The Supreme Court affirmed that private corporations cannot own alienable lands of the public domain, including reclaimed lands. This ruling clarifies the limits on private sector involvement in land reclamation, ensuring that control over natural resources remains with the State. It underscores the importance of adhering to constitutional principles when undertaking projects that involve public resources, reinforcing safeguards against potential overreach by private entities and affirming the government’s role in safeguarding national patrimony.

Manila Bay’s Shores: Can Private Entities Own Reclaimed Land, Or Is It Public Domain?

In Francisco I. Chavez v. Public Estates Authority and Amari Coastal Bay Development Corporation, G.R. No. 133250, the Supreme Court of the Philippines tackled critical questions regarding the ownership and disposition of reclaimed lands, specifically those within the Manila Bay area. At the heart of the controversy was the Amended Joint Venture Agreement (JVA) between the Public Estates Authority (PEA) and Amari Coastal Bay Development Corporation (Amari), which sought to transfer ownership of reclaimed lands to Amari. The Court was asked to determine whether this agreement violated constitutional restrictions on private corporations owning alienable lands of the public domain. This case hinged on the interpretation of constitutional provisions concerning natural resources and their alienation, thereby influencing the framework for future land reclamation projects in the Philippines.

The facts of the case reveal that the Amended JVA aimed to develop the Freedom Islands and reclaim additional submerged areas in Manila Bay. Amari was to reimburse PEA for the costs of partially reclaiming the Freedom Islands and shoulder all reclamation costs for the remaining submerged areas. In return, Amari would acquire ownership of a significant portion of the reclaimed land. Petitioner Francisco Chavez contested the legality of this arrangement, arguing that it contravened constitutional limitations on private corporations owning public lands and alienating natural resources.

The Supreme Court, in its July 9, 2002 decision, declared the Amended JVA null and void from the beginning (ab initio). The Court’s reasoning centered on Sections 2 and 3 of Article XII of the 1987 Constitution. Section 2 reserves ownership of natural resources, other than agricultural lands, to the State. It also mandates that the exploration, development, and utilization of natural resources be under the State’s full control and supervision, allowing the State to directly undertake such activities or enter into co-production, joint venture, or production-sharing agreements with Filipino citizens or corporations with at least 60% Filipino ownership.

Section 3 explicitly prohibits private corporations from acquiring any kind of alienable land of the public domain, permitting them only to lease such lands for a limited period. The Court emphasized that these provisions reflect a clear intent to prevent the concentration of land ownership in the hands of private entities, ensuring equitable distribution among Filipino citizens. The Court noted that the 157.84 hectares of reclaimed lands comprising the Freedom Islands are alienable lands of the public domain. PEA may lease these lands to private corporations but may not sell or transfer ownership of these lands to private corporations. PEA may only sell these lands to Philippine citizens, subject to the ownership limitations in the 1987 Constitution and existing laws.

The Court further elucidated that the 592.15 hectares of submerged areas of Manila Bay remain inalienable natural resources of the public domain until classified as alienable or disposable lands open to disposition and declared no longer needed for public service. Citing Article 1409 of the Civil Code, the Court underscored that contracts with objects or purposes contrary to law or outside the commerce of man are inexistent and void from the beginning. The Court also rejected the argument that the ruling should apply prospectively, emphasizing that the constitutional prohibition on private corporations owning public lands has been in effect since the 1973 Constitution.

In its Resolution, the Court addressed several arguments raised in the motions for reconsideration. Amari contended that the absence of public bidding was not a ratio decidendi of the Decision. The Court clarified that while the absence of public bidding was mentioned, it was not central to the ruling, which was anchored on violations of specific constitutional provisions. The Court also rejected the comparison of PEA to the Bases Conversion Development Authority (BCDA), explaining that BCDA is authorized to sell specific government lands declared as military reservations, while PEA’s mandate is general and national, concerning all reclaimed lands.

Amari invoked the doctrine that a new doctrine of the Court cannot operate retroactively if it impairs vested rights, citing Spouses Benzonan v. Court of Appeals. The Court, however, found this argument inapplicable, stating:

At that time, the prevailing jurisprudence interpreting section 119 of R.A. 141 as amended was that enunciated in Monge and Tupas cited above. The petitioners Benzonan and respondent Pe and the DBP are bound by these decisions for pursuant to Article 8 of the Civil Code ‘judicial decisions applying or interpreting the laws or the Constitution shall form a part of the legal system of the Philippines.’ But while our decisions form part of the law of the land, they are also subject to Article 4 of the Civil Code which provides that ‘laws shall have no retroactive effect unless the contrary is provided.’ This is expressed in the familiar legal maxim lex prospicit, non respicit, the law looks forward not backward. The rationale against retroactivity is easy to perceive. The retroactive application of a law usually divests rights that have already become vested or impairs the obligations of contract and hence, is unconstitutional (Francisco v. Certeza, 3 SCRA 565 [1961]).

The Supreme Court clarified that the prevailing doctrine before, during, and after the signing of the Amended JVA is that private corporations cannot hold, except by lease, alienable lands of the public domain. This is one of the two main reasons why the Decision annulled the Amended JVA.

Several justices penned separate opinions, reflecting diverse perspectives on the matter. Justice Bellosillo, in his concurring and dissenting opinion, argued that the Amended JVA was severable and that AMARI should be compensated for its efforts. He also expressed concerns about withholding reclaimed lands as unmoving assets. Justice Puno, in his separate opinion, advocated for a prospective application of the Decision, emphasizing that Amari relied on unbroken opinions of the Department of Justice and acts of Congress allowing portions of reclaimed lands to be paid to whoever undertook the work. Justices Ynares-Santiago and Sandoval-Gutierrez dissented, emphasizing that reclaimed lands have been historically treated as alienable and that the object of the contract was the act of reclamation, not the land itself.

The implications of this ruling are far-reaching. It reinforces the constitutional mandate that the State retains control over natural resources and that private corporations cannot acquire alienable lands of the public domain, except through lease. It clarifies the parameters for government agencies like PEA in undertaking reclamation projects, underscoring the need to adhere strictly to constitutional limitations. The Decision also serves as a cautionary tale for private corporations engaged in joint ventures with the government, highlighting the risks of investing in projects that may run afoul of constitutional restrictions.

Despite the nullity of the Amended JVA, Amari is not precluded from recovering from PEA in the proper proceedings, on a quantum meruit basis, whatever Amari may have incurred in implementing the Amended JVA prior to its declaration of nullity.

FAQs

What was the key issue in this case?	The key issue was whether a private corporation could acquire ownership of reclaimed lands, considering constitutional limitations on private ownership of public lands and natural resources.
What did the Supreme Court rule?	The Supreme Court ruled that the Amended JVA between PEA and Amari was unconstitutional because it sought to transfer ownership of reclaimed lands to a private corporation, violating Sections 2 and 3 of Article XII of the 1987 Constitution.
What is the Regalian doctrine?	The Regalian doctrine asserts that the State owns all lands and waters of the public domain, and those who claim ownership must prove that the State has separated itself from its ownership through a grant or purchase.
Can private corporations be involved in land reclamation?	Yes, private corporations can participate in land reclamation projects through lease agreements or joint ventures with the government, but they cannot acquire ownership of the reclaimed land.
What is the significance of PD 1084 and PD 1085 in this case?	PD 1084 created PEA, and PD 1085 transferred reclaimed lands to PEA’s ownership and administration. The court had to reconcile these decrees with constitutional bans on private ownership of public land.
What does quantum meruit mean in this context?	Quantum meruit allows Amari to recover reasonable compensation for the services it rendered and the expenses it incurred in implementing the Amended JVA before it was declared null and void.
Why was the Amended JVA declared void ab initio?	The Amended JVA was declared void ab initio because its object and purpose were contrary to the Constitution, specifically violating Sections 2 and 3 of Article XII, which prohibit the alienation of natural resources and the acquisition of alienable lands of the public domain by private corporations.
Can PEA sell reclaimed lands?	PEA can lease reclaimed lands to private corporations or sell them to Philippine citizens, but it cannot sell or transfer ownership of these lands to private corporations, as this would violate constitutional restrictions.

The Supreme Court’s decision in Chavez v. PEA and Amari affirms the principle that the State retains control over natural resources and that private corporations cannot acquire ownership of alienable lands of the public domain, except through lease. This ruling underscores the importance of adhering to constitutional principles when undertaking projects that involve public resources and clarifying the limits on private sector involvement in land reclamation, reinforcing safeguards against potential overreach by private entities.

For inquiries regarding the application of this ruling to specific circumstances, please contact ASG Law through contact or via email at frontdesk@asglawpartners.com.

Disclaimer: This analysis is provided for informational purposes only and does not constitute legal advice. For specific legal guidance tailored to your situation, please consult with a qualified attorney.
Source: FRANCISCO I. CHAVEZ VS. PUBLIC ESTATES AUTHORITY AND AMARI COASTAL BAY DEVELOPMENT CORPORATION, G.R. No. 133250, May 06, 2003