Tanada v. Cuenco, G.R. No. L-10520, February 28, 1957
STA STATUTORY TUTORY CONSTRUC CONSTRUCTION; TION; DOCTRINE DOCTRINE OF CONT CONTEMPO EMPORANE RANEOUS OUS OR PRACTICA PRACTICAL L CONSTRUC CONSTRUCTION; TION; WHEN APPLICAB APPLICABLE. LE. — As a general general rule it i on!y in cae o" ubtantia! doubt and a#bi$uity t%at t%e doctrine o" conte#&oraneou or &ractica! contruction %a any a&&!ication . W!ere "!e #eanin$ #eanin$ o" a contitut contitutiona iona!! &roviion &roviion i c!ear, c!ear, a conte#&o conte#&orane raneou ou or &ractica &ractica!! e'ecutive e'ecutive inter&retation t%ereo" i entit!ed to no (ei$%t and (i!! not be a!!o(ed to ditort or in any (ay c%an c%an$e $e it it natu natura ra!! #ean #eanin in$ $ . T!e reas#n $s "!a" "!e a&&! a&&!ic icat atio ion n o" t%e t%e doc doctrin trine e o" cont conte# e#&o &ora rane neou ou con contr truc ucti tion on i #ore #ore ret retri rict cted ed a a&&! a&&!ie ied d to t%e t%e inte inter& r&re reta tati tion on o" contitutiona! &roviion t%an (%en a&&!ied to tatutory &roviion, and t%at, e'ce&t a to #atter co##itted by t%e Contitution ite!" to t%e dicretion o" o#e ot%er de&art#ent, conte#&orary or &ractica! contruction i not neceari!y bindin$ u&on t%e court even in a doubt"u! cae. Hen%e $& $n "!e 'u(g)en" #& "!e %#ur" su%! %#ns"ru%"$#n $s err#ne#us an( $"s &ur"!er a**l$%a"$#n $s n#" )a(e $)*era"$+e ,- an- *ara)#un" %#ns$(era"$#n %#ns$(era"$#n #& *u,l$% *#l$%- *#l$%- $" )a- ,e re'e%"e(. CONFLICT BETWEEN SPIRIT AND LETTER OF A STATUTE. — As a general rule #& s"a"u"#r- %#ns"ru%"$#n "!e &irit or intention o" a tatute &revai! over t%e !etter t%ereo", and (%atever i (it%in t%e &irit o" a tatute i (it%in t%e tatute a!t%ou$% it i not (it%in t%e !etter t%ereo", (%i!e t%at (%ic% i (it%in t%e !etter, but not (it%in t%e &irit o" a tatute, i not (it%in t%e tatute, but, t%e !etter o" it i not to be dire$arded on t%e &rete't o" &uruin$ it &irit .
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Facts Tana(a Sena"#r an( Pres$(en" #& C$"$en/s Par"-; Ma%a*agal %an($(a"e r Sena"#r #& L$,eral Par"-; War(s Su)ul#ng Pare(# R#(r$g# Sa,$(# Re%"# Al#n"# an( R#sales 0ere *r#%la$)e( ele%"e( $n 1233 ele%"$#ns. Ma%a*agal Os$as Pe%s#n Peral"a Magal#na Pe(r#sa C!$#ng,$an %#n"es"e( *r#%la)a"$#n 4 *en($ng $n Sena"e Ele%"r#ral Tr$,unal SET: Nacionalista party nominees u*#n n#)$na"$#n #& Pr$)$%$as 4 Laure!, Lo&e) and *ri#icia; n#)$na"$#n #& Citizens Citizens Party Party nominee nominee5 Tanada; Commit Committee tee Rules Rules of the Senate Senate nomine nominees es 6u*#n n#)$na"$#n Pr$)$%$as #+er #,'e%"$#ns #& Tana(a an( Su)ul#ng75 Cuenco, +e!$ado A**#$n"e( Cru an( Ca-e"an# as S"a&& r Cuen%#; Sera*$# an( Re-es as S"a&& r Delga(# Se%"$#n 11 #& Ar"$%le 8I #& "!e C#ns"$"u"$#n5 9T!e Sena"e an( "!e H#use #& Re*resen"a"$+es %a!! ea%! !a+e an Ele%"#ral Tr$,unal 0!$%! s!all ,e "!e s#le 'u(ge #& all %#n"es"s rela"$ng "# "!e ele%"$#n re"urns an( :ual$&$%a"$#ns #& "!e$r res*e%"$+e Me),ers. Ea%! Ele%"#ral Tr$,una Tr$,unall %a!! ,e %#)*#se( #& n$ne Me),ers "!ree #& 0!#) s!all ,e us"$%es #& "!e Su*re)e C#ur" "# ,e (es$gna"e( ,- "!e C!$e& us"$%e us"$%e an( "!e re)a$n$ng re)a$n$ng s$< %a!! ,e Me),ers #& "!e Sena"e #r #& "!e H#use #& Re*resen"a"$+es as "!e %ase )a- ,e 0!# %a!! ,e %!#sen ,- ea%! H#use "!ree u*#n n#)$na"$#n #& "!e *ar"- !a+$ng "!e larges" nu),er #& +#"es an( "!ree #& "!e *ar"- !a+$ng "!e se%#n( larges" nu),er #& +#"es "!ere$n. T!e Sen$#r us"$%e $n ea%! Ele%"#ral Tr$,unal Tr$,unal s!all ,e $"s C!a$r)an.9 6E)*!as$s su**l$e(.7.
Contention of Petitioners Pe"$"$#ners5 "!e Sena"e %#ns$s"s #& => Sena"#rs 0!# ,el#ng "# "!e Na%$#nal$s"a Par"- an( #ne 617 Sena"#r?na)el- *e"$"$#ner L#ren# M. Ta@a(a?,el#ng$ng "# "!e C$"$ens Par"-; "!a" "!e C#))$""ee #n Rules r "!e Sena"e $n n#)$na"$ng Sena"#rs Cuen%# an( Delga(# an( "!e Sena" Sena"e e $n %!##s$ %!##s$ng ng "!ese "!ese res*#n res*#n(en (en"s "s as )e),er )e),ers s #& "!e Sena"e Sena"e Ele%"# Ele%"#ra rall Tr$,unal $,unal !a( 9a%"e( 9a%"e( a,s#lu"el- 0$"!#u" *#0er #r %#l#r #& au"!#r$"- an( $n %lear +$#la"$#n .. #& Ar"$%le 8I Se%"$#n 11 #& "!e C#ns C#ns"$ "$"u "u"$ "$#n #n9; 9; "!a" "!a" 9$n 9$n assu assu)$ )$ng ng )e), )e),er ers! s!$* $* $n "!e "!e Sena Sena"e "e Ele% Ele%"# "#ra rall Tr$,un $,unal al ,- "a$ "a$ng ng "!e "!e %#rres*#n($ng #a"! #& #&&$%e "!erer9 ele%"$#n *r#"es"5 "r$e( an( (e%$(e(?,- an Ele%"#ral Tr$,unal %#)*#se( #& n#" )#re "!an "!ree 6>7 sena"#rs %!#sen ,- "!e Sena"e u*#n n#)$na"$#n #& "!e *ar"- !a+$ng "!e larges" nu),er #& +#"es $n "!e Sena"e an( n#" )#re "!an "!e 6>7 Sena"#rs u*#n n#)$na"$#n #& "!e Par"- !a+$ng "!e se%#n( larges" nu),er #& +#"es "!ere$n "#ge"!er "!ree 6>7 us"$%e #& "!e Su*re)e C#ur" "# ,e (es$gna"e( ,- "!e C!$e&
us"$%e $ns"ea( #& ,- an Ele%"#ral Tr$,unal *a%e( 0$"! &$+e )e),ers ,el#ng$ng "# "!e Na%$#nal$s"a Par"- 0!$%! $s "!e r$+al *ar"- #& "!e L$,eral Par"- "# 0!$%! "!e Pe"$"$#ner D$#s(a(# Ma%a*agal an( !$s %#? *r#"es"an"s $n Ele%"#ral Case N#. ,el#ng.
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Contention of Respondents Res*#n(en"s allege !#0e+er "!a" "!e %#ns"$"u"$#nal )an(a"e "# "!e e&&e%" "!a" 9ea%! Ele%"#ral Tr$,unal s!all ,e %#)*#se #& n$ne 627 )e),ers9 s$< 67 #& 0!#) 9s!all ,e )e),ers #& "!e Sena"e #r #& "!e H#use #& Re*resen"a"$+es as "!e %ase )a- ,e9 $s )an(a"#r-; "!a" 0!en?a&"er "!e n#)$na"$#n #& "!ree 6>7 Sena"#rs ,- "!e )a'#r$"- *ar"- an( "!e$r ele%"$#n ,- "!e Sena"e as )e),ers #& "!e Sena"e Ele%"#ral Tr$,unal?Sena"#r Ta@a(a n#)$na"e( !$)sel& #nl- #n ,e!al& #& "!e )$n#r$"- *ar"- !e "!ere,90a$+e( !$s r$g!" "# n# "0# )#re Sena"#rs; Issue W!e"!er "!e Sena"e?a&"er a%n#0le(g$ng "!a" "!e C$"$ens Par"- $s "!e *ar"- !a+$ng "!e se%#n( larges" nu),er #& +#"es $n "!e Sena"e "# 0!$%! *ar"- "!e C#ns"$"u"$#n g$+es "!e r$g!" "# n#)$na"e "!ree 6>7 Sena"#rs r "!e Sena"e ele%"#ral Tr$,unal?%#ul( +al$(l- %!##se "!erer "0# 6=7 Na%$#nal$s"a Sena"#rs u*#n n#)$na"$#n ,- "!e &l##r lea(er #& "!e Na%$#nal$s"a Par"- $n "!e Sena"e Sena"#r Pr$)$%$as %la$)$ng "# a%" #n ,e!al& #& "!e C#))$""ee #n Rules r "!e Sena"e. Ruling Re&err$ng n#0 "# "!e %#n"en"$#n #& res*#n(en"s !ere$n "!e$r )a$n argu)en" $n su**#r" #& "!e )an(a"#r- %!ara%"er #& "!e %#ns"$"u"$#nal *r#+$s$#n rela"$+e "# "!e nu),er #& )e),ers #& "!e Sena"e Ele%"#ral Tr$,unal $s "!a" "!e 0#r( 9 %a!!9 "!ere$n use( $s $)*era"$+e $n na"ure. $ain, a a $enera! ru!e, it i on!y in cae o" ubtantia! doubt and a#bi$uity t%at t%e doctrine o" conte#&oraneou or &ractica! contruction %a any a&&!ication. a cone/uence, (%ere t%e #eanin$ o" a contitutiona! &roviion i c!ear, a conte#&oraneou or &ractica! e'ecutive inter&retation t%ereo" i entit!ed to no (ei$%t, and (i!! not be a!!o(ed to ditort or in any (ay c%an$e it natura! #eanin$. T%e reaon i t%at t%e a&&!ication o" t%e doctrine o" conte#&oraneou contruction i #ore retricted a a&&!ied to t%e inter&retation o" contitutiona! &roviion t%an (%en a&&!ied to tatutory &roviion, and t%at, e'ce&t a to #atter co##itted by t%e Contitution, ite!" to t%e dicretion o" o#e ot%er de&art#ent, conte#&orary or &ractica! contruction i not neceari!y bindin$ u&on t%e court, even in a doubt"u! cae.9 Hen%e 9$& $n "!e 'u(g)en" #& "!e %#ur" su%! %#ns"ru%"$#n $s err#ne#us an( $"s &ur"!er a**l$%a"$#n $s n#" )a(e $)*era"$+e ,- an- *ara)#un" %#ns$(era"$#ns #& *u,l$% *#l$%- $" )a- !e re'e%"e(.9 T%e a"ore#entioned o&inion o" t%e ecretary o" utice i not baced u& by a, uni"or# a&&!ication o" t%e vie( t%erein ado&ted, o eentia! to $ive t%ereto t%e (ei$%t accorded by t%e ru!e on conte#&oraneou contruction. 3oreover, aid o&inion tend to c%an$e t%e natura! #eanin$ o" ection 11 o" rtic!e 4 o" t%e Contitution, (%ic% i c!ear. 6%at i #ore, t%ere i not t%e !i$%tet doubt in our #ind t%at t%e &ur&oe and &irit o" aid &roviion do not (arrant aid c%an$e and t%at t%e reection o" t%e !atter i de#anded by &ara#ount conideration o" &ub!ic &o!icy .
T!e &la0 $n "!e *#s$"$#n "aen $n sa$( #*$n$#n an( ,- res*#n(en" !ere$n $s "!a" 0!$le $" rel$es u*#n "!e %#)*uls#r- na"ure #& "!e 0#r( 9s!all9 as regar(s "!e nu),er #& )e),ers #& "!e Ele%"#ral Tr$,unals $" $gn#res "!e &a%" "!a" "!e sa)e "er) $s use( 0$"! res*e%" "# "!e )e"!#( *res%r$,e( r "!e$r ele%"$#n an( "!a" ,#"! r) *ar" #& a s$ngle sen"en%e an( )us" ,e %#ns$(ere( "!erere as $n"egral *#r"$#ns #& #ne an( "!e sa)e "!#ug!". In(ee( res*#n(en"s !a+e n#" e+en "r$e( "# s!#0 an( 0e %ann#" %#n%e$+e?0!9s!all9 )us" ,e (ee)e( )an(a"#r- $ns#&ar as "!e nu),er #& )e),ers #& ea%! Ele%"#ral Tr$,unal an( s!#ul( ,e %#ns$(ere( ($re%"#r- as regar(s "!e *r#%e(ure r "!e$r sele%"$#n. M#re $)*#r"an" s"$ll "!e
!$s"#r- #& se%"$#n 11 #& Ar"$%le 8I #& "!e C#ns"$"u"$#n an( "!e re%#r(s #& "!e C#n+en"$#n re&u"e res*#n(en"s *re"ense an( ,a% u* "!e "!e#r- #& *e"$"$#ners !ere$n. C#ns"$"u"$#nal (el$,era"$#ns 0ere l##e( $n"#. Pur*#se #& ele%"#ral "r$,unals an( $ns"all$ng as *ar" )$n#r$"- *ar"- 6,$ases7; In"en"$#n #& "!e &ra)ers I" $s %lear &r#) "!e reg#$ng "!a" "!e )a$n #,'e%"$+e #& "!e &ra)ers #& #ur C#ns"$"u"$#n $n *r#+$($ng r "!e es"a,l$s!)en" &$rs" #& an Ele%"#ral C#))$ss$#n an( "!en #& #ne Ele%"#ral Tr$,unal r ea%! H#use #& C#ngress 0as "# $nsure "!e e
contruction; ,u" "!e %#ns"ru%"$#n #& )an(a"#r- 0#r(s as ($re%"#r- s!#ul( n#" ,e l$g!"l- a(#*"e( an( ne+er 0!ere $" 0#ul( $n &a%" )ae a ne0 la0 $ns"ea( #& "!a" *asse( ,- "!e leg$sla"ure. .. W!e"!er a s"a"u"e $s )an(a"#r- #r ($re%"#r- (e*en(s #n 0!e"!er "!e "!$ng ($re%"e( "# ,e (#ne $s #& "!e essen%e #& "!e "!$ng re:u$re( #r $s a )ere )a""er #& r) an( 0!a" $s a )a""er #& essen%e %an #&"en ,e (e"er)$ne( #nl- ,- 'u($%$al %#ns"ru%"$#n. A%%#r($ngl- 0!en a *ar"$%ular *r#+$s$#n #& a s"a"u"e rela"es "# s#)e $))a"er$al )a""er as "# 0!$%! %#)*l$an%e 0$"! "!e s"a"u"e $s a )a""er #& %#n+en$en%e ra"!er "!an su,s"an%e #r 0!ere "!e ($re%"$#ns #& a s"a"u"e are g$+en )erel- 0$"! a +$e0 "# "!e *r#*er #r(erl- an( *r#)*" %#n(u%" #& ,us$ness $" $s generall- regar(e( as ($re%"#r- unless ll#0e( ,- 0#r(s #& a,s#lu"e *r#!$,$"$#n; an( a s"a"u"e $s regar(e( as ($re%"#r- 0ere n# su,s"an"$al r$g!"s (e*en( #n $" n# $n'ur- %an resul" &r#) $gn#r$ng $" an( "!e *ur*#se #& "!e leg$sla"$+e %an ,e a%%#)*l$s!e( $n a )anner #"!er "!an "!a" *res%r$,e( 0$"! su,s"an"$all- "!e sa)e resul". On "!e #"!er !an( a *r#+$s$#n rela"$ng "# "!e essen%e #& "!e "!$ng "# ,e (#ne "!a" $s "# )a""ers #& su,s"an%e $s )an(a"#r- an( 0!en a &a$r $n"er*re"a"$#n #& a s"a"u"e 0!$%! ($re%"s a%"s #r *r#%ee($ngs "# ,e (#ne $n a %er"a$n 0a- s!#0s "!a" "!e leg$sla"ure $n"en(e( a %#)*l$an%e 0$"! su%! *r#+$s$#n "# ,e essen"$al "# "!e +al$($"- #& "!e a%" #r *r#%ee($ng #r 0!en sa)e an"e%e(en" an( *re?re:u$s$"e %#n($"$#ns )us" e<$s" *r$#r "# "!e e
W!a" !as ,een sa$( a,#+e rela"$+e "# "!e %#n($"$#ns an"e%e(en" "# an( %#n%#)$"an" 0$"! "!e a(#*"$#n #& se%"$#n 11 #& Ar"$%le 8I #& "!e C#ns"$"u"$#n, revea! c!ear!y t%at it "ra#er intended to &revent t%e #aority &arty "ro# contro!!in$ t%e :!ectora! Tribuna!, and t%at t%e tructure t%ereo" i "ounded u&on t%e e/ui!ibriu# bet(een t%e #aority and t%e #inority &artie t%erein, (it% t%e utice o" t%e u&re#e Court, (%o are #e#ber o" aid Tribuna!, %o!din$ t%e reu!tin$ ba!ance o" &o(er . T!e *r#%e(ure *res%r$,e( $n sa$( *r#+$s$#n r "!e sele%"$#n #& )e),ers #& "!e Ele%"#ral Tr$,unals $s +$"al "# "!e r#le "!e- are %alle( u*#n "# *la-. $" %#ns"$"u"es "!e essen%e #& sa$( Tr$,unals. Hen%e %#)*l$an%e 0$"! sa$( *r#%e(ure $s )an(a"#r- an( a%"s *err)e( $n +$#la"$#n "!ere#& are null an( +#$(. I" $s "rue "!a" "!e a**l$%a"$#n #& "!e reg#$ng %r$"er$#n 0#ul( l$)$" "!e )e),ers!$* #& "!e Sena"e Ele%"#ral Tr$,unal $n "!e %ase a" ,ar "# se+en 67 $ns"ea( #& n$ne 627 )e),ers; ,u" $" $s %#n%e(e( "!a" "!e *resen" %#)*#s$"$#n #& "!e Sena"e 0as n#" reseen ,- "!e &ra)ers #& #ur C#ns"$"u"$#n. Fur"!er)#re "!e s*$r$" #& "!e la0 *re+a$ls #+er $"s le""er an( "!e s#lu"$#n !ere$n a(#*"e( )a$n"a$ns "!e s*$r$" #& "!e C#ns"$"u"$#n r *ar"$san %#ns$(era"$#ns %ann#" ,e (e%$s$+e $n a "r$,unal %#ns$s"$ng #& "!ree 6>7 us"$%es #& "!e Su*re)e C#ur" "!ree 6>7 )e),ers n#)$na"e( ,- "!e )a'#r$"- *ar"- an( e$"!er #ne 617 #r "0# 6=7 )e),ers n#)$na"e( ,- "!e *ar"- !a+$ng "!e se%#n( larges" nu),er #& +#"es $n "!e H#use %#n%erne(. In +$e0 #& "!e reg#$ng 0e !#l( "!a" "!e Sena"e )a- n#" ele%" as )e),ers #& "!e Sena"e Ele%"#ral Tr$,unal "!#se Sena"#rs 0!# !a+e n#" ,een n#)$na"e( ,- "!e *#l$"$%al *ar"$es s*e%$&$e( $n "!e C#ns"$"u"$#n; "!a" "!e *ar"- !a+$ng "!e larges" nu),er #& +#"es $n "!e Sena"e )a- n#)$na"e n#" )#re "!an "!ree 6>7 )e),ers "!ere#& "# sa$( Ele%"#ral Tr$,unal; "!a" "!e *ar"- !a+$ng "!e se%#n( larges" nu),er #& +#"es $n "!e Sena"e !as "!e e<%lus$+e r$g!" "# n#)$na"e "!e #"!er "!ree 6>7 Sena"#rs 0!# s!all s$" as )e),ers $n "!e Ele%"#ral Tr$,unal; "!a" ne$"!er "!ese "!ree 6>7 Sena"#rs n#r an- #& "!e) )a- ,e n#)$na"e( ,- a *ers#n #r *ar"- #"!er "!an "!e #ne !a+$ng "!e se%#n( larges" nu),er #& +#"es $n "!e Sena"e #r $"s re*resen"a"$+e "!ere$n; "!a" "!e C#))$""ee #n Rules r "!e Sena"e !as n# s"an($ng "# +al$(l- )ae su%! n#)$na"$#n an( "!a" "!e n#)$na"$#n #& Sena"#rs Cuen%# an( Delga(# ,- Sena"#r Pr$)$%$as an( "!e ele%"$#n #& sa$( res*#n(en"s ,- "!e Sena"e as )e),ers #& sa$( Tr$,unal are null an( +#$( a, $n$"$#.