Powers of Administrative Agencies

1. Quasi-legislative power / Power of subordinate legislation

2. Quasi-judicial power/Power of adjudication
3. Determinative powers (Note: Senator Neptali Gonzales calls them incidental powers)

Definition of Quasi-legislative power

It is the authority delegated by the law-making body to the administrative body to adopt rules and
regulations intended to carry out the provisions of a law and implement legislative policy.

Distinctions between Quasi-legislative power and legislative power

1. LEGISLATIVE power involves the discretion to determine what the law shall be. QUASI-
legislative power only involves the discretion to determine how the law shall be enforced.
2. LEGISLATIVE power CANNOT be delegated. QUASI-legislative power CAN be delegated.
Tests of Delegation (applies to the power to promulgate administrative regulations )
1. COMPLETENESS test. This means that the law must be complete in all its terms and conditions
when it leaves the legislature so that when it reaches the delegate, it will have nothing to do
but to enforce it.
2. SUFFICIENT STANDARD test. The law must offer a sufficient standard to specify the limits of
the delegates authority, announce the legislative policy and specify the conditions under which
it is to be implemented.

Definition of Quasi-Judicial Power

It is the power of administrative authorities to make determinations of facts in the performance of
their official duties and to apply the law as they construe it to the facts so found. The exercise of
this power is only incidental to the main function of administrative authorities, which is the
enforcement of the law.

Determinative Powers
1. ENABLING powers

Those that PERMIT the doing of an act which the law undertakes to regulate and would be
unlawful without government approval.

Ex. Issuance of licenses to engage in a particular business.

2.DIRECTING powers

Those that involve the corrective powers of public utility commissions, powers of assessment
under the revenue laws, reparations under public utility laws, and awards under workmens
compensation laws, and powers of abstract determination such as definition-valuation,
classification and fact finding
3. DISPENSING powers

Exemplified by the authority to exempt from or relax a general prohibition, or authority to relieve
from an affirmative duty. Its difference from licensing power is that dispensing power sanctions a
deviation from a standard.

4. SUMMARY powers

Those that apply compulsion or force against person or property to effectuate a legal purpose
without a judicial warrant to authorize such action. Usually without notice and hearing.

Ex. Abatement of nuisance, summary destraint, levy of property of delinquent tax payers

5. EQUITABLE powers

Those that pertain to the power to determine the law upon a particular state of facts. It refers to
the right to, and must, consider and make proper application of the rules of equity.

Ex. Power to appoint a receiver, power to issue injunctions

Kinds of Administrative Regulations

DISTINCTIONS LEGISLATIVE INTERPRETATIVE

1. Capacity that administrative

agency is acting in Legislative Judicial

2. What administrative agency It supplements the statute It says what the statute
is doing by filling in the details means

Legislative regulations have

3. Force and effect
the force and effecr of law
immediately upon going
into effect. Such is
accorded by the courts or
by express provision of
statute.
Merely persuasive/Received
by the courts with much
respect but not accorded
with finality

Requisites of a Valid Administrative Regulation

1. Its promulgation must be authorized by the legislature.
2. It must be within the scope of the authority given by the legislature.
3. It must be promulgated in accordance with the prescribed procedure.
4. It must be reasonable
Need for Previous Notice and Hearing
1. General Rule: Administrative rules of GENERAL application do NOT require previous notice and
hearing.
 2. Exception: When the legislature itself requires it and mandates that the regulation shall be
based on certain facts as determined at an appropriate investigation.
3. If the regulation is in effect a settlement of a controversy between specific parties, it is
considered an administrative adjudication, requiring notice and hearing.
Prescribing of Rates

It can be either:

1. LEGISLATIVE

If the rules/rates are meant to apply to all enterprises of a given kind throughout the country.

No prior notice and hearing is required.

2. QUASI-JUDICIAL

If the rules and rates imposed apply exclusively to a particular party, based upon a finding of fact.
Prior notice and hearing is required.

Requirement of Publication
Administrative Regulations that MUST be published:
1. Administrative regulations of GENERAL application.
2. Administrative regulations which are PENAL in nature.
Administrative regulations that do NOT NEED to be PUBLISHED:
1. Interpretative regulations
2. Internal rules and regulations governing the personnel of the administrative agency.
1. Letters of instruction issued by administrative superiors concerning guidelines to be followed
by their subordinates. (Tanada v. Tuvera)
Special Requisites of a Valid Administrative Regulation with a PENAL sanction
1. The law itself must make violation of the administrative regulation punishable.
2. The law itself must impose and specify the penalty for the violation of the regulation.
3. The regulation must be published.
Requisites for Proper Exercise of Quasi-Judicial Power
1. Jurisdiction
2. Due process
Administrative Due Process : Requirements
1. Right to Notice, be it actual or constructive
2. Reasonable opportunity to appear and defend his rights and to introduce witnesses
3. Impartial tribunal with competent jurisdiction
4. Finding or decision supported by substantial evidence
Exceptions to the Notice and Hearing Requirement
1. Urgency of immediate action
 2. Tentativeness of the administrative action
3. Right was previously offered but not claimed
4. Summary abatement of a nuisance per se
5. Preventive suspension of a public servant facing administrative charges
6. Padlocking of filthy restaurants/theaters showing obscene movies
7. Cancellation of a passport of a person sought for criminal prosecution
8. Summary distraint and levy of properties of a delinquent taxpayer
9. Replacement of a temporary or acting appointee
Questions Reviewable on Judicial Review:
1. Questions of FACT

The general rule is that courts will not disturb the findings of administrative agencies acting
within the parameters of their own competence so long as such findings are supported by
substantial evidence. By reason of their special knowledge, expertise, and experience, the courts
ordinarily accord respect if not finality to factual findings of administrative tribunals.

2. Question of LAW

Administrative decision may be appealed to the courts independently of legislative permission.

It may be appealed even against legislative prohibition because the judiciary cannot be deprived
of its inherent power to review all decisions on questions of law.

Doctrine of Finality

Courts are reluctant to interfere with action of an administrative agency prior to its completion or
finality, the reason being that absent a final order or decision, power has not been fully and finally
exercised, and there can usually be no irreparable harm.

EXCEPTIONS: Interlocutory order affecting the merits of a controversy; Preserve status quo
pending further action by the administrative agency; Essential to the protection of the rights
asserted from the injury threatened; Officer assumes to act in violation of the Constitution and
other laws; Order not reviewable in any other way; Order made in excess of power
Doctrine of Primary Jurisdiction
1. This doctrine states that courts cannot or will not determine a controversy which requires the
expertise, specialized skills and knowledge of the proper administrative bodies because
technical matters of intricate questions of fact are involved.
2. Relief must first be obtained in an administrative proceeding before a remedy will be supplied
by the court even though the matter is within the proper jurisdiction of a court.
Doctrine of Prior Resort
When a claim originally cognizable in the courts involves issues which, under a regulatory scheme
are within the special competence of an administrative agency, judicial proceedings will be
suspended pending the referral of these issues to the administrative body for its view.

Note: The doctrines of primary jurisdiction and prior resort have been considered to be
interchangeable.

Doctrine of Exhaustion of Administrative Remedies

1. Under this doctrine, an administrative decision must first be appealed to the administrative
superiors up to the highest level before it may be elevated to a court of justice for review.
1. Reasons :
1. to enable the administrative superiors to correct the errors committed by their
subordinates.
2. courts should refrain from disturbing the findings of administrative. bodies in
deference to the doctrine of separation of powers.
3. courts should not be saddled with the review of administrative cases
4. judicial review of administrative cases is usually effected through special civil
actions which are available only if their is no other plain, speedy and adequate
remedy.

3. Exceptions

a. when the question raised is purely legal, involves constitutional questions

b. when the administrative body is in estopped
c. when act complained of is patently illegal
d. when there is urgent need for judicial intervention
e. when claim involved is small
f. when irreparable damage is involved
g. when there is no other plain, speedy , adequate remedy
h. when strong public interest is involved
I. when the subject of controversy is private land
1. in quo warranto proceedings
2. When the administrative remedy is permissive, concurrent
3. utter disregard of due process
4. long-continued and unreasonable delay
5. amount involved is relatively small
6. when no administrative review is provided
7. respondent is a department secretary (DOCTRINE OF QUALIFIED POLITICAL AGENCY ALTER
EGO DOCTRINE)

Substantial evidence defined to mean not necessarily preponderant proof as required in ordinary
civil cases but such kind of relevant evidence which a reasonable mind might accept as adequate
to support a conclusion.