The Supreme Court affirmed that a lessee’s right of first refusal must be honored, even when a government entity attempts to transfer property to another agency. This decision reinforces the principle that contractual obligations remain binding, and lessees have the priority to purchase leased property if the lessor decides to sell. This ruling protects the investments and business interests of lessees by ensuring they have the first opportunity to acquire the property they occupy.

NDC’s Broken Promise: Can PUP Acquire Property Over Lessee’s Vested Rights?

This case revolves around a dispute between Polytechnic University of the Philippines (PUP), National Development Company (NDC), and Golden Horizon Realty Corporation (GHRC) concerning a leased property within the NDC Compound. NDC, a government-owned corporation, leased portions of its property to GHRC, granting GHRC an option to purchase the leased areas. Subsequently, NDC attempted to transfer the entire NDC Compound to PUP through a memorandum order issued by the President. GHRC, claiming a violation of its right of first refusal, filed a complaint for specific performance. The Supreme Court was tasked with determining whether the transfer to PUP violated GHRC’s right to purchase the property and whether the ruling in a similar case involving another NDC lessee, Firestone Ceramics, Inc., applied.

The core of the legal battle centered on the interpretation and enforcement of the **right of first refusal** clause in the lease agreement between NDC and GHRC. This clause stipulated that GHRC had the priority to purchase the leased area should NDC decide to sell. The Supreme Court emphasized the nature of an option contract and a right of first refusal, clarifying their distinctions. An **option contract** is a binding agreement where the property owner commits to offering the property for sale exclusively to the option holder at a predetermined price within a specific timeframe. In contrast, a **right of first refusal** grants the holder the initial opportunity to buy the property if the owner decides to sell, but the terms, including the price, are subject to negotiation at the time of the offer. As the contract lacked a defined period and a fixed price, the Court determined that GHRC held a right of first refusal, not an option contract.

The Court highlighted the obligation imposed on the lessor when a lease contract includes a right of first refusal.

When a lease contract contains a right of first refusal, the lessor has the legal duty to the lessee not to sell the leased property to anyone at any price until after the lessor has made an offer to sell the property to the lessee and the lessee has failed to accept it. Only after the lessee has failed to exercise his right of first priority could the lessor sell the property to other buyers under the same terms and conditions offered to the lessee, or under terms and conditions more favorable to the lessor.

The evidence presented demonstrated that NDC had initiated negotiations for the sale of the property to PUP as early as July 1988, without first offering it to GHRC. GHRC had already expressed its intent to exercise its option to purchase the property in a letter dated August 12, 1988. NDC’s failure to respond and offer the property to GHRC before proceeding with the transfer to PUP constituted a clear violation of GHRC’s right of first refusal. The Court underscored that the implied renewal of the lease on a month-to-month basis after the original contract’s expiration did not nullify GHRC’s pre-existing right of first refusal, as the violation occurred while the original lease agreement was still in effect.

NDC argued that the earlier Firestone Ceramics case was distinguishable because Firestone’s lease contract was still in effect when the memorandum order was issued, while GHRC’s had expired. However, the Court rejected this argument, emphasizing that the crucial point was the commencement of negotiations with a third party before offering the property to GHRC, thus violating GHRC’s right during the original lease term. This perspective aligns with the precedent set in Equatorial Realty Development, Inc. v. Mayfair Theater, Inc., which affirms the enforceability of a right of first refusal. NDC’s attempt to disregard GHRC’s letter expressing its desire to purchase the property was also viewed unfavorably by the Court.

Further solidifying its stance, the Court considered whether the right of first refusal applied to both lease contracts (C-33-77 and C-12-78) or only to the second one, which explicitly contained the option to purchase. The Court aligned with the lower courts in determining that the two contracts were interconnected and inseparable. The commercial complex operated by GHRC relied on both leased areas to function effectively. The fact that NDC issued only one receipt for the combined rental payments further supported this view. Consequently, the right of first refusal encompassed both leased areas.

Having established the violation of GHRC’s right, the Court addressed the appropriate price for the property’s reconveyance. The lower courts had set the price at P554.74 per square meter, the same rate at which NDC sold the property to PUP. However, the Supreme Court recognized that this price was artificially low, as it represented a transfer between government entities. Citing its determination in the Firestone case that the actual value of the property was P1,500.00 per square meter, the Court adjusted the price accordingly. It stated, “…the price at which the leased premises should be sold to respondent in the exercise of its right of first refusal under the lease contract with petitioner NDC, which was pegged by the RTC at P554.74 per square meter, should be adjusted to P1,500.00 per square meter, which more accurately reflects its true value at that time of the sale in favor of petitioner PUP.” This adjustment ensures that GHRC purchases the property at its fair market value at the time of the sale to PUP.

FAQs

What is a right of first refusal?	A right of first refusal gives a party the first opportunity to purchase a property if the owner decides to sell it. The owner must offer the property to the holder of the right before offering it to anyone else.
What is an option contract?	An option contract is an agreement where the property owner agrees to keep an offer open exclusively for a specific period, at a fixed price. The option holder has the right, but not the obligation, to purchase the property.
What was the main issue in this case?	The main issue was whether NDC violated GHRC’s right of first refusal by selling the leased property to PUP without first offering it to GHRC. The Court ruled that NDC did violate GHRC’s right.
Why did the Court rule in favor of Golden Horizon Realty Corporation?	The Court ruled in favor of GHRC because NDC negotiated the sale of the property to PUP without first offering it to GHRC, breaching the right of first refusal clause in their lease agreement. GHRC had expressed its intent to purchase the property before NDC began negotiations with PUP.
Did the expiration of the lease contract affect the right of first refusal?	No, the Court ruled that the expiration of the lease contract did not negate GHRC’s right of first refusal. The violation occurred while the lease agreement was still in effect, as NDC began negotiations with PUP before offering the property to GHRC.
How did the Court determine the purchase price for the property?	The Court adjusted the purchase price to P1,500.00 per square meter, reflecting the actual value of the property at the time of the sale to PUP, as determined in a similar case involving Firestone Ceramics, Inc. This price more accurately reflected the true market value than the artificially low price used in the NDC-PUP transaction.
What was the significance of Memorandum Order No. 214 in this case?	Memorandum Order No. 214 authorized the transfer of the NDC Compound to PUP. However, the Court found that this order did not supersede GHRC’s contractual right of first refusal, which NDC was obligated to honor before transferring the property.
Could PUP invoke public interest or educational priority to justify the transfer?	No, the Court held that neither public interest nor educational priority could justify the violation of GHRC’s contractual rights. Contractual obligations must be respected, even when weighed against the importance of education.

This case reinforces the importance of upholding contractual rights, particularly the right of first refusal in lease agreements. It also confirms that government entities are not exempt from honoring their contractual obligations. The Supreme Court’s decision protects lessees by ensuring they receive the first opportunity to purchase the leased property when the lessor decides to sell.

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: Polytechnic University of the Philippines vs. Golden Horizon Realty Corporation, G.R. No. 184260, March 15, 2010