274 SCRA 414 Larin v. Executive Secretary, 280 SCRA 713 Canonizado v. Aguirre, 323 SCRA 312

Purpose of a Career Civil Service System Orbos v. CSC, 189 SCRA 459 Chang v. CSC, 191 SCRA 663

Prohibition against elective officials; Exceptions Flores v. Drilon and Gordon, 223 SCRA 568

Commission on Elections Qualifications of the COMELEC Chairman and Commissioners

Brillantes, Jr. v. Yorac, 192 SCRA 358 Cayetano v. Monsod, 201 SCRA 210

COMELEC Powers and Functions Tan v. COMELEC, 237 SCRA 353 Montejo v. COMELEC, 242 SCRA 415 Mercado v. Board of Election Supervisors, 243 SCRA 422

Jurisdiction of COMELEC en banc or in division Alvarez v. COMELEC, 353 SCRA 434 Baytan v. COMELEC, 396 SCRA 703 Balindong v. COMELEC, 413 SCRA 583

Commission on Audit Composition of the COA; Powers and Functions

Dingcong v. Commissioner Guingona, Jr., 162 SCRA 782 Davao City Water District v. Civil Service Commission and Commission on Audit,

201 SCRA 593

BOOK VI – National Government Budget BOOK VII – Administrative Procedure

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