EN BANC

 

 

STRATEGIC ALLIANCE                            G.R. No. 178158 

DEVELOPMENT CORPORATION,

                   Petitioner,

 

- versus -

 

 

RADSTOCK SECURITIES

LIMITED and PHILIPPINE

NATIONAL CONSTRUCTION

CORPORATION,

                   Respondents.

 

ASIAVEST MERCHANT                     

BANKERS BERHAD,         

                   Intervenor.

x---------------------------------------------x

LUIS SISON,                                                 G.R. No. 180428

                   Petitioner, 

 

                                                                        PUNO, C.J.,

                                                                        CARPIO,

                                                                        CORONA,

                                                                        CARPIO MORALES,

                                                                        CHICO-NAZARIO,

                                                                        VELASCO, JR.,

               - versus -                                      NACHURA,

                                                                        LEONARDO-DE CASTRO,

                                                                        BRION,

                                                                        PERALTA,

                                                                        BERSAMIN,

                                                                        DEL CASTILLO,

                                                                        ABAD, and

PHILIPPINE NATIONAL                           VILLARAMA, JR.,  JJ

CONSTRUCTION CORPORATION         

and RADSTOCK SECURITIES                  

LIMITED,                                                       Promulgated:

                   Respondents.                               December 4, 2009         

x-----------------------------------------------------------------------------------------x

 

 

D E C I S I O N

 

 

CARPIO, J.:

 

 

Prologue

 

 

         This case is an anatomy of a P6.185 billion[1] pillage of the public coffers that ranks among one of the most brazen and hideous in the history of this country. This case answers the questions why our Government perennially runs out of funds to provide basic services to our people, why the great masses of the Filipino people wallow in poverty, and why a very select few amass unimaginable wealth at the expense of the Filipino people.  

        

         On 1 May 2007, the 30-year old franchise of Philippine National Construction Corporation (PNCC) under Presidential Decree No. 1113    (PD 1113), as amended by Presidential Decree No. 1894 (PD 1894), expired.  During the 13th Congress, PNCC sought to extend its franchise.  PNCC won approval from the House of Representatives, which passed House Bill      No. 5749[2] renewing PNCC’s franchise for another 25 years.  However, PNCC failed to secure approval from the Senate, dooming the extension of PNCC’s franchise. Led by Senator Franklin M. Drilon, the Senate opposed PNCC’s plea for extension of its franchise.[3]  Senator Drilon’s privilege speech[4] explains why the Senate chose not to renew PNCC’s franchise: 

 

            I repeat, Mr. President.  PNCC has agreed in a compromise agreement dated 17 August 2006 to transfer to Radstock Securities Limited P17,676,063,922, no small money, Mr. President, my dear colleagues, P17.6 billion.

 

            What does it consist of?  It consists of the following:  19 pieces of real estate properties with an appraised value of P5,993,689,000.  Do we know what is the bulk of this?   An almost 13-hectare property right here in the Financial Center.  As we leave the Senate, as we go out of this Hall, as we drive thru past the GSIS, we will see on the right a vacant lot, that is PNCC property.   As we turn right on Diosdado Macapagal, we see on our right new buildings, these are all PNCC properties.  That is 12.9 hectares of valuable asset right in this Financial Center that is worth P5,993,689.000.

 

            What else, Mr. President?  The 20% of the outstanding capital stock of PNCC with a par value of P2,300,000,000-- I repeat, 20% of the outstanding capital stock of PNCC worth P2,300 billion-- was assigned to Radstock.

 

            In addition, Mr. President and my dear colleagues, please hold on to your seats because part of the agreement is 50% of PNCC’s 6% share in the gross toll revenue of the Manila North Tollways Corporation for 27 years, from 2008 to 2035, is being assigned to Radstock.  How much is this worth?  It is worth P9,382,374,922.  I repeat, P9,382,374,922.

 

            x x x x

 

            Mr. President, P17,676,000,000, however, was made to appear in the agreement to be only worth P6,196,156,488.  How was this achieved?  How was an aggregate amount of P17,676,000,000 made to appear to be only P6,196,156,488?  First, the 19 pieces of real estate worth P5,993,689,000 were only assigned a value of P4,195,000,000 or only 70% of their appraised value.

 

 

 

            Second, the PNCC shares of stock with a par value of P2.3 billion were marked to market and therefore were valued only at P713 million.

 

            Third, the share of the toll revenue assigned was given a net present value of only P1,287,000,000 because of a 15% discounted rate that was applied.

 

            In other words, Mr. President, the toll collection of P9,382,374,922 for 27 years was given a net present value of only P1,287,000,000 so that it is made to appear that the compromise agreement is only worth P6,196,000,000.

 

            Mr. President, my dear colleagues, this agreement will substantially wipe out all the assets of PNCC.  It will be left with nothing else except, probably, the collection for the next 25 years or so from the North Luzon Expressway.  This agreement brought PNCC to the cleaners and literally cleaned the PNCC of all its assets.  They brought PNCC to the cleaners and cleaned it to the tune of P17,676,000,000.

 

            x x x x

 

            Mr. President, are we not entitled, as members of the Committee, to know who is Radstock Securities Limited?

 

            Radstock Securities Limited was allegedly incorporated under the laws of the British Virgin Islands.  It has no known board of directors, except for its recently appointed attorney-in-fact, Mr. Carlos Dominguez.

 

            Mr. President, are the members of the Committee not entitled to know why 20 years after the account to Marubeni Corporation, which gave rise to the compromise agreement 20 years after the obligation was allegedly incurred, PNCC suddenly recognized this obligation in its books when in fact this obligation was not found in its books for 20 years?

 

            In other words, Mr. President, for 20 years, the financial statements of PNCC did not show any obligation to Marubeni, much less, to Radstock.  Why suddenly on October  20, 2000, P10 billion in obligation was recognized?  Why was it recognized?

 

            During the hearing on December 18, Mr. President, we asked this question to the Asset Privatization Trust (APT) trustee, Atty. Raymundo Francisco, and he was asked:  “What is the basis of your recommendation to recognize this?”  He said:  “I based my recommendation on a legal opinion of Feria and Feria.”  I asked him:  “Who knew of this opinion?”  He said:  “Only me and the chairman of PNCC, Atty. Renato Valdecantos.”  I asked him: “Did you share this opinion with the members of the board who recognized the obligation of P10 billion?”  He said:  “No.”  “Can you produce this opinion now?”  He said:  “I have no copy.”

 

 

           

            Mysteriously, Mr. President, an obligation of P10 billion based on a legal opinion which, even Mr. Arthur Aguilar, the chairman of PNCC, is not aware of, none of the members of the PNCC board on October 20, 2000 who recognized this obligation had seen this opinion.  It is mysterious.

 

            Mr. President, are the members of our Committee not entitled to know why Radstock Securities Limited is given preference over all other creditors notwithstanding the fact that this is an unsecured obligation?  There is no mortgage to secure this obligation.

 

            More importantly, Mr. President, equally recognized is the obligation of PNCC to the Philippine government to the tune of P36 billion.  PNCC owes the Philippine government P36 billion recognized in its books, apart from P3 billion in taxes.  Why in the face of all of these is Radstock given preference?  Why is it that Radstock is given preference to claim P17.676 billion of the assets of PNCC and give it superior status over the claim of the Philippine government, of the Filipino people to the extent of P36 billion and taxes in the amount of P3 billion?  Why, Mr. President?  Why is Radstock given preference not only over the Philippine government claims of P39 billion but also over other creditors including a certain best merchant banker in Asia, which has already a final and executory judgment against PNCC for about P300 million?  Why, Mr. President? Are we not entitled to know why the compromise agreement assigned P17.676 billion to Radstock?  Why was it executed?[5] (Emphasis supplied)

 

 

         Aside from Senator Drilon, Senator Sergio S. Osmeńa III also saw irregularities in the transactions involving the Marubeni loans, thus:

 

            SEN. OSMEŃA.  Ah okay.  Good.

 

            Now, I'd like to point out to the Committee that – it seems that this was a politically driven deal like IMPSA.  Because the acceptance of the 10 billion or 13 billion debt came in October 2000 and the Radstock assignment was January 10, 2001.  Now, why would Marubeni sell for $2 million three months after there was a recognition that it was owed P10 billion.  Can you explain that, Mr. Dominguez?

 

            MR. DOMINGUEZ.  Your Honor, I am not aware of the decision making process of Marubeni.  But my understanding was, the Japanese culture is not a litigious one and they didn't want to get into a, you know, a court situation here in the Philippines having a lot of other interest, et cetera.

 

 

 

            SEN. OSMEŃA.  Well, but that is beside the point, Mr. Dominguez.  All I am asking is does it stand to reason that after you get an acceptance by a debtor that he owes you 10 billion, you sell your note for 100 million.

 

            Now, if that had happened a year before, maybe I would have understood why he sold for such a low amount.  But right after, it seems that this was part of an orchestrated deal wherein with certain powerful interest would be able to say, “Yes, we will push through.  We'll fix the courts.  We'll fix the board.  We'll fix the APT.  And we will be able to do it, just give us 55 percent of whatever is recovered,” am I correct?

 

            MR. DOMINGUEZ.  As I said, Your Honor, I am not familiar with the decision making process of Marubeni.  But my understanding was, as I said, they didn't want to get into a …

 

            SEN. OSMEŃA.  All right.

 

            MR. DOMINGUEZ.  ...litigious situation.[6]

 

            x x x x

 

            SEN. OSMEŃA.  All of these financial things can be arranged.  They can hire a local bank, Filipino, to be trustee for the real estate. So ...

 

            SEN. DRILON.  Well, then, that’s a dummy relationship.

 

           SEN. OSMEŃA.  In any case, to me the main point here is that a third party, Radstock, whoever owns it, bought Marubeni’s right for $2 million or P100 million.  Then, they are able to go through all these legal machinations and get awarded with the consent of PNCC of 6 billion.  That’s a 100 million to 6 billion.  Now, Mr. Aguilar, you have been in the business for such a long time.  I mean, this hedge funds whether it’s Radstock or New Bridge or Texas Pacific Group or Carlyle or Avenue Capital, they look at their returns.  So if Avenue Capital buys something for $2 million and you give him $4 million in one year, it’s a 100 percent return.  They’ll walk away and dance to their stockholders.  So here in this particular case, if you know that Radstock only bought it for $2 million, I would have gotten board approval and say, “Okay, let’s settle this for $4 million.”  And Radstock would have jumped up and down.  So what looks to me is that this was already a scheme.  Marubeni wrote it off already.  Marubeni wrote everything off.  They just got a $2 million and they probably have no more residual rights or maybe there’s a clause there, a secret clause, that says, “I want 20 percent of whatever you’re able to eventually collect.”  So $2 million.  But whatever it is, Marubeni practically wrote it off. Radstock’s liability now or exposure is only $2 million plus all the lawyer fees, under-the-table, etcetera.  All right.  Okay.  So it’s pretty obvious to me that if anybody were using his brain, I would have gone up to Radstock and say, “Here’s $4 million. Here’s P200 million.  Okay.”  They would have walked away.  But evidently, the “ninongs” of Radstock – See, I don’t care who owns Radstock.  I want to know who is the ninong here who stands to make a lot of money by being able to get to courts, the government agencies, OGCC, or whoever else has been involved in this, to agree to 6 billion or whatever it was.  That’s a lot of money.  And believe me, Radstock will probably get one or two billion and four billion will go into somebody else’s pocket.  Or Radstock will turn around, sell that claim for P4 billion and let the new guy just collect the payments over the years.

 

            x x x x[7]

 

            SEN. OSMEŃA.  x x x  I just wanted to know is CDCP Mining a 100 percent subsidiary of PNCC?

 

            MR. AGUILAR.  Hindi ho.  Ah, no.

 

            SEN. OSMEŃA.  If they’re not a 100 percent, why would they sign jointly and severally?  I just want to plug the loopholes.

 

            MR. AGUILAR.  I think it was – if I may just speculate.  It was just common ownership at that time.

 

            SEN. OSMEŃA.  Al right.  Now – Also, the ...

 

            MR. AGUILAR.  Ah, 13 percent daw, Your Honor.

 

            SEN. OSMEŃA.  Huh?

 

            MR. AGUILAR.  Thirteen percent ho.

 

            SEN. OSMEŃA.  What’s 13 percent?

 

            MR. AGUILAR. We owned ...

 

            x x x x

 

            SEN. OSMEŃA.  x x x CDCP Mining, how many percent of the equity of CDCP Mining was owned by PNCC, formerly CDCP?

 

            MS. PASETES.  Thirteen percent.

 

           SEN. OSMEŃA.  Thirteen.  And as a 13 percent owner, they agreed to sign jointly and severally?

 

            MS. PASETES.  Yes.

 

           SEN. OSMEŃA.  One-three? So poor PNCC and CDCP got taken to the cleaners here.  They sign for a 100 percent and they only own 13 percent.

 

            x x x x[8]  (Emphasis supplied)

I.

The Case

 

         Before this Court are the consolidated petitions for review[9] filed by Strategic Alliance Development Corporation (STRADEC) and Luis Sison (Sison), with a motion for intervention filed by Asiavest Merchant Bankers Berhad (Asiavest), challenging the validity of the Compromise Agreement between PNCC and Radstock.  The Court of Appeals approved the Compromise Agreement in its Decision of 25 January 2007[10] in CA-G.R. CV No. 87971.

 

II.

The Antecedents

 

 

         PNCC was incorporated in 1966 for a term of fifty years under the Corporation Code with the name Construction Development Corporation of the Philippines (CDCP).[11]   PD 1113, issued on 31 March 1977, granted CDCP a 30-year franchise to construct, operate and maintain toll facilities in the North and South Luzon Tollways.  PD 1894, issued on 22 December 1983, amended PD 1113 to include in CDCP’s franchise the Metro Manila Expressway, which would “serve as an additional artery in the transportation of trade and commerce in the Metro Manila area.”  

 

         Sometime between 1978 and 1981, Basay Mining Corporation (Basay Mining), an affiliate of CDCP, obtained loans from Marubeni Corporation of Japan (Marubeni) amounting to 5,460,000,000 yen and US$5 million.  A CDCP official issued letters of guarantee for the loans, committing CDCP     to pay solidarily for the full amount of the 5,460,000,000 yen loan and to the extent of P20 million for the US$5 million loan.  However, there was no CDCP Board Resolution authorizing the issuance of the letters of guarantee.  Later, Basay Mining changed its name to CDCP Mining Corporation (CDCP Mining).  CDCP Mining secured the Marubeni loans when CDCP and CDCP Mining were still privately owned and managed.

 

         Subsequently in 1983, CDCP changed its corporate name to PNCC to reflect the extent of the Government's equity investment in the company, which arose when government financial institutions converted their loans to PNCC into equity following PNCC’s inability to pay the loans.[12]  Various government financial institutions held a total of seventy-seven point forty-eight percent (77.48%) of  PNCC’s voting equity, most of which were later transferred to the Asset Privatization Trust (APT) under Administrative Orders No. 14 and 64, series of 1987 and 1988, respectively.[13]  Also, the Presidential Commission on Good Government holds some 13.82% of PNCC’s voting equity under a writ of sequestration and through the voluntary surrender of certain PNCC shares.  In fine, the Government owns 90.3% of the equity of PNCC and only 9.70% of PNCC’s voting equity is under private ownership.[14]

 

         Meanwhile, the Marubeni loans to CDCP Mining remained unpaid.  On 20 October 2000, during the short-lived Estrada Administration, the PNCC Board of Directors[15] (PNCC Board) passed Board Resolution No. BD-092-2000 admitting PNCC’s liability to Marubeni for P10,743,103,388 as of 30 September 1999.  PNCC Board Resolution No. BD-092-2000 reads as follows:

 

 

RESOLUTION NO. BD-092-2000

 

RESOLVED, That the Board recognizes, acknowledges and confirms PNCC’s obligations as of September 30, 1999 with the following entities, exclusive of the interests and other charges that may subsequently accrue and still become due therein, to wit:

 

a).  the Government of the Republic of the Philippines in the amount of P36,023,784,751.00; and

 

b).  Marubeni Corporation in the amount of P10,743,103,388.00. (Emphasis supplied)

 

 

This was the first PNCC Board Resolution admitting PNCC’s liability for the Marubeni loans. Previously, for two decades the PNCC Board consistently refused to admit any liability for the Marubeni loans.

 

         Less than two months later, or on 22 November 2000, the PNCC Board passed Board Resolution No. BD-099-2000 amending Board Resolution No. BD-092-2000.  PNCC Board Resolution No. BD-099-2000 reads as follows:

 

RESOLUTION NO. BD-099-2000

 

RESOLVED, That the Board hereby amends its Resolution No. BD-092-2000 dated October 20, 2000 so as to read as follows:

 

RESOLVED, That the Board recognizes, acknowledges and confirms its obligations as of September 30, 1999 with the following entities, exclusive of the interests and other charges that may subsequently accrue and still due thereon, subject to the final determination by the Commission on Audit (COA) of the amount of obligation involved, and subject further to the declaration of the legality of said obligations by the Office of the Government Corporate Counsel (OGCC), to wit:

 

a).  the Government of the Republic of the Philippines in the amount of P36,023,784,751.00; and

 

b).  Marubeni Corporation in the amount of P10,743,103,388.00. (Emphasis supplied)

 

 

         In January 2001, barely three months after the PNCC Board first admitted liability for the Marubeni loans, Marubeni assigned its entire credit to Radstock for US$2 million or less than P100 million.  In short, Radstock paid Marubeni less than 10% of the P10.743 billion admitted amount.  Radstock immediately sent a notice and demand letter to PNCC.   

 

         On 15 January 2001, Radstock filed an action for collection and damages against PNCC before the Regional Trial Court of Mandaluyong City, Branch 213 (trial court).  In its order of 23 January 2001, the trial court issued a writ of preliminary attachment against PNCC.  The trial court ordered PNCC’s bank accounts garnished and several of its real properties attached.  On 14 February 2001, PNCC moved to set aside the 23 January 2001 Order and to discharge the writ of attachment.  PNCC also filed a motion to dismiss the case.  The trial court denied both motions.  PNCC filed motions for reconsideration, which the trial court also denied.  PNCC filed a petition for certiorari before the Court of Appeals, docketed as CA-G.R. SP No. 66654, assailing the denial of the motion to dismiss.  On 30 August 2002, the Court of Appeals denied PNCC’s petition.  PNCC filed a motion for reconsideration, which the Court of Appeals also denied in its 22 January 2003 Resolution.  PNCC filed a petition for review before this Court, docketed as G.R. No. 156887.   

 

         Meanwhile, on 19 June 2001, at the start of the Arroyo Administration, the PNCC Board, under a new President and Chairman,   revoked Board Resolution No. BD-099-2000. 

 

         The trial court continued to hear the main case.  On 10 December 2002, the trial court ruled in favor of Radstock, as follows:

 

 

 

                   WHEREFORE, premises considered, judgment is hereby rendered in favor of the plaintiff and the defendant is directed to pay the total amount of Thirteen Billion One Hundred Fifty One Million Nine Hundred Fifty Six thousand Five Hundred Twenty Eight Pesos (P13,151,956,528.00) with interest from October 15, 2001 plus Ten Million Pesos (P10,000,000.00) as attorney’s fees.

 

                        SO ORDERED.[16]

 

 

     PNCC appealed the trial court’s decision to the Court of Appeals, docketed as CA-G.R. CV No. 87971.   

 

         On 19 March 2003, this Court issued a temporary restraining order in G.R. No. 156887 forbidding the trial court from implementing the writ of preliminary attachment and ordering the suspension of the proceedings before the trial court and the Court of Appeals.  In its 3 October 2005 Decision, this Court ruled as follows:

 

          WHEREFORE, the petition is partly GRANTED and insofar as the Motion to Set Aside the Order and/or Discharge the Writ of Attachment is concerned, the Decision of the Court of Appeals on August 30, 2002 and its Resolution of January 22, 2003 in CA-G.R. SP No. 66654 are REVERSED and SET ASIDE.  The attachments over the properties by the writ of preliminary attachment are hereby ordered LIFTED effective upon the finality of this Decision.  The Decision and Resolution of the Court of Appeals are AFFIRMED in all other respects.  The Temporary Restraining Order is DISSOLVED immediately and the Court of Appeals is directed to PROCEED forthwith with the appeal filed by PNCC.

 

                        No costs.

 

                        SO ORDERED.[17]

 

 

         On 17 August 2006, PNCC and Radstock entered into the Compromise Agreement where they agreed to reduce PNCC’s liability to Radstock, supposedly from P17,040,843,968, to P6,185,000,000.  PNCC and Radstock submitted the Compromise Agreement to this Court for approval.  In a Resolution dated 4 December 2006 in G.R. No. 156887, this Court referred the Compromise Agreement to the Commission on Audit (COA) for comment.  The COA recommended approval of the Compromise Agreement.  In a Resolution dated 22 November 2006, this Court noted the Compromise Agreement and referred it to the Court of Appeals in CA-G.R. CV No. 87971.  In its 25 January 2007 Decision, the Court of Appeals approved the Compromise Agreement.

 

         STRADEC moved for reconsideration of the 25 January 2007 Decision.  STRADEC alleged that it has a claim against PNCC as a bidder of the National Government’s shares, receivables, securities and interests in PNCC.  The matter is subject of a complaint filed by STRADEC against PNCC and the Privatization and Management Office (PMO) for the issuance of a Notice of Award of Sale to Dong-A Consortium of which STRADEC is a partner.  The case, docketed as Civil Case No. 05-882, is pending before the Regional Trial Court of Makati, Branch 146 (RTC Branch 146).

 

         The Court of Appeals treated STRADEC’s motion for reconsideration as a motion for intervention and denied it in its 31 May 2007 Resolution.  STRADEC filed a petition for review before this Court, docketed as       G.R. No. 178158.

 

         Rodolfo Cuenca (Cuenca), a stockholder and former PNCC President and Board Chairman, filed an intervention before the Court of Appeals.  Cuenca alleged that PNCC had no obligation to pay Radstock.  The Court of Appeals also denied Cuenca’s motion for intervention in its Resolution of   31 May 2007.  Cuenca did not appeal the denial of his motion. 

 

         On 2 July 2007, this Court issued an order directing PNCC and Radstock, their officers, agents, representatives, and other persons under their control, to maintain the status quo ante.

 

         Meanwhile, on 20 February 2007, Sison, also a stockholder and former PNCC President and Board Chairman, filed a Petition for Annulment of Judgment Approving Compromise Agreement before the Court of Appeals.  The case was docketed as CA-G.R. SP No. 97982.

 

         Asiavest, a judgment creditor of PNCC, filed an Urgent Motion for Leave to Intervene and to File the Attached Opposition and Motion-in-Intervention before the Court of Appeals in CA-G.R. SP No. 97982.    

 

         In a Resolution dated 12 June 2007, the Court of Appeals dismissed Sison’s petition on the ground that it had no jurisdiction to annul a final and executory judgment also rendered by the Court of Appeals.  In the same resolution, the Court of Appeals also denied Asiavest’s urgent motion.

 

         Asiavest filed its Urgent Motion for Leave to Intervene and to File the Attached Opposition and Motion-in-Intervention in G.R. No. 178158.[18] 

 

         Sison filed a motion for reconsideration.  In its 5 November 2007 Resolution, the Court of Appeals denied Sison’s motion.

 

         On 26 November 2007, Sison filed a petition for review before this Court, docketed as G.R. No. 180428.

 

         In a Resolution dated 18 February 2008, this Court consolidated    G.R. Nos. 178158 and 180428.

         On 13 January 2009, the Court held oral arguments on the following issues: 

 

         1.      Does the Compromise Agreement violate public policy?

 

         2.     Does the subject matter involve an assumption by the         government of a private entity’s obligation in violation of         the    law and/or the Constitution?  Is the PNCC Board     Resolution of 20 October 2000 defective or illegal?

 

          3.      Is the Compromise Agreement viable in the light of the non-renewal of PNCC’s franchise by Congress and its inclusion of all or substantially all of PNCC’s assets?

                   4.      Is the Decision of the Court of Appeals annullable even if final and executory on grounds of fraud and violation of  public policy and the Constitution?    

 

 

III.

Propriety of Actions

 

         The Court of Appeals denied STRADEC’s motion for intervention on the ground that the motion was filed only after the Court of Appeals and the trial court had promulgated their respective decisions.

 

         Section 2, Rule 19 of the 1997 Rules of Civil Procedure provides:

 

         SECTION 2.  Time to intervene.– The motion to intervene may be filed at any time before rendition of judgment by the trial court.  A copy of the pleading-in-intervention shall be attached to the motion and served on the original parties. 

 

 

         The rule is not absolute.  The rule on intervention, like all other rules of procedure, is intended to make the powers of the Court completely available for justice.[19]  It is aimed to facilitate a comprehensive adjudication of rival claims, overriding technicalities on the timeliness of the filing of the claims.[20]  This Court has ruled:

 

[A]llowance or disallowance of a motion for intervention rests on the sound discretion of the court after consideration of the appropriate circumstances.  Rule 19 of the Rules of Court is a rule of procedure whose object is to make the powers of the court fully and completely available for justice.  Its purpose is not to hinder or delay but to facilitate and promote the administration of justice.  Thus, interventions have been allowed even beyond the prescribed period in the Rule in the higher interest of justice.  Interventions have been granted to afford indispensable parties, who have not been impleaded, the right to be heard even after a decision has been rendered by the trial court, when the petition for review of the judgment was already submitted for decision before the Supreme Court, and even where the assailed order has already become final and executory.  In Lim v. Pacquing (310 Phil. 722 (1995)], the motion for intervention filed by the Republic of the Philippines was allowed by this Court to avoid grave injustice and injury and to settle once and for all the substantive issues raised by the parties.[21]       

 

 

         In Collado v. Court of Appeals,[22] this Court reiterated that exceptions to Section 2, Rule 12 could be made in the interest of substantial justice.  Citing Mago v. Court of Appeals,[23] the Court stated:

 

         It is quite clear and patent that the motions for intervention filed by the movants at this stage of the proceedings where trial had already been concluded x x x and on appeal x x x the same affirmed by the Court of Appeals and the instant petition for certiorari to review said judgments is already submitted for decision by the Supreme Court, are obviously and, manifestly late, beyond the period prescribed under x x x Section 2, Rule 12 of the Rules of Court.

 

            But Rule 12 of the Rules of Court, like all other Rules therein promulgated, is simply a rule of procedure, the whole purpose and object of which is to make the powers of the Court fully and completely available for justice.  The purpose of procedure is not to thwart justice.  Its proper aim is to facilitate the application of justice to the rival claims of contending parties.  It was created not to hinder and delay but to facilitate and promote the administration of justice.  It does not constitute the thing itself which courts are always striving to secure to litigants.  It is designed as the means best adopted to obtain that thing.  In other words, it is a means to an end.

         Concededly, STRADEC has no legal interest in the subject matter of the Compromise Agreement.  Section 1, Rule 19 of the 1997 Rules of Civil Procedure states:

 

         SECTION 1.  Who may intervene. - A person who has a legal interest in the matter in litigation, or in the success of either of the parties, or an interest against both, or is so situated as to be adversely affected by a distribution or other disposition of property in the custody of the court or of an officer thereof may, with leave of court, be allowed to intervene in the action.  The Court shall consider whether or not the intervention will unduly delay or prejudice the adjudication of the rights of the original parties, and whether or not the intervenor’s rights may be fully protected in a separate proceeding. 

 

 

STRADEC’s interest is dependent on the outcome of Civil Case No. 05-882.  Unless STRADEC can show that RTC Branch 146 had already decided in its favor, its legal interest is simply contingent and expectant.

 

         However, Asiavest has a direct and material interest in the approval or disapproval of the Compromise Agreement. Asiavest is a judgment creditor of PNCC in G.R. No. 110263 and a court has already issued a writ of execution in its favor.  Asiavest’s interest is actual and material, direct and immediate characterized by either gain or loss from the judgment that this Court may render.[24]  Considering that the Compromise Agreement involves the disposition of all or substantially all of the assets of PNCC, Asiavest, as PNCC’s judgment creditor, will be greatly prejudiced if the Compromise Agreement is eventually upheld.

 

         Sison has legal standing to challenge the Compromise Agreement.  Although there was no allegation that Sison filed the case as a derivative suit in the name of PNCC, it could be fairly deduced that Sison was assailing the Compromise Agreement as a stockholder of PNCC. In such a situation, a stockholder of PNCC can sue on behalf of PNCC to annul the Compromise Agreement.

 

          A derivative action is a suit by a stockholder to enforce a corporate cause of action.[25]  Under the Corporation Code, where a corporation is an injured party, its power to sue is lodged with its board of directors or trustees.[26]  However, an individual stockholder may file a derivative suit on behalf of the corporation to protect or vindicate corporate rights whenever the officials of the corporation refuse to sue, or are the ones to be sued, or hold control of the corporation.[27] In such actions, the corporation is the real party-in-interest while the suing stockholder, on behalf of the corporation, is only a nominal party.[28] 

 

         In this case, the PNCC Board cannot conceivably be expected to attack the validity of the Compromise Agreement since the PNCC Board itself approved the Compromise Agreement.  In fact, the PNCC Board steadfastly defends the Compromise Agreement for allegedly being advantageous to PNCC.

 

         Besides, the circumstances in this case are peculiar.  Sison, as former PNCC President and Chairman of the PNCC Board, was responsible for the approval of the Board Resolution issued on 19 June 2001 revoking the previous Board Resolution admitting PNCC’s liability for the Marubeni loans.[29] Such revocation, however, came after Radstock had filed an action for collection and damages against PNCC on 15 January 2001. Then, when the trial court rendered its decision on 10 December 2002 in favor of Radstock, Sison was no longer the PNCC President and Chairman, although he remains a stockholder of PNCC. 

         When the case was on appeal before the Court of Appeals, there was no need for Sison to avail of any remedy, until PNCC and Radstock entered into the Compromise Agreement, which disposed of all or substantially all of PNCC’s assets.  Sison came to know of the Compromise Agreement only in December 2006.  PNCC and Radstock submitted the Compromise Agreement to the Court of Appeals for approval on 10 January 2007.  The Court of Appeals approved the Compromise Agreement on 25 January 2007.  To require Sison at this stage to exhaust all the remedies within the corporation will render such remedies useless as the Compromise Agreement had already been approved by the Court of Appeals.  PNCC’s assets are in danger of being dissipated in favor of a private foreign corporation.  Thus, Sison had no recourse but to avail of an extraordinary remedy to protect PNCC’s assets. 

 

         Besides, in the interest of substantial justice and for compelling reasons, such as the nature and importance of the issues raised in this case,[30] this Court must take cognizance of Sison’s action.  This Court should exercise its prerogative to set aside technicalities in the Rules, because after all, the power of this Court to suspend its own rules whenever the interest of justice requires is well recognized.[31]  In Solicitor General v. The Metropolitan Manila Authority,[32] this Court held:

 

Unquestionably, the Court has the power to suspend procedural rules in the exercise of its inherent power, as expressly recognized in the Constitution, to promulgate rules concerning ‘pleading, practice and procedure in all courts.’  In proper cases, procedural rules may be relaxed or suspended in the interest of substantial justice, which otherwise may be miscarried because of a rigid and formalistic adherence to such rules.       x x  x

 

 

 

 

 

We have made similar rulings in other cases, thus:

 

Be it remembered that rules of procedure are but mere tools designed to facilitate the attainment of justice.  Their strict and rigid application, which would result in technicalities that tend to frustrate rather than promote substantial justice, must always be avoided. x x x  Time and again, this Court has suspended its own rules and excepted a particular case from their operation whenever the higher interests of justice so require.

 

 

IV.

The PNCC Board Acted in Bad Faith and with Gross Negligence

in Directing the Affairs of PNCC

 

 

         In this jurisdiction, the members of the board of directors have a three-fold duty:  duty of obedience, duty of diligence, and duty of loyalty.[33]  Accordingly, the members of the board of directors (1) shall direct the affairs of the corporation only in accordance with the purposes for which it was organized;[34] (2) shall not willfully and knowingly vote for or assent to patently unlawful acts of the corporation or act in bad faith or with gross negligence in directing the affairs of the corporation;[35] and (3) shall not acquire any personal or pecuniary interest in conflict with their duty as such directors or trustees.[36] 

 

         In the present case, the PNCC Board blatantly violated its duty of diligence as it miserably failed to act in good faith in handling the affairs of PNCC.

 

         First. For almost two decades, the PNCC Board had consistently refused to admit liability for the Marubeni loans because of the absence of a PNCC Board resolution authorizing the issuance of the letters of guarantee. 

 

         There is no dispute that between 1978 and 1980, Marubeni Corporation extended two loans to Basay Mining (later renamed CDCP Mining): (1) US$5 million to finance the purchase of copper concentrates by Basay Mining; and (2) Y5.46 billion to finance the completion of the expansion project of Basay Mining including working capital.  

 

         There is also no dispute that it was only on 20 October 2000 when the PNCC Board approved a resolution expressly admitting PNCC’s liability for the Marubeni loans. This was the first Board Resolution admitting liability for the Marubeni loans, for PNCC never admitted liability for these debts in the past.  Even Radstock admitted that PNCC’s 1994 Financial Statements did not reflect the Marubeni loans.[37]  Also, former PNCC Chairman Arthur Aguilar stated during the Senate hearings that “the Marubeni claim was  never in the balance sheet x x x nor was it in a contingent account.”[38]  Miriam M. Pasetes, SVP Finance of PNCC, and Atty. Herman R. Cimafranca of the Office of the Government Corporate Counsel, confirmed this fact, thus:

 

 

            SEN. DRILON.  x x x And so, PNCC itself did not recognize this as an obligation but the board suddenly recognized it as an obligation.  It was on that basis that the case was filed, is that correct?  In fact, the case hinges on – they knew that this claim has prescribed but because of that board resolution which recognized the obligation they filed their complaint, is that correct?

 

            MR. CIMAFRANCA.  Apparently, it's like that, Senator, because the filing of the case came after the acknowledgement.

 

 

            SEN. DRILON.  Yes.  In fact, the filing of the case came three months after the acknowledgement.

 

            MR. CIMAFRANCA.  Yes.  And that made it difficult to handle on our part.

 

            SEN. DRILON.  That is correct.  So, that it was an obligation which was not recognized in the financial statements of PNCC but revived – in the financial statements because it has prescribed but revived by the board effectively.  That's the theory, at least, of the plaintiff.  Is that correct?  Who can answer that?

 

            Ms. Pasetes, yes.

 

            MS. PASETES.  It is not an obligation of PNCC that is why it is not reflected in the financial statements.[39] (Emphasis supplied)

 

           

 

         In short, after two decades of consistently refuting its liability for the Marubeni loans, the PNCC Board suddenly and inexplicably reversed itself by admitting in October 2000 liability for the Marubeni loans.   Just three months after the PNCC Board recognized the Marubeni loans, Radstock acquired Marubeni's receivable and filed the present collection case. 

 

         Second. The PNCC Board admitted liability for the Marubeni loans despite PNCC’s total liabilities far exceeding its assets.  There is no dispute that the Marubeni loans, once recognized, would wipe out the assets of PNCC, “virtually emptying the coffers of the PNCC.”[40]  While PNCC insists that it remains financially viable, the figures in the COA Audit Reports tell otherwise.[41] For 2006 and 2005, “the Corporation has incurred negative gross margin of P84.531 Million and P80.180 Million, respectively, and net losses that had accumulated in a deficit of P14.823 Billion as of 31 December 2006.”[42] The COA even opined that “unless [PNCC] Management addresses the issue on net losses in its financial rehabilitation plan, x x x  the Corporation may not be able to continue its operations as a going concern.”

 

         Notably, during the oral arguments before this Court, the Government Corporate Counsel admitted the PNCC’s huge negative net worth, thus:

 

JUSTICE CARPIO

            x x x what is the net worth now of PNCC?  Negative what?  Negative 6 Billion at least[?]

 

ATTY. AGRA

           Yes, your Honor.[43] (Emphasis supplied)

 

 

Clearly, the PNCC Board’s admission of liability for the Marubeni loans, given PNCC’s huge negative net worth of at least P6 billion as admitted by PNCC’s counsel, or P14.823 billion based on the 2006 COA Audit Report, would leave PNCC an empty shell, without any assets to pay its biggest creditor, the National Government with an admitted receivable of P36 billion from PNCC.

 

         Third.  In a debilitating self-inflicted injury, the PNCC Board revived what appeared to have been a dead claim by abandoning one of PNCC’s strong defenses, which is the prescription of the action to collect the Marubeni loans.

 

         Settled is the rule that actions prescribe by the mere lapse of time fixed by law.[44]  Under Article 1144 of the Civil Code, an action upon a written contract, such as a loan contract, must be brought within ten years from the time the right of action accrues.  The prescription of such an action is interrupted when the action is filed before the court, when there is a written extrajudicial demand by the creditor, or when there is any written acknowledgment of the debt by the debtor.[45] 

 

         In this case, Basay Mining obtained the Marubeni loans sometime between 1978 and 1981.  While Radstock claims that numerous demand letters were sent to PNCC, based on the records, the extrajudicial demands to pay the loans appear to have been made only in 1984 and 1986. Meanwhile, the written acknowledgment of the debt, in the form of Board Resolution No. BD-092-2000, was issued only on 20 October 2000.

 

         Thus, more than ten years would have already lapsed between Marubeni’s extrajudicial demands in 1984 and 1986 and the acknowledgment by the PNCC Board of the Marubeni loans in 2000.   However, the PNCC Board suddenly passed Board Resolution No. BD-092-2000 expressly admitting liability for the Marubeni loans.  In short, the PNCC Board admitted liability for the Marubeni loans despite the fact that the same might no longer be judicially collectible.  Although the legal advantage was obviously on its side, the PNCC Board threw in the towel even before the fight could begin.  During the Senate hearings, the matter of prescription was discussed, thus:

 

           SEN. DRILON.   ...  the prescription period is 10 years and there were no payments – the last demands were made, when?  The last demands for payment?

 

            MS. OGAN.  It was made January 2001 prior to the filing of the case.

            SEN. DRILON.  Yes, all right.  Before that, when was the last demand made?  By the time they filed the complaint more than 10 years already lapsed.

 

            MS. OGAN.  On record, Mr. Chairman, we have demands starting from - - a series of demands which started from May 23, 1984, letter from Marubeni to PNCC, demand payment.  And we also have the letter of September 3, 1986, letter of Marubeni to then PNCC Chair Mr. Jaime.  We have the June 24, 1986 letter from Marubeni to the PNCC Chairman.  Also the March 4, 1988 letter...

 

            SEN. DRILON.  The March 4, 1988 letter is not a demand letter.

 

            MS. OGAN.  It is exactly addressed to the Asset Privatization Trust.

 

            SEN. DRILON.  It is not a demand letter?  Okay.

 

            MS. OGAN.  And we have also...

 

            SEN. DRILON.  Anyway...

 

            THE CHAIRMAN.  Please answer when you are asked, Ms. Ogan.  We want to put it on the record whether it is “yes” or “no”.

 

            MS. OGAN.  Yes, sir.

 

            SEN. DRILON.  So, even assuming that all of those were demand letters, the 10 years prescription set in and it should have prescribed in 1998, whatever is the date, or before the case was filed in 2001.

 

            MR. CIMAFRANCA.  The 10-year period for – if the contract is written, it's 10 years and it should have prescribed in 10 years and we did raise that in our answer, in our motion to dismiss.

 

            SEN. DRILON.  I know.  You raised this in your motion to dismiss and you raised this in  your answer.  Now, we are not saying that you were negligent in not raising that.  What we are just putting on the record that indeed there is basis to argue that these claims have prescribed.

 

            Now, the reason why there was a colorable basis on the complaint filed in 2001 was that somehow the board of PNCC recognized the obligation in a special board meeting on October 20, 2000.  Hindi ba ganoon 'yon?

 

            MS. OGAN.  Yes, that is correct.

 

 

 

 

            SEN. DRILON.  Why did the PNCC recognize this obligation in 2000 when it was very clear that at that point more than 10 years have lapsed since the last demand letter?

 

            MR. AGUILAR.  May I volunteer an answer?

 

            SEN. DRILON.  Please.

 

            MR. AGUILAR.  I  looked into that, Mr. Chairman, Your Honor.  It was as a result of and I go to the folder letter “N.”  In our own demand research it was not period, Your Honor, that Punongbayan in the big folder, sir, letter “N” it was the period where PMO was selling PNCC and Punongbayan and Araullo Law Office came out with an investment brochure that indicated liabilities both to national government and to Marubeni/Radstock.  So, PMO said, “For good order, can you PNCC board confirm that by board resolution?”  That's the tone of the letter.

 

            SEN. DRILON.  Confirm what?  Confirm the liabilities that are contained in the Punongbayan investment prospectus both to the national government and to PNCC.  That is the reason at least from the record, Your Honor, how the PNCC board got to deliberate on the Marubeni.

 

            THE CHAIRMAN.  What paragraph?  Second to the last paragraph?

 

            MR. AGUILAR.  Yes.  Yes, Mr. Chairman.  Ito po 'yong – that”s to our recollection, in the records, that was the reason.

 

            SEN. DRILON.  Is that the only reason why ...

 

            MR. AGUILAR.  From just the records, Mr. Chairman, and then interviews with people who are still around.

 

            SEN. DRILON.  You mean, you acknowledged a prescribed obligation because of this paragraph?

 

           MR. AGUILAR.  I don’t know what legal advice we were following at that time, Mr. Chairman.[46] (Emphasis supplied)

 

 

         Besides prescription, the Office of the Government Corporate Counsel (OGCC) originally believed that PNCC had another formidable legal weapon against Radstock, that is, the lack of authority of Alfredo Asuncion, then Executive Vice-President of PNCC, to sign the letter of guarantee on behalf of CDCP.  During the Senate hearings, the following exchange reveals the OGCC’s original opinion:

            THE CHAIRMAN.  What was the opinion of the Office of the Government Corporate Counsel?

 

            MS. OGAN.  The opinion of the Office of the Government Corporate Counsel is that PNCC should exhaust all means to resist the case using all defenses available to a guarantee and a surety that there is a valid ground for PNCC's refusal to honor or make good the alleged guarantee obligation.  It appearing that from the documents submitted to the OGCC that there is no board authority in favor or authorizing Mr. Asuncion, then EVP, to sign or execute the letter of guarantee in behalf of CDCP and that said letter of guarantee is not legally binding upon or enforceable against CDCP as principals, your Honors.[47] 

 

x x x x

 

            SEN. DRILON.  Now that we have read this, what was the opinion of the Government Corporate Counsel, Mr. Cimafranca?

 

            MR. CIMAFRANCA.  Yes, Senator, we did issue an opinion upon the request of PNCC and our opinion was that there was no valid obligation, no valid guarantee.  And we incorporated that in our pleadings in court.[48] (Emphasis supplied)

 

 

 

         Clearly, PNCC had strong defenses against the collection suit filed by Radstock, as originally opined by the OGCC. It is quite puzzling, therefore, that the PNCC Board, which had solid grounds to refute the legitimacy of the Marubeni loans, admitted its liability and entered into a Compromise Agreement that is manifestly and grossly prejudicial to PNCC.

 

         Fourth. The basis for the admission of liability for the Marubeni loans, which was an opinion of the Feria Law Office, was not even shown to the PNCC Board. 

 

         Atty. Raymundo Francisco, the APT trustee overseeing the proposed privatization of PNCC at the time, was responsible for recommending to the PNCC Board the admission of PNCC’s liability for the Marubeni loans.  Atty. Francisco based his recommendation solely on a mere alleged opinion of the Feria Law Office.  Atty. Francisco did not bother to show this “Feria opinion” to the members of the PNCC Board, except to Atty. Renato Valdecantos, who as the then PNCC Chairman did not also show the “Feria opinion” to the other PNCC Board members.  During the Senate hearings, Atty. Francisco could not produce a copy of the “Feria opinion.”  The Senators grilled Atty. Francisco on his recommendation to recognize PNCC’s liability for the Marubeni loans, thus:

 

            THE CHAIRMAN.  x x x  You were the one who wrote this letter or rather this memorandum dated 17 October 2000 to Atty. Valdecantos. Can you tell us the background why you wrote the letter acknowledging a debt which is non-existent?

 

            MR. FRANCISCO.  I was appointed as the trustee in charge of the privatization of the PNCC at that time, sir.  And I was tasked to do a study and engage the services of financial advisors as well as legal advisors to do a legal audit and financial study on the position of PNCC.  I bidded out these engagements, the financial advisership went to Punongbayan and Araullo.  The legal audit went to the Feria Law Offices.

 

            THE CHAIRMAN.  Spell it. Boy Feria?

 

            MR. FRANCISCO.  Feria-- Feria.

 

            THE CHAIRMAN. Lugto?

 

            MR. FRANCISCO. Yes.  Yes, Your Honor.  And this was the findings of the Feria Law Office – that the Marubeni account was a legal obligation.

 

            So, I presented this to our board.  Based on the findings of the legal audit conducted by the Ferial Law Offices, sir.

 

            THE CHAIRMAN.  Why did you not ask the government corporate counsel?  Why did you have to ask for the opinion of an outside counsel?

 

            MR. FRANCISCO. That was the – that was the mandate given to us, sir, that we have to engage the ...

 

            THE CHAIRMAN. Mandate given by whom?

 

            MR. FRANCISCO. That is what we usually do, sir, in the APT.

 

            THE CHAIRMAN.  Ah, you get outside counsel?

 

            MR. FRANCISCO. Yes, we...

 

            THE CHAIRMAN.  Not necessarily the government corporate counsel?

 

            MR. FRANCISCO. No, sir.

 

            THE CHAIRMAN.  So, on the basis of the opinion of outside counsel, private, you proceeded to, in effect, recognize an obligation which is not even entered in the books of the PNCC?  You probably resuscitated a non-existing obligation anymore?

 

            MR. FRANCISCO. Sir, I just based my recommendation on the professional findings of the law office that we engaged, sir.

 

            THE CHAIRMAN.  Did you not ask for the opinion of the government corporate counsel?

 

            MR. FRANCISCO.  No, sir.

 

            THE CHAIRMAN.  Why?

 

            MR. FRANCISCO. I felt that the engagements of the law office was sufficient, anyway we were going to raise it to the Committee on Privatization for their approval or disapproval, sir.

 

            THE CHAIRMAN. The COP?

 

            MR. FRANCISCO. Yes, sir.

 

            THE CHAIRMAN.  That’s a cabinet level?

 

            MR. FRANCISCO.  Yes, sir.  And we did that, sir.

 

            THE CHAIRMAN.  Now... So you sent your memo to Atty. Renato B. Valdecantos, who unfortunately is not here but I think we have to get his response to this.  And as part of the minutes of special meeting with the board of directors on October 20, 2000, the board resolved in its Board Resolution No. 092-2000, the board resolved to recognize, acknowledge and confirm PNCC’s obligations as of September 30, 1999, etcetera, etcetera.  (A), or rather (B), Marubeni Corporation in the amount of P10,740,000.

 

            Now, we asked to be here because the franchise of PNCC is hanging in a balance because of the – on the questions on this acknowledgement.  So we want to be educated.

 

            Now, the paper trail starts with your letter.  So, that’s it – that’s my kuwan, Frank.

 

            Yes, Senator Drilon.

 

 

 

 

            SEN. DRILON.  Thank you, Mr. Chairman.

 

            Yes,  Atty. Francisco, you have a copy of the minutes of October 20, 2000?

 

            MR. FRANCISCO.  I’m sorry, sir, we don’t have a copy.

 

            SEN. DRILON.  May we ask the corporate secretary of PNCC to provide us with a copy?

 

            Okay naman andiyan siya.

           

            (Ms. Ogan handing the document to Mr. Francisco.)

 

            You have familiarized yourselves with the minutes, Atty. Francisco?

 

            MR. FRANCISCO.  Yes, sir.

 

            SEN. DRILON.  Now, mention is made of a memorandum here on line 8, page 3 of this board’s minutes.  It says, “Director Francisco has prepared a memorandum requesting confirmation, acknowledgement, and ratification of this indebtedness of PNCC to the national government which was determined by Bureau of Treasury as of September 30, 1999 is 36,023,784,751.  And with respect to PNCC’s obligation to Marubeni, this has been determined to be in the total amount of 10,743,103,388, also as of September 30, 1999; that there is need to ratify this because there has already been a representation made with respect to the review of the financial records of PNCC by Punongbayan and Araullo, which have been included as part of the package of APT’s disposition to the national government’s interest in PNCC.”

 

            You recall having made this representation as found in the minutes, I assume, Atty. Francisco?

 

            MR. FRANCISCO.  Yes, sir.  But I’d like to be refreshed on the memorandum, sir, because I don’t have a copy.

 

            SEN. DRILON.  Yes, this memorandum was cited earlier by Senator Arroyo, and maybe the secretary can give him a copy?  Give him a copy?

 

            MS. OGAN.  (Handing the document to Mr. Francisco.)

 

            MR. FRANCISCO.  Your Honor, I have here a memorandum to the PNCC board through Atty. Valdecantos, which says that – in the last paragraph, if I may read?  “May we request therefore, that a board resolution be adopted, acknowledging and confirming the aforementioned PNCC obligations with the national government and Marubeni as borne out by the due diligence audit.”

 

            SEN. DRILON.  This is the memorandum referred to in these minutes.  This memorandum dated 17 October 2000 is the memorandum referred to in the minutes.

 

            MR. FRANCISCO.  I would assume, Mr. Chairman.

 

            SEN. DRILON.  Right.

 

            Now, the Punongbayan representative who was here yesterday, Mr...

 

            THE CHAIRMAN.  Navarro.

 

            SEN. DRILON. ... Navarro denied that he made this recommendation.

 

            THE CHAIRMAN.  He asked for opinion, legal opinion.

 

            SEN. DRILON.  He said that they never made this representation and the transcript will bear us out.  They said that they never made this representation that the account of Marubeni should be recognized.

 

            MR. FRANCISCO.  Mr. Chairman, in the memorandum, I only mentioned here the acknowledgement and confirmation of the PNCC obligations.  I was not asking for a ratification.  I never mentioned ratification in the memorandum.  I just based my memo based on the due diligence audit of the Feria Law Offices.

 

            SEN. DRILON.  Can you say that again?  You never asked for a ratification...

 

            MR. FRANCISCO.  No. I never mentioned in my memorandum that I was asking for a ratification.  I was just – in my memo it says, “acknowledging and confirming the PNCC obligation.”  This was what ...

 

            SEN. DRILON.  Isn’t it the same as ratification?  I mean, what’s the difference?

 

            MR. FRANCISCO.  I – well, my memorandum was meant really just to confirm the findings of the legal audit as ...

 

            SEN. DRILON.  In your mind as a lawyer,  Atty. Francisco, there’s a difference between ratification and – what’s your term? -- acknowledgment and confirmation?

 

            MR. FRANCISCO.  Well, I guess there’s no difference, Mr. Chairman.

 

            SEN. DRILON.  Right.

 

            Anyway, just of record, the Punongbayan representatives here yesterday said that they never made such representation.

 

            In any case, now you’re saying it’s the Feria Law Office who rendered that opinion?  Can we – you know, yesterday we were asking for a copy of this opinion but we were never furnished one.  The ... no less than the Chairman of this Committee was asking for a copy.

 

            THE CHAIRMAN.  Well, copy of the opinion...

 

            MS. OGAN.  Yes, Mr. Chairman, we were never furnished a copy of this opinion because it’s opinion rendered for the Asset Privatization Trust which is its client, not the PNCC, Mr. Chairman.

           

            THE CHAIRMAN.  All right.  The question is whether – but you see, this is a memorandum of Atty. Francisco to the Chairman of the Asset Privatization Trust.  You say now that you were never furnished a copy because that’s supposed to be with the Asset ... 

 

            MS. OGAN.  Yes, Mr. Chairman.

 

            THE CHAIRMAN. ... but yet the action of – or rather the opinion of the Feria Law Offices was in effect adopted by the board of directors of PNCC in its minutes of October 20, 2000 where you are the corporate secretary, Ms. Ogan.

 

            MS. OGAN.  Yes, Mr. Chairman.

 

            THE CHAIRMAN.  So, what I am saying is that this opinion or rather the opinion of the Feria Law Offices of which you don’t have a copy?

            MS. OGAN.  Yes, sir.

 

            THE CHAIRMAN.  And the reason being that, it does not concern the PNCC because that’s an opinion rendered for APT and not for the PNCC.

 

            MS. OGAN.  Yes, Mr. Chairman, that was what we were told although we made several requests to the APT, sir.

 

            THE CHAIRMAN.  All right.  Now, since it was for the APT and not for the PNCC, I ask the question why did PNCC adopt it?  That was not for the consumption of PNCC.  It was for the consumption of the Asset Privatization Trust.  And that is what Atty. Francisco says and it’s confirmed by you saying that this was a memo – you don’t have a copy because this was sought for by APT and the Feria Law Offices just provided an opinion – provided the APT with an opinion.  So, as corporate secretary, the board of directors of PNCC adopted it, recognized the Marubeni Corporation.

 

            You read the minutes of the October 20, 2000 meeting of the board of directors on Item V.  The resolution speaks of .. so, go ahead.

 

            MS. OGAN.  I gave my copies.  Yes, sir.

 

            THE CHAIRMAN.  In effect the Feria Law Offices’ opinion was for the consumption of the APT.

 

            MS. OGAN.  That was what we were told, Mr. Chairman.

 

            THE CHAIRMAN.  And you were not even provided with a copy.

 

            THE CHAIRMAN.  Yet you adopted it.

 

            MS. OGAN.  Yes, sir.

 

            SEN DRILON.  Considering you were the corporate secretary.

 

            THE CHAIRMAN.  She was the corporate secretary.

 

            SEN. DRILON.  She was just recording the minutes.

 

            THE CHAIRMAN.  Yes, she was recording.

 

            Now, we are asking you now why it was taken up?

 

            MS. OGAN.  Yes, sir, Mr. Chairman, this was mentioned in the memorandum of Atty. Francisco, memorandum to the board.

 

            SEN. DRILON.  Mr. Chairman, Mr. Francisco represented APT in the board of PNCC.  And is that correct, Mr. Francisco?

 

            THE CHAIRMAN.  You’re an ex-officio member.

 

            SEN. DRILON. Yes.

 

            MR. FRANCISCO.  Ex-officio member only, sir, as trustee in charge of the privatization of PNCC.

 

            SEN. DRILON.  With the permission of Mr. Chair, may I ask a question...

 

            THE CHAIRMAN.  Oh, yes, Senator Drilon.

 

            SEN. DRILON.  Atty. Francisco, you sat in the PNCC board as APT representative, you are a lawyer, there was a legal opinion of Feria, Feria, Lugto, Lao Law Offices which you cited in your memorandum.  Did you discuss – first, did you give a copy of this opinion to PNCC?

 

            MR. FRANCISCO.  I gave a copy of this opinion, sir, to our chairman who was also a member of the board of PNCC, Mr. Valdecantos, sir.

 

 

 

 

            SEN. DRILON.  And because he was...

 

            MR. FRANCISCO. Because he was my immediate boss in the APT.

 

            SEN. DRILON.  Apparently, [it] just ended up in the personal possession of Mr. Valdecantos because the corporate secretary, Glenda Ogan, who is supposed to be the custodian of the records of the board never saw a copy of this.

 

            MR. FRANCISCO.  Well, sir, my – the copy that I gave was to Mr. Valdecantos because he was the one sitting in the PNCC board, sir.

 

            SEN. DRILON.  No, you sit in the board.

 

            MR. FRANCISCO.  I was just an ex-officio member.  And all my reports were coursed through our Chairman, Mr. Valdecantos, sir.

 

            SEN. DRILON.  Now, did you ever tell the board that there is a legal position taken or at least from the documents it is possible that the claim has prescribed?

 

            MR. FRANCISCO.  I took this up in the board meeting of the PNCC at that time and I told them about this matter, sir.

 

            SEN. DRILON.  No, you told them that the claim could have, under the law, could have prescribed?

 

            MR. FRANCISCO.  No, sir.

 

            SEN. DRILON.  Why?  You mean, you didn’t tell the board that it is possible that this liability is no longer a valid liability because it has prescribed?

 

            MR. FRANCISCO.  I did not dwell into the findings anymore, sir, because I found the professional opinion of the Feria Law Office to be sufficient.[49]    (Emphasis supplied)

 

 

 

         Atty. Francisco’s act of recommending to the PNCC Board the acknowledgment of the Marubeni loans based only on an opinion of a private law firm, without consulting the OGCC and without showing this opinion to the members of the PNCC Board except to Atty. Valdecantos, reflects how shockingly little his concern was for PNCC, contrary to his claim that “he only had the interest of PNCC at heart.”  In fact, if what was involved was his own money, Atty. Francisco would have preferred not just two, but at least three different opinions on how to deal with the matter, and he would have maintained his non-liability.

 

           SEN. OSMEŃA.  x x x

 

All right.  And lastly, just to clear our minds, there has always been this finger-pointing, of course, whenever – this is typical Filipino.  When they're caught in a bind, they always point a finger, they pretend they don't know.  And it just amazes me that you have been appointed trustees, meaning, representatives of the Filipino people, that's what you were at APT, right?  You were not Erap's representatives, you were representative of the Filipino people and you were tasked to conserve the assets that that had been confiscated from various cronies of the previous administration.  And here, you are asked to recognize the P10 billion debt and you point only to one law firm.  If you have cancer, don't you to a second opinion, a second doctor or a third doctor?  This is just a question.  I am just asking you for your opinion if you would take the advice of the first doctor who tells you that he's got to open you up.

 

            MR. FRANCISCO.  I would go to three or more doctors, sir.

 

            SEN. OSMEŃA.  Three or more.  Yeah, that's right.  And in this case the APT  did not do so.

 

            MR. FRANCISCO.  We relied on the findings of the …

 

            SEN. OSMEŃA.  If these were your money, would you have gone also to obtain a second, third opinion from other law firms.  Kung pera mo itong 10 billion na ito. Siguro you're not gonna give it up that easily ano, 'di ba?

 

            MR. FRANCISCO.  Yes, sir.

 

 

            SEN. OSMEŃA.  You'll probably keep it in court for the next 20 years.

 

            x x x x[50]   (Emphasis supplied)

 

          

This is a clear admission by Atty. Francisco of bad faith in directing the affairs of PNCC -  that he would not have recognized the Marubeni loans if his own funds were involved or if he were the owner of PNCC. 

 

         The PNCC Board admitted liability for the P10.743 billion Marubeni loans without seeing, reading or discussing the “Feria opinion” which was the sole basis for its admission of liability.  Such act surely goes against ordinary human nature, and amounts to gross negligence and utter bad faith, even bordering on fraud, on the part of the PNCC Board in directing the affairs of the corporation.  Owing loyalty to PNCC and its stockholders, the PNCC Board should have exercised utmost care and diligence in admitting a gargantuan debt of P10.743 billion that would certainly force PNCC into insolvency, a debt that previous PNCC Boards in the last two decades consistently refused to admit. 

 

         Instead, the PNCC Board admitted PNCC’s liability for the Marubeni loans relying solely on a mere opinion of a private law office, which opinion the PNCC Board members never saw, except for Atty. Valdecantos and Atty. Francisco. The PNCC Board knew that PNCC, as a government owned and controlled corporation (GOCC), must rely “exclusively” on the opinion of the OGCC.  Section 1 of Memorandum Circular No. 9 dated 27 August 1998 issued by the President states:

 

SECTION 1.  All legal matters pertaining to government-owned or controlled corporations, their subsidiaries, other corporate off-springs and government acquired asset corporations (GOCCs) shall be exclusively referred to and handled by the Office of the Government Corporate Counsel (OGCC).  (Emphasis supplied)

 

 

The PNCC Board acted in bad faith in relying on the opinion of a private lawyer knowing that PNCC is required to rely “exclusively” on the OGCC’s opinion.  Worse, the PNCC Board, in admitting liability for P10.743 billion, relied on the recommendation of a private lawyer whose opinion the PNCC Board members have not even seen. 

 

 

         During the oral arguments, Atty. Sison explained to the Court that the intention of APT was for the PNCC Board merely to disclose the claim of Marubeni as part of APT's full disclosure policy to prospective buyers of PNCC.   Atty. Sison stated that it was not the intention of APT for the PNCC Board to admit liability for the Marubeni loans, thus:

 

         x x x It was the Asset Privatization Trust A-P-T that was tasked to sell the company.  The A-P-T, for purposes of disclosure statements, tasked the Feria Law Office to handle the documentation and the study of all legal issues that had to be resolved or clarified for the information of prospective bidders and or buyers.  In the performance of its assigned task the Feria Law Office came upon the Marubeni claim and mentioned that the APTC and/or PNCC must disclose that there is a claim by Marubeni against PNCC for purposes of satisfying the requirements of full disclosure.  This seemingly innocent statement or requirement made by the Feria Law Office was then taken by two officials of the Asset Privatization Trust and with malice aforethought turned it into the basis for a multi-billion peso debt by the now government owned and/or controlled PNCC. x x x.[51]   (Emphasis supplied)

 

 

         While the PNCC Board passed Board Resolution No. BD-099-2000 amending Board Resolution No. BD-092-2000, such amendment merely added conditions for the recognition of the Marubeni loans, namely, subjecting the recognition to a final determination by COA of the amount involved and to the declaration by OGCC of the legality of PNCC’s liability. However, the PNCC Board reiterated and stood firm that it “recognizes, acknowledges and confirms its obligations” for the Marubeni loans. Apparently, Board Resolution No. BD-099-2000 was a futile attempt to “revoke” Board Resolution No. BD-092-2000.  Atty. Alfredo Laya, Jr., a former PNCC Director, spoke on his protests against Board Resolution No. BD-092-2000 at the Senate hearings, thus:

 

           MR. LAYA.  Mr. Chairman, if I can …

 

            THE CHAIRMAN.  Were you also at the board?

 

            MR. LAYA.  At that time, yes, sir.

 

            THE CHAIRMAN.  Okay, go ahead.

 

            MR. LAYA.  That's why if – maybe this can help clarify the sequence.  There was this meeting on October 20.  This matter of the Marubeni liability or account was also discussed.  Mr. Macasaet, if I may try to refresh.  And there was some discussion, sir, and in fact, they were saying even at that stage that there should be a COA or an OGCC audit.  Now, that was during the discussion of October 20.  Later on, the minutes came out.  The practice, then, sir, was for the minutes to come out at the start of the meeting of the subsequent.  So the minutes of October 20 came out on November 22 and then we were going over it.  And that is in the subsequent minutes of the meeting …

 

            THE CHAIRMAN.  May I interrupt.  You were taking up in your November 22 meeting the October 20 minutes?

 

            MR. LAYA.  Yes, sir.

 

            THE CHAIRMAN.  This minutes that we have?

 

            MR. LAYA. Yes, sir.

 

            THE CHAIRMAN.  All right, go ahead.

 

            MR. LAYA.  Now, in the November 22 meeting, we noticed this resolution already for confirmation of the board – proceedings of October 20.  So immediately we made – actually, protest would be a better term for that – we protested the wording of the resolution and that's why we came up with this resolution amending the October 20 resolution.

 

            SEN. DRILON.  So you are saying, Mr. Laya, that the minutes of October 20 did not accurately reflect the decisions that you made on October 20 because you were saying that this recognition should be subject to OGCC and COA? You seem to imply and we want to make it – and I want to get that for the record.  You seem to imply that there was no decision to recognize the obligation during that meeting because you wanted it to subject it to COA and OGCC, is that correct?

 

            MR. LAYA.  Yes, your Honor.

 

            SEN. DRILON.  So how did...

 

            MR. LAYA.  That's my understanding of the proceedings at that time, that's why in the subsequent November 22 meeting, we raised this point about obtaining a COA and OGCC opinion.

 

 

 

            SEN. DRILON.  Yes.  But you know, the November 22 meeting repeated the wording of the resolution previously adopted only now you are saying subject to final determination which is completely of different import from what you are saying was your understanding of the decision arrived at on October 20.

 

            MR. LAYA.  Yes, sir.  Because our thinking then...

 

            SEN. DRILON.  What do you mean, yes, sir?

 

            MR. LAYA.  It's just a claim under discussion but then the way it is translated, as the minutes of October 20 were not really verbatim.

 

            SEN. DRILON.  So, you never intended to recognize the obligation.

 

 

            MR. LAYA.  I think so, sir.  That was our – personally, that was my position.

 

            SEN. DRILON.  How did it happen, Corporate Secretary Ogan, that the minutes did not reflect what the board …

 

            THE CHAIRMAN.  Ms. Pasetes …

 

            MS. PASETES.  Yes, Mr. Chairman.

 

            THE CHAIRMAN. … you are the chief financial officer of PNCC.

 

            MS. PASETES.  Your Honor, before that November 22 board meeting, management headed by Mr. Rolando Macasaet, myself and Atty. Ogan had a discussion about the recognition of the obligations of 10 billion of Marubeni and 36 billion of the national government on whether to recognize this as an obligation  in our books or recognize it as an obligation in the pro forma financial statement to be used for the privatization of PNCC because recognizing both obligations in the books of PNCC would defeat our going concern status and that is where the position of the president then, Mr. Macasaet, stemmed from and he went back to the board and moved to reconsider the position of October 20, 2000, Mr. Chair.[52]  (Emphasis supplied)

 

 

 

In other words, despite Atty. Laya’s objections to PNCC’s admitting liability for the Marubeni loans, the PNCC Board still admitted the same and merely imposed additional conditions to temper somehow the devastating effects of Board Resolution No. BD-092-2000.

 

         The act of the PNCC Board in issuing Board Resolution No. BD-092-2000 expressly admitting liability for the Marubeni loans demonstrates the PNCC Board’s gross and willful disregard of the requisite care and diligence in managing the affairs of PNCC, amounting to bad faith and resulting in grave and irreparable injury to PNCC and its stockholders. This reckless and treacherous move on the part of the PNCC Board clearly constitutes a serious breach of its fiduciary duty to PNCC and its stockholders, rendering the members of the PNCC Board liable under Section 31 of the Corporation Code, which provides:

 

SEC. 31.  Liability of directors, trustees or officers. -- Directors or trustees who willfully and knowingly vote for or assent to patently unlawful acts of the corporation or who are guilty of gross negligence or bad faith in directing the affairs of the corporation or acquire any personal or pecuniary interest in conflict with their duty as such directors or trustees shall be liable jointly and severally for all damages resulting therefrom suffered by the corporation, its stockholders or members and other persons.

 

            When a director, trustee or officer attempts to acquire or acquires, in violation of his duty, any interest adverse to the corporation in respect of any matter which has been reposed in him in confidence, as to which equity imposes a disability upon him to deal in his own behalf, he shall be liable as a trustee for the corporation and must account for the profits which otherwise would have accrued to the corporation.

 

 

         Soon after the short-lived Estrada Administration, the PNCC Board revoked its previous admission of liability for the Marubeni loans.  During the oral arguments, Atty. Sison narrated to the Court:

 

         x x x  After President Estrada was ousted, I was appointed as President and Chairman of PNCC in April of 2001, this particular board resolution  was brought to my attention  and I immediately put the matter before the board.   I had no problem in convincing  them to reverse the recognition as it was illegal and had no basis in fact.  The vote to overturn that resolution was unanimous. Strange to say that some who voted to overturn the recognition were part of the old board that approved it. Stranger still, Renato Valdecantos who was still a member of the Board voted in favor of reversing the resolution he himself instigated and pushed. Some of the board members who voted to recognize the obligation of Marubeni even came to me privately and said “pinilit lang kami.”        x x x.[53]  (Emphasis supplied)

 

         In approving PNCC Board Resolution Nos. BD-092-2000 and BD-099-2000, the PNCC Board caused undue injury to the Government and gave unwarranted benefits to Radstock, through manifest partiality, evident bad faith or gross inexcusable negligence of the PNCC Board.  Such acts are declared under Section 3(e) of RA 3019 or the Anti-Graft and Corrupt Practices Act, as “corrupt practices xxx and xxx unlawful.”   Being unlawful and criminal acts, these PNCC Board Resolutions are void ab initio and cannot be implemented or in any way given effect by the Executive or Judicial branch of the Government.

 

         Not content with forcing PNCC to commit corporate suicide with the admission of liability for the Marubeni loans under Board Resolution Nos. BD-092-2000 and BD-099-2000, the PNCC Board drove the last nail on PNCC’s coffin when the PNCC Board entered into the manifestly and grossly disadvantageous Compromise Agreement with Radstock.   This time, the OGCC, headed by Agnes DST Devanadera, reversed itself and recommended approval of the Compromise Agreement to the PNCC Board.  As Atty. Sison explained to the Court during the oral arguments:

 

 

         x x x While the case was pending in the Court of Appeals, Radstock in a rare display of extreme generosity, conveniently convinced the Board of PNCC to enter into a compromise agreement for ˝ the amount of the judgment rendered by the RTC or P6.5 Billion Pesos.  This time the OGCC, under the leadership of now Solicitor General Agnes Devanadera, approved the compromise agreement abandoning the previous OGCC position that PNCC had a meritorious case and would be hard press to lose the case.  What is strange is that although the compromise agreement we seek to stop ostensibly is for P6.5 Billion only, truth and in fact, the agreement agrees to convey to Radstock all or substantially all of the assets of PNCC worth P18 Billion Pesos.  There are three items that are undervalued here, the real estate that was turned over as a result of the controversial agreement, the toll revenues that were being assigned and the value of the new shares of PNCC the difference is about P12 Billion Pesos. x x x (Emphasis supplied)

 

V.

The Compromise Agreement is Void

for Being Contrary to the Constitution,

Existing Laws, and Public Policy

 

 

         For a better understanding of the present case, the pertinent terms and conditions of the Compromise Agreement between PNCC and Radstock are quoted below:

 

COMPROMISE AGREEMENT

 

KNOW ALL MEN BY THESE PRESENTS:

 

This Agreement made and entered into this 17th day of August 2006, in Mandaluyong City, Metro Manila, Philippines, by and between:

 

PHILIPPINE NATIONAL CONSTRUCTION CORPORATION, a government acquired asset corporation, created and existing under the laws of the Republic of the Philippines, with principal office address at EDSA corner Reliance Street, Mandaluyong City, Philippines, duly represented herein by its Chairman ARTHUR N. AGUILAR, pursuant to a Board Resolution attached herewith as Annex “A” and made an integral part hereof, hereinafter referred to as PNCC;

 

- and -

 

RADSTOCK SECURITIES LIMITED, a private corporation incorporated in the British Virgin Islands, with office address at Suite 1402 1 Duddell Street, Central Hongkong duly-represented herein by its Director, CARLOS G. DOMINGUEZ, pursuant to a Board Resolution attached herewith as Annex “B” and made an integral part hereof, hereinafter referred to as RADSTOCK.

 

WITNESSETH:

 

WHEREAS, on January 15, 2001, RADSTOCK, as assignee of Marubeni Corporation, filed a complaint for sum of money and damages with application for a writ of preliminary attachment with the Regional Trial Court (RTC), Mandaluyong City, docketed as Civil Case No. MC-01-1398, to collect on PNCC’s guarantees on the unpaid loan obligations of CDCP Mining Corporation as provided under an Advance Payment Agreement and Loan Agreement;

 

WHEREAS, on December 10, 2002, the RTC of Mandaluyong rendered a decision in favor of plaintiff RADSTOCK directing PNCC to pay the total amount of Thirteen Billion One Hundred Fifty One Million Nine Hundred Fifty-Six Thousand Five Hundred Twenty-Eight Pesos (P13,151,956,528.00) with interest from October 15, 2001 plus Ten Million Pesos (P10,000,000.00) as attorney's fees.

 

WHEREAS, PNCC had elevated the case to the Court of Appeals (CA-G.R. SP No. 66654) on Certiorari and thereafter, to the Supreme Court (G.R. No. 156887) which Courts have consistently ruled that the RTC did not commit grave abuse of discretion when it denied PNCC’s Motion to Dismiss which sets forth similar or substantially the same grounds or defenses as those raised in PNCC's Answer;

 

WHEREAS, the case has remained pending for almost six (6) years even after the main action was appealed to the Court of Appeals;

 

WHEREAS, on the basis of the RTC Decision dated December 10, 2002, the current value of the judgment debt against PNCC stands at P17,040,843,968.00 as of July 31, 2006 (the “Judgment Debt”);

 

WHEREAS, RADSTOCK is willing to settle the case at the reduced Compromise Amount of Six Billion One Hundred Ninety-Six Million Pesos (P6,196,000,000.00) which may be paid by PNCC, either in cash or in kind to avoid the trouble and inconvenience of further litigation as a gesture of goodwill and cooperation;

 

WHEREAS, it is an established legal policy or principle that litigants in civil cases should be encouraged to compromise or amicably settle their claims not only to avoid litigation but also to put an end to one already commenced (Articles 2028 and 2029, Civil Code);

 

WHEREAS, this Compromise Agreement has been approved by the respective Board of Directors of both PNCC and RADSTOCK, subject to the approval of the Honorable Court;

 

NOW, THEREFORE, for and in consideration of the foregoing premises, and the mutual covenants, stipulations and agreements herein contained, PNCC and RADSTOCK have agreed to amicably settle the above captioned Radstock case under the following terms and conditions:

 

1.         RADSTOCK agrees to receive and accept from PNCC in full and complete settlement of the Judgment Debt, the reduced amount of Six Billion, One Hundred Ninety-Six Million Pesos (P6,196,000,000.00) (the “Compromise Amount”).

 

2.  This Compromise Amount shall be paid by PNCC to RADSTOCK in the following manner:

 

a.  PNCC shall assign to a third party assignee to be designated by RADSTOCK all its rights and interests to the following real properties provided the assignee shall be duly qualified to own real properties in the Philippines;

(1)     PNCC’s rights over that parcel of land located in Pasay City with a total area of One Hundred Twenty-Nine Thousand Five Hundred Forty-Eight (129,548) square meters, more or less, and which is covered by and more particularly described in Transfer Certificate of Title No. T-34997 of the Registry of Deeds for Pasay City.  The transfer value is P3,817,779,000.00.

 

            PNCC’s rights and interests in Transfer Certificate of Title No. T-34997 of the Registry of Deeds for Pasay City is defined and delineated by Administrative Order No. 397, Series of 1998, and RADSTOCK is fully aware and recognizes that PNCC has an undertaking to cede at least 2 hectares of this property to its creditor, the Philippine National Bank; and that furthermore, the Government Service Insurance System has also a current and existing claim in the nature of boundary conflicts, which undertaking and claim will not result in the diminution of area or value of the property.  Radstock recognizes and acknowledges the rights and interests of GSIS over the said property.

 

(2)      T-452587 (T-23646) - Parańaque (5,123 sq. m.) subject to the clarification of the Privatization and Management Office (PMO) claims thereon. The transfer value is P45,000,900.00.

 

(3)      T-49499 (529715 including T-68146-G (S-29716) (1,9747-A)-Parańaque (107 sq. m.) (54 sq. m.) subject to the clarification of the Privatization and Management Office (PMO) claims thereon.  The transfer value is P1,409,100.00.

 

(4)      5-29716-Parańaque (27,762 sq. m.) subject to the clarification of the Privatization and Management Office (PMO) claims thereon.  The transfer value is P242,917,500.00.

 

(5)       P-169 - Tagaytay (49,107 sq. m.).  The transfer value is P13,749,400.00.

 

(6)       P-170 - Tagaytay (49,100 sq. m.).  The transfer value is P13,749,400.00.

 

(7)       N-3320 - Town and Country Estate, Antipolo (10,000 sq. m.).  The transfer value is P16,800,000.00.

 

(8)      N-7424 - Antipolo (840 sq. m.).  The transfer value is P940,800.00.

 

(9)      N-7425 - Antipolo (850 sq. m.).  The transfer value is P952,000.00.

 

(10)              N-7426 - Antipolo (958 sq. m.).  The transfer value is  P1,073,100.00.

 

(11)             T-485276 - Antipolo (741 sq. m.).  The transfer value is  P830,200.00.

 

(12)              T-485277 - Antipolo (680 sq. m.).  The transfer value is P761,600.00.

 

(13)              T-485278 - Antipolo (701 sq. m.).  The transfer value is P785,400.00.

 

(14)              T-131500 - Bulacan (CDCP Farms Corp.) (4,945 sq, m.).  The transfer value is P6,475,000.00.

 

(15)              T-131501 - Bulacan (678 sq. m.).  The transfer value is P887,600.00.

 

(16)              T-26,154 (M) - Bocaue, Bulacan (2,841 sq. m.).  The transfer value is P3,779,300.00.

 

(17)              T-29,308 (M) - Bocaue, Bulacan (733 sq. m.).  The transfer value is P974,400.00.

 

(18)             T-29,309 (M) Bocaue, Bulacan (1,141 sq. m.).  The transfer value is P1,517,600.00.

 

         (19)  T-260578 (R. Bengzon) Sta. Rita, Guiguinto, Bulacan (20,000 sq. m.). The transfer value is P25,200,000.00.

 

The transfer values of the foregoing properties are based on 70% of the appraised value of the respective properties.

 

b.        PNCC shall issue to RADSTOCK or its assignee common shares of the capital stock of PNCC issued at par value which shall comprise 20% of the outstanding capital stock of PNCC after the conversion to equity of the debt exposure of the Privatization Management Office (PMO) and the National Development Company (NDC) and other government agencies and creditors such that the total government holdings shall not fall below 70% voting equity subject to the approval of the Securities and Exchange Commission (SEC) and ratification of PNCC’s stockholders, if necessary. The assigned value of the shares issued to RADSTOCK is P713 Million based on the approximate last trading price of PNCC shares in the Philippine Stock Exchange as the date of this agreement, based further on current generally accepted accounting standards which stipulates the valuation of shares to be based on the lower of cost or market value.

 

 

 

 

 

Subject to the procurement of any and all necessary approvals from the relevant governmental authorities, PNCC shall deliver to RADSTOCK an instrument evidencing an undertaking of the Privatization and Management Office (PMO) to give RADSTOCK or its assignee the right to match any offer to buy the shares of the capital stock and debts of PNCC held by PMO, in the event the same shares and debt are offered for privatization.

 

c.       PNCC shall assign to RADSTOCK or its assignee 50% of the PNCC's 6% share in the gross toll revenue of the Manila North Tollways Corporation (MNTC), with a Net Present Value of P1.287 Billion computed in the manner outlined in Annex “C” herein attached as an integral part hereof, that shall be due and owing to PNCC pursuant to the Joint Venture Agreement between PNCC and First Philippine Infrastructure Development Corp. dated August 29, 1995 and other related existing agreements, commencing in 2008.  It shall be understood that as a result of this assignment, PNCC shall charge and withhold the amounts, if any, pertaining to taxes due on the amounts assigned.

 

 

 

            Under the Compromise Agreement, PNCC shall pay Radstock the reduced amount of P6,185,000,000.00 in full settlement of PNCC’s guarantee of CDCP Mining’s debt allegedly totaling P17,040,843,968.00 as of 31 July 2006.  To satisfy its reduced obligation, PNCC undertakes to         (1) “assign to a third party assignee to be designated by Radstock all its rights and interests” to the listed real properties therein; (2)  issue to Radstock or its assignee common shares of the capital stock of PNCC issued at par value which shall comprise 20% of the outstanding capital stock of PNCC; and (3) assign to Radstock or its assignee 50% of PNCC’s 6% share, for the next 27 years (2008-2035), in the gross toll revenues of the Manila North Tollways Corporation.

        

A.      The PNCC Board has no power to compromise

         the P6.185 billion amount.

 

 

         Does the PNCC Board have the power to compromise the P6.185 billion “reduced” amount?  The answer is in the negative.

 

         The Dissenting Opinion asserts that PNCC has the power, citing Section 36(2) of Presidential Decree No. 1445 (PD 1445), otherwise known as the Government Auditing Code of the Philippines, enacted in 1978.  Section 36 states:

               

SECTION 36.              Power to Compromise Claims. — (1) When the interest of the government so requires, the Commission may compromise or release in whole or in part, any claim or settled liability to any government agency not exceeding ten thousand pesos and with the written approval of the Prime Minister, it may likewise compromise or release any similar claim or liability not exceeding one hundred thousand pesos, the application for relief therefrom shall be submitted, through the Commission and the Prime Minister, with their recommendations, to the National Assembly. 

 

(2)   The respective governing bodies of government-owned or controlled corporations, and self-governing boards, commissions or agencies of the government shall have the exclusive power to compromise or release any similar claim or liability when expressly authorized by their charters and if in their judgment, the interest of their respective corporations or agencies so requires. When the charters do not so provide, the power to compromise shall be exercised by the Commission in accordance with the preceding paragraph. (Emphasis supplied) 

 

 

 

         The Dissenting Opinion asserts that since PNCC is incorporated under the Corporation Code, the PNCC Board has all the powers granted to the governing boards of corporations incorporated under the Corporation Code, which includes the power to compromise claims or liabilities.   

 

          Section 36 of PD 1445, enacted on 11 June 1978, has been superseded by a later law   --  Section 20(1), Chapter IV, Subtitle B, Title I, Book V of Executive Order No. 292 or the Administrative Code of 1987, which provides:

 

Section 20.  Power to Compromise Claims. - (1) When the interest of the Government so requires, the Commission may compromise or release in whole or in part, any settled claim or liability to any government agency not exceeding ten thousand pesos arising out of any matter or case before it or within its jurisdiction, and with the written approval of the President, it may likewise compromise or release any similar claim or liability not exceeding one hundred thousand pesos.  In case the claim or liability exceeds one hundred thousand pesos, the application for relief therefrom shall be submitted, through the Commission and the President, with their recommendations, to the Congress[.] x x x (Emphasis supplied)

 

 

 

         Under this provision,[54] the authority to compromise a settled claim or liability exceeding P100,000.00 involving a government agency, as in this case where the liability amounts to P6.185 billion, is vested not in COA but exclusively in Congress. Congress alone has the power to compromise the P6.185 billion purported liability of PNCC. Without congressional approval, the Compromise Agreement between PNCC and Radstock involving P6.185 billion is void for being contrary to Section 20(1), Chapter IV, Subtitle B, Title I, Book V of the Administrative Code of 1987.  

 

PNCC is a “government agency” because Section 2 on Introductory Provisions of the Revised Administrative Code of 1987 provides that –

 

Agency of the Government refers to any of the various units of the Government, including a department, bureau, office, instrumentality, or government-owned or controlled corporation, or a local government or a distinct unit therein.   (Boldfacing supplied)

 

Thus, Section 20(1), Chapter IV, Subtitle B, Title I, Book V of the Administrative Code of 1987 applies to PNCC, which indisputably is a government owned or controlled corporation.   

 

         In the same vein, the COA’s stamp of approval on the Compromise Agreement is void for violating Section 20(1), Chapter IV, Subtitle B, Title I, Book V of the Administrative Code of 1987. Clearly, the Dissenting Opinion’s reliance on the COA’s finding that the terms and conditions of the Compromise Agreement are “fair and above board” is patently erroneous.

 

         Citing Benedicto v. Board of Administrators of Television Stations RPN, BBC and IBC,[55] the Dissenting Opinion views that congressional approval is not required for the validity of the Compromise Agreement because the liability of PNCC is not yet “settled.”   

 

            In Benedicto, the PCGG filed in the Sandiganbayan a civil case to recover from the defendants (including Roberto S. Benedicto) their ill-gotten wealth consisting of funds and other properties. The PCGG executed a compromise agreement with Roberto S. Benedicto ceding to the latter a substantial part of his ill-gotten assets and the State granting him immunity from further prosecution.  The Court held that prior congressional approval is not required for the PCGG to enter into a compromise agreement with persons against whom it has filed actions for recovery of ill-gotten wealth. 

        

         In Benedicto, the Court found that the government’s claim against Benedicto was not yet settled unlike here where the PNCC Board expressly admitted the liability of PNCC for the Marubeni loans.  In Benedicto, the ownership of the alleged ill-gotten assets was still being litigated in the Sandiganbayan and no party ever admitted any liability, unlike here where the PNCC Board had already admitted through a formal Board Resolution PNCC’s liability for the Marubeni loans. PNCC’s express admission of liability for the Marubeni loans is essentially the premise of the execution of the Compromise Agreement. In short, Radstock’s claim against PNCC is settled by virtue of PNCC’s express admission of liability for the Marubeni loans. The Compromise Agreement merely reduced this settled liability from P17 billion to P6.185 billion.

 

         The provision of the Revised Administrative Code on the power to settle claims or liabilities was precisely enacted to prevent government agencies from admitting liabilities against the government, then compromising such “settled” liabilities.  The present case is exactly what the law seeks to prevent, a compromise agreement on a creditor’s claim settled through admission by a government agency without the approval of Congress for amounts exceeding P100,000.00.  What makes the application of the law even more necessary is that the PNCC Board’s twin moves are manifestly and grossly disadvantageous to the Government.  First, the PNCC admitted solidary liability for a staggering P10.743 billion private debt incurred by a private corporation which PNCC does not even control. Second, the PNCC Board agreed to pay Radstock P6.185 billion as a compromise settlement ahead of all other creditors, including the Government which is the biggest creditor.

 

         The Dissenting Opinion  further argues that since the PNCC is incorporated under the Corporation Code, it has the power, through its Board of Directors, to compromise just like any other private corporation organized under the Corporation Code.  Thus, the Dissenting Opinion states:

 

Not being a government corporation created by special law, PNCC does not owe its creation to some charter or special law, but to the Corporation Code.   Its powers are enumerated in the Corporation Code and its articles of incorporation.  As an autonomous entity, it undoubtedly has the power to compromise, and to enter into a settlement through its Board of Directors, just like any other private corporation organized under the Corporation Code. To maintain otherwise is to ignore the character of PNCC as a corporate entity organized under the Corporation Code, by which it was vested with a personality and identity distinct and separate from those of its stockholders or members.  (Boldfacing and underlining supplied)

 

 

         The Dissenting Opinion is woefully wide off the mark.  The PNCC is not “just like any other private corporation” precisely because it is not a private corporation but indisputably a government owned corporation.  Neither is PNCC “an autonomous entity” considering that PNCC is under the Department of Trade and Industry, over which the President exercises control.  To claim that PNCC is an “autonomous entity” is to say that it is a lost command in the Executive branch, a concept that violates the President's constitutional power of control over the entire Executive branch of government.[56]

 

         The government nominees in the PNCC Board, who practically compose the entire PNCC Board, are public officers subject to the Anti-Graft and Corrupt Practices Act, accountable to the Government and the Filipino people.  To hold that a corporation incorporated under the Corporation Code, despite its being 90.3% owned by the Government, is “an autonomous entity” that could solely through its Board of Directors compromise, and transfer ownership of, substantially all its assets to a private third party without the approval required under the Administrative Code of 1987,[57] is to invite the plunder of all such government owned corporations.  

 

                The Dissenting Opinion’s claim that PNCC is an autonomous entity just like any other private corporation is inconsistent with its assertion that Section 36(2) of the Government Auditing Code is the governing law in determining PNCC's power to compromise.  Section 36(2) of the Government Auditing Code expressly states that it applies to the governing bodies of “government-owned or controlled corporations.” The phrase “government-owned or controlled corporations” refers to both those created by special charter as well as those incorporated under the Corporation Code.   Section 2, Article IX-D of the Constitution provides:

 

 SECTION 2. (1) The Commission on Audit shall have the power, authority, and duty to examine, audit, and settle all accounts pertaining to the revenue and receipts of, and expenditures or uses of funds and property, owned or held in trust by, or pertaining to, the Government, or any of its subdivisions, agencies, or instrumentalities, including government-owned or controlled corporations with original charters, and on a post-audit basis: (a) constitutional bodies, commissions and offices that have been granted fiscal autonomy under this Constitution; (b) autonomous state colleges and universities; (c) other government-owned or controlled corporations and their subsidiaries; and (d) such non-governmental entities receiving subsidy or equity, directly or indirectly, from or through the Government, which are required by law or the granting institution to submit to such audit as a condition of subsidy or equity. However, where the internal control system of the audited agencies is inadequate, the Commission may adopt such measures, including temporary or special pre-audit, as are necessary and appropriate to correct the deficiencies. It shall keep the general accounts of the Government and, for such period as may be provided by law, preserve the vouchers and other supporting papers pertaining thereto.

 

 (2)      The Commission shall have exclusive authority, subject to the limitations in this Article, to define the scope of its audit and examination, establish the techniques and methods required therefor, and promulgate accounting and auditing rules and regulations, including those for the prevention and disallowance of irregular, unnecessary, excessive, extravagant, or unconscionable expenditures, or uses of government funds and properties.   (Emphasis supplied)

 

 

In explaining the extent of the jurisdiction of COA over government owned or controlled corporations, this Court declared in Feliciano v. Commission on Audit:[58] 

 

             The COA's audit jurisdiction extends not only to government "agencies or instrumentalities," but also to "government-owned and controlled corporations with original charters" as well as "other government-owned or controlled corporations" without original charters.

 

 x x x x

 

      Petitioner forgets that the constitutional criterion on the exercise of COA's audit jurisdiction depends on the government's ownership or control of a corporation. The nature of the corporation, whether it is private, quasi-public, or public is immaterial.

 

            The Constitution vests in the COA audit jurisdiction over "government-owned and controlled corporations with original charters," as well as "government-owned or controlled corporations" without original charters. GOCCs with original charters are subject to COA pre-audit, while GOCCs without original charters are subject to COA post-audit. GOCCs without original charters refer to corporations created under the Corporation Code but are owned or controlled by the government. The nature or purpose of the corporation is not material in determining COA's audit jurisdiction. Neither is the manner of creation of a corporation, whether under a general or special law.

 

         Clearly, the COA’s audit jurisdiction extends to government owned or controlled corporations incorporated under the Corporation Code.  Thus, the COA must apply the Government Auditing Code in the audit and examination of the accounts of such government owned or controlled corporations even though incorporated under the Corporation Code.   This means that Section 20(1), Chapter IV, Subtitle B, Title I, Book V of the Administrative Code of 1987 on the power to compromise, which superseded Section 36 of the Government Auditing Code, applies to the present case in determining PNCC’s power to compromise.   In fact, the COA has been regularly auditing PNCC on a post-audit basis in accordance with Section 2, Article IX-D of the Constitution, the Government Auditing Code, and COA rules and regulations.

 

B.      PNCC’s toll fees are public funds.

 

         PD 1113 granted PNCC a 30-year franchise to construct, operate and maintain toll facilities in the North and South Luzon Expressways.  Section 1 of PD 1113[59] provides:

 

Section 1. Any provision of law to the contrary notwithstanding, there is hereby granted to the Construction and Development Corporation of the Philippines (CDCP), a corporation duly organized and registered under the laws of the Philippines, hereinafter called the GRANTEE, for a period of thirty (30) years from May 1, 1977 the right, privilege and authority to construct, operate and maintain toll facilities covering the expressways from Balintawak (Station 9 + 563) to Carmen, Rosales, Pangasinan and from Nichols, Pasay City (Station 10 + 540) to Lucena, Quezon, hereinafter referred to collectively as North Luzon Expressway, respectively.

 

The franchise herein granted shall include the right to collect toll fees at such rates as may be fixed and/or authorized by the Toll Regulatory Board hereinafter referred to as the Board created under Presidential Decree No. 1112 for the use of the expressways above-mentioned.  (Emphasis supplied)

         Section 2 of PD 1894,[60] which amended PD 1113 to include in PNCC’s franchise the Metro Manila expressway, also provides:

 

Section 2. The term of the franchise provided under Presidential Decree No. 1113 for the North Luzon Expressway and the South Luzon Expressway which is thirty (30) years from 1 May 1977 shall remain the same; provided that, the franchise granted for the Metro Manila Expressway and all extensions linkages, stretches and diversions that may be constructed after the date of approval of this decree shall likewise have a term of thirty (30) years commencing from the date of completion of the project.  (Emphasis supplied)

 

 

Based on these provisions, the franchise of the PNCC expired on 1 May 2007 or thirty years from 1 May 1977. 

 

         PNCC, however, claims that under PD 1894, the North Luzon Expressway (NLEX) shall have a term of 30 years from the date of its completion in 2005. PNCC argues that the proviso in Section 2 of PD 1894 gave “toll road projects completed within the franchise period and after the approval of PD No. 1894 on 12 December 1983 their own thirty-year term commencing from the date of the completion of the said project, notwithstanding the expiry of the said franchise.”

 

         This contention is untenable.

 

            The proviso in Section 2 of PD 1894 refers to the franchise granted for the Metro Manila Expressway and all extensions linkages, stretches and diversions constructed after the approval of PD 1894.  It does not pertain to the NLEX because the term of the NLEX franchise, “which is 30 years from 1 May 1977, shall remain the same,” as expressly provided in the first sentence of the same Section 2 of PD 1894.  To construe that the NLEX franchise had a new term of 30 years starting from 2005 glaringly conflicts with the plain, clear and unequivocal language of the first sentence of Section 2 of PD 1894.  That would be clearly absurd.

 

         There is no dispute that Congress did not renew PNCC’s franchise after its expiry on 1 May 2007.  However, PNCC asserts that it “remains a viable corporate entity even after the expiration of its franchise under Presidential Decree No. 1113.”  PNCC points out that the Toll Regulatory Board (TRB) granted PNCC a “Tollway Operation Certificate” (TOC) which conferred on PNCC the authority to operate and maintain toll facilities, which includes the power to collect toll fees.  PNCC further posits that the toll fees are private funds because they represent “the consideration given to tollway operators in exchange for costs they incurred or will incur in constructing, operating and maintaining the tollways.”

 

         This contention is devoid of merit.

 

         With the expiration of PNCC’s franchise, the assets and facilities of PNCC were automatically turned over, by operation of law, to the government at no cost.   Sections 2(e) and 9 of PD 1113 and Section 5 of PD 1894 provide: 

 

               

Section 2 [of PD 1113]. In consideration of this franchise, the GRANTEE shall:

 

(e) Turn over the toll facilities and all equipment directly related thereto to the government upon expiration of the franchise period without cost.

 

Section 9 [of PD 1113]. For the purposes of this franchise, the Government, shall turn over to the GRANTEE (PNCC) not later than April 30, 1977 all physical assets and facilities including all equipment and appurtenances directly related to the operations of the North and South Toll Expressways: Provided, That, the extensions of such Expressways shall also be turned over to GRANTEE upon completion of their construction or of functional sections thereof: Provided, However, That upon termination of the franchise period, said physical assets and facilities including improvements thereon, together with equipment and appurtenances directly related to their operations, shall be turned over to the Government without any cost or obligation on the part of the latter.  (Emphasis supplied)

 

Section 5 [of PD No. 1894]. In consideration of this franchise, the GRANTEE shall:


(a) Construct, operate and maintain at its own expense the Expressways; and


(b) Turn over, without cost, the toll facilities and all equipment, directly related thereto to the Government upon expiration of the franchise period. (Emphasis supplied)

 

 

 

         The TRB does not have the power to give back to PNCC the toll assets and facilities which were automatically turned over to the Government, by operation of law, upon the expiration of the franchise of the PNCC on 1 May 2007.  Whatever power the TRB may have to grant authority to operate a toll facility or to issue a “Tollway Operation Certificate,” such power does not obviously include the authority to transfer back to PNCC ownership of National Government assets, like the toll assets and facilities, which have become National Government property upon the expiry of PNCC’s franchise.  Such act by the TRB would repeal Section 5 of PD 1894 which automatically vested in the National Government ownership of PNCC’s toll assets and facilities upon the expiry of PNCC’s franchise.  The TRB obviously has no power to repeal a law.  Further, PD 1113, as amended by PD 1894, granting the franchise to PNCC, is a later law that must necessarily prevail over PD 1112 creating the TRB.  Hence, the provisions of PD 1113, as amended by PD 1894, are controlling.

 

         The government’s ownership of PNCC's toll assets and facilities inevitably results in the government’s ownership of the toll fees and the net income derived from these toll assets and facilities.  Thus, the toll fees form part of the National Government’s General Fund, which includes public moneys of every sort and other resources pertaining to any agency of the government.[61] Even Radstock’s counsel admits that the toll fees are public funds, to wit:

 

 

         ASSOCIATE JUSTICE CARPIO:

           Okay.  Now, when the franchise of PNCC expired on May 7, 2007, under the terms of the franchise under PD 1896, all the assets, toll way assets, equipment, etcetera of PNCC became owned by government at no cost, correct, under the franchise?

 

DEAN AGABIN:

            Yes, Your Honor.

 

ASSOCIATE JUSTICE CARPIO:

            Okay.  So this is now owned by the national government. [A]ny income from these assets of the national government is national government income, correct?

 

DEAN AGABIN:

            Yes, Your Honor.[62] 

 

x x x x

 

ASSOCIATE JUSTICE CARPIO:

            x x x My question is very simple   x x x Is the income from these assets of the national government (interrupted)

 

DEAN AGABIN:

            Yes, Your Honor.[63] 

 

x x x x

 

ASSOCIATE JUSTICE CARPIO:

            So, it’s the government [that] decides whether it goes to the general fund or another fund.  [W]hat is that other fund?  Is there another fund where revenues of the government go?

 

DEAN AGABIN:

            It’s the same fund, Your Honor, except that (interrupted)

 

ASSOCIATE JUSTICE CARPIO:

            So it goes to the general fund?

 

DEAN AGABIN:

            Except that it can be categorized as a private fund in a commercial sense, and it can be categorized as a public fund in a Public Law sense.

 

 

ASSOCIATE JUSTICE CARPIO:

            Okay.  So we agree that, okay, it goes to the general fund.  I agree with you, but you are saying it is categorized still as a private funds?

 

DEAN AGABIN:

            Yes, Your Honor.

 

ASSOCIATE JUSTICE CARPIO:

            But it’s part of the general fund.  Now, if it is part of the general fund, who has the authority to spend that money?

 

DEAN AGABIN:

            Well, the National Government itself.

 

ASSOCIATE JUSTICE CARPIO:

            Who in the National Government, the Executive, Judiciary or Legislative?

 

DEAN AGABIN:

            Well, the funds are usually appropriated by the Congress.

 

ASSOCIATE JUSTICE CARPIO:

            x x x you mean to say there are exceptions that money from the general fund can be spent by the Executive without going t[hrough] Congress, or xxx is [that] the absolute rule?

 

DEAN AGABIN:

            Well, in so far as the general fund is concerned, that is the absolute rule set aside by the National Government.

 

ASSOCIATE JUSTICE CARPIO:

            x x x you are saying this is general fund money  -  the collection from the assets[?]

 

DEAN AGABIN:

            Yes.[64] (Emphasis supplied)

 

         Forming part of the General Fund, the toll fees can only be disposed of in accordance with the fundamental principles governing financial transactions and operations of any government agency, to wit: (1) no money shall be paid out of the Treasury except in pursuance of an appropriation made by law, as expressly mandated by Section 29(1), Article VI of the Constitution; and (2)  government funds or property shall be spent or used solely for public purposes, as expressly mandated by Section 4(2) of PD 1445 or the Government Auditing Code.[65] 

 

         Section 29(1), Article VI of the Constitution provides:

 

           Section 29(1).  No money shall be paid out of the Treasury except in pursuance of an appropriation made by law.    

 

The power to appropriate money from the General Funds of the Government belongs exclusively to the Legislature.  Any act in violation of this iron-clad rule is unconstitutional. 

 

         Reinforcing this Constitutional mandate, Sections 84 and 85 of PD 1445 require that before a government agency can enter into a contract involving the expenditure of government funds, there must be an appropriation law for such expenditure, thus:

 

Section 84. Disbursement of government funds.

 

1.   Revenue funds shall not be paid out of any public treasury or depository except in pursuance of an appropriation law or other specific statutory authority.

x x x x

 

 

Section 85. Appropriation before entering into contract.

 

1.  No contract involving the expenditure of public funds shall be entered into unless there is an appropriation therefor, the unexpended balance of which, free of other obligations, is sufficient to cover the proposed expenditure.

 

x x x x

   

         Section 86 of PD 1445, on the other hand, requires that the proper accounting official must certify that funds have been appropriated for the purpose.[66]  Section 87 of PD 1445 provides that any contract entered into contrary to the requirements of Sections 85 and 86 shall be void, thus:

 

Section 87. Void contract and liability of officer. Any contract entered into contrary to the requirements of the two immediately preceding sections shall be void, and the officer or officers entering into the contract shall be liable to the government or other contracting party for any consequent damage to the same extent as if the transaction had been wholly between private parties.  (Emphasis supplied)

 

 

         Applying Section 29(1), Article VI of the Constitution, as implanted in Sections 84 and 85 of the Government Auditing Code, a law must first be enacted by Congress appropriating P6.185 billion as compromise money before payment to Radstock can be made.[67] Otherwise, such payment violates a prohibitory law and thus void under Article 5 of the Civil Code which states that “[a]cts executed against the provisions of mandatory or prohibitory laws shall be void, except when the law itself authorizes their validity.” 

 

         Indisputably, without an appropriation law, PNCC cannot lawfully pay P6.185 billion to Radstock.  Any contract allowing such payment, like the Compromise Agreement, “shall be void” as provided in Section 87 of the Government Auditing Code.  In Comelec v. Quijano-Padilla,[68] this Court ruled:

 

            Petitioners are justified in refusing to formalize the contract with PHOTOKINA. Prudence dictated them not to enter into a contract not backed up by sufficient appropriation and available funds. Definitely, to act otherwise would be a futile exercise for the contract would inevitably suffer the vice of nullity. In Osmeńa vs. Commission on Audit, this Court held:

 

The Auditing Code of the Philippines (P.D. 1445) further provides that no contract involving the expenditure of public funds shall be entered into unless there is an appropriation therefor and the proper accounting official of the agency concerned shall have certified to the officer entering into the obligation that funds have been duly appropriated for the purpose and the amount necessary to cover the proposed contract for the current fiscal year is available for expenditure on account thereof. Any contract entered into contrary to the foregoing requirements shall be VOID.  

 

Clearly then, the contract entered into by the former Mayor Duterte was void from the very beginning since the agreed cost for the project (P,368,920.00) was way beyond the appropriated amount (P,419,180.00) as certified by the City Treasurer. Hence, the contract was properly declared void and unenforceable in COA's 2nd Indorsement, dated September 4, 1986. The COA declared and we agree, that:

 

The prohibition contained in Sec. 85 of PD 1445 (Government Auditing Code) is explicit and mandatory. Fund availability is, as it has always been, an indispensable prerequisite to the execution of any government contract involving the expenditure of public funds by all government agencies at all levels. Such contracts are not to be considered as final or binding unless such a certification as to funds availability is issued (Letter of Instruction No. 767, s. 1978). Antecedent of advance appropriation is thus essential to government liability on contracts (Zobel vs. City of Manila, 47 Phil. 169). This contract being violative of the legal requirements aforequoted, the same contravenes Sec. 85 of PD 1445 and is null and void by virtue of Sec. 87. 

 

Verily, the contract, as expressly declared by law, is inexistent and void ab initio. This is to say that the proposed contract is without force and effect from the very beginning or from its incipiency, as if it had never been entered into, and hence, cannot be validated either by lapse of time or ratification. (Emphasis supplied)

 

 

           Significantly, Radstock’s counsel admits that an appropriation law is needed before PNCC can use toll fees to pay Radstock, thus:

 

ASSOCIATE JUSTICE CARPIO:

            Okay, I agree with you.  Now, you are saying that money can be paid out of the general fund only through an appropriation by Congress, correct?   That’s what you are saying.

 

DEAN AGABIN:

            Yes, Your Honor.

 

ASSOCIATE JUSTICE CARPIO:

            I agree with you also.  Okay, now, can PNCC xxx use this money to pay Radstock without Congressional approval?

 

DEAN AGABIN:

            Well, I believe that that may not be necessary. Your Honor, because earlier, the government had already decreed that PNCC should be properly paid for the reclamation works which it had done.  And so (interrupted)

 

ASSOCIATE JUSTICE CARPIO:

            No. I am talking of the funds.

 

DEAN AGABIN:

            And so it is like a foreign obligation.

 

ASSOCIATE JUSTICE CARPIO:

            Counsel, I'm talking of the general funds, collection from the toll fees.  Okay.  You said, they go to the general fund.  You also said, money from the general fund can be spent only if there is an appropriation law by Congress.

 

DEAN AGABIN:

            Yes, Your Honor.

            There is no law.

 

DEAN AGABIN:

            Yes, except that, Your Honor, this fund has not yet gone to the general fund.

 

ASSOCIATE JUSTICE CARPIO:

            No.  It’s being collected everyday.  As of May 7, 2007, national government owned those assets already.  All those x x x collections that would have gone to PNCC are now national government owned.  It goes to the general fund.  And any body who uses that without appropriation from Congress commits malversation, I tell you.

 

DEAN AGABIN:

            That is correct, Your Honor, as long as it has already gone into the general fund.

 

ASSOCIATE JUSTICE CARPIO:

            Oh, you mean to say that it’s still being held now by the agent, PNCC.  It has not been remitted to the National Government?

 

DEAN AGABIN:

            Well, if PNCC (interrupted)

 

ASSOCIATE JUSTICE CARPIO:

            But if (interrupted)

 

DEAN AGABIN:

            If this is the share that properly belongs to PNCC as a private entity (interrupted)

 

ASSOCIATE JUSTICE CARPIO:

            No, no.  I am saying that – You just agreed that all those collections now will go to the National Government forming part of the general fund.  If, somehow, PNCC is holding this money in the meantime, it holds xxx it in trust, correct?  Because you said, it goes to the general fund, National Government.  So it must be holding this in trust for the National Government.

 

DEAN AGABIN:

            Yes, Your Honor.

 

ASSOCIATE JUSTICE CARPIO:

            Okay.  Can the person holding in trust use it to pay his private debt?

 

 

 

DEAN AGABIN:

            No, Your Honor.

 

ASSOCIATE JUSTICE CARPIO:

            Cannot be.

 

DEAN AGABIN:

            But I assume that there must be some portion of the collections which properly pertain to PNCC.

 

ASSOCIATE JUSTICE CARPIO:

            If there is some portion that xxx  may be [for] operating expenses of PNCC.  But that is not

 

DEAN AGABIN:

            Even profit, Your Honor.

 

ASSOCIATE JUSTICE CARPIO:

            Yeah, but that is not the six percent.  Out of the six percent, that goes now to PNCC, that’s entirely national government.  But the National Government and the PNCC can agree on service fees for collecting, to pay toll collectors.

 

DEAN AGABIN:

            Yes, Your Honor.

 

ASSOCIATE JUSTICE CARPIO:

            But those are expenses.  We are talking of the net income.  It goes to the general fund.  And it’s only Congress that can authorize that expenditure.  Not even the Court of Appeals can give its stamp of approval that it goes to Radstock, correct?

 

DEAN AGABIN:

            Yes, Your Honor.[69] (Emphasis supplied)

 

 

 

                   Without an appropriation law, the use of the toll fees to pay Radstock would constitute malversation of public funds.  Even counsel for Radstock expressly admits that the use of the toll fees to pay Radstock constitutes malversation of public funds, thus:

 

ASSOCIATE JUSTICE CARPIO:

            x x x As of May 7, 2007, [the] national government owned those assets already.  All those x x x collections that would have gone to PNCC are now national government owned.  It goes to the general fund.  And any body who uses that without appropriation from Congress commits malversation, I tell you.

DEAN AGABIN:

            That is correct, Your Honor, as long as it has already gone into the general fund.

 

ASSOCIATE JUSTICE CARPIO:

            Oh, you mean to say that it’s still being held now by the agent, PNCC.  It has not been remitted to the National Government?

 

DEAN AGABIN:

            Well, if PNCC (interrupted)

 

ASSOCIATE JUSTICE CARPIO:

            But if (interrupted)

 

DEAN AGABIN:

            If this is the share that properly belongs to PNCC as a private entity (interrupted)

 

ASSOCIATE JUSTICE CARPIO:

            No, no.  I am saying that – You just agreed that all those collections now will go to the National Government forming part of the general fund.  If, somehow, PNCC is holding this money in the meantime, it holds x x x it in trust, correct?  Because you said, it goes to the general fund, National Government.  So it must be holding this in trust for the National Government.

 

DEAN AGABIN:

            Yes, Your Honor.[70]  (Emphasis supplied)

 

 

 

         Indisputably, funds held in trust by PNCC for the National Government cannot be used by PNCC to pay a private debt of CDCP Mining to Radstock, otherwise the PNCC Board will be liable for malversation of public funds.

 

         In addition, to pay Radstock P6.185 billion violates the fundamental public policy, expressly articulated in Section 4(2) of the Government Auditing Code,[71] that government funds or property shall be spent or used solely for pubic purposes, thus:

 

Section 4. Fundamental Principles. x x x (2) Government funds or property shall be spent or used solely for public purposes. (Emphasis supplied)

 

There is no question that the subject of the Compromise Agreement is CDCP Mining’s private debt to Marubeni, which Marubeni subsequently assigned to Radstock.  Counsel for Radstock admits that Radstock holds a private debt of CDCP Mining, thus:

 

            ASSOCIATE JUSTICE CARPIO:

                        So your client is holding a private debt of CDCP Mining, correct?

 

DEAN AGABIN:

            Correct, Your Honor.[72] (Emphasis supplied)

 

         CDCP Mining obtained the Marubeni loans when CDCP Mining and PNCC (then CDCP) were still privately owned and managed corporations. The Government became the majority stockholder of PNCC only because government financial institutions converted their loans to PNCC into equity when PNCC failed to pay the loans.  However, CDCP Mining have always remained a majority privately owned corporation with PNCC owning only 13% of its equity as admitted by former PNCC Chairman Arthur N. Aguilar and PNCC SVP Finance Miriam M. Pasetes during the Senate hearings, thus:

 

                   SEN. OSMEŃA.  x x x – I just wanted to know is CDCP Mining a 100 percent subsidiary of PNCC?

           

                        MR. AGUILAR.  Hindi ho.  Ah, no.

 

                        SEN. OSMEŃA.  If they’re not a 100 percent, why would they sign jointly and severally?  I just want to plug the loopholes.

 

                        MR. AGUILAR.  I think it was – if I may just speculate.  It was just common ownership at that time.

 

                        SEN. OSMEŃA.  Al right.  Now – Also, the ...

 

                        MR. AGUILAR.  Ah, 13 percent daw, your Honor.

 

                        SEN. OSMEŃA.  Huh?

 

                        MR. AGUILAR.  Thirteen percent ho.

 

                        SEN. OSMEŃA.  What’s 13 percent?

 

                        MR. AGUILAR.  We owned ...

 

                        MS. PASETES.  Thirteen percent of ...

 

                        SEN. OSMEŃA.  PNCC owned ...

 

                        MS. PASETES.  (Mike off) CDCP ...

 

                        SEN. DRILON.  Use the microphone, please.

 

                        MS. PASETES.  Sorry.  Your Honor, the ownership of CDCP of CDCP Basay Mining ...

 

                        SEN. OSMEŃA.  No, no, the ownership of CDCP.  CDCP Mining, how many percent of the equity of CDCP Mining was owned by PNCC, formerly CDCP?

 

                        MS. PASETES.  Thirteen percent.

 

                        SEN. OSMEŃA.  Thirteen.  And as a 13 percent owner, they agreed to sign jointly and severally?

 

                        MS. PASETES.  Yes.

 

                        SEN. OSMEŃA.  One-three?

 

                        So poor PNCC and CDCP got taken to the cleaners here.  They sign for a 100 percent and they only own 13 percent.

 

                        x x x x[73] (Emphasis supplied)

 

 

 

PNCC cannot use public funds, like toll fees that indisputably form part of the General Fund, to pay a private debt of CDCP Mining to Radstock.  Such payment cannot qualify as expenditure for a public purpose.  The toll fees are merely held in trust by PNCC for the National Government, which is the owner of the toll fees.

 

         Considering that there is no appropriation law passed by Congress for the P6.185 billion compromise amount, the Compromise Agreement is void for being contrary to law, specifically Section 29(1), Article VI of the Constitution and Section 87 of PD 1445.  And since the payment of the P6.185 billion pertains to CDCP Mining’s private debt to Radstock, the Compromise Agreement is also void for being contrary to the fundamental public policy that government funds or property shall be spent or used solely for public purposes, as provided in Section 4(2) of the Government Auditing Code.         

 

 

C.      Radstock is not qualified to own land in the Philippines.

 

         Radstock is a private corporation incorporated in the British Virgin Islands. Its office address is at Suite 14021 Duddell Street, Central Hongkong.  As a foreign corporation, with unknown owners whose nationalities are also unknown, Radstock is not qualified to own land in the Philippines pursuant to Section 7, in relation to Section 3, Article XII of the Constitution.  These provisions state:

 

         Section. 3.  Lands of the public domain are classified into agricultural, forest or timber, mineral lands, and national parks. Agricultural lands of the public domain may be further classified by law according to the uses to which they may be devoted.  Alienable lands of the public domain shall be limited to agricultural lands.  Private corporations or associations may not hold such lands of the public domain except by lease, for a period not exceeding twenty-five years, renewable for not more   than twenty-five years, and not to exceed one hundred thousand hectares in area.  Citizens of the Philippines may lease not more than five hundred hectares, or acquire not more than twelve hectares thereof by purchase, homestead, or grant.

 

            Taking into account the requirements of conservation, ecology, and development, and subject to the requirements of agrarian reform, the Congress shall determine, by law, the size of lands of the public domain which may be acquired, developed, held, or leased and the conditions therefor.   

 

            x x x x

 

            Section 7.  Save in cases of hereditary succession, no private lands shall be transferred or conveyed except to individuals, corporations, or associations qualified to acquire or hold lands of the public domain.

 

 

         The OGCC admits that Radstock cannot own lands in the Philippines.  However, the OGCC claims that Radstock can own the rights to ownership of lands in the Philippines, thus:

 

ASSOCIATE JUSTICE CARPIO:

            Under the law, a foreigner cannot own land, correct?

 

ATTY. AGRA:

            Yes, Your Honor.

 

ASSOCIATE JUSTICE CARPIO:

            Can a foreigner who xxx cannot own land assign the right of ownership to the land?

 

ATTY. AGRA:

            Again, Your Honor, at that particular time, it will be PNCC, not through Radstock, that chain of events should be, there’s a qualified nominee (interrupted)

 

ASSOCIATE JUSTICE CARPIO:

            Yes, xxx you said, Radstock will assign the right of ownership to the qualified assignee[.]  So my question is, can a foreigner own the right to ownership of a land when it cannot own the land itself?

 

ATTY. AGRA:

            The foreigner cannot own the land, Your Honor.

 

ASSOCIATE JUSTICE CARPIO:

            But you are saying it can own the right of ownership to the land, because you are saying, the right of ownership will be assigned by Radstock.

 

ATTY. AGRA:

            The rights over the properties, Your Honors, if there’s a valid assignment made to a qualified party, then the assignment will be made.

 

ASSOCIATE JUSTICE CARPIO:

            Who makes the assignment?

 

ATTY. AGRA:

            It will be Radstock, Your Honor.

ASSOCIATE JUSTICE CARPIO:

            So, if Radstock makes the assignment, it must own its rights, otherwise, it cannot assign it, correct?

 

ATTY. AGRA:

            Pursuant to the compromise agreement, once approved, yes, Your Honors.

 

ASSOCIATE JUSTICE CARPIO:

            So, you are saying that Radstock can own the rights to ownership of the land?

 

ATTY. AGRA:

            Yes, Your Honors.

 

ASSOCIATE JUSTICE CARPIO:

            Yes?

 

ATTY. AGRA:

            The premise, Your Honor, you mentioned a while ago was, if this Court approves said compromise (interrupted)

 

ASSOCIATE JUSTICE CARPIO:

            No, no.  Whether there is such a compromise agreement - - It’s an academic question I am asking you, can a foreigner assign rights to ownership of a land in the Philippines?

 

ATTY. AGRA:

            Under the Compromise Agreement, Your Honors, these rights should be respected.

 

ASSOCIATE JUSTICE CARPIO:

            So, it can?

 

ATTY. AGRA:

            It can.  Your Honor.  But again, this right must, cannot be perfected or cannot be, could not take effect.

 

ASSOCIATE JUSTICE CARPIO:

            But if it cannot - - It’s not perfected, how can it assign?

 

ATTY. AGRA:

            Not directly, Your Honors.  Again, there must be a qualified nominee assigned by Radstock.

 

ASSOCIATE JUSTICE CARPIO:

            It’s very clear, it’s an indirect way of selling property that is prohibited by law, is it not?

 

 

 

 

 

ATTY. AGRA:

            Again, Your Honor, know, believe this is a Compromise Agreement.  This is a dacion en pago.

 

ASSOCIATE JUSTICE CARPIO:

            So, dacion en pago is an exception to the constitutional prohibition.

 

ATTY. AGRA:

            No, Your Honor.  PNCC, will still hold on to the property, absent a valid assignment of properties.

 

ASSOCIATE JUSTICE CARPIO:

            But what rights will PNCC have over that land when it has already signed the compromise?  It is just waiting for instruction xxx from Radstock what to do with it?  So, it’s a trustee of somebody, because it does not, it cannot, [it] has no dominion over it anymore?  It’s just holding it for Radstock.  So, PNCC becomes a dummy, at that point, of Radstock, correct?

 

ATTY. AGRA:

            No, Your Honor, I believe it (interrupted)

 

ASSOCIATE JUSTICE CARPIO:

            Yeah, but it does not own the land, but it still holding the land in favor of  the other party to the Compromise Agreement

 

ATTY. AGRA:

            Pursuant to the compromise agreement, that will happen.

 

ASSOCIATE JUSTICE CARPIO:

            Okay.  May I (interrupted)

 

ATTY. AGRA:

            Again, Your Honor, if the compromise agreement ended with a statement that Radstock will be the owner of the property (interrupted)

 

ASSOCIATE JUSTICE CARPIO:

            Yeah.  Unfortunately, it says, to a qualified assignee.

 

ATTY. AGRA:

            Yes, Your Honor.

 

ASSOCIATE JUSTICE CARPIO:

            And at this point, when it is signed and execut[ed] and approved, PNCC has no dominion over that land anymore.  Who has dominion over it?

 

ATTY. AGRA:

            Pending the assignment to a qualified party, Your Honor, PNCC will hold on to the property.

 

 

ASSOCIATE JUSTICE CARPIO:

            Hold on, but who x x x can exercise acts of dominion, to sell it, to lease it?

 

ATTY. AGRA:

            Again, Your Honor, without the valid assignment to a qualified nominee, the compromise agreement in so far as the transfer of these properties will not become effective.  It is subject to such condition.  Your Honor.[74] (Emphasis supplied)

 

 

 

         There is no dispute that Radstock is disqualified to own lands in the Philippines.  Consequently, Radstock is also disqualified to own the rights to ownership of lands in the Philippines. Contrary to the OGCC’s claim, Radstock cannot own the rights to ownership of any land in the Philippines because Radstock cannot lawfully own the land itself.  Otherwise, there will be a blatant circumvention of the Constitution, which prohibits a foreign private corporation from owning land in the Philippines.  In addition, Radstock cannot transfer the rights to ownership of land in the Philippines if it cannot own the land itself.  It is basic that an assignor or seller cannot assign or sell something he does not own at the time the ownership, or the rights to the ownership, are to be transferred to the assignee or buyer.[75] 

 

         The third party assignee under the Compromise Agreement who will be designated by Radstock can only acquire rights duplicating those which its assignor (Radstock) is entitled by law to exercise.[76]  Thus, the assignee can acquire ownership of the land only if its assignor, Radstock, owns the land.  Clearly, the assignment by PNCC of the real properties to a nominee to be designated by Radstock is a circumvention of the Constitutional prohibition against a private foreign corporation owning lands in the Philippines. Such circumvention renders the Compromise Agreement void.

 

 

D.     Public bidding is required for

          the disposal of government properties.

 

 

         Under Section 79 of  the Government  Auditing Code,[77] the disposition

of government lands to private parties requires public bidding.[78] COA Circular No. 89-926, issued on 27 January 1989, sets forth the guidelines on the disposal of property and other assets of the government.  Part V of the COA Circular provides:

 

V.     MODE OF DISPOSAL/DIVESTMENT: -

 

This Commission recognizes the following modes of disposal/divestment of assets and property of national government agencies, local government units and government-owned or controlled corporations and their subsidiaries, aside from other such modes as may be provided for by law.

 

1.        Public Auction

 

Conformably to existing state policy, the divestment or disposal of government property as contemplated herein shall be undertaken primarily thru public auction. Such mode of divestment or disposal shall observe and adhere to established mechanics and procedures in public bidding, viz:

 

a.   adequate publicity and notification so as to attract the greatest number of interested parties; (vide, Sec. 79, P.D. 1445)

b.   sufficient time frame between publication and date of auction;

c.  opportunity afforded to interested parties to inspect the property or assets to be disposed of;

d.   confidentiality of sealed proposals;

e.   bond and other prequalification requirements to guarantee performance;  and

f.   fair evaluation of tenders and proper notification of award.

 

It is understood that the Government reserves the right to reject any or all of the tenders.  (Emphasis supplied)   

 

 

         Under the Compromise Agreement, PNCC shall dispose of substantial parcels of land, by way of dacion en pago, in favor of Radstock. Citing Uy v. Sandiganbayan,[79] PNCC argues that a dacion en pago is an exception to the requirement of a public bidding.

 

         PNCC’s reliance on Uy is misplaced. There is nothing in Uy declaring that public bidding is dispensed with in a dacion en pago transaction.  The Court explained the transaction in Uy as follows:

 

            We do not see any infirmity in either the MOA or the SSA executed between PIEDRAS and respondent banks. By virtue of its shareholdings in OPMC, PIEDRAS was entitled to subscribe to 3,749,906,250 class "A" and 2,499,937,500 class "B" OPMC shares. Admittedly, it was financially sound for PIEDRAS to exercise its pre-emptive rights as an existing shareholder of OPMC lest its proportionate shareholdings be diluted to its detriment. However, PIEDRAS lacked the necessary funds to pay for the additional subscription. Thus, it resorted to contract loans from respondent banks to finance the payment of its additional subscription. The mode of payment agreed upon by the parties was that the payment would be made in the form of part of the shares subscribed to by PIEDRAS. The OPMC shares therefore were agreed upon by the parties to be equivalent payment for the amount advanced by respondent banks. We see the wisdom in the conditions of the loan transaction. In order to save PIEDRAS and/or the government from the trouble of selling the shares in order to raise funds to pay off the loans, an easier and more direct way was devised in the form of the dacion en pago agreements.

 

            Moreover, we agree with the Sandiganbayan that neither PIEDRAS nor the government sustained any loss in these transactions. In fact, after deducting the shares to be given to respondent banks as payment for the shares, PIEDRAS stood to gain about 1,540,781,554 class "A" and 710,550,000 class "B" OPMC shares virtually for free. Indeed, the question that must be asked is whether or not PIEDRAS, in the exercise of its pre-emptive rights, would have been able to acquire any of these shares at all if it did not enter into the financing agreements with the respondent banks.[80]

 

 

Suffice it to state that in Uy, neither PIEDRAS[81] nor the government suffered any loss in the dacion en pago transactions, unlike here where the government stands to lose at least P6.185 billion worth of assets.

 

         Besides, a dacion en pago is in essence a form of sale, which basically involves a disposition of a property. In Filinvest Credit Corp. v. Philippine Acetylene, Co., Inc.,[82] the Court defined dacion en pago in this wise:

 

Dacion en pago, according to Manresa, is the transmission of the ownership of a thing by the debtor to the creditor as an accepted equivalent of the performance of obligation. In dacion en pago, as a special mode of payment, the debtor offers another thing to the creditor who accepts it as equivalent of payment of an outstanding debt. The undertaking really partakes in one sense of the nature of sale, that is, the creditor is really buying the thing or property of the debtor, payment for which is to be charged against the debtor's debt.As such, the essential elements of a contract of sale, namely, consent, object certain, and cause or consideration must be present. In its modern concept, what actually takes place in dacion en pago is an objective novation of the obligation where the thing offered as an accepted equivalent of the performance of an obligation is considered as the object of the contract of sale, while the debt is considered as the purchase price. In any case, common consent is an essential prerequisite, be it sale or innovation to have the effect of totally extinguishing the debt or obligation.[83]  (Emphasis supplied)

 

 

 

E.      PNCC must follow rules on preference of credit.

 

 

         Radstock is only one of the creditors of PNCC.  Asiavest is PNCC’s judgment creditor. In its Board Resolution No. BD-092-2000, PNCC admitted not only its debt to Marubeni but also its debt to the National Government[84] in the amount of P36 billion.[85] During the Senate hearings, PNCC admitted that it owed the Government P36 billion, thus:

 

           SEN. OSMEŃA.  All right.  Now, second question is, the management of PNCC also recognize the obligation to the national government of 36 billion.  It is part of the board resolution.

 

            MS. OGAN.  Yes, sir, it is part of the October 20 board resolution.

 

            SEN. OSMEŃA.  All right.  So if you owe the national government 36 billion and you owe Marubeni 10 billion, you know, I would just declare bankruptcy and let an orderly disposition of assets be done.  What happened in this case to the claim, the 36 billion claim of the national government?  How was that disposed of by the PNCC?  Mas malaki ang utang ninyo sa national government, 36 billion.   Ang gagawin ninyo, babayaran lahat ang utang ninyo sa Marubeni without any assets left to satisfy your obligations to the national government.  There should have been, at least, a pari passu payment of all your obligations, 'di ba?

 

            MS. PASETES.  Mr. Chairman...

 

            SEN. OSMEŃA.  Yes.

 

            MS. PASETES.  PNCC still carries in its books an equity account called equity adjustments arising from transfer of obligations to national government - - 5.4 billion - - in addition to shares held by government amounting to 1.2 billion.

 

            SEN. OSMEŃA.  What is the 36 billion?

 

            THE CHAIRMAN.  Ms. Pasetes...

 

            SEN. OSMEŃA.  Wait, wait, wait.

 

            THE CHAIRMAN.  Baka ampaw yun eh.

 

            SEN. OSMEŃA.  Teka muna.  What is the 36 billion that appear in the resolution of the board in September 2000 (sic)?  This is the same resolution that recognizes, acknowledges and confirms PNCC's obligations to Marubeni.  And subparagraph (a) says “Government of the Philippines, in the amount of 36,023,784,000 and change.  And then (b)  Marubeni Corporation in the amount of 10,743,000,000.  So, therefore, in the same resolution, you acknowledged that had something like P46.7 billion in obligations.  Why did PNCC settle the 10 billion and did not protect the national government's 36 billion?  And then, number two, why is it now in your books, the 36 billion is now down to five?  If you use that ratio, then Marubeni should be down to one.

            MS. PASETES.  Sir, the amount of 36 billion is principal plus interest and penalties.

 

            SEN. OSMEŃA.  And what about Marubeni?  Is that just principal only?

 

            MS. PASETES.  Principal and interest.

 

            SEN. OSMEŃA.  So, I mean, you know, it's equal treatment.  Ten point seven billion is principal plus penalties plus interest, hindi ba?

 

            MS. PASETES.  Yes, sir.  Yes, Your Honor.

 

            SEN. OSMEŃA.  All right.  So now, what you are saying is that you gonna pay Marubeni 6 billion and change and the national government is only recognizing 5 billion.  I don't think that's protecting the interest of the national government at all.[86] 

 

         In giving priority and preference to Radstock, the Compromise Agreement is certainly in fraud of PNCC’s other creditors, including the National Government, and violates the provisions of the Civil Code on concurrence and preference of credits.  

 

            This Court has held that while the Corporation Code allows the transfer of all or substantially all of the assets of a corporation, the transfer should not prejudice the creditors of the assignor corporation.[87]  Assuming that PNCC may transfer all or substantially all its assets, to allow PNCC to do so without the consent of its creditors or without requiring Radstock to assume PNCC’s debts will defraud the other PNCC creditors[88] since the assignment will place PNCC’s assets beyond the reach of its other creditors.[89]   As this Court held in Caltex (Phil.), Inc. v. PNOC Shipping and Transport Corporation:[90] 

 

 

         While the Corporation Code allows the transfer of all or substantially all the properties and assets of a corporation, the transfer should not prejudice the creditors of the assignor. The only way the transfer can proceed without prejudice to the creditors is to hold the assignee liable for the obligations of the assignor. The acquisition by the assignee of all or substantially all of the assets of the assignor necessarily includes the assumption of the assignor's liabilities, unless the creditors who did not consent to the transfer choose to rescind the transfer on the ground of fraud. To allow an assignor to transfer all its business, properties and assets without the consent of its creditors and without requiring the assignee to assume the assignor's obligations will defraud the creditors. The assignment will place the assignor's assets beyond the reach of its creditors. (Emphasis supplied)

 

         Also, the law, specifically Article 1387[91] of the Civil Code, presumes that there is fraud of creditors when property is alienated by the debtor after judgment has been rendered against him, thus:

 

Alienations by onerous title are also presumed fraudulent when made by persons against whom some judgment has been rendered in any instance or some writ of attachment has been issued.   The decision or attachment need not refer to the property alienated, and need not have been obtained by the party seeking rescission.  (Emphasis supplied)

 

 

         As stated earlier, Asiavest is a judgment creditor of PNCC in G.R. No. 110263 and a court has already issued a writ of execution in its favor.  Thus, when PNCC entered into the Compromise Agreement conveying several prime lots in favor of Radstock, by way of dacion en pago, there is a legal presumption that such conveyance is fraudulent under Article 1387 of the Civil Code.[92]  This presumption is strengthened by the fact that the conveyance has virtually left PNCC’s other creditors, including the biggest creditor – the National Government  -  with no other asset to garnish or levy. 

 

         Notably, the presumption of fraud or intention to defraud creditors is not just limited to the two instances set forth in the first and second paragraphs of Article 1387 of the Civil Code. Under the third paragraph of the same article, “the design to defraud creditors may be proved in any other manner recognized by the law of evidence.” In Oria v. Mcmicking,[93] this Court considered the following instances as badges of fraud:

 

1.       The fact that the consideration of the conveyance is fictitious or is        

           inadequate.

2.       A transfer made by a debtor after suit has begun and while it is  

          pending against him.

3.       A sale upon credit by an insolvent debtor.

4.       Evidence of large indebtedness or complete insolvency.

5.       The transfer of all or nearly all of his property by a debtor,            

                      especially when he is insolvent or greatly embarrassed financially.             

            6.       The fact that the transfer is  made between  father and son, when

          there are present other of the above circumstances.

7.       The failure of the vendee to take exclusive possession of all the

           property. (Emphasis supplied)

 

 

 

         Among the circumstances indicating fraud is a transfer of all or nearly all of the debtor’s assets, especially when the debtor is greatly embarrassed financially. Accordingly, neither a declaration of insolvency nor the institution of insolvency proceedings is a condition sine qua non for a transfer of all or nearly all of a debtor’s assets to be regarded in fraud of creditors.  It is sufficient that a debtor is greatly embarrassed financially. 

 

         In this case, PNCC’s huge negative net worth  -  at least P6 billion as expressly admitted by PNCC’s counsel during the oral arguments, or P14 billion based on the 2006 COA Audit Report -  necessarily translates to an extremely embarrassing financial situation.  With its huge negative net worth arising from unpaid billions of pesos in debt, PNCC cannot claim that it is financially stable.  As a consequence, the Compromise Agreement stipulating a transfer in favor of Radstock of substantially all of PNCC’s assets constitutes fraud. To legitimize the Compromise Agreement just because there is still no judicial declaration of PNCC’s insolvency will work fraud on PNCC’s other creditors, the biggest creditor of which is the National Government.  To insist that PNCC is very much liquid, given its admitted huge negative net worth, is nothing but denial of the truth.  The toll fees that PNCC collects belong to the National Government. Obviously, PNCC cannot claim it is liquid based on its collection of such toll fees, because PNCC merely holds such toll fees in trust for the National Government. PNCC does not own the toll fees, and such toll fees do not form part of PNCC’s assets.

 

         PNCC owes the National Government P36 billion, a substantial part of which constitutes taxes and fees, thus:

 

                        SEN. ROXAS.  Thank you, Mr. Chairman.

Mr.  PNCC Chairman, could you describe for us the composition of your debt of about five billion – there are in thousands, so this looks like five and half billion.  Current portion of long-term debt, about five billion.  What is this made of?

 

MS. PASETES.  The five billion is composed of what is owed the Bureau of Treasury and the Toll Regulatory Board for concession fees that’s almost three billion and another 2.4 billion owed Philippine National Bank.

 

SEN. ROXAS.  So, how much is the Bureau of Treasury?

 

MS. PASETES.  Three billion.

 

SEN. ROXAS.  Three – Why do you owe the Bureau of Treasury three billion?

 

 

 

MS. PASETES.  That represents the concession fees due Toll Regulatory Board principal plus interest, Your Honor.

 

            x x x x[94]  (Emphasis supplied)

 

 

 

         In addition, PNCC’s 2006 Audit Report by COA states as follows:

 

TAX MATTERS

 

The Company was assessed by the Bureau of Internal Revenue (BIR) of its deficiencies in various taxes.  However, no provision for any liability has been made yet in the Company’s financial statements.

 

•              1980 deficiency income tax, deficiency contractor’s tax and     deficiency documentary stamp tax assessments by the BIR       totaling P212.523 Million. 

 

x x x x

 

•      Deficiency business tax of P64 Million due the Belgian        Consortium, PNCC’s partner in its LRT Project.

 

•      1992 deficiency income tax, deficiency value-added tax and           deficiency expanded withholding tax of P1.04 Billion which was   reduced to P709 Million after the Company’s written protest.

 

x x x x

 

•      2002 deficiency internal revenue taxes totaling P72.916 Million.

 

x x x x.[95]  (Emphasis supplied)

 

 

Clearly, PNCC owes the National Government substantial taxes and fees amounting to billions of pesos. 

 

         The P36 billion debt to the National Government was acknowledged by the PNCC Board in the same board resolution that recognized the Marubeni loans.  Since PNCC is clearly insolvent with a huge negative net worth, the government enjoys preference over Radstock in the satisfaction of PNCC’s liability arising from taxes and duties, pursuant to the provisions of the Civil Code on concurrence and preference of credits.  Articles 2241,[96] 2242[97] and 2243[98] of the Civil Code expressly mandate that taxes and fees due the National Government “shall be preferred” and “shall first be satisfied” over claims like those arising from the Marubeni loans which “shall enjoy no preference” under Article 2244.[99] 

 

 

      However, in flagrant violation of the Civil Code, the PNCC Board favored Radstock over the National Government in the order of credits. This would strip PNCC of its assets leaving virtually nothing for the National Government. This action of the PNCC Board is manifestly and grossly disadvantageous to the National Government and amounts to fraud.        

 

         During the Senate hearings, Senator Osmeńa pointed out that in the Board Resolution of 20 October 2000, PNCC acknowledged its obligations to the National Government amounting to P36,023,784,000 and to Marubeni amounting to P10,743,000,000. Yet, Senator Osmeńa noted that in the PNCC books at the time of the hearing, the P36 billion obligation to the National Government was reduced to P5 billion. PNCC’s Miriam M. Pasetes could not properly explain this discrepancy, except by stating that the P36 billion includes the principal plus interest and penalties, thus:

 

           SEN. OSMEŃA.  Teka muna.  What is the 36 billion that appear in the resolution of the board in September 2000 (sic)?  This is the same resolution that recognizes, acknowledges and confirms PNCC's obligations to Marubeni.  And subparagraph (a) says “Government of the Philippines, in the amount of 36,023,784,000 and change.  And then (b)  Marubeni Corporation in the amount of 10,743,000,000.  So, therefore, in the same resolution, you acknowledged that had something like P46.7 billion in obligations.  Why did PNCC settle the 10 billion and did not protect the national government's 36 billion?  And then, number two, why is it now in your books, the 36 billion is now down to five?  If you use that ratio, then Marubeni should be down to one.

 

            MS. PASETES.  Sir, the amount of 36 billion is principal plus interest and penalties.

 

            SEN. OSMEŃA.  And what about Marubeni?  Is that just principal only?

 

            MS. PASETES.  Principal and interest.

 

            SEN. OSMEŃA.  So, I mean, you know, it's equal treatment.  Ten point seven billion is principal plus penalties plus interest, hindi ba?

 

            MS. PASETES.  Yes, sir.  Yes, Your Honor.

 

         SEN. OSMEŃA.  All right.  So now, what you are saying is that you gonna pay Marubeni 6 billion and change and the national government is only recognizing 5 billion.  I don't think that's protecting the interest of the national government at all.[100]  

 

 

         PNCC failed to explain satisfactorily why in its books the obligation to the National Government was reduced when no payment to the National Government appeared to have been made.  PNCC failed to justify why it made it appear that the obligation to the National Government was less than the obligation to Marubeni.  It is another obvious ploy to justify the preferential treatment given to Radstock to the great prejudice of the National Government.

 

VI.

Supreme Court is Not Legitimizer of  Violations of Laws

 

         During the oral arguments, counsels for Radstock and PNCC admitted that the Compromise Agreement violates the Constitution and existing laws.  However, they rely on this Court to approve the Compromise Agreement to shield their clients from possible criminal acts arising from violation of the Constitution and existing laws.  In their view, once this Court approves the Compromise Agreement, their clients are home free from prosecution, and can enjoy the P6.185 billion loot.  The following exchanges during the oral arguments reveal this view:

 

ASSOCIATE JUSTICE CARPIO:

            If there is no agreement, they better remit all of that to the National Government.  They cannot just hold that.  They are holding that [in] trust, as you said, x x x you agree, for the National Government.

 

DEAN AGABIN:

            Yes, that’s why, they are asking the Honorable Court to approve the compromise agreement.

 

ASSOCIATE JUSTICE CARPIO:

            We cannot approve that if the power to authorize the expenditure [belongs] to Congress.  How can we usurp x x x the power of Congress to authorize that expenditure[?]  It’s only Congress that can authorize the expenditure of funds from the general funds.

 

DEAN AGABIN:

            But, Your Honor, if the Honorable Court would approve of this compromise agreement, I believe that this would be binding on Congress.

 

ASSOCIATE JUSTICE CARPIO:

            Ignore the Constitutional provision that money shall be paid out of the National Treasury only pursuant to an appropriation by law.  You want us to ignore that[?]

 

DEAN AGABIN:

            Not really, Your Honor, but I suppose that Congress would have no choice, because this is a final judgment of the Honorable Court. [101] 

 

            x x x x

            ASSOCIATE JUSTICE CARPIO:

            So, if Radstock makes the assignment, it must own its rights, otherwise, it cannot assign it, correct?

 

ATTY. AGRA:

            Pursuant to the compromise agreement, once approved, yes, Your Honors.

 

ASSOCIATE JUSTICE CARPIO:

            So, you are saying that Radstock can own the rights to ownership of the land?

 

 

ATTY. AGRA:

            Yes, Your Honors.

 

ASSOCIATE JUSTICE CARPIO:

            Yes?

 

ATTY. AGRA: 

         The premise, Your Honor, you mentioned a while ago was, if this Court approves said compromise (interrupted).[102] (Emphasis supplied)  

 

 

 

       This Court is not, and should never be, a rubber stamp for litigants hankering to pocket public funds for their selfish private gain.   This Court is the ultimate guardian of the public interest, the last bulwark against those who seek to plunder the public coffers.  This Court cannot, and must never, bring itself down to the level of legitimizer of violations of the Constitution, existing laws or public policy.

 

Conclusion

        

         In sum, the acts of the PNCC Board in (1) issuing Board Resolution Nos. BD-092-2000 and BD-099-2000 expressly admitting liability for the Marubeni loans, and (2) entering into the Compromise Agreement, constitute evident bad faith and gross inexcusable negligence, amounting to fraud, in the management of PNCC’s affairs.  Being public officers, the government nominees in the PNCC Board must answer not only to PNCC and its stockholders, but also to the Filipino people for grossly mishandling PNCC’s finances.

 

         Under Article 1409 of the Civil Code, the Compromise Agreement is  “inexistent and void from the beginning,” and “cannot be ratified,” thus: 

 

 

Art. 1409.  The following contracts are inexistent and void from the beginning:

 

(1)    Those whose cause, object or purpose is contrary to law, morals, good customs, public order or public policy;

 

          x x x

 

(7)     Those expressly prohibited or declared void by law.

 

          These contracts cannot be ratified. x x x. (Emphasis supplied)

 

 

         The Compromise Agreement is indisputably contrary to the Constitution, existing laws and public policy.  Under Article 1409, the Compromise Agreement is expressly declared void and “cannot be ratified.”  No court, not even this Court, can ratify or approve the Compromise Agreement.   This Court must perform its duty to defend and uphold the Constitution, existing laws, and fundamental public policy. This Court must not shirk in declaring the Compromise Agreement inexistent and void ab initio.

 

         WHEREFORE, we GRANT the petition in G.R. No. 180428. We SET ASIDE the Decision dated 25 January 2007 and the Resolutions dated  12 June 2007 and 5 November 2007 of the Court of Appeals.  We DECLARE (1) PNCC Board Resolution Nos. BD-092-2000 and BD-099-2000 admitting liability for the Marubeni loans VOID AB INITIO for causing undue injury to the Government and giving unwarranted benefits to a private party, constituting a corrupt practice and unlawful act under Section 3(e) of the Anti-Graft and Corrupt Practices Act, and (2) the Compromise Agreement between the Philippine National Construction Corporation and Radstock Securities Limited INEXISTENT AND VOID AB INITIO for being contrary to Section 29(1), Article VI and Sections 3 and 7, Article XII of the Constitution; Section 20(1), Chapter IV, Subtitle B, Title I, Book V of the Administrative Code of 1987; Sections 4(2), 79, 84(1), and 85 of the Government Auditing Code; and Articles 2241, 2242, 2243 and 2244 of the Civil Code.

 

         We GRANT the intervention of Asiavest Merchant Bankers Berhad  in G.R. No. 178158 but DECLARE that  Strategic Alliance Development Corporation has no legal standing to sue.

 

         SO ORDERED.

 

 

 

                                                                  ANTONIO T. CARPIO

                                                                       Associate Justice

 

 

 

 

 

WE CONCUR:

 

 

 

 

 

REYNATO S. PUNO

Chief Justice

 

 

 

 

 

 

RENATO C. CORONA

Associate Justice

 

 

 

 

 

 

 

 

 

 

 

 

CONCHITA CARPIO MORALES

Associate Justice

 

 

MINITA V. CHICO-NAZARIO    

  Associate Justice

 

 

 

 

 

        PRESBITERO J. VELASCO, JR.

 Associate Justice

 

 

  ANTONIO EDUARDO B. NACHURA

Associate Justice

 

 

 

 

TERESITA J. LEONARDO-DE CASTRO

Associate Justice

 

 

 

 

ARTURO D. BRION

Associate Justice

 

 

 

 

                

 DIOSDADO M. PERALTA

Associate Justice

 

 

 

 

 

LUCAS P. BERSAMIN

Associate Justice

 

 

 

 

 

 

MARIANO C. DEL CASTILLO

Associate Justice

 

ROBERTO A. ABAD

Associate Justice

 

 

 

MARTIN S. VILLARAMA, JR.

Associate Justice

 

 

 

 

CERTIFICATION

 

         Pursuant to Section 13, Article VIII of the Constitution, I certify that the conclusions in the above Decision had been reached in consultation before the case was assigned to the writer of the opinion of the Court.

 

 

 

 

                                                          REYNATO S. PUNO

                                                                 Chief Justice

 

 

 

    

 


[1]              This is a conservative amount since the real properties conveyed under the Compromise              Agreement are valued only at 70% of their appraised value.  In addition, payment from 50% of the               toll fees for 27 years, amounting to P9.382 billion, is given a net present value of only  P1.287  billion.  Senator Franklin M. Drilon puts the actual value of the compromise at P17.676         billion.

[2]AN ACT RENEWING THE FRANCHISE OF THE PHILIPPINE NATIONAL CONSTRUCTION CORPORATION (PNCC), FORMERLY KNOWN AS THE CONSTRUCTION AND  DEVELOPMENT   CORPORATION    OF     THE    PHILIPPINES (CDCP), GRANTED UNDER PRESIDENTIAL DECREE NO. 1113, AS AMENDED BY PRESIDENTIAL DECREE NO. 1894, TO ANOTHER (25) YEARS FROM THE DATE OF THE APPROVAL OF THIS ACT AND FOR OTHER PURPOSES.

[3]              On 7 February 2007, Senator Franklin Drilon introduced P.S. Res. No. 618 or the             RESOLUTION DIRECTING THE SENATE COMMITTEE ON FINANCE TO CONDUCT AN    INQUIRY, IN AID OF LEGISLATION, INTO THE COMPROMISE AGREEMENT ENTERED               INTO BY THE PHILIPPINE NATIONAL CONSTRUCTION CORPORATION (PNCC) WITH                RADSTOCK SECURITIES LIMITED, FOR THE PURPOSE OF PROVIDING REMEDIAL         LEGISLATION AND POLICY PARAMETERS ON COMPROMISE AGREEMENTS TO       PROTECT GOVERNMENT ASSETS AND ENSURE THE JUDICIOUS USE OF          GOVERNMENT FUNDS. This Resolution was submitted to the Senate and referred to the            Committee on Finance.

[4]              Delivered on 21 December 2006 during the Plenary Session.

[5]              Record of the Senate, Vol. III, Session No. 55, 21 December 2006.

[6]              Transcript of Committee Hearings, 19 December 2006, pp. 69-70.

[7]              Id., 14 December 2006, pp. 62-64.

[8]              Id. at 64-66.

[9]              Under Rule 45 of the Rules of Court.

[10]             Rollo, pp. 31-43.  Penned by Associate Justice (now a member of this Court) Mariano C. Del     Castillo, concurred in by then Presiding Justice Ruben T. Reyes and Associate Justice Arcangelita     Romilla Lontok.

[11]                                       http://www.pncc.com.ph/

[12]             http://www.pncc.com.ph/

[13]             Id.

[14]             Id.

[15]             The members of the PNCC Board who were present during the meeting were Renato B. Valdecantos, Chairman, Rolando L. Macasaet, President and Chief Executive Officer,  Braulio B.               Balbas, Jr., Romulo F. Coronado, Basilio R. Cruz, Jr., Alfredo F. Laya, Jr., Victor Pineda, Edwin       Tanonliong, Jose Luis Vera, Hermogenes Concepcion, Jr., and Raymundo Francisco, Directors.

[16]                    Penned by Judge Amalia F. Dy.

[17]             Philippine National Construction Corporation v. Dy, G.R. No. 156887, 3 October 2005, 472     SCRA 1, 12.

[18]             Rollo, pp. 237-290.

[19]             Pinlac v. Court of Appeals, 457 Phil. 527 (2003).

[20]             Id.

[21]             Office of the Ombudsman v. Masing, G.R. No. 165416, 22 January 2008, 542 SCRA 253, 265.

[22]             439 Phil. 149 (2002), citing Mago v. Court of Appeals, 363 Phil. 225 (1999) and Director of Lands            v. Court of Appeals, No. L-45168,              25 September 1979, 93 SCRA 239.

[23]             363 Phil. 225, 234 (1999), which in turn cited Director of Lands v. Court of Appeals, No. L-45168,            25 September 1979, 93 SCRA 239, 245-246.

[24]             National Power Corporation v. Province of Quezon and Municipality of Pagbilao, G.R. No.      171586,  15 July 2009.

[25]             Hi-Yield Realty Incorporated v. Court of Appeals, G.R. No. 168863, 23 June 2009.

[26]             Id.

[27]             Id.

[28]             Id.

[29]             TSN, Oral Arguments, pp. 19-20.

[30]             Del Mar v. PAGCOR,  400 Phil. 307 (2000).

[31]             Agote v. Lorenzo, G.R. No. 142675, 22 July 2005, 464 SCRA 60.

[32]             G.R. No. 102782, 11 December 1991, 204 SCRA 837, 842-843.

[33]             Villanueva, Philippine Corporate Law, 2001, p. 318.  Section 31 of the Corporation Code.

[34]             Villanueva, Philippine Corporate Law, 2001, pp. 321-322.   Section 25 of the Corporation Code               pertinently provides:

 

      x x x x

                The directors or trustees and officers to be elected shall perform the duties enjoined on them by                 law and by the by-laws of the corporation.  x x x x

[35]             Section 31 of the Corporation Code.

[36]             Id.

[37]             Philippine National Construction Corporation v. Dy, supra note 17 at 10.

[38]             No stopping PNCC-Radstock deal, Daxim Lucas, 26 April 2007 (http://business.inquirer.net/                money/topstories/view/20070426-62559/No stopping PNCC-Radstock_deal).

[39]                                       Transcript of Committee Hearings, 14 December 2006, pp. 26-28.

[40]                                       P.S. Res. No. 618, introduced by Senator Franklin M. Drilon.

[41]                                       The Annual Audit Report  on the PNCC For the Year Ended December 31, 2006 pertinently       provides: “There is a variance of P43.959 Billion between PNCC recorded balance of obligations           to various Government Financial Institutions (GFIs) and the amount confirmed by the Bureau of            Treasury (BTr). Said obligations are still not fully converted to equity as prescribed under LOI     1295.  If converted, the available capital stock of P44.568 Million would not be sufficient to cover       the recorded outstanding obligations of P5.552 Billion or the BTr confirmed amount of P50.893         Billion.”

 

                The Annual Audit Report  on the PNCC For the Year Ended December 31, 2007            pertinently provides: “The Corporation's liabilities are understated by P42.50 billion due to               non-recognition of advances made by the Bureau of Treasury for the account of PNCC.      x x x The              Corporation has                 designed a corporate strategic plan to include the servicing of accounts with the         BTr via                 conversion of the obligations into long-term debt or equity.  However, said obligations are          still not converted to long term-debt and fully converted to equity as prescribed under LOI 1295.              If converted, the available capital stock of P445.68 million would not be sufficient to cover the           recorded outstanding obligations of P5.55 billion or the BTr confirmed amount of P48.05 billion.

[42]             Annual Audit Report on the PNCC For the Year Ended December 31, 2006.

[43]             TSN, Oral Arguments, pp. 299-304.

[44]             Article 1139 of the Civil Code.

[45]             Article 1155 of the Civil Code.

[46]             Transcript of Committee Hearings, 14 December 2006, pp. 23-26.

[47]             Id., 19 December 2006, p. 47.

[48]             Id., 14 December 2006, p. 108.

[49]             Id., 19 December 2006, pp. 13-25.

[50]             Id. at 82-83.

[51]                                       TSN, Oral Arguments, pp. 12-13.

[52]             Transcript of Committee Hearings, 19 December 2006, pp. 36-39.

[53]       TSN, Oral Arguments, pp. 19-20.

[54]             See The Alexandra Condominium Corporation v. Laguna Lake Development Authority, G.R.      No.169228, 11 September 2009.

[55]             G.R. No. 87710, 31 March 1992, 207 SCRA 659.

[56]                                       Rufino v. Endriga, G.R. Nos. 139554 and 139565, 21 July 2006, 496 SCRA 13.

[57]                                        Section 20(1), Chapter IV, Subtitle B, Title I, Book V of the Administrative Code of 1987.

[58]             464 Phil. 441, 453, 461-462 (2004).

[59]                                        PRESIDENTIAL DECREE NO. 1113 - GRANTING THE CONSTRUCTION AND DEVELOPMENT CORPORATION OF THE PHILIPPINES (CDCP) A FRANCHISE TO           OPERATE, CONSTRUCT AND MAINTAIN TOLL FACILITIES IN THE NORTH AND            SOUTH LUZON TOLL EXPRESSWAYS AND FOR OTHER PURPOSES.

[60]                                        PRESIDENTIAL DECREE NO. 1894 - AMENDING THE FRANCHISE OF THE PHILIPPINE             NATIONAL CONSTRUCTION CORPORATION TO CONSTRUCT, MAINTAIN AND     OPERATE TOLL FACILITIES IN THE NORTH LUZON AND SOUTH LUZON EXPRESSWAYS TO INCLUDE THE METRO MANILA EXPRESSWAY TO SERVE AS AN ADDITIONAL ARTERY IN THE TRANSPORTATION OF TRADE AND COMMERCE IN THE            METRO MANILA AREA

[61]             Section 3, Definition of Terms, Government Auditing Code.

[62]             TSN, Oral Arguments, pp. 504-506.

[63]             Id. at 508.

[64]             Id. at 515-518.

[65]             Section 4 of the Government Auditing Code provides:

 

               “Fundamental principles. Financial transactions and operations of any government agency shall be governed by the fundamental principles set forth hereunder, to wit:

 

1.  No money shall be paid out of any public treasury of depository except in pursuance of an appropriation law or other specific statutory authority;

2.  Government funds or property shall be spent or used solely for public purposes;

3.  Trust funds shall be available and may be spent only for the specific purpose for which the trust was created or the funds received;

4.  Fiscal responsibility shall, to the greatest extent, be shared by all those exercising authority over the financial affairs, transactions, and operations of the government agency;

5. Disbursements or disposition of government funds or property shall invariably bear the approval of the proper officials;

6.  Claims against government funds shall be supported with complete documentation;

7.   All laws and regulations applicable to financial transactions shall be faithfully adhered to;

8.  Generally accepted principles and practices of accounting as well as of sound management and fiscal administration shall be observed, provided that they do not contravene existing laws and regulations.  (Emphasis supplied)

[66]             Section 86. Certificate showing appropriation to meet contract. Except in the case of a contract for        personal service, for supplies for current consumption or to be carried in stock not exceeding the estimated consumption for three months, or banking transactions of government-owned or controlled banks no contract involving the expenditure of public funds by any government agency shall be entered into or authorized unless the proper accounting official of the agency concerned shall have certified to the officer entering into the obligation that funds have been duly appropriated for the purpose and that the amount necessary to cover the proposed contract for the current fiscal year is available for expenditure on account thereof, subject to verification by the auditor concerned. The certificate signed by the proper accounting official and the auditor who verified it, shall be attached to and become an integral part of the proposed contract, and the sum so certified shall not thereafter be available for expenditure for any other purpose until the       obligation of the government agency concerned under the contract is fully extinguished.               

 

                See Melchor v. COA, G.R. No. 95398, 16 August 1991, 200 SCRA 704; Osmeńa v. COA, G.R.      No. 98355, 2 March 1994, 230 SCRA 585; Comelec v. Quijano-Padilla, 438 Phil. 72 (2002).

[67]             See Guingona, Jr. v. Carague, G.R. No. 94571, 22 April 1991, 196 SCRA 221.

[68]        438 Phil. 72, 96-98 (2002).

[69]             TSN, Oral Arguments, pp. 518-526.

[70]             Id. at 521-523.

[71]             The Court applied this provision in Brgy. Sindalan, San Fernando, Pampanga v. Court of Appeals,          G.R. No. 150640, 22 March 2007, 518 SCRA 649.

[72]             TSN, Oral Arguments, p. 504.

[73]             Transcript of Committee Hearings, 14 December 2006, pp. 64-66.

[74]             TSN, Oral Arguments, pp. 470-480.

[75]Article 1459 of the Civil Code provides: “The thing must be licit and the vendor must have a right to transfer the ownership thereof at the time it is delivered.” The vendor cannot transfer ownership of the thing if he does not own the thing or own rights of ownership to the thing.  The only possible exception is in a short sale of securities or commodities, where the seller borrows from the broker or third party the securities or commodities the ownership of which is immediately transferred to the buyer.  This is feasible only when the subject matter of the transaction is a fungible object.

[76]             See Casabuena v. Court of Appeals, 350 Phil. 237 (1998).

[77] Section 79 of the Government Auditing Codes provides as follows:  “When government property has become unserviceable for any cause, or is no longer needed, it shall, upon application of the officer accountable therefor, be inspected by the head of the agency or his duly authorized representative in the presence of the auditor concerned and, if found to be valueless or unsaleable, it may be destroyed in their presence.  If found to be valuable, it may be sold at public auction to the highest bidder under the supervision of the proper committee on award or similar body in the presence of the auditor concerned or other authorized representative of the Commission, after advertising by printed notice in the Official Gazette, or for not less than three consecutive days in any newspaper of general circulation, or where the value of the property does not warrant the expense of publication, by notices posted for a like period in at least three public places in the locality where the property is to be sold.  In the event that the public auction fails, the property may be sold at a private sale at such price as may be fixed by the same committee or body concerned and approved by the Commission.” (Emphasis supplied)

[78]             Chavez v. Public Estates Authority, 433 Phil. 506 (2002).

[79]             G.R. No. 111544, 6 July 2004, 433 SCRA 424.

[80]             Id. at 438-439.

[81]             Piedras Petroleum Company, Inc.

[82]             197 Phil. 394 (1982).

[83]             Id. at 402-403.

[84]             TSN, Oral Arguments, pp. 355-356.

[85]According to this article, the current amount of PNCC’s debt is P50 billion. The PNCC’s Legacy of Debt by GEMMA B. BAGAYAUA, abs-cbnNEWS.com/Newsbreak 01/13/2009 (http://www.abs-cbnnews.com/nation/01/13/09/pncc%E2%80%99s-legacy-debt#comment-form)

[86]             Transcript of the Committee Hearings, 18 December 2006, pp. 122-124.

[87]             Caltex (Philippines), Inc. v. PNOC Shipping and Transport Corporation, G.R. No. 150711, 10   August 2006, 498 SCRA 400.

[88]             Id.

[89]             Id.

[90]             Id.

[91]Article 1387.  All contracts by virtue of which the debtor alienates property by gratuitous title are presumed to have been entered into in fraud of creditors, when the donor did not reserve sufficient property to pay all debts contracted before the donation.

 

                         Alienations by onerous title are also presumed fraudulent when made by persons against whom some judgment has been rendered in any instance or some writ of attachment has been issued.   The decision or attachment need not refer to the property alienated, and need not have been obtained by the party seeking rescission.

                 In addition to these presumptions, the design to defraud creditors may be proved in any other manner recognized by law and of evidence.

[92]             See China Banking Corporation v. Court of Appeals, 384 Phil. 116 (2000).

[93]             21 Phil. 243 (1912), cited in China Banking Corporation v. Court of Appeals, 384 Phil. 116 (2000)           and Caltex v. PNOC Shipping and Transport Corporation, G.R. No. 150711, 10 August 2006, 498 SCRA 400.

[94]             Transcript of Committee Hearings, 18 December 2006, pp. 163-165. 

[95]                                        2006 Annual Audit Report, pp. 23-24; 2007 Annual Audit Report, pp. 23-24.

[96]                                         Article 2241.  With reference to specific movable property of the debtor, the following claims or      liens shall be preferred:

 

 (1)  Duties, taxes and fees due thereon to the State or any subdivision thereof;

(2) Claims arising from misappropriation, breach of trust, or malfeasance by public officials committed in the performance of their duties, on the movables, money or securities obtained by them;

(3) Claims for the unpaid price of movable sold, on said movables, so long as they are in the possession of the debtor, up to the amount of the same; and if the movable has been resold by the debtor and the price is still unpaid, the lien may be enforced on the price; this right is not lost by the immobilization of the thing by destination, provided it has not lost its form, substance and identity; neither is the right lost by the sale of the thing together with other property for a lump sum, when the price thereof can be determined proportionally;

(4) Credits guaranteed with a pledge so long as the things pledged are in the hands of the creditor, or those guaranteed by a chattel mortgage, upon the things pledged or mortgaged, up to the value thereof;

(5) Credits for the making, repair, safekeeping or preservation of personal property, on the movable thus made, repaired, kept or possessed;

(6)  Claims for laborers’ wages, on the goods manufactured or the work done;

(7)  For expenses of salvage, upon the goods salvaged;

(8) Credits between the landlord and the tenant, arising from the contract of tenancy on shares, on the share of each in the fruits or harvest;

(9) Credits for transportation, upon the goods carried, for the price of the contract and incidental expenses, until their delivery and for thirty days thereafter;

(10) Credits for lodging and supplies usually furnished to travelers by hotel keepers, on the movables belonging to the guest as long as such movables are in the hotel, but not for money loaned to the guests;

(11)  Credits for seeds and expenses for cultivation and harvest advanced to the debtor, upon the fruits harvested.

(12)  Credits for rent for one year, upon the personal property of the lessee existing on the immovable leased and on the fruits of the same, but not on money or instruments of credits;

                (13)  Claims in favor of the depositor if the depositary has wrongfully sold the thing deposited, upon the price of the sale.

 

                          In the foregoing cases, if the movables to which the lieu or preference attaches have been           wrongfully taken, the creditor may demand them from any possessor, within thirty days from the     unlawful seizure. (Emphasis supplied)

[97]Article 2242.  With reference to specific immovable property and real rights of the debtor, the following claims, mortgages and liens shall be preferred, and shall constitute an encumbrance on the immovable or real right:

 

            (1)  Taxes due upon the land or building;

                (2)  For the unpaid price of real property sold, upon the immovable sold;

                (3)  Claims of laborers, masons, mechanics and other workmen, as well as of architects, engineers and contractors, engaged in the construction, reconstruction or repair of buildings, canals or other works, upon said buildings, canals or other works;

                (4)  Claims of furnishers of materials used in the construction, reconstruction, or repair of buildings, canals or other works, upon said buildings, canals or other works;

                (5)  Mortgage credits recorded in the Registry of Property, upon the real estate mortgaged;

                (6) Expenses for the preservation or improvement of real property when the law authorizes reimbursement, upon the immovable preserved or improved;

                (7) Credits annotated in the Registry of Property, in virtue of a judicial order, by attachments or executions, upon the property affected, and only as to later credits;

                (8)  Claims or co-heirs for warranty in the partition of an immovable among them, upon the real property thus divided;

                (9)  Claims of donors of real property for pecuniary charges or other conditions imposed upon the donee, upon the immovable donated;

                (10) Credits of insurers, upon the property insured, for the insurance premium for two years.  (Emphasis supplied)

[98] Article 2243. The claims or credits enumerated in the two preceding articles shall be considered as mortgages or pledges or real or personal property, or liens within the purview of legal provisions governing insolvency.  Taxes mentioned in No. 1, article 2241, and No. 1, article 2242, shall be first satisfied. (Emphasis supplied)

[99]                                        Article 2245.  Credits of any other kind or class, or by any other right or title not comprised       in the four preceding articles, shall enjoy no preference.   (Emphasis supplied)

[100]            Transcript of the Committee Hearings, 18 December 2006, p. 123.

[101]            TSN, Oral Arguments, pp. 527-529.

[102]                                   Id. at  473-474.