EN BANC.
.
FRANCISCO I.
CHAVEZ,
Petitioner,
G.R.
No.
133250
November 11, 2003
-versus-
PUBLIC ESTATES
AUTHORITY
AND AMARI
COASTAL
BAYDEVELOPMENT
CORPORATION,
Respondents.
SEPARATE OPINION
SANDOVAL-GUTIERREZ,
J.:
It is after deep
introspection that I am constrained to dissent from the denial by the
majority
of the motions for reconsideration filed by respondents PEA and AMARI.
Chief Justice Charles
Evans Hughes of the United States Supreme Court stated that a dissent
is
of value because it is "an appeal to the brooding spirit of the law, to
the intelligence of a future day, when a later decision may possibly
correct
the error into which the dissenting judge believes the court to have
been
betrayed."[1]
While I joined in the
initial grant of the petition, I realized, however, that the tenor of
our
interpretation of the Constitutional prohibition on the acquisition of
reclaimed lands by private corporations is so absolute and
circumscribed
as to defeat the basic objectives of its provisions on "The National
Economy
and Patrimony."[2]
The Constitution is
a flexible and dynamic document. It must be interpreted to meet its
objectives
under the complex necessities of the changing times. Provisions
intended
to promote social and economic goals are capable of varying
interpretations.
My view happens to differ from that of the majority. I am confident,
however,
that the demands of the nation's economy and the needs of the majority
of our people will bring the majority Decision and this Dissenting
Opinion
to a common understanding. Always, the goals of the Constitution must
be
upheld, not defeated nor diminished.chanrobles virtuallaw libraryred
Infrastructure building
is a function of the government and ideally should be financed
exclusively
by public funds. However, present circumstances show that this cannot
be
done. Thus, private corporations are encouraged to invest in income
generating
national construction ventures.chanrobles virtuallaw libraryred
Investments on the scale
of reclamation projects entail huge amounts of money. It is a reality
that
only private corporations can raise such amounts. In the process, they
assist this country in its economic development. Consequently, our
government
should not take arbitrary action against these corporate developers.
Obviously,
the courts play a key role in all disputes arising in this area of
national
development.chanrobles virtuallaw libraryred
This is the background
behind my second hard look at the issues and my resulting determination
to dissent.cralaw:red
The basic issue before
us is whether a private corporation, such as respondent AMARI, can
acquire
reclaimed lands.cralaw:red
The Decision being challenged
invokes the Regalian doctrine that the State owns all lands and waters
of the public domain. The doctrine is the foundation of the principle
of
land ownership that all lands that have not been acquired by purchase
or
grant from the Government belong to the public domain.[3]
Property of public dominion is that devoted to public use such as
roads,
canals, rivers, torrents, ports and bridges constructed by the State,
riverbanks,
shores, roadsteads and that of a similar character.[4]
Those which belong to the State, not devoted to public use, and are
intended
for some public service or for the development of the national wealth,
are also classified as property of public dominion.[5]
All other property of the State which is not of public dominion is
patrimonial.[6]
Also, property of public dominion, when no longer intended for public
use
or public service, shall form part of the patrimonial property of the
State.[7]chanrobles virtuallaw libraryred
In our Decision sought
to be reconsidered,[8]
we held that the following laws, among others, are applicable to the
particular
reclamation project involved in this case: the Spanish Law of Waters of
1866, the Civil Code of 1889, Act No. 1654 enacted by the Philippine
Commission
in 1907, Act No. 2874 (the Public Land Act of 1919), and Commonwealth
Act
No. 141 of the Philippine National Assembly, also known as the Public
Land
Act of 1936. Certain dictums are emphasized. Reclaimed lands of the
government
may be leased but not sold to private corporations and private
individuals.
The government retains title to lands it reclaims. Only lands which
have
been officially delimited or classified as alienable shall be declared
open to disposition or concession.chanrobles virtuallaw libraryred
Applying these laws
and the Constitution, we then concluded that the submerged areas of
Manila
Bay are inalienable natural resources of the public domain, outside the
commerce of man. They have to be classified by law as alienable or
disposable
agricultural lands of the public domain and have to be declared open to
disposition. However, there can be no classification and declaration of
their alienable or disposable nature until after PEA has reclaimed
these
submerged areas. Even after the submerged areas have been reclaimed
from
the sea and classified as alienable or disposable, private corporations
such as respondent AMARI, are disqualified from acquiring the reclaimed
land in view of Section 3, Article XII of the Constitution,
quoted as follows:chanrobles virtuallaw libraryred
"Lands of
the
Public domain are classified into agricultural, forest or timbre,
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 alienable
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 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.chanrobles virtuallaw libraryred
"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."
I dissent from the
foregoing
conclusions which are based on general laws mainly of ancient vintage.
Reclaimed lands, especially those under the Manila-Cavite Coastal Road
and Reclamation Project (MCCRRP), are governed by P.D. 1084[9]
and P.D. 1085[10]
enacted in 1976 and 1977, respectively, or more than half a century
after
the enactment of the Public Lands Acts of 1919 and 1936.chanrobles virtuallaw libraryred
P.D. 1084 and P.D. 1085
provide:
P.D. 1084:
"Section 4.
Purposes.
— The Authority is hereby created for the following purposes:
a. To
reclaim
land, including foreshore and submerged areas, by dredging, filling or
other means, or to acquire reclaimed land;
b. To develop,
improve,
acquire, administer, deal in, subdivide, dispose, lease and sell any
and
all kinds of lands, buildings, estates and other forms of real
property,
owned, managed, controlled and/or operated by the government;chanrobles virtuallaw libraryred
c. To provide
for, operate
or administer such services as may be necessary for the efficient,
economical
and beneficial utilization of the above properties. (Emphasis
ours.) chanrobles virtuallaw libraryred
P.D. 1085:
"The land
reclaimed
in the foreshore and offshore area of Manila Bay pursuant to the
contract
for the reclamation and construction of the Manila-Cavite Coastal Road
Project between the Republic of the Philippines and the Construction
and
Development Corporation of the Philippines dated November 20, 1973
and/or
any other contract or reclamation covering the same area is hereby
transferred,
conveyed and assigned to the ownership and administration of the Public
Estates Authority established pursuant to P.D. No. 1084; Provided,
however,
that the rights and interest of the Construction and Development
Corporation
of the Philippines pursuant to the aforesaid contract shall be
recognized
and respected.chanrobles virtuallaw libraryred
x x
x
x x
x
x x x
"Special land
patent/patents
shall be issued by the Secretary of Natural Resources in favor of the
Public
Estates Authority without prejudice to the subsequent transfer to the
contractor
or his assignees of such portion or portions of the land reclaimed or
to
be reclaimed as provided for in the above-mentioned contract. On the
basis
of such patents, the Land Registration Commission shall issue the
corresponding
certificates of title." (Emphasis ours.)
Pursuant to the above
provisions,
PEA is mandated inter alia to reclaim land, including foreshore and
submerged
areas, or to acquire reclaimed land. Likewise, PEA has the power to
sell
any and all kinds of lands and other forms of real property owned and
managed
by the government. Significantly, PEA is authorized to transfer to the
contractor or its assignees portion or portions of the land reclaimed
or
to be reclaimed.chanrobles virtuallaw libraryred
It is a fundamental
rule that if two or more laws govern the same subject, every effort to
reconcile and harmonize them must be taken. Interpretare et concordare
legibus est optimus interpretandi. Statutes must be so construed and
harmonized
with other statutes as to form a uniform system of jurisprudence.[11]
However, if several laws cannot be harmonized, the earlier statute must
yield to the later enactment. The later law is the latest expression of
the legislative will.[12]
Therefore, it is P.D. 1084 and P.D. 1085 which apply to the issues in
this
case.chanrobles virtuallaw libraryred
Moreover, the laws cited
in our Decision are general laws which apply equally to all the
individuals
or entities embraced by their provisions.[13]
The provisions refer to public lands in general.chanrobles virtuallaw libraryred
Upon the other hand,
P.D. 1084 and P.D. 1085 are special laws which relate to particular
economic
activities, specific kinds of land and a particular group of persons.[14]
Their coverage is specific and limited. More specifically, these
special
laws apply to land reclaimed from Manila Bay by private corporations.chanrobles virtuallaw libraryred
If harmonization and
giving effect to the provisions of both sets of laws is not possible,
the
special law should be made to prevail over the general law, as it
evinces
the legislative intent more clearly. The special law is a specific
enactment
of the legislature which constitutes an exception to the general
statute.[15]chanrobles virtuallaw libraryred
Our Decision cites the
constitutional provision banning private corporations from acquiring
any
kind of alienable land of the public domain.[16]
Under the Constitution,
lands of the public domain are classified into agricultural, forest or
timber, mineral lands, and natural parks.[17]
Land reclaimed from the sea cannot fall under any of the last three
categories
because it is neither forest or timber, mineral, nor park land. It is,
therefore, agricultural land.[18]
Agricultural land of the public domain may be alienated.[19]
However, the Constitution
states that private corporations may not hold such alienable land
except
by lease. It follows that AMARI, being a private corporation, cannot
hold
any reclaimed area. But let it be made clear that P.D. 1084 transfers
the
public agricultural land formed by reclamation to the "ownership and
administration"
of PEA, a government owned corporation. The transfer is not to AMARI, a
private corporation, hence, the constitutional prohibition does not
apply.
Corollarily, under P.D. 1085, PEA is empowered to subsequently transfer
to the contractor portion or portions of the land reclaimed or to be
reclaimed.chanrobles virtuallaw libraryred
Does the Constitution
restrain PEA from effecting such transfer to a private corporation?
Under
Article 421 of the Civil
Code, all property of the State which is not of public dominion is
patrimonial. PEA does not exercise sovereign functions of government.
It
handles business activities for the government. Thus, the property in
its
hands, not being of public dominion, is held in a patrimonial capacity.
PEA, therefore, may sell this property to private corporations without
violating the Constitution.
It is relevant to state that there is no constitutional obstacle to the
sale of real estate held by government owned corporations, like the
National
Development Corporation, the Philippine National Railways, the National
Power Corporation, etc. to private corporations. Similarly, why should
PEA, being a government owned corporation, be prohibited to sell its
reclaimed
lands to private corporations?chanrobles virtuallaw libraryred
I take exception to
the view of the majority that after the enactment of the 1935
Constitution, Section 58 of Act 2874 continues to be applicable up
to the present and that the long established state policy is to retain
for the government title and ownership of government reclaimed land.
This
simply is an inaccurate statement of current government policy. When a
government decides to reclaim the land, such as the area comprising and
surrounding the Cultural Center Complex and other parts of Manila Bay,
it reserves title only to the roads, bridges, and spaces allotted for
government
buildings. The rest is designed, as early as the drawing board stage,
for
sale and use as commercial, industrial, entertainment or
services-oriented
ventures. The idea of selling lots and earning money for the government
is the motive why the reclamation was planned and implemented in the
first
place.chanrobles virtuallaw libraryred
May I point out that
there are other planned or on-going reclamation projects in the
Philippines.
The majority opinion does not only strike down the Joint Venture
Agreement
(JVA) between AMARI and PEA but will also adversely affect or nullify
all
other reclamation agreements in the country. I doubt if government
financial
institutions, like the Development Bank of the Philippines, the
Government
Service Insurance System, the Social Security System or other agencies,
would risk a major portion of their funds in a problem-filled and
highly
speculative venture, like reclamation of land still submerged under the
sea. Likewise, there certainly are no private individuals, like
business
tycoons and similar entrepreneurs, who would undertake a major
reclamation
project without using the corporate device to raise and disburse funds
and to recover the amounts expended with a certain margin of profits.
And
why should corporations part with their money if there is no assurance
of payment, such as a share in the land reclaimed or to be reclaimed?
It
would be most unfair and a violation of procedural and substantive
rights[20]
to encourage investors, both Filipino and foreign, to form
corporations,
build infrastructures, spend money and efforts only to be told that the
invitation to invest is unconstitutional or illegal with absolutely no
indication of how they could be compensated for their work.chanrobles virtuallaw libraryred
It has to be stressed
that the petition does not actually assail the validity of the JVA
between
PEA and AMARI. The petition mainly seeks to compel PEA to disclose all
facts on the then on-going negotiations with respondent AMARI with
respect
to the reclamation of portions of Manila Bay. Petitioner relies on the
Constitutional provision that the right of the people to information on
matters of public concern shall be recognized and that access to papers
pertaining to official transactions shall be afforded the citizen.[21]
I believe that PEA does not have to reveal what was going on from the
very
start and during the negotiations with a private party. As long as the
parties have the legal capacity to enter into a valid contract over an
appropriate subject matter, they do not have to make public, especially
to competitors, the initial bargaining, the give-and-take arguments,
the
mutual concessions, the moving from one position to another, and other
preliminary steps leading to the drafting and execution of the
contract.
As in negotiations leading to a treaty or international agreement,
whether
sovereign or commercial in nature, a certain amount of secrecy is not
only
permissible but compelling.chanrobles virtuallaw libraryred
At any rate, recent
developments appear to have mooted this issue, and anything in the
Decision
which apparently approves publicity during on-going negotiations
without
pinpointing the stage where the right to information appears is obiter.
The motions for reconsideration all treat the JVA as a done thing,
something
already concrete, if not finalized.chanrobles virtuallaw libraryred
Indeed, it is hypothetical
to identify exactly when the right to information begins and what
matters
may be disclosed during negotiations for the reclamation of land from
the
sea.cralaw:red
Unfortunately for private
respondent, its name, "AMARI," happens to retain lingering unpleasant
connotations.
The phrase "grandmother of all scams," arising from the Senate
investigation
of the original contract, has not been completely erased from the
public
mind. However, any suspicion of anything corrupt or improper during the
initial negotiations which led to the award of the reclamation to AMARI
are completely irrelevant to this petition. It bears stressing that the
Decision and this Dissenting Opinion center exclusively on questions of
constitutionality and legality earlier discussed.chanrobles virtuallaw libraryred
To recapitulate, it
is my opinion that there is nothing in the Constitution or applicable
statutes
which impedes the exercise by PEA of its right to sell or otherwise
dispose
of its reclaimed land to private corporations, especially where, as
here,
the purpose is to compensate respondent AMARI, the corporate developer,
for its expenses incurred in reclaiming the subject areas. Pursuant to
P.D. 1084 and P.D. 1085, PEA can transfer to the contractor, such as
AMARI,
such portion or portions of the land reclaimed or to be reclaimed.chanrobles virtuallaw libraryred
WHEREFORE, I vote to
GRANT the motions for reconsideration and to DISMISS the petition for
lack
of merit.chanrobles virtuallaw libraryred
____________________________
Endnotes:
[1]
Hughes, The Supreme Court of the United States, p. 68; cited in Sinco,
Philippine Political Law, Eleventh Edition, 326.
[2]
Sections 1, 3 and 6, Article XII; Section 9, Article II, Constitution.chanrobles virtuallaw libraryred
[3]
Cariño vs. Insular Government, 41 Phil. 935 (1909).chanrobles virtuallaw libraryred
[4]
Article 420, Civil Code.chanrobles virtuallaw libraryred
[5]
Id.chanrobles virtuallaw libraryred
[6]
Article 421, id.chanrobles virtuallaw libraryred
[7]
Article 422, id.chanrobles virtuallaw libraryred
[8]
Pp. 27-28.chanrobles virtuallaw libraryred
[9]
Creating the Public Estate Authority, defining its powers and
functions,
providing funds therefor and for other purposes.
[10]
Conveying the land reclaimed in the foreshore and offshore of the
Manila
Bay (The Manila-Cavite Coastal Road Project) as property of the Public
Estates Authority as well as rights and interest with assumption of
obligations
in the reclamation contract covering areas of the Manila Bay between
the
Republic of the Philippines and the Construction and Development
Corporation
of the Philippines.
[11]
Valera vs. Tuazon, 80 Phil. 823 (1948).chanrobles virtuallaw libraryred
[12]
Eraña vs. Vergel de Dios, 85 Phil. 17 (1947); City of Naga vs.
Agna,
71 SCRA 176 (1976).chanrobles virtuallaw libraryred
[13]
U.S. vs. Serapio, 23 Phil. 584 (1912); Villegas vs. Subido, 41 SCRA 190
(1971); Bagatsing vs. Ramirez, 74 SCRA 306 (1976).
[14]
U.S. vs. Serapio, supra; Valero vs. Tuazon, supra.chanrobles virtuallaw libraryred
[15]
Licauco & Co. vs. Apostol, 44 Phil. 138 (1922); De Jesus vs.
People,
120 SCRA 760 (1983).
[16]
Section 3, Article XII, Constitution.chanrobles virtuallaw libraryred
[17]
Id.chanrobles virtuallaw libraryred
[18]
Krivenko vs. Register of Deeds, 79 Phil. 461 (1947).chanrobles virtuallaw libraryred
[19]
Section 3, Article XII, Constitution.chanrobles virtuallaw libraryred
[20]
Section 1, Article III, id. on deprivation of property without due
process
of law, Section 9 on eminent domain is also infringed.
[21]
Section 7, Article III, id.chanrobles virtuallaw libraryred |