espeak/fulltext//Ethics/AA_cayetano_vs_monsood_1114.

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RepublicofthePhilippines
SUPREMECOURT
Manila
SECONDDIVISION
G.R.Number100113September3,1991
RENATOCAYETANO,PETITIONER,
vs.
CHRISTIANMONSOD,HON.JOVITOR.SALONGA,COMMISSIONON
APPOINTMENT,andHON.GUILLERMOCARAGUE,inhiscapacityasSecretaryof
BudgetandManagement,RESPONDENTs.
RenatoL.Cayetanoforandinhisownbehalf.
SabinaE.Acut,Jr.andMyleneGarciaAlbanococounselforPETITIONER.
PARAS,J.:p
Wearefacedherewithacontroversyoffarreachingproportions.Whileostensiblyonly
legal issues are involved, the Court's decision in this case would indubitably have a
profoundeffectonthepoliticalaspectofournationalexistence.
The1987ConstitutionprovidesinSection1(1),ArticleIXC:
There shall be a Commission on Elections composed of a Chairman and six
CommissionerswhoshallbenaturalborncitizensofthePhilippinesand,atthe
timeoftheirappointment,atleastthirtyfiveyearsofage,holdersofacollege
degree, and must not have been candidates for any elective position in the
immediately preceding elections. However, a majority thereof, including the
Chairman, shall bemembersofthe Philippine Barwhohavebeenengagedin
thepracticeoflawforatleasttenyears.(Emphasissupplied)
The aforequoted provision is patterned after Section l(l), Article XIIC of the 1973
Constitutionwhichsimilarlyprovides:
There shall be an independent Commission on Elections composed of a Chairman and
eightCommissionerswhoshallbenaturalborncitizensofthePhilippinesand,atthetime
of their appointment, at least thirtyfive years of age and holders of a college degree.

However,amajoritythereof,includingtheChairman,shallbemembersofthePhilippine
Bar who have been engaged in the practice of law for at least ten years.' (Emphasis
supplied)
Regrettably,however,thereseemstobenojurisprudenceastowhatconstitutespractice
oflawasalegalqualificationtoanappointiveoffice.
Blackdefines"practiceoflaw"as:
Therenditionofservicesrequiringtheknowledgeandtheapplicationoflegal
principlesandtechniquetoservetheinterestofanotherwithhisconsent.It
isnotlimitedtoappearingincourt,oradvisingandassistingintheconductof
litigation,butembracesthepreparationofpleadings,andotherpapersincident
to actions and special proceedings, conveyancing, the preparation of legal
instrumentsofallkinds,andthegivingofalllegaladvicetoclients.Itembraces
alladvicetoclientsandallactionstakenfortheminmattersconnectedwiththe
law.Anattorneyengagesinthepracticeoflawbymaintaininganofficewhere
he is held out to bean attorney, using a letterhead describing himself as an
attorney,counselingclientsinlegalmatters,negotiatingwithopposingcounsel
aboutpendinglitigation,andfixingandcollectingfeesforservicesrenderedby
hisassociate.(Black'sLawDictionary,3rded.)
Thepracticeoflawisnotlimitedtotheconductofcasesincourt.(LandTitleAbstract
andTrustCo.v.Dworken,129OhioSt.23,193N.E.650)Apersonisalsoconsideredto
beinthepracticeoflawwhenhe:
...forvaluableconsiderationengagesinthebusinessofadvisingperson,firms,
associations or corporations as to their rights under the law, or appears in a
representative capacity as an advocate in proceedings pending or prospective,
before any court, commissioner, referee, board, body, committee, or
commissionconstitutedby laworauthorized to settlecontroversiesandthere,
in such representative capacity performs any act or acts for the purpose of
obtaining or defending the rights of their clients under the law. Otherwise
stated, one who, in a representative capacity, engages in the business of
advisingclientsastotheirrightsunderthelaw,orwhilesoengagedperforms
anyactoractseitherincourtoroutsideofcourtforthatpurpose,isengagedin
thepracticeoflaw.(Stateex.rel.Mckittrickv..C.S.DudleyandCo.,102S.W.
2d895,340Mo.852)
ThisCourtinthecaseofPhilippineLawyersAssociationv.Agrava,(105Phil.173,176
177)stated:

Thepracticeoflawisnotlimitedtotheconductofcasesorlitigationincourt
it embraces the preparation of pleadings and other papers incident to actions
and special proceedings, the management of such actionsandproceedingson
behalf of clients before judges and courts, and in addition, conveying. In
general,alladvicetoclients,andallactiontakenfortheminmattersconnected
with the law incorporation services, assessment and condemnation services
contemplating an appearance before a judicial body, the foreclosure of a
mortgage, enforcement of a creditor's claim in bankruptcy and insolvency
proceedings,andconductingproceedingsinattachment,andinmattersofestate
and guardianship have been held to constitute law practice, as do the
preparationanddraftingoflegalinstruments,wheretheworkdoneinvolvesthe
determination by the trained legal mind of the legal effect of facts and
conditions.(5Am.Jr.p.262,263).(Emphasissupplied)
Practice of law under modem conditions consists in no small part of work
performed outside of any court and having no immediate relation to
proceedingsincourt.Itembracesconveyancing,thegivingoflegaladviceona
largevarietyofsubjects,andthepreparationandexecutionoflegalinstruments
covering an extensive field of business and trust relations and other affairs.
Although these transactions may have no direct connection with court
proceedings, they are always subject to become involved in litigation. They
requireinmanyaspectsahighdegreeoflegalskill,awideexperiencewithmen
andaffairs,andgreatcapacityforadaptationtodifficultandcomplexsituations.
Thesecustomaryfunctionsofanattorneyorcounseloratlawbearanintimate
relationtotheadministrationofjusticebythecourts.Novaliddistinction,sofar
asconcernsthequestionsetforthintheorder,canbedrawnbetweenthatpart
of the work of the lawyer which involves appearance in court and that part
which involves advice and drafting of instruments in his office. It is of
importancetothewelfareofthepublicthatthesemanifoldcustomaryfunctions
be performed by persons possessed of adequate learning and skill, of sound
moral character, and acting at all times under the heavy trust obligations to
clients which rests upon all attorneys. (Moran, Comments on the Rules of
Court,Vol.3,p.665666,citingInreOpinionoftheJustices,194N.E.313,
quotedinRhodeIs.BarAssoc.v.AutomobileServiceAssoc.179A.139,144).
(Emphasisours)
TheUniversityofthePhilippinesLawCenterinconductingorientationbriefingfornew
lawyers(19741975)listedthedimensionsofthepracticeoflawinevenbroaderterms
asadvocacy,counsellingandpublicservice.
One may be a practicing attorney in following any line of employment in the
profession.Ifwhathedoesexactsknowledgeofthelawandisofakindusual

forattorneysengagingintheactivepracticeoftheirprofession,andhefollows
someoneormorelinesofemploymentsuchasthisheisapracticingattorneyat
lawwithinthemeaningofthestatute.(Barrv.Cardell,155NW312)
Practiceoflawmeansanyactivity,inoroutofcourt,whichrequirestheapplicationof
law,legalprocedure,knowledge,trainingandexperience."Toengageinthepracticeof
law is to perform those acts which are characteristics of the profession. Generally, to
practice law is to give notice or render any kind of service, which device or service
requirestheuseinanydegreeoflegalknowledgeorskill."(111ALR23)
Thefollowingrecordsofthe1986ConstitutionalCommissionshowthatithasadopteda
liberalinterpretationoftheterm"practiceoflaw."
MR. FOZ. Before we suspend the session, may I make a
manifestationwhichIforgottododuringourreviewoftheprovisions
ontheCommissiononAudit.MayIbeallowedtomakeaverybrief
statement?
THEPRESIDINGOFFICER(Mr.Jamir).
TheCommissionerwillpleaseproceed.
MR. FOZ. This has to do with the qualifications of the members of
theCommissiononAudit.Amongothers,thequalificationsprovided
forbySectionIisthat"TheymustbeMembersofthePhilippineBar"
Iamquotingfromtheprovision"whohavebeenengagedinthe
practiceoflawforatleasttenyears".
To avoid any misunderstanding which would result in excluding members of
theBarwhoarenowemployedintheCOAorCommissiononAudit,wewould
like to make the clarification that this provision on qualifications regarding
membersoftheBardoesnotnecessarilyreferorinvolveactualpracticeoflaw
outsidetheCOAWehavetointerpretthistomeanthataslongasthelawyers
whoareemployedintheCOAareusingtheirlegalknowledgeorlegaltalentin
theirrespectiveworkwithinCOA,thentheyarequalifiedtobeconsideredfor
appointmentasmembersorcommissioners,evenchairman,oftheCommission
onAudit.
ThishasbeendiscussedbytheCommitteeonConstitutionalCommissionsand
Agencies and we deem it important to take it up on the floor so that this
interpretation may be made available whenever this provision on the
qualifications as regards members of the Philippine Bar engaging in the
practiceoflawforatleasttenyearsistakenup.

MR.OPLE.WillCommissionerFozyieldtojustonequestion.
MR.FOZ.Yes,Mr.PresidingOfficer.
MR. OPLE. Is he, in effect, saying that service in the COA by a
lawyerisequivalenttotherequirementofalawpracticethatisset
forthintheArticleontheCommissiononAudit?
MR.FOZ.WemustconsiderthefactthattheworkofCOA,although
itisauditing,willnecessarilyinvolvelegalworkitwillinvolvelegal
work.And,therefore,lawyerswhoareemployedinCOAnowwould
havethenecessaryqualificationsinaccordancewiththeProvisionon
qualifications under our provisions on the Commission on Audit.
And,therefore,theanswerisyes.
MR.OPLE.Yes.Sothattheconstructiongiventothisisthatthisis
equivalenttothepracticeoflaw.
MR.FOZ.Yes,Mr.PresidingOfficer.
MR.OPLE.Thankyou.
...(Emphasissupplied)
Section 1(1), Article IXD of the 1987 Constitution, provides, among others, that the
ChairmanandtwoCommissionersoftheCommissiononAudit(COA)shouldeitherbe
certifiedpublicaccountantswithnotlessthantenyearsofauditingpractice,ormembers
ofthePhilippineBarwhohavebeenengagedinthepracticeoflawforatleasttenyears.
(emphasissupplied)
Corollarytothisistheterm"privatepractitioner"andwhichisinmanywayssynonymous
withtheword"lawyer."Today,althoughmanylawyersdonotengageinprivatepractice,
it is still a fact that the majority of lawyers are private practitioners. (Gary Munneke,
OpportunitiesinLawCareers,,p.15).
At this point, it might be helpful to define private practice. The term, as commonly
understood, means "an individual or organization engaged in the business of delivering
legalservices."(Ibid.).Lawyerswhopracticealoneareoftencalled"solepractitioners."
Groupsoflawyersarecalled"firms."Thefirmisusuallyapartnershipandmembersof
thefirmarethepartners.Somefirmsmaybeorganizedasprofessionalcorporationsand
the members called shareholders. In either case, the members of the firm are the
experienced attorneys. In most firms, there are younger or more inexperienced salaried
attorneyscalled"associates."(Ibid.).

The test that defines law practice by looking to traditional areas of law practice is
essentiallytautologous,unhelpfuldefiningthepracticeoflawasthatwhichlawyersdo.
(CharlesW.Wolfram,ModernLegalEthics,p.593).Thepracticeoflawisdefinedas
the performance of any acts . . . in or out of court, commonly understood to be the
practiceoflaw.(StateBarAss'nv.ConnecticutBank&TrustCo.,145Conn.222,140
A.2d 863, 870 ). Because lawyers perform almost every function known in the
commercialandgovernmentalrealm,suchadefinitionwouldobviouslybetooglobalto
beworkable.(Wolfram,op.cit.).
Theappearanceofalawyerinlitigationinbehalfofaclientisatoncethemostpublicly
familiar role for lawyers as well as an uncommon role for the average lawyer. Most
lawyersspendlittletimeincourtrooms,andalargepercentagespendtheirentirepractice
withoutlitigatingacase.(Ibid.,p.593).Nonetheless,manylawyersdocontinuetolitigate
and the litigating lawyer's role colors much of both the public image and the self
perceptionofthelegalprofession.(Ibid.).
In this regard thus, the dominance of litigation in the public mind reflects history, not
reality.(Ibid.).Whyisthisso?RecallthatthelateAlexanderSyCip,acorporatelawyer,
oncearticulatedontheimportanceofalawyerasabusinesscounselorinthiswise:"Even
today, there are still uninformed laymen whose concept of an attorney is one who
principally tries cases before the courts. The members of the bench and bar and the
informed laymen such as businessmen, know that in most developed societies today,
substantiallymorelegalworkistransactedinlawofficesthaninthecourtrooms.General
practitionersoflawwhodobothlitigationandnonlitigationworkalsoknowthatinmost
casestheyfindthemselvesspendingmoretimedoingwhatlooselydesccribeasbusiness
counseling than in trying cases. Thebusinesslawyer hasbeendescribedasthe planner,
the diagnostician and the trial lawyer, the surgeon. I need not stress that in law, as in
medicine,surgeryshouldbeavoidedwhereinternalmedicinecanbeeffective."(Business
Star,"CorporateFinanceLaw,"Jan.11,1989,p.4).
Inthecourseofaworkingdaytheaveragegeneralpractitionerwigengageinanumberof
legal tasks, each involving different legal doctrines, legal skills, legal processes, legal
institutions,clients,andotherinterestedparties.Eventheincreasingnumbersoflawyers
in specialized practice wig usually perform at least some legal services outside their
specialty. And even within a narrow specialty such as tax practice, a lawyer will shift
fromonelegaltaskorrolesuchasadvicegivingtoanimportantlydifferentonesuchas
representingaclientbeforeanadministrativeagency.(Wolfram,supra,p.687).
By no means will most of this work involve litigation, unless the lawyer is one of the
relativelyraretypesalitigatorwhospecializesinthisworktotheexclusionofmuch
else. Instead, the work will require the lawyer to have mastered the full range of
traditional lawyer skills of client counselling, advicegiving, document drafting, and

negotiation.Andincreasinglylawyersfindthatthenewskillsofevaluationandmediation
arebotheffectiveformanyclientsandasourceofemployment.(Ibid.).
Most lawyers will engage in nonlitigation legal work or in litigation work that is
constrainedinveryimportantways,atleasttheoretically,soastoremovefromitsomeof
thesalientfeaturesofadversariallitigation.Ofthesespecialroles,themostprominentis
thatofprosecutor.Insomelawyers'worktheconstraintsareimposedbothbythenature
oftheclientandbythewayinwhichthelawyerisorganizedintoasocialunittoperform
that work. The most common of these roles are those of corporate practice and
governmentlegalservice.(Ibid.).
InseveralissuesoftheBusinessStar,abusinessdaily,hereinbelowquotedareemerging
trendsin corporate lawpractice,adeparture fromthe traditional conceptofpracticeof
law.
We are experiencing today what truly may be called a revolutionary
transformation in corporate law practice. Lawyers and other professional
groups, in particular those members participating in various legalpolicy
decisionalcontexts,arefindingthatunderstandingthemajoremergingtrendsin
corporationlawisindispensabletointelligentdecisionmaking.
Constructive adjustment to major corporate problems of today requires an
accurate understanding of the nature and implications of the corporate law
research function accompanied by an accelerating rate of information
accumulation. The recognition of the need for such improved corporate legal
policy formulation, particularly "modelmaking" and "contingency planning,"
has impressed upon us the inadequacy of traditional procedures in many
decisionalcontexts.
Inacomplexlegalproblemthemassofinformationtobeprocessed,thesorting
and weighing of significant conditional factors, the appraisal of major trends,
thenecessityofestimatingtheconsequencesofgivencoursesofaction,andthe
needforfastdecisionandresponseinsituationsofacutedangerhaveprompted
the use of sophisticated concepts of information flow theory, operational
analysis, automatic data processing, and electronic computing equipment.
Understandably, an improved decisional structure must stress the predictive
componentofthepolicymakingprocess,whereina"model",ofthedecisional
contextorasegmentthereofisdevelopedtotestprojectedalternativecoursesof
actionintermsoffuturisticeffectsflowingtherefrom.
Although membersofthe legal profession are regularlyengagedin predicting
and projecting the trends of the law, the subject of corporate finance law has
receivedrelativelylittleorganizedandformalizedattentioninthephilosophyof

advancingcorporatelegaleducation.Nonetheless,acrossdisciplinaryapproach
tolegalresearchhasbecomeavitalnecessity.
Certainly,thegeneralorientationforproductivecontributionsbythosetrained
primarily inthe law can be improved through an early introduction to multi
variable decisional context and the various approaches for handling such
problems. Lawyers, particularly with either a master's or doctorate degree in
businessadministrationormanagement,functioningatthelegalpolicylevelof
decisionmaking now have some appreciation for the concepts and analytical
techniquesofotherprofessionswhicharecurrentlyengagedinsimilartypesof
complexdecisionmaking.
Truth to tell, many situations involving corporate finance problems would
require the services of an astute attorney because of the complex legal
implications that arise from each and every necessary step in securing and
maintainingthebusinessissueraised.(BusinessStar,"CorporateFinanceLaw,"
Jan.11,1989,p.4).
Inourlitigationpronecountry,acorporatelawyerisassiduouslyreferredtoas
the "abogado de campanilla." He is the "bigtime" lawyer, earning big money
and with a clientele composed of the tycoons and magnates of business and
industry.
Despite the growing number of corporate lawyers, many people could not
explainwhatitisthatacorporatelawyerdoes.Forone,thenumberofattorneys
employed by a single corporation will vary with the size and type of the
corporation.Manysmallerandsomelargecorporationsfarmoutalltheirlegal
problems to private law firms. Many others have inhouse counsel only for
certainmatters.Othercorporationhaveastafflargeenoughtohandlemostlegal
problemsinhouse.
A corporate lawyer, for all intents and purposes, is a lawyer who handles the
legalaffairsofacorporation.Hisareasofconcernorjurisdictionmayinclude,
inter alia: corporate legal research, tax laws research, acting out as corporate
secretary(inboardmeetings),appearancesinbothcourtsandotheradjudicatory
agencies (including the Securities and Exchange Commission), and in other
capacitieswhichrequireanabilitytodealwiththelaw.
Atanyrate,acorporatelawyermayassumeresponsibilitiesotherthanthelegal
affairsofthebusinessofthecorporationheisrepresenting.Theseincludesuch
matters as determining policy and becoming involved in management. (
Emphasissupplied.)

Inabigcompany,forexample,onemayhaveafeelingofbeingisolatedfrom
theaction,ornotunderstandinghowone'sworkactuallyfitsintotheworkof
the orgarnization. This can be frustrating to someone who needs to see the
resultsofhisworkfirsthand.Inshort,acorporatelawyerissometimesoffered
thisfortunetobemorecloselyinvolvedintherunningofthebusiness.
Moreover, a corporate lawyer's services may sometimes be engaged by a
multinational corporation (MNC). Some large MNCs provide one of the few
opportunitiesavailabletocorporatelawyerstoentertheinternationallawfield.
After all, international law is practiced in a relatively small number of
companiesandlawfirms.Becauseworkinginaforeigncountryisperceivedby
manyasglamorous,tillsisanareacovetedbycorporatelawyers.Inmostcases,
however, the overseas jobs go to experienced attorneys while the younger
attorneys do their "international practice" in law libraries. (Business Star,
"CorporateLawPractice,"May25,1990,p.4).
This brings us to the inevitable, i.e., the role of the lawyer in the realm of
finance.ToborrowthelinesofHarvardeducatedlawyerBruceWassertein,to
wit:"Abadlawyerisonewhofailstospotproblems,agoodlawyerisonewho
perceivesthedifficulties,andtheexcellentlawyerisonewhosurmountsthem."
(BusinessStar,"CorporateFinanceLaw,"Jan.11,1989,p.4).
Today,thestudyofcorporatelawpracticedirelyneedsa"shotinthearm,"soto
speak. No longer are we talking of the traditional law teaching method of
confiningthesubjectstudytotheCorporationCodeandtheSecuritiesCodebut
anincursionaswellintotheintertwiningmodernmanagementissues.
Suchcorporatelegalmanagementissuesdealprimarilywiththree(3)typesof
learning: (1) acquisition of insights into current advances which are of
particular significance to the corporate counsel (2) an introduction to usable
disciplinary skins applicable to a corporate counsel's management
responsibilitiesand(3)adevotiontotheorganizationandmanagementofthe
legalfunctionitself.
These three subject areas may be thought of as intersecting circles, with a
shared area linking them. Otherwise known as "intersecting managerial
jurisprudence," it forms a unifying theme for the corporate counsel's total
learning.
Somecurrentadvancesinbehaviorandpolicysciencesaffectthecounsel'srole.
For that matter, the corporate lawyer reviews the globalization process,
includingtheresultingstrategicrepositioningthatthefirmsheprovidescounsel
forarerequiredtomake,andtheneedtothinkaboutacorporation'sstrategyat

multiplelevels.Thesalienceofthenationstateisbeingreducedasfirmsdeal
both with global multinational entities and simultaneously with subnational
governmentalunits.Firmsincreasinglycollaboratenotonlywithpublicentities
butwitheachotheroftenwiththosewhoarecompetitorsinotherarenas.
Also, the nature of the lawyer's participation in decisionmaking within the
corporationisrapidlychanging.Themodemcorporatelawyerhasgainedanew
role as a stakeholder in some cases participating in the organization and
operations of governance through participation on boards and otherdecision
making roles. Often these new patterns develop alongside existing legal
institutionsandlawsareperceivedasbarriers.Thesetrendsarecomplicatedas
corporationsorganizeforglobaloperations.(Emphasissupplied)
The practising lawyer of today is familiar as well with governmental policies
toward the promotion and management of technology. New collaborative
arrangements for promoting specific technologies or competitiveness more
generally require approaches from industry that differ from older, more
adversarial relationships and traditional forms of seeking to influence
governmentalpolicies.Andtherearelessonstobelearnedfromothercountries.
In Europe, Esprit, Eureka and Race are examples of collaborative efforts
betweengovernmentalandbusinessJapan'sMITIisworldfamous.(Emphasis
supplied)
Following the concept of boundary spanning, the office of the Corporate
Counselcomprisesadistinctgroupwithinthemanagerialstructureofallkinds
oforganizations.Effectivenessofbothlongtermandtemporarygroupswithin
organizationshasbeenfoundtoberelatedtoindentifiablefactorsinthegroup
contextinteractionsuchasthegroupsactivelyrevisingtheirknowledgeofthe
environment coordinating work with outsiders, promoting team achievements
withintheorganization.Ingeneral,suchexternalactivitiesarebetterpredictors
ofteamperformancethaninternalgroupprocesses.
In a crisis situation, the legal managerial capabilities of the corporate lawyer
visavisthemanagerialmettleofcorporationsarechallenged.Currentresearch
is seeking ways both to anticipate effective managerial procedures and to
understand relationships of financial liability and insurance considerations.
(Emphasissupplied)
Regarding the skills to apply by the corporate counsel, three factors are
apropos:

First System Dynamics. The field of systems dynamics has been found an
effectivetoolfornewmanagerialthinkingregardingbothplanningandpressing
immediateproblems.Anunderstandingoftheroleoffeedbackloops,inventory
levels, and rates of flow, enable users to simulate all sorts of systematic
problems physical, economic, managerial, social, and psychological. New
programming techniques now make the system dynamics principles more
accessibletomanagersincludingcorporatecounsels.(Emphasissupplied)
Second Decision Analysis. This enables users to make better decisions
involvingcomplexityanduncertainty.Inthecontextofalawdepartment,itcan
be used to appraise the settlement value of litigation, aid in negotiation
settlement,andminimizethecostandriskinvolvedinmanagingaportfolioof
cases.(Emphasissupplied)
Third Modeling for Negotiation Management. Computerbased models can be
useddirectlybypartiesandmediatorsinalllandsofnegotiations.Allintegrated
setofsuchtoolsprovidecoherentandeffectivenegotiationsupport,including
handson on instruction in these techniques. A simulation case of an
internationaljointventuremaybeusedtoillustratethepoint.
the organization and management of the legal function, concern three pointed
areasofconsideration,thus:
PreventiveLawyering.Planningbylawyersrequiresspecialskillsthatcomprise
amajorpartofthegeneralcounsel'sresponsibilities.Theydifferfromthoseof
remedial law. Preventive lawyering is concerned with minimizing the risks of
legal trouble and maximizing legal rights for such legal entities at that time
whentransactionalorsimilarfactsarebeingconsideredandmade.
ManagerialJurisprudence.Thisistheframeworkwithinwhichareundertaken
those activities of the firm to which legal consequences attach. It needs to be
directlysupportiveofthisnation'sevolvingeconomicandorganizationalfabric
as firms change to stay competitive in a global, interdependent environment.
The practice and theory of "law" is not adequate today to facilitate the
relationshipsneededintryingtomakeaglobaleconomywork.
Organization and Functioning of the Corporate Counsel's Office. The general
counselhasemergedinthelastdecadeasoneofthemostvibrantsubsetsofthe
legal profession. The corporate counsel hear responsibility for key aspects of
thefirm'sstrategicissues,includingstructuringitsglobaloperations,managing
improved relationships with an increasingly diversified body of employees,
managing expanded liability exposure, creating new and varied interactions

withpublicdecisionmakers,copinginternallywithmorecomplexmakeorby
decisions.
This wholeexercise driveshome the thesis thatknowingcorporate lawisnot
enough to make one a good general corporate counsel nor to give him a full
sense of how the legal system shapes corporate activities. And even if the
corporatelawyer'saimisnottheunderstandallofthelaw'seffectsoncorporate
activities, he must, at the very least, also gain a working knowledge of the
management issues if only to be able to grasp not only the basic legal
"constitution' or makeup of the modem corporation. "Business Star", "The
CorporateCounsel,"April10,1991,p.4).
Thechallengeforlawyers(bothofthebarandthebench)istohavemorethana
passing knowledge of financial law affecting each aspect of their work. Yet,
many would admit to ignorance of vast tracts of the financial law territory.
What transpires next is a dilemma of professional security: Will the lawyer
admitignoranceandriskopprobrium?orwillhefeignunderstandingandrisk
exposure?(BusinessStar,"CorporateFinancelaw,"Jan.11,1989,p.4).
RESPONDENT Christian Monsod was nominated by President Corazon C. Aquino to
thepositionofChairmanoftheCOMELECinaletterreceivedbytheSecretariatofthe
Commission on Appointments on April 25, 1991. PETITIONER opposed the
nomination because alleged ly Monsod does not possess the required qualification of
havingbeenengagedinthepracticeoflawforatleasttenyears.
OnJune5,1991,theCommissiononAppointmentsconfirmedthenominationofMonsod
as Chairman of the COMELEC. On June 18, 1991, he took his oath of office. On the
sameday,heassumedofficeasChairmanoftheCOMELEC.
Challenging the validity of the confirmation by the Commission on Appointments of
Monsod'snomination,PETITIONERasacitizenandtaxpayer,filedtheinstantpetition
for certiorari and Prohibition praying that said confirmation and the consequent
appointment of Monsod as Chairman of the Commission on Elections be declared null
andvoid.
Atty. Christian Monsod is a member of the Philippine Bar, having passed the bar
examinationsof1960withagradeof8655%.Hehasbeenaduespayingmemberofthe
IntegratedBarofthePhilippinessinceitsinceptionin197273.Hehasalsobeenpaying
hisprofessionallicensefeesaslawyerformorethantenyears.(p.124,Rollo)
After graduating from the College of Law (U.P.) and having hurdled the bar, Atty.
Monsodworkedinthelawofficeofhisfather.DuringhisstintintheWorldBankGroup
(19631970),MonsodworkedasanoperationsofficerforabouttwoyearsinCostaRica

and Panama, which involved getting acquainted with the laws of membercountries
negotiatingloansandcoordinatinglegal,economic,andprojectworkoftheBank.Upon
returningtothePhilippinesin1970,heworkedwiththeMeralcoGroup,servedaschief
executiveofficerofaninvestmentbankandsubsequentlyofabusinessconglomerate,and
since 1986, has rendered services to various companies as a legal and economic
consultant or chief executive officer. As former SecretaryGeneral (1986) and National
Chairman (1987) of NAMFREL. Monsod's work involved being knowledgeable in
election law. He appeared for NAMFREL in its accreditation hearings before the
Comelec. In the field of advocacy, Monsod, in his personal capacity and as former Co
Chairman of the Bishops Businessmen's Conference for Human Development, has
worked with the underprivilegedsectors,suchasthe farmer andurbanpoorgroups,in
initiating,lobbyingforandengaginginaffirmativeactionfortheagrarianreformlawand
lately the urban land reform bill. Monsod also made use of his legal knowledge as a
member of the Davide Commission, a quast judicial body, which conducted numerous
hearings (1990) and as a member of the Constitutional Commission (19861987), and
ChairmanofitsCommitteeonAccountabilityofPublicOfficers,forwhichhewascited
by the President of the Commission, Justice Cecilia MuozPalma for "innumerable
amendments to reconcile government functions with individual freedoms and public
accountability and the partylist system for the House of Representative. (pp. 128129
Rollo)(Emphasissupplied)
Just a word about the work of a negotiating team of which Atty. Monsod used to be a
member.
Inaloanagreement,forinstance,anegotiatingpanelactsasateam,andwhich
is adequately constituted to meet the various contingencies that arise during a
negotiation.BesidestopofficialsoftheBorrowerconcerned,therearethelegal
officer (such as the legal counsel), the finance manager, and an operations
officer(suchasanofficialinvolvedinnegotiatingthecontracts)whocomprise
themembersoftheteam.(GuillermoV.Soliven,"LoanNegotiatingStrategies
forDevelopingCountryBorrowers,"StaffPaperNumber2,CentralBankofthe
Philippines,Manila,1982,p.11).(Emphasissupplied)
After a fashion, the loan agreement is like a country's Constitution it lays
downthelawasfarastheloantransactionisconcerned.Thus,themeatofany
LoanAgreementcanbecompartmentalizedintofive(5)fundamentalparts:(1)
business terms (2) borrower's representation (3) conditions of closing (4)
covenantsand(5)eventsofdefault.(Ibid.,p.13).
In the same vein, lawyers play an important role in any debt restructuring
program. For aside from performing the tasks of legislative drafting and legal
advising,theyscorenationaldevelopmentpoliciesaskeyfactorsinmaintaining
theircountries'sovereignty.(Condensedfromtheworkpaper,entitled"Wanted:

Development Lawyers for Developing Nations," submitted by L. Michael

Hager, regional legal adviser of the United States Agency for International
Development,duringtheSessiononLawfortheDevelopmentofNationsatthe
Abidjan World Conference in Ivory Coast, sponsored by the World Peace
ThroughLawCenteronAugust2631,1973).(Emphasissupplied)
Loan concessions and compromises, perhaps even more so than purely
renegotiationpolicies,demandexpertiseinthelawofcontracts,in legislation
and agreement drafting and in renegotiation. Necessarily, a sovereign lawyer
may work with an international business specialist or an economist in the
formulationofamodelloanagreement.Debtrestructuringcontractagreements
contain such a mixture of technical language that they should be carefully
drafted and signed only with the advise of competent counsel in conjunction
with the guidance of adequate technical support personnel. (See International
Law Aspects of the Philippine External Debts, an unpublished dissertation,
U.S.T.GraduateSchoolofLaw,1987,p.321).(Emphasissupplied)
Acriticalaspectofsovereigndebtrestructuring/contractconstructionistheset
oftermsandconditionswhichdeterminesthecontractualremediesforafailure
toperformoneormoreelementsofthecontract.Agoodagreementmustnot
onlydefinetheresponsibilitiesofbothparties,butmustalsostatetherecourse
open to either party when the other fails to discharge an obligation. For a
compleatdebtrestructuringrepresentsadevotiontothatprinciplewhichinthe
ultimateanalysisissinequanonforforeignloanagreementsanadherence
to the rule of law in domestic and international affairs of whose kind U.S.
Supreme Court Justice Oliver Wendell Holmes, Jr. once said: "They carry no
banners,theybeatnodrumsbutwheretheyare,menlearnthatbustleandbush
arenottheequalofquietgeniusandserenemastery."(SeeRicardoJ.Romulo,
"TheRoleofLawyersinForeignInvestments,"IntegratedBarofthePhilippine
Journal,Vol.15,Nos.3and4,ThirdandFourthQuarters,1977,p.265).
InterpretedinthelightofthevariousdefinitionsofthetermPracticeoflaw".particularly
themodernconceptoflawpractice,andtakingintoconsiderationtheliberalconstruction
intendedbytheframersoftheConstitution,Atty.Monsod'spastworkexperiencesasa
lawyereconomist, a lawyermanager, a lawyerentrepreneur of industry, a lawyer
negotiator of contracts, and a lawyerlegislator of both the rich and the poor verily
more than satisfy the constitutional requirement that he has been engaged in the
practiceoflawforatleasttenyears.
BesidesintheleadingcaseofLuegov.CivilServiceCommission,143SCRA327,the
Courtsaid:

Appointment is an essentially discretionary power and must be performed by

theofficerinwhichitisvestedaccordingtohisbestlights,theonlycondition
beingthattheappointeeshouldpossessthequalificationsrequiredbylaw.Ifhe
does,thentheappointmentcannotbefaultedonthegroundthatthereareothers
better qualified who should have been preferred. This is a political question
involving considerations of wisdom which only the appointing authority can
decide.(emphasissupplied)
No less emphatic was the Court in the case of (Central Bank v. Civil Service
Commission,171SCRA744)whereitstated:
Itiswellsettledthatwhentheappointeeisqualified,asinthiscase,andallthe
otherlegalrequirements are satisfied, the Commission hasnoalternativebut
to attest to the appointment in accordance with the Civil Service Law. The
Commission has no authority to revoke an appointment on the ground that
another person is more qualified for a particular position. It also has no
authoritytodirecttheappointmentofasubstituteofitschoice.Todosowould
beanencroachmentonthediscretionvestedupontheappointingauthority.An
appointment is essentially within the discretionary power of whomsoever it is
vested, subject to the only condition that the appointee should possess the
qualificationsrequiredbylaw.(Emphasissupplied)
Theappointingprocessinaregularappointmentasinthecaseatbar,consistsoffour(4)
stages: (1) nomination (2) confirmation by the Commission on Appointments (3)
issuance of a commission (in the Philippines, upon submission by the Commission on
Appointments of its certificate of confirmation, the President issues the permanent
appointment and (4) acceptance e.g., oathtaking, posting of bond, etc. . . . (Lacson v.
Romero,NumberL3081,October14,1949Gonzales,LawonPublicOfficers,p.200)
ThepoweroftheCommissiononAppointmentstogiveitsconsenttothenominationof
MonsodasChairmanoftheCommissiononElectionsismandatedbySection1(2)Sub
ArticleC,ArticleIXoftheConstitutionwhichprovides:
TheChairmanandtheCommisionersshallbeappointedbythePresidentwith
the consent of the Commission on Appointments for a term of seven years
without reappointment. Of those first appointed, three Members shall hold
office for seven years, two Members for five years, and the last Members for
threeyears,withoutreappointment.Appointmenttoanyvacancyshallbeonly
for the unexpired term of the predecessor. In no case shall any Member be
appointedordesignatedinatemporaryoractingcapacity.
Anent Justice Teodoro Padilla's separate opinion, suffice it to say that his
definitionofthepracticeoflawisthetraditionalorstereotypednotionoflaw

practice, as distinguished from the modern concept of the practice of law,

whichmodernconnotationisexactlywhatwasintendedbytheeminentframers
ofthe1987Constitution.Moreover,JusticePadilla'sdefinitionwouldrequire
generallyahabituallawpractice,perhapspractisedtwoorthreetimesaweek
and would outlaw say, law practice once or twice a year for ten consecutive
years.Clearly,thisisfarfromtheconstitutionalintent.
Upontheotherhand,theseparateopinionofJusticeIsaganiCruzstatesthatinmywritten
opinion,Imadeuseofadefinitionoflawpracticewhichreallymeansnothingbecause
thedefinitionsaysthatlawpractice"...iswhatpeopleordinarilymeanbythepractice
of law." True I cited the definition but only by way of sarcasm as evident from my
statement that the definition of law practice by "traditional areas of law practice is
essentially tautologous" or defining a phrase by means of the phrase itself that is being
defined.
JusticeCruzgoesontosayinsubstancethatsincethelawcovers almostallsituations,
mostindividuals,inmakinguseofthelaw,orinadvisingothersonwhatthelawmeans,
areactuallypracticinglaw.Inthatsense,perhaps,butweshouldnotlosesightofthefact
thatMr.Monsodisalawyer,amemberofthePhilippineBar,whohasbeenpractisinglaw
forovertenyears.Thisisdifferentfromtheactsofpersonspractisinglaw,withoutfirst
becominglawyers.
JusticeCruzalsosaysthattheSupremeCourtcanevendisqualifyanelectedPresidentof
thePhilippines,say,onthegroundthathelacksoneormorequalifications.Thismatter,I
greatly doubt. For one thing, how can an action or petition be brought against the
President? And even assuming that he is indeed disqualified, how can the action be
entertainedsinceheistheincumbentPresident?
Wenowproceed:
The Commission on the basis of evidence submitted doling the public hearings on
Monsod's confirmation, implicitly determined that he possessed the necessary
qualifications as required by law. The judgment rendered by the Commission in the
exerciseofsuchanacknowledgedpowerisbeyondjudicialinterferenceexceptonlyupon
a clear showing of a grave abuse of discretion amounting to lack or excess of
jurisdiction. (Art. VIII, Sec. 1 Constitution). Thus, only where such grave abuse of
discretionisclearlyshownshalltheCourtinterferewiththeCommission'sjudgment.In
the instant case, there is no occasion for the exercise of the Court's corrective power,
since no abuse, much less a grave abuse of discretion, that would amount to lack or
excessofjurisdictionandwouldwarranttheissuanceofthewritsprayed,forhasbeen
clearlyshown.
Additionally,considerthefollowing:

(1) If the Commission on Appointments rejects a nominee by the President,

maytheSupremeCourtreversetheCommission,andthusineffectconfirmthe
appointment?Clearly,theanswerisinthenegative.
(2)Inthesamevein,maytheCourtrejectthenominee,whomtheCommission
hasconfirmed?Theanswerislikewiseclear.
(3) If the United States Senate (which is the confirming body in the U.S.
Congress)decidestoconfirmaPresidentialnominee,itwouldbeincrediblethat
theU.S.SupremeCourtwouldstillreversetheU.S.Senate.
Finally,onesignificantlegalmaximis:
Wemustinterpretnotbytheletterthatkilleth,butbythespiritthatgivethlife.
TakethishypotheticalcaseofSamsonandDelilah.Once,theprocuratorofJudeaasked
Delilah (who was Samson's beloved) for help in capturing Samson. Delilah agreed on
conditionthat
Nobladeshalltouchhisskin
Nobloodshallflowfromhisveins.
WhenSamson(hislonghaircutbyDelilah)wascaptured,theprocuratorplacedaniron
rod burning whitehot two or three inches away from in front of Samson's eyes. This
blindedtheman.Uponhearingofwhathadhappenedtoherbeloved,Delilahwasbeside
herself with anger, and fuming with righteous fury, ACCUSED the procurator of
renegingonhisword.Theprocuratorcalmlyreplied:"Didanybladetouchhisskin?Did
anybloodflowfromhisveins?"Theprocuratorwasclearlyrelyingontheletter,notthe
spiritoftheagreement.
Inviewoftheforegoing,thispetitionisherebyDISMISSED.
SOORDERED.
Fernan,C.J.,GrioAquinoandMedialdea,JJ.,concur.
Feliciano,J.,Icertifythathevotedtodismissthepetition.(Fernan,C.J.)
Sarmiento,J.,isonleave.
Regalado,andDavide,Jr.,J.,tooknopart.
SeparateOpinions

NARVASA,J.,concurring:
IconcurwiththedecisionofthemajoritywrittenbyMr.JusticeParas,albeitonlyinthe
result it does not appear to me that there has been an adequate showing that the
challenged determination by the Commission on Appointmentsthat the appointment of
RESPONDENT Monsod as Chairman of the Commission on Elections should, on the
basis of his stated qualifications and after due assessment thereof, be confirmedwas
attended by error so gross as to amount to grave abuse of discretion and consequently
meritsnullificationbythisCourtinaccordancewiththesecondparagraphofSection1,
ArticleVIIIoftheConstitution.IthereforevotetoDENYthepetition.
PADILLA,J.,dissenting:
TherecordsofthiscasewillshowthatwhentheCourtfirstdeliberatedonthePetitionat
bar,Ivotednotonly to requiretheRESPONDENTsto commentonthe Petition, but I
was the sole vote for the issuance of a temporary restraining order to enjoin
RESPONDENTMonsodfromassumingthepositionofCOMELECChairman,whilethe
Courtdeliberatedonhisconstitutionalqualificationfortheoffice.Mypurposeinvoting
for a TRO was to prevent the inconvenience and even embarrassment to all parties
concerned were the Court to finally decide for RESPONDENT Monsod's
disqualification. Moreover, a reading of the Petition then in relation to established
jurisprudencealreadyshowedprimafaciethatRESPONDENTMonsoddidnotpossess
theneededqualification,thatis,hehadnotengagedinthepracticeoflawforatleastten
(10)yearspriortohisappointmentasCOMELECChairman.
After considering carefully RESPONDENT Monsod's comment, I am even more
convincedthattheconstitutional requirement of"practiceoflawfor at least ten (10)
years"hasnotbeenmet.
The procedural barriers interposed by RESPONDENTs deserve scant consideration
because,ultimately,thecoreissuetoberesolvedinthispetitionistheproperconstrualof
the constitutional provision requiring a majority of the membership of COMELEC,
includingtheChairmanthereofto"havebeenengagedinthepracticeoflawforatleast
ten (10) years." (Art. IX(C), Section 1(1), 1987 Constitution). Questions involving the
constructionofconstitutionalprovisionsarebestlefttojudicialresolution.Asdeclared
in Angara v. Electoral Commission, (63 Phil. 139) "upon the judicial department is
thrown the solemn and inescapable obligation of interpreting the Constitution and
definingconstitutionalboundaries."
TheConstitutionhasimposedclearandspecificstandardsforaCOMELECChairman.
Amongthesearethathemusthavebeen"engagedinthepracticeoflawforatleastten
(10)years."ItistheboundendutyofthisCourttoensurethatsuchstandardismetand
compliedwith.

What constitutes practice of law? As commonly understood, "practice" refers to the

actualperformanceorapplication ofknowledgeasdistinguished frommerepossession
of knowledge it connotes an active, habitual, repeated or customary action. 1 To
"practice" law, or any profession for that matter, means, to exercise or pursue an
employmentorprofessionactively,habitually,repeatedlyorcustomarily.
Therefore,adoctorofmedicinewhoisemployedandishabituallyperformingthetasks
of a nursing aide, cannot be said to be in the "practice of medicine." A certified public
accountant who works as a clerk, cannot be said to practice his profession as an
accountant. In the same way, a lawyer who is employed as a business executive or a
corporatemanager,otherthanasheadorattorneyofaLegalDepartmentofacorporation
oragovernmentalagency,cannotbesaidtobeinthepracticeoflaw.
AsaptlyheldbythisCourtinthecaseofPeoplevs.Villanueva:2
Practice is more than an isolated appearance for it consists in frequent or
customaryactions,asuccessionofactsofthesamekind.Inotherwords,itis
frequent habitual exercise (State vs Cotner, 127, p. 1, 87 Kan. 864, 42 LRA,
M.S. 768). Practice of law to fall within the prohibition of statute has been
interpretedascustomarilyorhabituallyholdingone'sselfouttothepublicasa
lawyeranddemandingpaymentforsuchservices(Statevs.Bryan,4S.E.522,
98N.C.644,647.)...(emphasissupplied).
It is worth mentioning that the RESPONDENT Commission on Appointments in a
Memorandum it prepared, enumerated several factors determinative of whether a
particularactivityconstitutes"practiceoflaw."Itstates:
1. Habituality. The term "practice of law" implies customarily or habitually
holding one's self out to the public as a lawyer (People vs. Villanueva, 14
SCRA109citingStatev.Boyen,4S.E.522,98N.C.644)suchaswhenone
sends a circular announcing the establishment of a law office for the general
practiceoflaw(U.S.v.NeyBosque,8Phil.146),orwhenonetakestheoath
ofofficeasalawyerbeforeanotarypublic,andfilesamanifestationwiththe
SupremeCourtinformingitofhisintentiontopracticelawinallcourtsinthe
country(Peoplev.DeLuna,102Phil.968).
Practice is more than an isolated appearance for it consists in frequent or
customaryaction,asuccessionofactsofthesamekind.Inotherwords,itisa
habitualexercise(Peoplev.Villanueva,14SCRA109citingStatev.Cotner,
127,p.1,87Kan,864).
2.Compensation.Practiceoflawimpliesthatonemusthavepresentedhimself
to be in the active and continued practice of the legal profession and that his

professionalservicesareavailabletothepublicforcompensation,asaservice
ofhislivelihoodorinconsiderationofhissaidservices.(Peoplev.Villanueva,
supra).Hence,chargingforservicessuchaspreparationofdocumentsinvolving
the use of legal knowledge and skill is within the term "practice of law"
(ErnaniPao,BarReviewerinLegalandJudicialEthics,1988ed.,p.8citing
Peoplev.People'sStockyardsStateBank,176N.B.901)and,onewhorenders
anopinionastotheproperinterpretationofastatute,andreceivespayforit,is
to that extent, practicing law (Martin, supra, p. 806 citing Mendelaun v.
GilbertandBarketMfg.Co.,290N.Y.S.462)Ifcompensationisexpected,all
advice to clients and all action taken for them in matters connected with the
lawarepracticinglaw.(ElwoodFitchetteetal.,v.ArthurC.Taylor,94AL.R.
356359)
3. Application oflawlegalprinciple practiceorprocedurewhich calls for
legalknowledge,trainingandexperienceiswithintheterm"practiceoflaw".
(Martinsupra)
4.Attorneyclientrelationship.Engaginginthepracticeoflawpresupposesthe
existence of lawyerclient relationship. Hence, where a lawyer undertakes an
activity which requires knowledge of law but involves no attorneyclient
relationship,suchasteachinglaworwritinglawbooksorarticles,hecannotbe
saidtobeengagedinthepracticeofhisprofessionoralawyer(Agpalo,Legal
Ethics,1989ed.,p.30).3
Theaboveenumeratedfactorswould,Ibelieve,beusefulaidsindeterminingwhetheror
notRESPONDENT Monsod meets the constitutional qualification of practice of law
foratleastten(10)yearsatthetimeofhisappointmentasCOMELECChairman.
Thefollowingrelevantquestionsmaybeasked:
1. Did RESPONDENT Monsod perform any of the tasks which are peculiar to the
practiceoflaw?
2.DidRESPONDENTperformsuchtaskscustomarilyorhabitually?
3.Assumingthatheperformedanyofsuchtaskshabitually,didhedosoHABITUALLY
FORATLEASTTEN(10)YEARSpriortohisappointmentasCOMELECChairman?
Given the employment or job history of RESPONDENT Monsod as appears from the
records,Iampersuadedthatifeverhedidperformanyofthetaskswhichconstitutethe
practiceoflaw,hedidnotdosoHABITUALLYforatleastten(10)yearspriortohis
appointmentasCOMELECChairman.

While it may be granted that he performed tasks and activities which could be
latitudinarianlyconsideredactivitiespeculiartothepracticeoflaw, likethe drafting of
legal documents and the rendering of legal opinion or advice, such were isolated
transactionsoractivitieswhichdonotqualifyhispastendeavorsas"practiceoflaw."To
become engaged in the practice of law, there must be a continuity, or a succession of
acts.AsobservedbytheSolicitorGeneralinPeoplevs.Villanueva:4
Essentially, the word private practice of law implies that one must have
presented himself to be in the active and continued practice of the legal
profession and that his professional services are available to the public for a
compensation, as a source of his livelihood or in consideration of his said
services.
ACCORDINGLY, my vote is to GRANT the petition and to declare RESPONDENT
MonsodasnotqualifiedforthepositionofCOMELECChairmanfornothavingengaged
inthepracticeoflawforatleastten(10)yearspriortohisappointmenttosuchposition.
CRUZ,J.,dissenting:
IamsincerelyimpressedbytheponenciaofmybrotherParasbutfindImustdissentjust
the same. There are certain points on which I must differ with him while of course
respectinghisviewpoint.
Tobegin with, I do notthinkwe are inhibited fromexaminingthe qualificationsofthe
RESPONDENTsimplybecausehisnominationhasbeenconfirmedbytheCommission
on Appointments. In my view, this is not a political question that we are barred from
resolving. Determination of the appointee's credentials is made on the basis of the
established facts, not the discretion of that body. Even if it were, the exercise of that
discretionwouldstillbesubjecttoourreview.
In Luego, which is cited in the ponencia, what was involved was the discretion of the
appointing authority to choose between two claimants to the same office who both
possessedtherequiredqualifications.Itwasthatkindofdiscretionthatwesaidcouldnot
bereviewed.
IfapersonelectedbynolessthanthesovereignpeoplemaybeoustedbythisCourtfor
lack of the required qualifications, I see no reason why we cannot disqualified an
appointeesimplybecausehehaspassedtheCommissiononAppointments.
Even the President of the Philippines may be declared ineligible by this Court in an
appropriateproceedingnotwithstandingthathehasbeenfoundacceptablebynolessthan
the enfranchised citizenry. The reason is that what we would be examining is not the
wisdomofhiselectionbutwhetherornothewasqualifiedtobeelectedinthefirstplace.

ComingnowtothequalificationsoftheprivateRESPONDENT,Ifearthattheponencia
mayhavebeentoosweepinginitsdefinitionofthephrase"practiceoflaw"astorender
thequalificationpracticallytoothless.Fromthenumerousactivitiesacceptedasembraced
intheterm,Ihavetheuncomfortablefeelingthatonedoesnotevenhavetobealawyer
tobeengagedinthepracticeoflawaslongashisactivitiesinvolvetheapplicationof
some law, however peripherally. The stock broker and the insurance adjuster and the
realtorcouldcomeunderthedefinitionastheydealwithorgiveadviceonmattersthat
arelikely"tobecomeinvolvedinlitigation."
Thelawyerisconsideredengagedinthepracticeoflawevenifhismainoccupationis
another business and he interprets and applies some law only as an incident of such
business. That covers every company organized under the Corporation Code and
regulated by the SEC under P.D. 902A. Considering the ramifications of the modern
society, there is hardly any activity that is not affected by some law or government
regulation the businessman must know about and observe. In fact, again going by the
definition,alawyerdoesnotevenhavetobepartofabusinessconcerntobeconsidered
apractitioner.Hecanbesodeemedwhen,onhisown,herentsahouseorbuysacaror
consults a doctor as these acts involve his knowledge and application of the laws
regulatingsuchtransactions.Ifheoperatesapublicutilityvehicleashismainsourceof
livelihood, he would still be deemed engaged in the practice of law because he must
obey the Public Service Act and the rules and regulations of the Energy Regulatory
Board.
The ponencia quotes an American decision defining the practice of law as the
"performanceofanyacts...inoroutofcourt,commonlyunderstoodtobethepracticeof
law," which tells us absolutely nothing. The decision goes on to say that "because
lawyers perform almost every function known in the commercial and governmental
realm,suchadefinitionwouldobviouslybetooglobaltobeworkable."
Theeffectofthedefinitiongivenintheponenciaistoconsidervirtuallyeverylawyerto
beengagedinthepracticeoflawevenifhedoesnotearnhisliving,oratleastpartofit,
as a lawyer. It is enough that his activities are incidentally (even if only remotely)
connectedwithsomelaw,ordinance,orregulation.Thepossibleexceptionisthelawyer
whose income is derived from teaching ballroom dancing or escorting wrinkled ladies
withpubescentpretensions.
TheRESPONDENT'scredentialsareimpressive,tobesure,buttheydonotpersuademe
that he has been engaged in the practice of law for ten years as required by the
Constitution.Itisconcededthathehasbeenengagedinbusinessandfinance,inwhich
areas he has distinguished himself, but as an executive and economist and not as a
practicinglawyer.Theplainfactisthathehasoccupiedthevariouspositionslistedinhis
resumebyvirtueofhisexperienceandprestigeasabusinessmanandnotasanattorney
atlawwhoseprincipalattentionisfocusedonthelaw.Evenifitbearguedthathewas

actingasalawyerwhenhelobbiedinCongressforagrarianandurbanreform,servedin
the NAMFREL and the Constitutional Commission (together with nonlawyers like
farmersandpriests)andwasamemberoftheDavideCommission,hehasnotprovedthat
his activities in these capacities extended over the prescribed 10year period of actual
practiceofthelaw.Heisdoubtlesseminentlyqualifiedformanyotherpositionsworthy
ofhisabundanttalentsbutnotasChairmanoftheCommissiononElections.
IhavemuchadmirationforRESPONDENTMonsod,nolessthanforMr.JusticeParas,
butImustregretfullyvotetograntthepetition.
GUTIERREZ,JR.,J.,dissenting:
When this petition was filed, there was hope that engaging in the practice of law as a
qualification for public office would be settled one way or another in fairly definitive
terms.Unfortunately,thiswasnottheresult.
Ofthefourteen(14)memberCourt,5areoftheviewthatMr.ChristianMonsodengaged
inthepracticeoflaw(withoneofthese5leavinghisvotebehindwhileonofficialleave
butnotexpressinghisclearstandonthematter)4categoricallystatingthathedidnot
practicelaw2votingintheresultbecausetherewasnoerrorsogrossastoamountto
graveabuseofdiscretiononeofofficialleavewithnoinstructionsleftbehindonhowhe
viewedtheissueand2nottakingpartinthedeliberationsandthedecision.
Therearetwokeyfactorsthatmakeourtaskdifficult.Firstisourreviewingtheworkofa
constitutional Commission on Appointments whose duty is precisely to look into the
qualificationsofpersonsappointedtohighoffice.EveniftheCommissionerrs,wehave
no power to set aside error. We can look only into grave abuse of discretion or
whimsically and arbitrariness. Second is our belief that Mr. Monsod possesses superior
qualifications in terms of executive ability, proficiency in management, educational
background,experienceininternationalbankingandfinance,andinstantrecognitionby
thepublic.HisintegrityandcompetencearenotquestionedbythePETITIONER.What
isbeforeusiscompliancewithaspecificrequirementwrittenintotheConstitution.
InspiteofmyhighregardforMr.Monsod,Icannotshirkmyconstitutionalduty.Hehas
neverengagedinthepracticeoflawforevenoneyear.Heisamemberofthebarbutto
saythathehaspracticedlawisstretchingthetermbeyondrationallimits.
Apersonmayhavepassedthebarexaminations.Butifhehasnotdedicatedhislifetothe
law,ifhehasnotengagedinanactivitywheremembershipinthebarisarequirementI
failtoseehowhecanclaimtohavebeenengagedinthepracticeoflaw.
EngaginginthepracticeoflawisaqualificationnotonlyforCOMELECchairmanbut
alsoforappointmenttotheSupremeCourtandalllowercourts.WhatkindofJudgesor

Justiceswillwehaveiftheremainoccupationissellingrealestate,managingabusiness
corporation, serving in factfinding committee, working in media, or operating a farm
withnoactiveinvolvementinthelaw,whetherinGovernmentorprivatepractice,except
thatinonejoyfulmomentinthedistantpast,theyhappenedtopassthebarexaminations?
TheConstitutionusesthephrase"engagedinthepracticeoflawforatleasttenyears."
Thedeliberatechoiceofwordsshowsthatthepracticeenvisionedisactiveandregular,
notisolated,occasional,accidental,intermittent,incidental,seasonal,orextemporaneous.
Tobe"engaged"inanactivityfortenyearsrequirescommittedparticipationinsomething
whichistheresultofone'sdecisivechoice.Itmeansthatoneisoccupiedandinvolvedin
theenterpriseoneisobligedorpledgedtocarryitoutwithintentandattentionduringthe
tenyearperiod.
IagreewiththePETITIONERthatbasedonthebiodatasubmittedbyRESPONDENT
Monsod to the Commission on Appointments, the latter has not been engaged in the
practice of law for at least ten years. In fact, if appears that Mr. Monsod has never
practiced law except for an allegedone year period after passing the bar examinations
when he worked in his father's law firm. Even then his law practice must have been
extremely limited because he was also working for M.A. and Ph. D. degrees in
EconomicsattheUniversityofPennsylvaniaduringthatperiod.Howcouldhepractice
lawintheUnitedStateswhilenotamemberoftheBarthere?
TheprofessionallifeoftheRESPONDENTfollows:
1.15.1. RESPONDENT Monsod's activities since his passing the Bar
examinationsin1961consistofthefollowing:
1. 19611963: M.A. in Economics (Ph. D. candidate), University of
Pennsylvania
2. 19631970: World Bank Group Economist, Industry Department
Operations, Latin American Department Division Chief, South Asia and
MiddleEast,InternationalFinanceCorporation
3.19701973:MeralcoGroupExecutiveofvariouscompanies,i.e.,Meralco
Securities Corporation, Philippine Petroleum Corporation, Philippine Electric
Corporation
4. 19731976: Yujuico Group President, FilCapital Development
Corporationandaffiliatedcompanies
5.19761978:FinacieraManilaChiefExecutiveOfficer

6.19781986:GueventGroupofCompaniesChiefExecutiveOfficer
7.19861987:PhilippineConstitutionalCommissionMember
8. 19891991: The FactFinding Commission on the December 1989 Coup
AttemptMember
9. Presently: Chairman of the Board and Chief Executive Officer of the
followingcompanies:
a.ACEContainerPhilippines,Inc.
b.Dataprep,Philippines
c.PhilippineSUNsystemsProducts,Inc.
d.SemiraraCoalCorporation
e.CBLTimberCorporation
MemberoftheBoardoftheFollowing:
a.EngineeringConstructionCorporationofthePhilippines
b.FirstPhilippineEnergyCorporation
c.FirstPhilippineHoldingsCorporation
d.FirstPhilippineIndustrialCorporation
e.GraphicAtelier
f.ManilaElectricCompany
g.PhilippineCommercialCapital,Inc.
h.PhilippineElectricCorporation
i.TarlacReforestationandEnvironmentEnterprises
j.TolongAquacultureCorporation
k.VisayanAquacultureCorporation

l.GuimarasAquacultureCorporation(Rollo,pp.2122)
There is nothing in the above biodata which even remotely indicates that
RESPONDENT Monsod has given the law enough attention or a certain degree of
commitmentandparticipationaswouldsupportinallsincerityandcandortheclaimof
havingengagedinitspracticeforatleasttenyears.Insteadofworkingasalawyer,hehas
lawyersworkingforhim.Insteadofgivingreceivingthatlegaladviceoflegalservices,
hewastheoneadviceandthoseservicesasanexecutivebutnotasalawyer.
The deliberations before the Commission on Appointments show an effort to equate
"engaged in the practice of law" with the use of legal knowledge in various fields of
endeavor such as commerce, industry, civic work, blue ribbon investigations, agrarian
reform,etc.wheresuchknowledgewouldbehelpful.
IregretthatIcannotjoininplayingfastandloosewithaterm,whichevenanordinary
laymanacceptsashavingafamiliarandcustomarywelldefinedmeaning.Everyresident
ofthiscountrywhohasreachedtheageofdiscernmenthastoknow,follow,orapplythe
law at various times in his life. Legal knowledge is useful if not necessary for the
business executive, legislator, mayor, barangay captain, teacher, policeman, farmer,
fisherman, market vendor, and student to name only a few. And yet, can these people
honestlyassertthatassuch,theyareengagedinthepracticeoflaw?
The Constitutionrequires having been"engagedin thepracticeoflaw for at least ten
years."Itisnotsatisfiedwithhavingbeen"amemberofthePhilippinebarforatleastten
years."
SomeAmericancourtshavedefinedthepracticeoflaw,asfollows:
Thepracticeoflawinvolvesnotonlyappearanceincourtinconnectionwith
litigation but alsoservices renderedout ofcourt,anditincludes the givingof
advice or the rendering of any services requiring the use of legal skill or
knowledge, such as preparing a will, contract or other instrument, the legal
effect of which, under the facts and conditions involved, must be carefully
determined. People ex rel. Chicago Bar Ass'n v. Tinkoff, 399 Ill. 282, 77
N.E.2d693Peopleexrel.IllinoisStateBarAss'nv.People'sStockYardsState
Bank,344Ill.462,176N.E.901,andcasescited.
It wouldbedifficult,if notimpossible to lay downaformula ordefinition of
what constitutes the practice of law. "Practicing law" has been defined as
"Practicing as an attorney or counselor at law according to the laws and
customsofourcourts,isthegivingofadviceorrenditionofanysortofservice
byanyperson,firmorcorporationwhenthegivingofsuchadviceorrendition
of such service requires the use of any degree of legal knowledge or skill."

Withoutadoptingthatdefinition,wereferredtoitasbeingsubstantiallycorrect
in People ex rel. Illinois State Bar Ass'n v. People's Stock Yards State Bank,
344Ill.462,176N.E.901.(Peoplev.Schafer,87N.E.2d773,776)
Forone'sactionstocomewithinthepurviewofpracticeoflawtheyshouldnotonlybe
activities peculiar to the work of a lawyer, they should also be performed, habitually,
frequentlyorcustomarily,towit:
xxxxxxxxx
RESPONDENT'sanswerstoquestionspropoundedtohimwereratherevasive.
Hewasaskedwhetherornotheeverpreparedcontractsforthepartiesinreal
estatetransactionswherehewasnottheprocuringagent.Heanswered:"Very
seldom." In answer to the question as to how many times he had prepared
contractsforthepartiesduringthetwentyoneyearsofhisbusiness,hesaid:"I
have no Idea." When asked if it would be more than half a dozen times his
answer was I suppose. Asked if he did not recall making the statement to
severalpartiesthathehadpreparedcontractsinalargenumberofinstances,he
answered: "I don't recall exactly what was said." When asked if he did not
remembersayingthathehadmadeapracticeofpreparingdeeds,mortgagesand
contracts and charging a fee to the parties therefor in instances where he was
notthebrokerinthedeal,heanswered:"Well,Idon'tbelieveso,thatisnota
practice."Pressedfurtherforananswerastohispracticeinpreparingcontracts
anddeedsforpartieswherehewasnotthebroker,hefinallyanswered:"Ihave
doneabouteverythingthatisonthebooksasfarasrealestateisconcerned."
xxxxxxxxx
RESPONDENT takes the position that because he is a realestate broker he
has a lawful right to do any legal work in connection with realestate
transactions, especially in drawing of realestate contracts, deeds, mortgages,
notesandthelike.Thereisnodoubtbutthathehasengagedinthesepractices
overtheyearsandhaschargedforhisservicesinthatconnection....(Peoplev.
Schafer,87N.E.2d773)
xxxxxxxxx
...Anattorney,inthemostgeneralsense,isapersondesignatedoremployedby
anothertoactinhissteadanagentmoreespecially,oneofaclassofpersons
authorizedtoappearandactforsuitorsorDEFENDANTsinlegalproceedings.
Strictly, these professional persons are attorneys at law, and nonprofessional
agentsareproperlystyled"attorney'sinfact"butthesinglewordismuchused
asmeaninganattorneyatlaw.Apersonmaybeanattorneyinfactoforanother,

withoutbeinganattorneyatlaw.Abb.LawDict."Attorney."Apublicattorney,
orattorneyatlaw,saysWebster,isanofficerofacourtoflaw,legallyqualified
to prosecute and defend actions in such court on the retainer of clients. "The
principaldutiesofanattorneyare(1)tobetruetothecourtandtohisclient(2)
tomanagethebusinessofhisclientwithcare,skill,andintegrity(3)tokeep
his client informed as to the state of his business (4) to keep his secrets
confided to him as such. ... His rights are to be justly compensated for his
services." Bouv. Law Dict. tit. "Attorney." The transitive verb "practice," as
defined by Webster, means 'to do or perform frequently, customarily, or
habituallytoperformbyasuccessionofacts,as,topracticegaming,...tocarry
oninpractice,orrepeatedactiontoapply,asatheory,toreallifetoexercise,
asaprofession,trade,art.etc.as,topracticelawormedicine,'etc...."(Statev.
Bryan,S.E.522,523Emphasissupplied)
In this jurisdiction, we have ruled that the practice of law denotes frequency or a
successionofacts.Thus,westatedinthecaseofPeoplev.Villanueva(14SCRA109):
xxxxxxxxx
...Practice is more than anisolatedappearance,for itconsists in frequentorcustomary
actions, a succession of acts of the same kind. In other words, it is frequent habitual
exercise(Statev.Cotner,127,p.1,87Kan.864,42LRA,M.S.768).Practiceoflawto
fall within the prohibition of statute has been interpreted as customarily or habitually
holdingone'sselfouttothepublic,asalawyeranddemandingpaymentforsuchservices.
....(atp.112)
It is to be noted that the Commission on Appointment itself recognizes habituality as a
requiredcomponentofthemeaningofpracticeoflawin aMemorandum prepared and
issuedbyit,towit:
l. Habituality. The term 'practice of law' implies customarilyor habitually
holdingone'sselfouttothepublicasalawyer(Peoplev.Villanueva,14SCRA
109citingStatev.Bryan,4S.E.522,98N.C.644)suchaswhenonesendsa
circularannouncingtheestablishmentofalawofficeforthegeneralpracticeof
law(U.S.v.NoyBosque,8Phil.146),orwhenonetakestheoathofofficeasa
lawyerbeforeanotarypublic,andfilesamanifestationwiththeSupremeCourt
informingitofhisintentiontopracticelawinallcourtsinthecountry(People
v.DeLuna,102Phil.968).
Practice is more than an isolated appearance, for it consists in frequent or
customaryaction,asuccessionofactsofthesamekind.Inotherwords,itisa
habitualexercise(Peoplev.Villanueva,14SCRA109citingStatev.Cotner,
127,p.1,87Kan,864)."(Rollo,p.115)

xxxxxxxxx
WhilethecareerasabusinessmanofRESPONDENTMonsodmayhaveprofitedfrom
hislegalknowledge,theuseofsuchlegalknowledgeisincidentalandconsistsofisolated
activitieswhichdonotfallunderthedenominationofpracticeoflaw.Admissiontothe
practiceoflawwasnotrequiredformembershipintheConstitutionalCommissionorin
the FactFinding Commission on the 1989 Coup Attempt. Any specific legal activities
whichmayhavebeenassignedtoMr.Monsodwhileamembermaybelikenedtoisolated
transactions of foreign corporations in the Philippines which do not categorize the
foreigncorporationsasdoingbusinessinthePhilippines.Asinthepracticeoflaw,doing
business also should be active and continuous. Isolated business transactions or
occasional, incidental and casual transactions are not within the context of doing
business.ThiswasourrulinginthecaseofAntamConsolidated,Inc.v.Courtofappeals,
143SCRA288).
RESPONDENT Monsod, corporate executive, civic leader, and member of the
Constitutional Commission may possess the background, competence, integrity, and
dedication, to qualify for such high offices as President, VicePresident, Senator,
CongressmanorGovernor but theConstitutionin prescribingthe specificqualification
of having engaged in the practiceoflaw for at least ten (10) years for the position of
COMELEC Chairman has ordered that he may not be confirmed for that office. The
Constitution charges the public RESPONDENTs no less than this Court to obey its
mandate.
I, therefore, believe that the Commission on Appointments committed grave abuse of
discretioninconfirmingthenominationofRESPONDENTMonsodasChairmanofthe
COMELEC.
IvotetoGRANTthepetition.
Bidin,J.,dissent
SeparateOpinions
NARVASA,J.,concurring:
IconcurwiththedecisionofthemajoritywrittenbyMr.JusticeParas,albeitonlyinthe
resultitdoesnotappeartomethattherehasbeenanadequateshowingthatthe
challengeddeterminationbytheCommissiononAppointmentsthattheappointmentof
RESPONDENTMonsodasChairmanoftheCommissiononElectionsshould,onthe
basisofhisstatedqualificationsandafterdueassessmentthereof,beconfirmedwas
attendedbyerrorsogrossastoamounttograveabuseofdiscretionandconsequently

meritsnullificationbythisCourtinaccordancewiththesecondparagraphofSection1,
ArticleVIIIoftheConstitution.IthereforevotetoDENYthepetition.
MelencioHerrera,J.,concur.
PADILLA,J.,dissenting:
TherecordsofthiscasewillshowthatwhentheCourtfirstdeliberatedonthePetitionat
bar,IvotednotonlytorequiretheRESPONDENTstocommentonthePetition,butI
wasthesolevotefortheissuanceofatemporaryrestrainingordertoenjoin
RESPONDENTMonsodfromassumingthepositionofCOMELECChairman,whilethe
Courtdeliberatedonhisconstitutionalqualificationfortheoffice.Mypurposeinvoting
foraTROwastopreventtheinconvenienceandevenembarrassmenttoallparties
concernedweretheCourttofinallydecideforRESPONDENTMonsod's
disqualification.Moreover,areadingofthePetitiontheninrelationtoestablished
jurisprudencealreadyshowedprimafaciethatRESPONDENTMonsoddidnotpossess
theneededqualification,thatis,hehadnotengagedinthepracticeoflawforatleastten
(10)yearspriortohisappointmentasCOMELECChairman.
AfterconsideringcarefullyRESPONDENTMonsod'scomment,Iamevenmore
convincedthattheconstitutionalrequirementof"practiceoflawforatleastten(10)
years"hasnotbeenmet.
TheproceduralbarriersinterposedbyRESPONDENTsdeservescantconsideration
because,ultimately,thecoreissuetoberesolvedinthispetitionistheproperconstrualof
theconstitutionalprovisionrequiringamajorityofthemembershipofCOMELEC,
includingtheChairmanthereofto"havebeenengagedinthepracticeoflawforatleast
ten(10)years."(Art.IX(C),Section1(1),1987Constitution).Questionsinvolvingthe
constructionofconstitutionalprovisionsarebestlefttojudicialresolution.Asdeclared
inAngarav.ElectoralCommission,(63Phil.139)"uponthejudicialdepartmentis
thrownthesolemnandinescapableobligationofinterpretingtheConstitutionand
definingconstitutionalboundaries."
TheConstitutionhasimposedclearandspecificstandardsforaCOMELECChairman.
Amongthesearethathemusthavebeen"engagedinthepracticeoflawforatleastten
(10)years."ItistheboundendutyofthisCourttoensurethatsuchstandardismetand
compliedwith.
Whatconstitutespracticeoflaw?Ascommonlyunderstood,"practice"referstothe
actualperformanceorapplicationofknowledgeasdistinguishedfrommerepossession
ofknowledgeitconnotesanactive,habitual,repeatedorcustomaryaction.1To
"practice"law,oranyprofessionforthatmatter,means,toexerciseorpursuean
employmentorprofessionactively,habitually,repeatedlyorcustomarily.

Therefore,adoctorofmedicinewhoisemployedandishabituallyperformingthetasks
ofanursingaide,cannotbesaidtobeinthe"practiceofmedicine."Acertifiedpublic
accountantwhoworksasaclerk,cannotbesaidtopracticehisprofessionasan
accountant.Inthesameway,alawyerwhoisemployedasabusinessexecutiveora
corporatemanager,otherthanasheadorattorneyofaLegalDepartmentofacorporation
oragovernmentalagency,cannotbesaidtobeinthepracticeoflaw.
AsaptlyheldbythisCourtinthecaseofPeoplevs.Villanueva:2
Practiceismorethananisolatedappearanceforitconsistsinfrequentor
customaryactions,asuccessionofactsofthesamekind.Inotherwords,itis
frequenthabitualexercise(StatevsCotner,127,p.1,87Kan.864,42LRA,
M.S.768).Practiceoflawtofallwithintheprohibitionofstatutehasbeen
interpretedascustomarilyorhabituallyholdingone'sselfouttothepublicasa
lawyeranddemandingpaymentforsuchservices(Statevs.Bryan,4S.E.522,
98N.C.644,647.)...(emphasissupplied).
ItisworthmentioningthattheRESPONDENTCommissiononAppointmentsina
Memorandumitprepared,enumeratedseveralfactorsdeterminativeofwhethera
particularactivityconstitutes"practiceoflaw."Itstates:
1.Habituality.Theterm"practiceoflaw"impliescustomarilyorhabitually
holdingone'sselfouttothepublicasalawyer(Peoplevs.Villanueva,14
SCRA109citingStatev.Boyen,4S.E.522,98N.C.644)suchaswhenone
sendsacircularannouncingtheestablishmentofalawofficeforthegeneral
practiceoflaw(U.S.v.NeyBosque,8Phil.146),orwhenonetakestheoath
ofofficeasalawyerbeforeanotarypublic,andfilesamanifestationwiththe
SupremeCourtinformingitofhisintentiontopracticelawinallcourtsinthe
country(Peoplev.DeLuna,102Phil.968).
Practiceismorethananisolatedappearanceforitconsistsinfrequentor
customaryaction,asuccessionofactsofthesamekind.Inotherwords,itisa
habitualexercise(Peoplev.Villanueva,14SCRA109citingStatev.Cotner,
127,p.1,87Kan,864).
2.Compensation.Practiceoflawimpliesthatonemusthavepresentedhimself
tobeintheactiveandcontinuedpracticeofthelegalprofessionandthathis
professionalservicesareavailabletothepublicforcompensation,asaservice
ofhislivelihoodorinconsiderationofhissaidservices.(Peoplev.Villanueva,
supra).Hence,chargingforservicessuchaspreparationofdocumentsinvolving
theuseoflegalknowledgeandskilliswithintheterm"practiceoflaw"
(ErnaniPao,BarReviewerinLegalandJudicialEthics,1988ed.,p.8citing
Peoplev.People'sStockyardsStateBank,176N.B.901)and,onewhorenders

anopinionastotheproperinterpretationofastatute,andreceivespayforit,is
tothatextent,practicinglaw(Martin,supra,p.806citingMendelaunv.
GilbertandBarketMfg.Co.,290N.Y.S.462)Ifcompensationisexpected,all
advicetoclientsandallactiontakenfortheminmattersconnectedwiththe
lawarepracticinglaw.(ElwoodFitchetteetal.,v.ArthurC.Taylor,94AL.R.
356359)
3.Applicationoflawlegalprinciplepracticeorprocedurewhichcallsfor
legalknowledge,trainingandexperienceiswithintheterm"practiceoflaw".
(Martinsupra)
4.Attorneyclientrelationship.Engaginginthepracticeoflawpresupposesthe
existenceoflawyerclientrelationship.Hence,wherealawyerundertakesan
activitywhichrequiresknowledgeoflawbutinvolvesnoattorneyclient
relationship,suchasteachinglaworwritinglawbooksorarticles,hecannotbe
saidtobeengagedinthepracticeofhisprofessionoralawyer(Agpalo,Legal
Ethics,1989ed.,p.30).3
Theaboveenumeratedfactorswould,Ibelieve,beusefulaidsindeterminingwhetheror
notRESPONDENTMonsodmeetstheconstitutionalqualificationofpracticeoflaw
foratleastten(10)yearsatthetimeofhisappointmentasCOMELECChairman.
Thefollowingrelevantquestionsmaybeasked:
1.DidRESPONDENTMonsodperformanyofthetaskswhicharepeculiartothe
practiceoflaw?
2.DidRESPONDENTperformsuchtaskscustomarilyorhabitually?
3.Assumingthatheperformedanyofsuchtaskshabitually,didhedosoHABITUALLY
FORATLEASTTEN(10)YEARSpriortohisappointmentasCOMELECChairman?
GiventheemploymentorjobhistoryofRESPONDENTMonsodasappearsfromthe
records,Iampersuadedthatifeverhedidperformanyofthetaskswhichconstitutethe
practiceoflaw,hedidnotdosoHABITUALLYforatleastten(10)yearspriortohis
appointmentasCOMELECChairman.
Whileitmaybegrantedthatheperformedtasksandactivitieswhichcouldbe
latitudinarianlyconsideredactivitiespeculiartothepracticeoflaw,likethedraftingof
legaldocumentsandtherenderingoflegalopinionoradvice,suchwereisolated
transactionsoractivitieswhichdonotqualifyhispastendeavorsas"practiceoflaw."To
becomeengagedinthepracticeoflaw,theremustbeacontinuity,orasuccessionof
acts.AsobservedbytheSolicitorGeneralinPeoplevs.Villanueva:4

Essentially,thewordprivatepracticeoflawimpliesthatonemusthave
presentedhimselftobeintheactiveandcontinuedpracticeofthelegal
professionandthathisprofessionalservicesareavailabletothepublicfora
compensation,asasourceofhislivelihoodorinconsiderationofhissaid
services.
ACCORDINGLY,myvoteistoGRANTthepetitionandtodeclareRESPONDENT
MonsodasnotqualifiedforthepositionofCOMELECChairmanfornothavingengaged
inthepracticeoflawforatleastten(10)yearspriortohisappointmenttosuchposition.
CRUZ,J.,dissenting:
IamsincerelyimpressedbytheponenciaofmybrotherParasbutfindImustdissentjust
thesame.TherearecertainpointsonwhichImustdifferwithhimwhileofcourse
respectinghisviewpoint.
Tobeginwith,Idonotthinkweareinhibitedfromexaminingthequalificationsofthe
RESPONDENTsimplybecausehisnominationhasbeenconfirmedbytheCommission
onAppointments.Inmyview,thisisnotapoliticalquestionthatwearebarredfrom
resolving.Determinationoftheappointee'scredentialsismadeonthebasisofthe
establishedfacts,notthediscretionofthatbody.Evenifitwere,theexerciseofthat
discretionwouldstillbesubjecttoourreview.
InLuego,whichiscitedintheponencia,whatwasinvolvedwasthediscretionofthe
appointingauthoritytochoosebetweentwoclaimantstothesameofficewhoboth
possessedtherequiredqualifications.Itwasthatkindofdiscretionthatwesaidcouldnot
bereviewed.
IfapersonelectedbynolessthanthesovereignpeoplemaybeoustedbythisCourtfor
lackoftherequiredqualifications,Iseenoreasonwhywecannotdisqualifiedan
appointeesimplybecausehehaspassedtheCommissiononAppointments.
EventhePresidentofthePhilippinesmaybedeclaredineligiblebythisCourtinan
appropriateproceedingnotwithstandingthathehasbeenfoundacceptablebynolessthan
theenfranchisedcitizenry.Thereasonisthatwhatwewouldbeexaminingisnotthe
wisdomofhiselectionbutwhetherornothewasqualifiedtobeelectedinthefirstplace.
ComingnowtothequalificationsoftheprivateRESPONDENT,Ifearthattheponencia
mayhavebeentoosweepinginitsdefinitionofthephrase"practiceoflaw"astorender
thequalificationpracticallytoothless.Fromthenumerousactivitiesacceptedasembraced
intheterm,Ihavetheuncomfortablefeelingthatonedoesnotevenhavetobealawyer
tobeengagedinthepracticeoflawaslongashisactivitiesinvolvetheapplicationof
somelaw,howeverperipherally.Thestockbrokerandtheinsuranceadjusterandthe

realtorcouldcomeunderthedefinitionastheydealwithorgiveadviceonmattersthat
arelikely"tobecomeinvolvedinlitigation."
Thelawyerisconsideredengagedinthepracticeoflawevenifhismainoccupationis
anotherbusinessandheinterpretsandappliessomelawonlyasanincidentofsuch
business.ThatcoverseverycompanyorganizedundertheCorporationCodeand
regulatedbytheSECunderP.D.902A.Consideringtheramificationsofthemodern
society,thereishardlyanyactivitythatisnotaffectedbysomelaworgovernment
regulationthebusinessmanmustknowaboutandobserve.Infact,againgoingbythe
definition,alawyerdoesnotevenhavetobepartofabusinessconcerntobeconsidered
apractitioner.Hecanbesodeemedwhen,onhisown,herentsahouseorbuysacaror
consultsadoctorastheseactsinvolvehisknowledgeandapplicationofthelaws
regulatingsuchtransactions.Ifheoperatesapublicutilityvehicleashismainsourceof
livelihood,hewouldstillbedeemedengagedinthepracticeoflawbecausehemust
obeythePublicServiceActandtherulesandregulationsoftheEnergyRegulatory
Board.
TheponenciaquotesanAmericandecisiondefiningthepracticeoflawasthe
"performanceofanyacts...inoroutofcourt,commonlyunderstoodtobethepractice
oflaw,"whichtellsusabsolutelynothing.Thedecisiongoesontosaythat"because
lawyersperformalmosteveryfunctionknowninthecommercialandgovernmental
realm,suchadefinitionwouldobviouslybetooglobaltobeworkable."
Theeffectofthedefinitiongivenintheponenciaistoconsidervirtuallyeverylawyerto
beengagedinthepracticeoflawevenifhedoesnotearnhisliving,oratleastpartofit,
asalawyer.Itisenoughthathisactivitiesareincidentally(evenifonlyremotely)
connectedwithsomelaw,ordinance,orregulation.Thepossibleexceptionisthelawyer
whoseincomeisderivedfromteachingballroomdancingorescortingwrinkledladies
withpubescentpretensions.
TheRESPONDENT'scredentialsareimpressive,tobesure,buttheydonotpersuademe
thathehasbeenengagedinthepracticeoflawfortenyearsasrequiredbythe
Constitution.Itisconcededthathehasbeenengagedinbusinessandfinance,inwhich
areashehasdistinguishedhimself,butasanexecutiveandeconomistandnotasa
practicinglawyer.Theplainfactisthathehasoccupiedthevariouspositionslistedinhis
resumebyvirtueofhisexperienceandprestigeasabusinessmanandnotasanattorney
atlawwhoseprincipalattentionisfocusedonthelaw.Evenifitbearguedthathewas
actingasalawyerwhenhelobbiedinCongressforagrarianandurbanreform,servedin
theNAMFRELandtheConstitutionalCommission(togetherwithnonlawyerslike
farmersandpriests)andwasamemberoftheDavideCommission,hehasnotprovedthat
hisactivitiesinthesecapacitiesextendedovertheprescribed10yearperiodofactual
practiceofthelaw.Heisdoubtlesseminentlyqualifiedformanyotherpositionsworthy
ofhisabundanttalentsbutnotasChairmanoftheCommissiononElections.

IhavemuchadmirationforRESPONDENTMonsod,nolessthanforMr.JusticeParas,
butImustregretfullyvotetograntthepetition.
GUTIERREZ,JR.,J.,dissenting:
Whenthispetitionwasfiled,therewashopethatengaginginthepracticeoflawasa
qualificationforpublicofficewouldbesettledonewayoranotherinfairlydefinitive
terms.Unfortunately,thiswasnottheresult.
Ofthefourteen(14)memberCourt,5areoftheviewthatMr.ChristianMonsodengaged
inthepracticeoflaw(withoneofthese5leavinghisvotebehindwhileonofficialleave
butnotexpressinghisclearstandonthematter)4categoricallystatingthathedidnot
practicelaw2votingintheresultbecausetherewasnoerrorsogrossastoamountto
graveabuseofdiscretiononeofofficialleavewithnoinstructionsleftbehindonhowhe
viewedtheissueand2nottakingpartinthedeliberationsandthedecision.
Therearetwokeyfactorsthatmakeourtaskdifficult.Firstisourreviewingtheworkofa
constitutionalCommissiononAppointmentswhosedutyispreciselytolookintothe
qualificationsofpersonsappointedtohighoffice.EveniftheCommissionerrs,wehave
nopowertosetasideerror.Wecanlookonlyintograveabuseofdiscretionor
whimsicallyandarbitrariness.SecondisourbeliefthatMr.Monsodpossessessuperior
qualificationsintermsofexecutiveability,proficiencyinmanagement,educational
background,experienceininternationalbankingandfinance,andinstantrecognitionby
thepublic.HisintegrityandcompetencearenotquestionedbythePETITIONER.What
isbeforeusiscompliancewithaspecificrequirementwrittenintotheConstitution.
InspiteofmyhighregardforMr.Monsod,Icannotshirkmyconstitutionalduty.Hehas
neverengagedinthepracticeoflawforevenoneyear.Heisamemberofthebarbutto
saythathehaspracticedlawisstretchingthetermbeyondrationallimits.
Apersonmayhavepassedthebarexaminations.Butifhehasnotdedicatedhislifetothe
law,ifhehasnotengagedinanactivitywheremembershipinthebarisarequirementI
failtoseehowhecanclaimtohavebeenengagedinthepracticeoflaw.
EngaginginthepracticeoflawisaqualificationnotonlyforCOMELECchairmanbut
alsoforappointmenttotheSupremeCourtandalllowercourts.WhatkindofJudgesor
Justiceswillwehaveiftheremainoccupationissellingrealestate,managingabusiness
corporation,servinginfactfindingcommittee,workinginmedia,oroperatingafarm
withnoactiveinvolvementinthelaw,whetherinGovernmentorprivatepractice,except
thatinonejoyfulmomentinthedistantpast,theyhappenedtopassthebarexaminations?
TheConstitutionusesthephrase"engagedinthepracticeoflawforatleasttenyears."
Thedeliberatechoiceofwordsshowsthatthepracticeenvisionedisactiveandregular,

notisolated,occasional,accidental,intermittent,incidental,seasonal,orextemporaneous.
Tobe"engaged"inanactivityfortenyearsrequirescommittedparticipationinsomething
whichistheresultofone'sdecisivechoice.Itmeansthatoneisoccupiedandinvolvedin
theenterpriseoneisobligedorpledgedtocarryitoutwithintentandattentionduringthe
tenyearperiod.
IagreewiththePETITIONERthatbasedonthebiodatasubmittedbyRESPONDENT
MonsodtotheCommissiononAppointments,thelatterhasnotbeenengagedinthe
practiceoflawforatleasttenyears.Infact,ifappearsthatMr.Monsodhasnever
practicedlawexceptforanallegedoneyearperiodafterpassingthebarexaminations
whenheworkedinhisfather'slawfirm.Eventhenhislawpracticemusthavebeen
extremelylimitedbecausehewasalsoworkingforM.A.andPh.D.degreesin
EconomicsattheUniversityofPennsylvaniaduringthatperiod.Howcouldhepractice
lawintheUnitedStateswhilenotamemberoftheBarthere?
TheprofessionallifeoftheRESPONDENTfollows:
1.15.1.RESPONDENTMonsod'sactivitiessincehispassingtheBar
examinationsin1961consistofthefollowing:
1.19611963:M.A.inEconomics(Ph.D.candidate),Universityof
Pennsylvania
2.19631970:WorldBankGroupEconomist,IndustryDepartment
Operations,LatinAmericanDepartmentDivisionChief,SouthAsiaand
MiddleEast,InternationalFinanceCorporation
3.19701973:MeralcoGroupExecutiveofvariouscompanies,i.e.,Meralco
SecuritiesCorporation,PhilippinePetroleumCorporation,PhilippineElectric
Corporation
4.19731976:YujuicoGroupPresident,FilCapitalDevelopment
Corporationandaffiliatedcompanies
5.19761978:FinacieraManilaChiefExecutiveOfficer
6.19781986:GueventGroupofCompaniesChiefExecutiveOfficer
7.19861987:PhilippineConstitutionalCommissionMember
8.19891991:TheFactFindingCommissionontheDecember1989Coup
AttemptMember

9.Presently:ChairmanoftheBoardandChiefExecutiveOfficerofthe
followingcompanies:
a.ACEContainerPhilippines,Inc.
b.Dataprep,Philippines
c.PhilippineSUNsystemsProducts,Inc.
d.SemiraraCoalCorporation
e.CBLTimberCorporation
MemberoftheBoardoftheFollowing:
a.EngineeringConstructionCorporationofthePhilippines
b.FirstPhilippineEnergyCorporation
c.FirstPhilippineHoldingsCorporation
d.FirstPhilippineIndustrialCorporation
e.GraphicAtelier
f.ManilaElectricCompany
g.PhilippineCommercialCapital,Inc.
h.PhilippineElectricCorporation
i.TarlacReforestationandEnvironmentEnterprises
j.TolongAquacultureCorporation
k.VisayanAquacultureCorporation
l.GuimarasAquacultureCorporation(Rollo,pp.2122)
Thereisnothingintheabovebiodatawhichevenremotelyindicatesthat
RESPONDENTMonsodhasgiventhelawenoughattentionoracertaindegreeof
commitmentandparticipationaswouldsupportinallsincerityandcandortheclaimof
havingengagedinitspracticeforatleasttenyears.Insteadofworkingasalawyer,hehas
lawyersworkingforhim.Insteadofgivingreceivingthatlegaladviceoflegalservices,
hewastheoneadviceandthoseservicesasanexecutivebutnotasalawyer.

ThedeliberationsbeforetheCommissiononAppointmentsshowanefforttoequate
"engagedinthepracticeoflaw"withtheuseoflegalknowledgeinvariousfieldsof
endeavorsuchascommerce,industry,civicwork,blueribboninvestigations,agrarian
reform,etc.wheresuchknowledgewouldbehelpful.
IregretthatIcannotjoininplayingfastandloosewithaterm,whichevenanordinary
laymanacceptsashavingafamiliarandcustomarywelldefinedmeaning.Everyresident
ofthiscountrywhohasreachedtheageofdiscernmenthastoknow,follow,orapplythe
lawatvarioustimesinhislife.Legalknowledgeisusefulifnotnecessaryforthe
businessexecutive,legislator,mayor,barangaycaptain,teacher,policeman,farmer,
fisherman,marketvendor,andstudenttonameonlyafew.Andyet,canthesepeople
honestlyassertthatassuch,theyareengagedinthepracticeoflaw?
TheConstitutionrequireshavingbeen"engagedinthepracticeoflawforatleastten
years."Itisnotsatisfiedwithhavingbeen"amemberofthePhilippinebarforatleastten
years."
SomeAmericancourtshavedefinedthepracticeoflaw,asfollows:
Thepracticeoflawinvolvesnotonlyappearanceincourtinconnectionwith
litigationbutalsoservicesrenderedoutofcourt,anditincludesthegivingof
adviceortherenderingofanyservicesrequiringtheuseoflegalskillor
knowledge,suchaspreparingawill,contractorotherinstrument,thelegal
effectofwhich,underthefactsandconditionsinvolved,mustbecarefully
determined.Peopleexrel.ChicagoBarAss'nv.Tinkoff,399Ill.282,77
N.E.2d693Peopleexrel.IllinoisStateBarAss'nv.People'sStockYardsState
Bank,344Ill.462,176N.E.901,andcasescited.
Itwouldbedifficult,ifnotimpossibletolaydownaformulaordefinitionof
whatconstitutesthepracticeoflaw."Practicinglaw"hasbeendefinedas
"Practicingasanattorneyorcounseloratlawaccordingtothelawsand
customsofourcourts,isthegivingofadviceorrenditionofanysortofservice
byanyperson,firmorcorporationwhenthegivingofsuchadviceorrendition
ofsuchservicerequirestheuseofanydegreeoflegalknowledgeorskill."
Withoutadoptingthatdefinition,wereferredtoitasbeingsubstantiallycorrect
inPeopleexrel.IllinoisStateBarAss'nv.People'sStockYardsStateBank,
344Ill.462,176N.E.901.(Peoplev.Schafer,87N.E.2d773,776)
Forone'sactionstocomewithinthepurviewofpracticeoflawtheyshouldnotonlybe
activitiespeculiartotheworkofalawyer,theyshouldalsobeperformed,habitually,
frequentlyorcustomarily,towit:

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RESPONDENT'sanswerstoquestionspropoundedtohimwereratherevasive.
Hewasaskedwhetherornotheeverpreparedcontractsforthepartiesinreal
estatetransactionswherehewasnottheprocuringagent.Heanswered:"Very
seldom."Inanswertothequestionastohowmanytimeshehadprepared
contractsforthepartiesduringthetwentyoneyearsofhisbusiness,hesaid:"I
havenoIdea."Whenaskedifitwouldbemorethanhalfadozentimeshis
answerwasIsuppose.Askedifhedidnotrecallmakingthestatementto
severalpartiesthathehadpreparedcontractsinalargenumberofinstances,he
answered:"Idon'trecallexactlywhatwassaid."Whenaskedifhedidnot
remembersayingthathehadmadeapracticeofpreparingdeeds,mortgagesand
contractsandchargingafeetothepartiesthereforininstanceswherehewas
notthebrokerinthedeal,heanswered:"Well,Idon'tbelieveso,thatisnota
practice."Pressedfurtherforananswerastohispracticeinpreparingcontracts
anddeedsforpartieswherehewasnotthebroker,hefinallyanswered:"Ihave
doneabouteverythingthatisonthebooksasfarasrealestateisconcerned."
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RESPONDENTtakesthepositionthatbecauseheisarealestatebrokerhe
hasalawfulrighttodoanylegalworkinconnectionwithrealestate
transactions,especiallyindrawingofrealestatecontracts,deeds,mortgages,
notesandthelike.Thereisnodoubtbutthathehasengagedinthesepractices
overtheyearsandhaschargedforhisservicesinthatconnection....(Peoplev.
Schafer,87N.E.2d773)
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...Anattorney,inthemostgeneralsense,isapersondesignatedoremployedby
anothertoactinhissteadanagentmoreespecially,oneofaclassofpersons
authorizedtoappearandactforsuitorsorDEFENDANTsinlegalproceedings.
Strictly,theseprofessionalpersonsareattorneysatlaw,andnonprofessional
agentsareproperlystyled"attorney'sinfact"butthesinglewordismuchused
asmeaninganattorneyatlaw.Apersonmaybeanattorneyinfactoforanother,
withoutbeinganattorneyatlaw.Abb.LawDict."Attorney."Apublicattorney,
orattorneyatlaw,saysWebster,isanofficerofacourtoflaw,legallyqualified
toprosecuteanddefendactionsinsuchcourtontheretainerofclients."The
principaldutiesofanattorneyare(1)tobetruetothecourtandtohisclient(2)
tomanagethebusinessofhisclientwithcare,skill,andintegrity(3)tokeep
hisclientinformedastothestateofhisbusiness(4)tokeephissecrets
confidedtohimassuch....Hisrightsaretobejustlycompensatedforhis
services."Bouv.LawDict.tit."Attorney."Thetransitiveverb"practice,"as

definedbyWebster,means'todoorperformfrequently,customarily,or
habituallytoperformbyasuccessionofacts,as,topracticegaming,...tocarry
oninpractice,orrepeatedactiontoapply,asatheory,toreallifetoexercise,
asaprofession,trade,art.etc.as,topracticelawormedicine,'etc...."(Statev.
Bryan,S.E.522,523Emphasissupplied)
Inthisjurisdiction,wehaveruledthatthepracticeoflawdenotesfrequencyora
successionofacts.Thus,westatedinthecaseofPeoplev.Villanueva(14SCRA109):
xxxxxxxxx
...Practiceismorethananisolatedappearance,foritconsistsinfrequentorcustomary
actions,asuccessionofactsofthesamekind.Inotherwords,itisfrequenthabitual
exercise(Statev.Cotner,127,p.1,87Kan.864,42LRA,M.S.768).Practiceoflawto
fallwithintheprohibitionofstatutehasbeeninterpretedascustomarilyorhabitually
holdingone'sselfouttothepublic,asalawyeranddemandingpaymentforsuchservices.
....(atp.112)
ItistobenotedthattheCommissiononAppointmentitselfrecognizeshabitualityasa
requiredcomponentofthemeaningofpracticeoflawinaMemorandumpreparedand
issuedbyit,towit:
l.Habituality.Theterm'practiceoflaw'impliescustomarilyorhabitually
holdingone'sselfouttothepublicasalawyer(Peoplev.Villanueva,14SCRA
109citingStatev.Bryan,4S.E.522,98N.C.644)suchaswhenonesendsa
circularannouncingtheestablishmentofalawofficeforthegeneralpracticeof
law(U.S.v.NoyBosque,8Phil.146),orwhenonetakestheoathofofficeasa
lawyerbeforeanotarypublic,andfilesamanifestationwiththeSupremeCourt
informingitofhisintentiontopracticelawinallcourtsinthecountry(People
v.DeLuna,102Phil.968).
Practiceismorethananisolatedappearance,foritconsistsinfrequentor
customaryaction,asuccessionofactsofthesamekind.Inotherwords,itisa
habitualexercise(Peoplev.Villanueva,14SCRA109citingStatev.Cotner,
127,p.1,87Kan,864)."(Rollo,p.115)
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WhilethecareerasabusinessmanofRESPONDENTMonsodmayhaveprofitedfrom
hislegalknowledge,theuseofsuchlegalknowledgeisincidentalandconsistsofisolated
activitieswhichdonotfallunderthedenominationofpracticeoflaw.Admissiontothe
practiceoflawwasnotrequiredformembershipintheConstitutionalCommissionorin
theFactFindingCommissiononthe1989CoupAttempt.Anyspecificlegalactivities

whichmayhavebeenassignedtoMr.Monsodwhileamembermaybelikenedtoisolated
transactionsofforeigncorporationsinthePhilippineswhichdonotcategorizethe
foreigncorporationsasdoingbusinessinthePhilippines.Asinthepracticeoflaw,doing
businessalsoshouldbeactiveandcontinuous.Isolatedbusinesstransactionsor
occasional,incidentalandcasualtransactionsarenotwithinthecontextofdoing
business.ThiswasourrulinginthecaseofAntamConsolidated,Inc.v.Courtofappeals,
143SCRA288).
RESPONDENTMonsod,corporateexecutive,civicleader,andmemberofthe
ConstitutionalCommissionmaypossessthebackground,competence,integrity,and
dedication,toqualifyforsuchhighofficesasPresident,VicePresident,Senator,
CongressmanorGovernorbuttheConstitutioninprescribingthespecificqualification
ofhavingengagedinthepracticeoflawforatleastten(10)yearsforthepositionof
COMELECChairmanhasorderedthathemaynotbeconfirmedforthatoffice.The
ConstitutionchargesthepublicRESPONDENTsnolessthanthisCourttoobeyits
mandate.
I,therefore,believethattheCommissiononAppointmentscommittedgraveabuseof
discretioninconfirmingthenominationofRESPONDENTMonsodasChairmanofthe
COMELEC.
IvotetoGRANTthepetition.
Bidin,J.,dissent
Footnotes
1Webster's3rdNewInternationalDictionary.
214SCRA109
3CommissiononAppointments'Memorandumdated25June1991RE:WHAT
CONSTITUTESPRACTICEOFLAW,pp.67.
414SCRA109.
TheLawphilProjectArellanoLawFoundation