Professional Documents
Culture Documents
180006
exceed Six pesos and fifty centavos (P6.50) per pack, the
tax shall be Five pesos (P5.00) per pack;
(4) If the net retail price (excluding the excise tax and the
[value]-added tax) is below Five pesos (P5.00) per pack,
the tax shall be One peso (P1.00) per pack.
xxxx
BRION, J.:
Before the Court is a petition for review on certiorari filed under Rule 45 of
the Rules of Court by petitioner Commissioner of Internal Revenue (CIR),
assailing the decision dated July 12, 20071 and the resolution dated
October 4, 2007,2 both issued by the Court of Tax Appeals (CTA) en banc
in CTA E.B. No. 228.
BACKGROUND FACTS
Under our tax laws, manufacturers of cigarettes are subject to pay excise
taxes on their products. Prior to January 1, 1997, the excises taxes on
these products were in the form of ad valorem taxes, pursuant to Section
142 of the 1977 National Internal Revenue Code (1977 Tax Code).
Beginning January 1, 1997, Republic Act No. (RA) 8240 3 took effect and a
shift from ad valorem to specific taxes was made. Section 142(c) of the
1977 Tax Code, as amended by RA 8240, reads in part:
Sec. 142. Cigars and cigarettes. x x x.
(c) Cigarettes packed by machine. There shall be levied, assessed and
collected on cigarettes packed by machine a tax at the rates prescribed
below:
(1) If the net retail price (excluding the excise tax and the
value-added tax) is above Ten pesos (P10.00) per pack,
the tax shall be Twelve pesos (P12.00) per pack;
(2) If the net retail price (excluding the excise tax and the
value-added tax) exceeds Six pesos and fifty centavos
(P6.50) but does not exceed Ten pesos (P10.00) per pack,
the tax shall be Eight pesos (P8.00) per pack;
(3) If the net retail price (excluding the excise tax and the
value-added tax) is Five pesos (P5.00) but does not
The specific tax from any brand of cigarettes within the next three (3)
years of effectivity of this Act shall not be lower than the tax [which] is
due from each brand on October 1, 1996: Provided, however, That in cases
where the specific tax rates imposed in paragraphs (1), (2), (3) and (4)
hereinabove will result in an increase in excise tax of more than seventy
percent (70%), for a brand of cigarette, the increase shall take effect in
two tranches: fifty percent (50%) of the increase shall be effective in 1997
and one hundred percent (100%) of the increase shall be effective in
1998.
xxxx
The rates of specific tax on cigars and cigarettes under paragraphs (1),
(2), (3) and (4) hereof, shall be increased by twelve percent (12%) on
January 1, 2000. [emphases ours]
To implement RA 8240 and pursuant to its rule-making powers, the CIR
issued Revenue Regulation No. (RR) 1-97 whose Section 3(c) and (d)
echoed the above-quoted portion of Section 142 of the 1977 Tax Code, as
amended.4
The 1977 Tax Code was later repealed by RA 8424, or the National Internal
Revenue Code of 1997 (1997 Tax Code), and Section 142, as amended by
RA 8240, was renumbered as Section 145.
This time, to implement the 12% increase in specific taxes mandated
under Section 145 of the 1997 Tax Code and again pursuant to its rulemaking powers, the CIR issued RR 17-99, which reads:
Section 1. New Rates of Specific Tax. The specific tax rates imposed under
the following sections are hereby increased by twelve percent (12%) and
the new rates to be levied, assessed, and collected are as follows:
Section
145
Description of
Articles
Present Specific
Tax Rates (Prior
to January 1,
2000)
fermented liquors shall not be lower than the excise tax that is actually
being paid prior to January 1, 2000. [emphasis ours]
THE FACTS OF THE CASE
CIGARS and
CIGARETTES
B) Cigarettes
Packed by Machine
In June 2004, Fortune Tobacco filed an administrative claim for tax refund
with the CIR for erroneously and/or illegally collected taxes in the amount
of P491 million.6 Without waiting for the CIRs action on its claim, Fortune
Tobacco filed with the CTA a judicial claim for tax refund.7
P12.00/pack
P13.44/pack
P8.00/pack
P8.96/pack
P5.60/pack
P1.12/pack
Provided, however, that the new specific tax rate for any existing brand of
cigars [and] cigarettes packed by machine, distilled spirits, wines and
In its decision dated May 26, 2006, the CTA First Division ruled in favor of
Fortune Tobacco and granted its claim for refund.8 The CTA First Divisions
ruling was upheld on appeal by the CTA en banc in its decision dated July
12, 2007.9 The CIRs motion for reconsideration of the CTA en bancs
decision was denied in a resolution dated October 4, 2007. 10
THE ISSUE
Fortune Tobaccos claim for refund of overpaid excise taxes is based
primarily on what it considers as an "unauthorized administrative
legislation" on the part of the CIR. Specifically, it assails the proviso in
Section 1 of RR 17-99 that requires the payment of the "excise tax
actually being paid prior to January 1, 2000" if this amount is higher than
the new specific tax rate, i.e., the rates of specific taxes imposed in 1997
for each category of cigarette, plus 12%. It claimed that by including the
proviso, the CIR went beyond the language of the law and usurped
Congress power. As mentioned, the CTA sided with Fortune Tobacco and
allowed the latter to claim the refund.
The CIR disagrees with the CTAs ruling and assails it before this Court
through the present petition for review on certiorari. The CIR posits that
the inclusion of the proviso in Section 1 of RR 17-99 was made to carry
into effect the laws intent and is well within the scope of his delegated
legislative authority.11 He claims that the CTAs strict interpretation of the
law ignored Congress intent "to increase the collection of excise taxes by
increasing specific tax rates on sin products." 12 He cites portions of the
Senates deliberation on House Bill No. 7198 (the precursor of RA 8240)
that conveyed the legislative intent to increase the excise taxes being
paid.13
The CIR points out that Section 145(c) of the 1997 Tax Code categorically
declares that "[t]he excise tax from any brand of cigarettes within the
Following the principle of stare decisis, 17 our ruling in the present case
should no longer come as a surprise. The proviso in Section 1 of RR 17-99
clearly went beyond the terms of the law it was supposed to implement,
and therefore entitles Fortune Tobacco to claim a refund of the overpaid
excise taxes collected pursuant to this provision.
The amount involved in the present case and the CIRs firm insistence of
its arguments nonetheless compel us to take a second look at the issue,
but our findings ultimately lead us to the same conclusion. Indeed, we find
more reasons to disagree with the CIRs construction of the law than those
stated in our 2008 Fortune Tobacco ruling, which was largely based on the
application of the rules of statutory construction.
Raising government revenue is not the sole objective of RA 8240
That RA 8240 (incorporated as Section 145 of the 1997 Tax Code) was
enacted to raise government revenues is a given fact, but this is not the
sole and only objective of the law.18 Congressional deliberations show that
the shift from ad valorem to specific taxes introduced by the law was also
intended to curb the corruption that became endemic to the imposition of
ad valorem taxes.19 Since ad valorem taxes were based on the value of the
goods, the prices of the goods were often manipulated to yield lesser
taxes. The imposition of specific taxes, which are based on the volume of
goods produced, would prevent price manipulation and also cure the
unequal tax treatment created by the skewed valuation of similar goods.
Rule of uniformity of taxation violated by the proviso in Section 1, RR 1799
The Constitution requires that taxation should be uniform and equitable. 20
Uniformity in taxation requires that all subjects or objects of taxation,
similarly situated, are to be treated alike both in privileges and liabilities. 21
This requirement, however, is unwittingly violated when the proviso in
Section 1 of RR 17-99 is applied in certain cases. To illustrate this point,
we consider three brands of cigarettes, all classified as lower-priced
cigarettes under Section 145(c)(4) of the 1997 Tax Code, since their net
retail price is below P5.00 per pack:
Brand22
Net
Retail
Price
per
pack
(A)
Ad
Valorem
Tax Due
prior to
Jan 1997
(B)
Specific
Tax under
Section
145(C)(4)
(C)
Specific
Tax Due
Jan 1997
to Dec
1999
(D)
New
Specific Tax
imposing
12%
increase by
Jan 2000
(E)
New
Specific
Tax Due
by Jan
2000 per
RR 17-99
Camel KS
4.71
5.50
1.00/pack
5.50
1.12/pack
5.50
Champion
M 100
4.56
3.30
1.00/pack
3.30
1.12/pack
3.30
Union
American
Blend
4.64
1.09
1.00/pack
1.09
1.12/pack
1.12
Although the brands all belong to the same category, the proviso in
Section 1, RR 17-99 authorized the imposition of different (and grossly
disproportionate) tax rates (see column [D]). It effectively extended the
qualification stated in the third paragraph of Section 145(c) of the 1997
Tax Code that was supposed to apply only during the transition period:
The excise tax from any brand of cigarettes within the next three (3) years
from the effectivity of R.A. No. 8240 shall not be lower than the tax, which
is due from each brand on October 1, 1996[.]
In the process, the CIR also perpetuated the unequal tax treatment of
similar goods that was supposed to be cured by the shift from ad valorem
to specific taxes.
The omission in the law in fact reveals the legislative intent not to adopt
the "higher tax rule"
The CIR claims that the proviso in Section 1 of RR 17-99 was patterned
after the third paragraph of Section 145(c) of the 1997 Tax Code. Since
the laws intent was to increase revenue, it found no reason not to apply
the same "higher tax rule" to excise taxes due after the transition period
despite the absence of a similar text in the wording of Section 145(c).
What the CIR misses in his argument is that he applied the rule not only
for cigarettes, but also for cigars, distilled spirits, wines and fermented
liquors:
Evidently, the 1997 Tax Codes provisions on excise taxes have omitted the
adoption of certain tax measures. To our mind, these omissions are telling
indications of the intent of Congress not to adopt the omitted tax
measures; they are not simply unintended lapses in the laws wording
that, as the CIR claims, are nevertheless covered by the spirit of the law.
Had the intention of Congress been solely to increase revenue collection, a
provision similar to the third paragraph of Section 145(c) would have been
incorporated in Sections 141 and 142 of the 1997 Tax Code. This, however,
is not the case.
We note that Congress was not unaware that the "higher tax rule" is a
proviso that should ideally apply to the increase after the transition period
(as the CIR embodied in the proviso in Section 1 of RR 17-99). During the
deliberations for the law amending Section 145 of the 1997 Tax Code (RA
9334), Rep. Jesli Lapuz adverted to the "higher tax rule" after December
31, 1999 when he stated:
This bill serves as a catch-up measure as government attempts to collect
additional revenues due it since 2001. Modifications are necessary indeed
to capture the loss proceeds and prevent further erosion in revenue base.
x x x. As it is, it plugs a major loophole in the ambiguity of the law as
evidenced by recent disputes resulting in the government being ordered by
the courts to refund taxpayers.1wphi1 This bill clarifies that the excise
tax due on the products shall not be lower than the tax due as of the date
immediately prior to the effectivity of the act or the excise tax due as of
December 31, 1999.26
This remark notwithstanding, the final version of the bill that became RA
9334 contained no provision similar to the proviso in Section 1 of RR 17-99
that imposed the tax due as of December 31, 1999 if this tax is higher
than the new specific tax rates. Thus, it appears that despite its awareness
of the need to protect the increase of excise taxes to increase government
revenue, Congress ultimately decided against adopting the "higher tax
rule.
Provided, however, that the new specific tax rate for any existing brand of
cigars [and] cigarettes packed by machine, distilled spirits, wines and
fermented liquors shall not be lower than the excise tax that is actually
being paid prior to January 1, 2000.
When the pertinent provisions of the 1997 Tax Code imposing excise taxes
on these products are read, however, there is nothing similar to the third
paragraph of Section 145(c) that can be found in the provisions imposing
excise taxes on distilled spirits (Section 14123 ) and wines (Section 14224 ).
In fact, the rule will also not apply to cigars as these products fall under
Section 145(a).25
SO ORDERED.
QUISUMBING, J.:
This petition for review assails the Resolution 1 of the Court of Appeals
dated September 22, 1993 affirming the Decision 2 and a Resolution 3 of
the Court Of Tax Appeals which denied the claims of the petitioner for tax
refund and tax credits, and disposing as follows:
IN VIEW OF ALL, THE FOREGOING, the instant petition for
review, is DENIED due course. The Decision of the Court of
Tax Appeals dated May 20, 1993 and its resolution dated
July 20, 1993, are hereby AFFIRMED in toto.
SO ORDERED.
quarterly income tax returns for the first and second quarters of 1985,
reported profits, and paid the total income tax of P5,016,954.00. The
taxes due were settled by applying PBCom's tax credit memos and
accordingly, the Bureau of Internal Revenue (BIR) issued Tax Debit Memo
Nos. 0746-85 and 0747-85 for P3,401,701.00 and P1,615,253.00,
respectively.
But during these two years, PBCom earned rental income from leased
properties. The lessees withheld and remitted to the BIR withholding
creditable taxes of P282,795.50 in 1985 and P234,077.69 in 1986.
On August 7, 1987, petitioner requested the Commissioner of Internal
Revenue, among others, for a tax credit of P5,016,954.00 representing the
overpayment of taxes in the first and second quarters of 1985.
Thereafter, on July 25, 1988, petitioner filed a claim for refund of
creditable taxes withheld by their lessees from property rentals in 1985 for
P282,795.50 and in 1986 for P234,077.69.
Pending the investigation of the respondent Commissioner of Internal
Revenue, petitioner instituted a Petition for Review on November 18, 1988
before the Court of Tax Appeals (CTA). The petition was docketed as CTA
Case No. 4309 entitled: "Philippine Bank of Communications vs.
Commissioner of Internal Revenue."
The losses petitioner incurred as per the summary of petitioner's claims for
refund and tax credit for 1985 and 1986, filed before the Court of Tax
Appeals, are as follows:
1985 1986
Net Income (Loss) (P25,317,288.00) (P14,129,602.00)
Quarterly tax.
Payments Made 5,016,954.00
Tax Withheld at Source 282,795.50 234,077.69
Excess Tax Payments P5,299,749.50* P234,077.69
=============== =============
* CTA's decision reflects PBCom's 1985 tax
claim as P5,299,749.95. A forty five
centavo difference was noted.
On May 20, 1993, the CTA rendered a decision which, as stated on the
outset, denied the request of petitioner for a tax refund or credit in the
sum amount of P5,299,749.95, on the ground that it was filed beyond the
two-year reglementary period provided for by law. The petitioner's claim
for refund in 1986 amounting to P234,077.69 was likewise denied on the
assumption that it was automatically credited by PBCom against its tax
payment in the succeeding year.
On June 22, 1993, petitioner filed a Motion for Reconsideration of the
CTA's decision but the same was denied due course for lack of merit. 6
Thereafter, PBCom filed a petition for review of said decision and resolution
of the CTA with the Court of Appeals. However on September 22, 1993,
the Court of Appeals affirmed in toto the CTA's resolution dated July 20,
1993. Hence this petition now before us.
The issues raised by the petitioner are:
I. Whether taxpayer PBCom which relied
in good faith on the formal assurances of
BIR in RMC No. 7-85 and did not
immediately file with the CTA a petition for
review asking for the refund/tax credit of
its 1985-86 excess quarterly income tax
payments can be prejudiced by the
inconsistency with the provision of Sec. 230 of 1977 NIRC. In so doing, the
BIR did not simply interpret the law; rather it legislated guidelines contrary
to the statute passed by Congress.
It bears repeating that Revenue memorandum-circulars are considered
administrative rulings (in the sense of more specific and less general
interpretations of tax laws) which are issued from time to time by the
Commissioner of Internal Revenue. It is widely accepted that the
interpretation placed upon a statute by the executive officers, whose duty
is to enforce it, is entitled to great respect by the courts. Nevertheless,
such interpretation is not conclusive and will be ignored if judicially found
to be erroneous. 20 Thus, courts will not countenance administrative
issuances that override, instead of remaining consistent and in harmony
with the law they seek to apply and implement. 21
In the case of People vs. Lim, 22 it was held that rules and regulations
issued by administrative officials to implement a law cannot go beyond the
terms and provisions of the latter.
Appellant contends that Section 2 of FAO No. 37-1 is void
because it is not only inconsistent with but is contrary to
the provisions and spirit of Act. No 4003 as amended,
because whereas the prohibition prescribed in said
Fisheries Act was for any single period of time not
exceeding five years duration, FAO No 37-1 fixed no
period, that is to say, it establishes an absolute ban for all
time. This discrepancy between Act No. 4003 and FAO No.
37-1 was probably due to an oversight on the part of
Secretary of Agriculture and Natural Resources. Of course,
in case of discrepancy, the basic Act prevails, for the
reason that the regulation or rule issued to implement a
law cannot go beyond the terms and provisions of the
latter. . . . In this connection, the attention of the technical
men in the offices of Department Heads who draft rules
and regulation is called to the importance and necessity of
closely following the terms and provisions of the law which
they intended to implement, this to avoid any possible
misunderstanding or confusion as in the present case. 23
Further, fundamental is the rule that the State cannot be put in estoppel
by the mistakes or errors of its officials or agents. 24 As pointed out by the
respondent courts, the nullification of RMC No. 7-85 issued by the Acting
April 9, 2003
On January 25, 1996, the trial court issued an Order15 dismissing the case.
It ruled that the tax exemption privileges granted to petitioner subsist
despite the passage of Rep. Act No. 7160 for the following reasons: (1)
Rep. Act No. 6395 is a particular law and it may not be repealed by Rep.
Act No. 7160 which is a general law; (2) section 193 of Rep. Act No. 7160
is in the nature of an implied repeal which is not favored; and (3) local
governments have no power to tax instrumentalities of the national
government. Pertinent portion of the Order reads:
"The question of whether a particular law has been repealed or not
by a subsequent law is a matter of legislative intent. The
lawmakers may expressly repeal a law by incorporating therein
repealing provisions which expressly and specifically cite(s) the
particular law or laws, and portions thereof, that are intended to
be repealed. A declaration in a statute, usually in its repealing
clause, that a particular and specific law, identified by its number
or title is repealed is an express repeal; all others are implied
repeal. Sec. 193 of R.A. No. 7160 is an implied repealing clause
because it fails to identify the act or acts that are intended to be
repealed. It is a well-settled rule of statutory construction that
repeals of statutes by implication are not favored. The
presumption is against inconsistency and repugnancy for the
legislative is presumed to know the existing laws on the subject
and not to have enacted inconsistent or conflicting statutes. It is
also a well-settled rule that, generally, general law does not repeal
a special law unless it clearly appears that the legislative has
intended by the latter general act to modify or repeal the earlier
special law. Thus, despite the passage of R.A. No. 7160 from which
the questioned Ordinance No. 165-92 was based, the tax
exemption privileges of defendant NPC remain.
Another point going against plaintiff in this case is the ruling of the
Supreme Court in the case of Basco vs. Philippine Amusement and
Gaming Corporation, 197 SCRA 52, where it was held that:
'Local governments have no power to tax instrumentalities
of the National Government. PAGCOR is a government
owned or controlled corporation with an original charter,
PD 1869. All of its shares of stocks are owned by the
National Government. xxx Being an instrumentality of the
government, PAGCOR should be and actually is exempt
from local taxes. Otherwise, its operation might be
under Art. 137 (sic) of the Local Government Code refers merely
to private persons or corporations in which category it (NPC) does
not belong, and that the LGC (RA 7160) which is a general law
may not impliedly repeal the NPC Charter which is a special law
finds the answer in Section 193 of the LGC to the effect that 'tax
exemptions or incentives granted to, or presently enjoyed by all
persons, whether natural or juridical, including government-owned
or controlled corporations except local water districts xxx are
hereby withdrawn.' The repeal is direct and unequivocal, not
implied.
In the case of a newly started business, the tax shall not exceed
one-twentieth (1/20) of one percent (1%) of the capital
investment. In the succeeding calendar year, regardless of when
the business started to operate, the tax shall be based on the
gross receipts for the preceding calendar year, or any fraction
thereof, as provided herein." (emphasis supplied)
SO ORDERED."20
natural persons and to private corporations.23 Ergo, its charter should not
be considered a "franchise" for the purpose of imposing the franchise tax
in question.
On the other hand, section 131 (d) of the LGC defines "business" as "trade
or commercial activity regularly engaged in as means of livelihood or with
a view to profit." Petitioner claims that it is not engaged in an activity for
profit, in as much as its charter specifically provides that it is a "non-profit
organization." In any case, petitioner argues that the accumulation of
profit is merely incidental to its operation; all these profits are required by
law to be channeled for expansion and improvement of its facilities and
services.24
Petitioner also alleges that it is an instrumentality of the National
Government,25 and as such, may not be taxed by the respondent city
government. It cites the doctrine in Basco vs. Philippine Amusement and
Gaming Corporation26 where this Court held that local governments have
no power to tax instrumentalities of the National Government, viz:
"Local governments have no power to tax instrumentalities of the
National Government.
PAGCOR has a dual role, to operate and regulate gambling casinos.
The latter role is governmental, which places it in the category of
an agency or instrumentality of the Government. Being an
instrumentality of the Government, PAGCOR should be and
actually is exempt from local taxes. Otherwise, its operation might
be burdened, impeded or subjected to control by a mere local
government.
'The states have no power by taxation or otherwise, to
retard, impede, burden or in any manner control the
operation of constitutional laws enacted by Congress to
carry into execution the powers vested in the federal
government. (MC Culloch v. Maryland, 4 Wheat 316, 4 L
Ed. 579)'
This doctrine emanates from the 'supremacy' of the National
Government over local governments.
'Justice Holmes, speaking for the Supreme Court, made
reference to the entire absence of power on the part of the
pervasive, the least limitable and most demanding of all powers, including
the power of taxation."29
enact a local government code that will, consistent with the basic policy of
local autonomy, set the guidelines and limitations to this grant of taxing
powers, viz:
main difference is that the petitioner is mandated to devote "all its returns
from its capital investment, as well as excess revenues from its operation,
for expansion"70 while other franchise holders have the option to distribute
their profits to its stockholders by declaring dividends. We do not see why
this fact can be a source of difference in tax treatment. In both instances,
the taxable entity is the corporation, which exercises the franchise, and
not the individual stockholders.
We also do not find merit in the petitioner's contention that its tax
exemptions under its charter subsist despite the passage of the LGC.
As a rule, tax exemptions are construed strongly against the claimant.
Exemptions must be shown to exist clearly and categorically, and
supported by clear legal provisions.71 In the case at bar, the petitioner's
sole refuge is section 13 of Rep. Act No. 6395 exempting from, among
others, "all income taxes, franchise taxes and realty taxes to be paid to the
National Government, its provinces, cities, municipalities and other
government agencies and instrumentalities." However, section 193 of the
LGC withdrew, subject to limited exceptions, the sweeping tax privileges
previously enjoyed by private and public corporations. Contrary to the
contention of petitioner, section 193 of the LGC is an express, albeit
general, repeal of all statutes granting tax exemptions from local taxes. 72
It reads:
"Sec. 193. Withdrawal of Tax Exemption Privileges.- Unless
otherwise provided in this Code, tax exemptions or incentives
granted to, or presently enjoyed by all persons, whether natural or
juridical, including government-owned or controlled corporations,
except local water districts, cooperatives duly registered under
R.A. No. 6938, non-stock and non-profit hospitals and educational
institutions, are hereby withdrawn upon the effectivity of this
Code." (emphases supplied)
It is a basic precept of statutory construction that the express mention of
one person, thing, act, or consequence excludes all others as expressed in
the familiar maxim expressio unius est exclusio alterius. 73 Not being a local
water district, a cooperative registered under R.A. No. 6938, or a nonstock and non-profit hospital or educational institution, petitioner clearly
does not belong to the exception. It is therefore incumbent upon the
petitioner to point to some provisions of the LGC that expressly grant it
exemption from local taxes.
But this would be an exercise in futility. Section 137 of the LGC clearly
states that the LGUs can impose franchise tax "notwithstanding any
exemption granted by any law or other special law." This particular
provision of the LGC does not admit any exception. In City Government of
San Pablo, Laguna v. Reyes,74 MERALCO's exemption from the payment of
franchise taxes was brought as an issue before this Court. The same issue
was involved in the subsequent case of Manila Electric Company v.
Province of Laguna.75 Ruling in favor of the local government in both
instances, we ruled that the franchise tax in question is imposable despite
any exemption enjoyed by MERALCO under special laws, viz:
"It is our view that petitioners correctly rely on provisions of
Sections 137 and 193 of the LGC to support their position that
MERALCO's tax exemption has been withdrawn. The explicit
language of section 137 which authorizes the province to impose
franchise tax 'notwithstanding any exemption granted by any law
or other special law' is all-encompassing and clear. The franchise
tax is imposable despite any exemption enjoyed under special
laws.
Section 193 buttresses the withdrawal of extant tax exemption
privileges. By stating that unless otherwise provided in this Code,
tax exemptions or incentives granted to or presently enjoyed by all
persons, whether natural or juridical, including government-owned
or controlled corporations except (1) local water districts, (2)
cooperatives duly registered under R.A. 6938, (3) non-stock and
non-profit hospitals and educational institutions, are withdrawn
upon the effectivity of this code, the obvious import is to limit the
exemptions to the three enumerated entities. It is a basic precept
of statutory construction that the express mention of one person,
thing, act, or consequence excludes all others as expressed in the
familiar maxim expressio unius est exclusio alterius. In the
absence of any provision of the Code to the contrary, and we find
no other provision in point, any existing tax exemption or incentive
enjoyed by MERALCO under existing law was clearly intended to be
withdrawn.
Reading together sections 137 and 193 of the LGC, we conclude
that under the LGC the local government unit may now impose a
local tax at a rate not exceeding 50% of 1% of the gross annual
receipts for the preceding calendar based on the incoming receipts
realized within its territorial jurisdiction. The legislative purpose to
Thus, the 1997 Rules of Civil Procedure which took effect on July 1, 1997
and which required that appellate docket and other lawful fees should be
paid within the same period for taking an appeal,9 can not affect PPIs
appeal which was already perfected in 1992. Much less could it be
considered a ground for dismissal thereof since PPIs period for taking an
appeal, likewise the period for payment of the appellate docket fee as now
required by the rules, has long lapsed in 1992. While the right to appeal is
statutory, the mode or manner by which this right may be exercised is a
question of procedure which may be altered and modified only when
vested rights are not impaired.10 Thus, failure to pay the appellate docket
fee when the 1997 Rules of Procedure took effect cannot operate to
deprive PPI of its right, already perfected in 1992, to have its case
reviewed on appeal. In fact the Court of Appeals recognized such fact
when it gave PPI a fresh period to pay the appellate docket fee in an Order
dated April 9, 2002 issued in UDK-CV-No. 030411 directing it to pay the fee
within fifteen (15) days from receipt thereof.
This is not all. We have also previously ruled that failure to pay the
appellate docket fee does not automatically result in the dismissal of an
appeal, dismissal being discretionary on the part of the appellate court. 12
And in determining whether or not to dismiss an appeal on such ground,
courts have always been guided by the peculiar legal and equitable
circumstances attendant to each case. Thus, in Pedrosa v. Hill 13 and
Gegare v. Court of Appeals,14 the appeals were dismissed because
appellants failed to pay the appellate docket fees despite timely notice
given them by the Court of Appeals and despite its admonitions that the
appeals would be dismissed in case of non-compliance. On the other hand,
the appeal in Mactan Cebu International Airport Authority v. Mangubat 15
was not dismissed because we took into account the fact that the 1997
Rules of Civil Procedure had only been in effect for fourteen (14) days
when the Office of the Solicitor General appealed from the decision of the
RTC of Lapu-Lapu City on July 14, 1997 without paying the appellate court
docket fees as required by the new rules. Considering the recency of the
changes and appellants immediate payment of the fees when required to
do so, the appeal was not dismissed. We can do no less in the instant case
where PPI was not even required under the rules in 1992 to pay the
appellate docket fees at the time it filed its appeal. We note moreover that
PPI, like the appellant in Mactan, promptly paid the fees when required to
do so for the first time by the RTC of Makati in its Order dated April 3,
2001, and informed the Court of Appeals of such compliance when it in
turn notified PPI that the fees were due, in an Order dated April 9, 2002.
The remedy of appeal being an essential part of our judicial system,
caution must always be observed so that every party-litigant is not
deprived of its right to appeal, but rather, given amplest opportunity for
the proper and just disposition of his cause, freed from the constraints of
technicalities.16
Having so ruled, we shall refrain from delving into the merits of petitioners
other contentions, discussion of one being the proper subject of the appeal
before the Court of Appeals,17 and the other, being premature at this
point.18
IN VIEW WHEREOF, the petition is GRANTED. The questioned Decision
dated July 19, 2002 of the Court of Appeals in CA-G.R. SP No. 67434 and
its Resolution dated December 4, 2002 denying petitioners motion for
reconsideration are SET ASIDE.
The Order dated April 3, 2001 of the Regional Trial Court of Makati City,
Branch 147, in Civil Case No. 17835 is reinstated, and the Court of Appeals
is ordered to proceed with the resolution of petitioners appeal docketed as
CA-G.R. CV No. 75501 entitled "Fertiphil Corporation v. Planters Products,
Inc."
SO ORDERED.
July 8, 2004
Opinion advising the DTI that it was bound by the negative finding of the
Tariff Commission. Thus, he ruled as follows:
The DTI has no alternative but to abide by the [Tariff]
Commission's recommendations.
IN VIEW OF THE FOREGOING, and in accordance with Section
13 of RA 8800 which states:
"In the event of a negative final determination; or if the cash
bond is in excess of the definitive safeguard duty assessed, the
Secretary shall immediately issue, through the Secretary of
Finance, a written instruction to the Commissioner of Customs,
authorizing the return of the cash bond or the remainder thereof,
as the case may be, previously collected as provisional general
safeguard measure within ten (10) days from the date a final
decision has been made; Provided, that the government shall not
be liable for any interest on the amount to be returned. The
Secretary shall not accept for consideration another petition from
the same industry, with respect to the same imports of the
product under consideration within one (1) year after the date of
rendering such a decision."
The DTI hereby issues the following:
The application for safeguard measures against the importation of
gray Portland cement filed by PHILCEMCOR (Case No. 02-2001) is
hereby denied.27 (Emphasis in the original)
Philcemcor received a copy of the DTI Decision on 12 April 2002. Ten days
later, it filed with the Court of Appeals a Petition for Certiorari, Prohibition
and Mandamus28 seeking to set aside the DTI Decision, as well as the Tariff
Commission's Report. Philcemcor likewise applied for a Temporary
Restraining Order/Injunction to enjoin the DTI and the BOC from
implementing the questioned Decision and Report. It prayed that the Court
of Appeals direct the DTI Secretary to disregard the Report and to render
judgment independently of the Report. Philcemcor argued that the DTI
Secretary, vested as he is under the law with the power of review, is not
bound to adopt the recommendations of the Tariff Commission; and, that
the Report is void, as it is predicated on a flawed framework, inconsistent
inferences and erroneous methodology.29
On 10 June 2002, Southern Cross filed its Comment.30 It argued that the
Court of Appeals had no jurisdiction over Philcemcor's Petition, for it is on
the Court of Tax Appeals ("CTA") that the SMA conferred jurisdiction to
review rulings of the Secretary in connection with the imposition of a
safeguard measure. It likewise argued that Philcemcor's resort to the
1997 Rules of Civil Procedure in order that sanction may be had is that
"the acts of the party or his counsel clearly constitute willful and deliberate
forum shopping."53 The standard implies a malicious intent to subvert
procedural rules, and such state of mind is not evident in this case.
The Jurisdictional Issue
On to the merits of the present petition.
In its assailed Decision, the Court of Appeals, after asserting only in brief
that it had jurisdiction over Philcemcor's Petition, discussed the issue of
whether or not the DTI Secretary is bound to adopt the negative
recommendation of the Tariff Commission on the application for safeguard
measure. The Court of Appeals maintained that it had jurisdiction over the
petition, as it alleged grave abuse of discretion on the part of the DTI
Secretary, thus:
A perusal of the instant petition reveals allegations of grave abuse
of discretion on the part of the DTI Secretary in rendering the
assailed April 5, 2002 Decision wherein it was ruled that he had no
alternative but to abide by the findings of the Commission on the
matter of safeguard measures for the local cement industry. Abuse
of discretion is admittedly within the ambit of certiorari.
Grave abuse of discretion implies such capricious and whimsical
exercise of judgment as is equivalent to lack of jurisdiction. It is
alleged that, in the assailed Decision, the DTI Secretary gravely
abused his discretion in wantonly evading to discharge his duty to
render an independent determination or decision in imposing a
definitive safeguard measure.54
We do not doubt that the Court of Appeals' certiorari powers extend to
correcting grave abuse of discretion on the part of an officer exercising
judicial or quasi-judicial functions.55 However, the special civil action of
certiorari is available only when there is no plain, speedy and adequate
remedy in the ordinary course of law.56 Southern Cross relies on this
limitation, stressing that Section 29 of the SMA is a plain, speedy and
adequate remedy in the ordinary course of law which Philcemcor did not
avail of. The Section reads:
Section 29. Judicial Review. Any interested party who is
adversely affected by the ruling of the Secretary in connection
with the imposition of a safeguard measure may file with the
CTA, a petition for review of such ruling within thirty (30) days
from receipt thereof. Provided, however, that the filing of such
petition for review shall not in any way stop, suspend or otherwise
toll the imposition or collection of the appropriate tariff duties or
Under Section 29 of the SMA, there are three requisites to enable the CTA
to acquire jurisdiction over the petition for review contemplated therein:
(i) there must be a ruling by the DTI Secretary; (ii) the petition must be
filed by an interested party adversely affected by the ruling; and (iii) such
ruling must be in connection with the imposition of a safeguard measure.
The first two requisites are clearly present. The third requisite deserves
closer scrutiny.
Contrary to the stance of the public respondents and Philcemcor, in this
case where the DTI Secretary decides not to impose a safeguard measure,
it is the CTA which has jurisdiction to review his decision. The reasons are
as follows:
First. Split jurisdiction is abhorred.
Essentially, respondents' position is that judicial review of the DTI
Secretary's ruling is exercised by two different courts, depending on
whether or not it imposes a safeguard measure, and in either case the
court exercising jurisdiction does so to the exclusion of the other. Thus, if
the DTI decision involves the imposition of a safeguard measure it is the
CTA which has appellate jurisdiction; otherwise, it is the Court of Appeals.
Such setup is as novel and unusual as it is cumbersome and unwise.
Essentially, respondents advocate that Section 29 of the SMA has
established split appellate jurisdiction over rulings of the DTI Secretary on
the imposition of safeguard measure.
This interpretation cannot be favored, as the Court has consistently
refused to sanction split jurisdiction.63 The power of the DTI Secretary to
adopt or withhold a safeguard measure emanates from the same statutory
source, and it boggles the mind why the appeal modality would be such
that one appellate court is qualified if what is to be reviewed is a positive
determination, and it is not if what is appealed is a negative
determination. In deciding whether or not to impose a safeguard measure,
provisional or general, the DTI Secretary would be evaluating only one
body of facts and applying them to one set of laws. The reviewing tribunal
will be called upon to examine the same facts and the same laws, whether
or not the determination is positive or negative.
In short, if we were to rule for respondents we would be confirming the
exercise by two judicial bodies of jurisdiction over basically the same
subject matterprecisely the split-jurisdiction situation which is anathema
to the orderly administration of justice.64 The Court cannot accept that
such was the legislative motive especially considering that the law
expressly confers on the CTA, the tribunal with the specialized competence
over tax and tariff matters, the role of judicial review without mention of
any other court that may exercise corollary or ancillary jurisdiction in
relation to the SMA. The provision refers to the Court of Appeals but only
State Blue Cross Plans v. Travelers Ins.70 conceded that the phrases
"relate to" or "in connection with" may be extended to the farthest stretch
of indeterminacy for, universally, relations or connections are infinite and
stop nowhere.71 Thus, in the case the US High Court, examining the same
phrase of the same provision of law involved in Shaw, resorted to looking
at the statute and its objectives as the alternative to an "uncritical
literalism."72 A similar inquiry into the other provisions of the SMA is in
order to determine the scope of review accorded therein to the CTA. 73
The authority to decide on the safeguard measure is vested in the DTI
Secretary in the case of non-agricultural products, and in the Secretary of
the Department of Agriculture in the case of agricultural products. 74
Section 29 is likewise explicit that only the rulings of the DTI Secretary or
the Agriculture Secretary may be reviewed by the CTA.75 Thus, the acts of
other bodies that were granted some powers by the SMA, such as the
Tariff Commission, are not subject to direct review by the CTA.
Under the SMA, the Department Secretary concerned is authorized to
decide on several matters. Within thirty (30) days from receipt of a
petition seeking the imposition of a safeguard measure, or from the date
he made motu proprio initiation, the Secretary shall make a preliminary
determination on whether the increased imports of the product under
consideration substantially cause or threaten to cause serious injury to the
domestic industry.76 Such ruling is crucial since only upon the Secretary's
positive preliminary determination that a threat to the domestic industry
exists shall the matter be referred to the Tariff Commission for formal
investigation, this time, to determine whether the general safeguard
measure should be imposed or not.77 Pursuant to a positive preliminary
determination, the Secretary may also decide that the imposition of a
provisional safeguard measure would be warranted under Section 8 of the
SMA.78 The Secretary is also authorized to decide, after receipt of the
report of the Tariff Commission, whether or not to impose the general
safeguard measure, and if in the affirmative, what general safeguard
measures should be applied.79 Even after the general safeguard measure is
imposed, the Secretary is empowered to extend the safeguard measure, 80
or terminate, reduce or modify his previous rulings on the general
safeguard measure.81
With the explicit grant of certain powers involving safeguard measures by
the SMA on the DTI Secretary, it follows that he is empowered to rule on
several issues. These are the issues which arise in connection with, or in
relation to, the imposition of a safeguard measure. They may arise at
different stages the preliminary investigation stage, the post-formal
investigation stage, or the post-safeguard measure stage yet all these
issues do become ripe for resolution because an initiatory action has been
taken seeking the imposition of a safeguard measure. It is the initiatory
action for the imposition of a safeguard measure that sets the wheels in
declining to impose the measure. Respondents might argue that the right
to relief from a negative ruling is not lost since the applicant could, as
Philcemcor did, question such ruling through a special civil action for
certiorari under Rule 65 of the 1997 Rules of Civil Procedure, in lieu of an
appeal to the CTA. Yet these two reliefs are of differing natures and
gravamen. While an appeal may be predicated on errors of fact or errors of
law, a special civil action for certiorari is grounded on grave abuse of
discretion or lack of or excess of jurisdiction on the part of the decider. For
a special civil action for certiorari to succeed, it is not enough that the
questioned act of the respondent is wrong. As the Court clarified in
Sempio v. Court of Appeals:
A tribunal, board or officer acts without jurisdiction if it/he does
not have the legal power to determine the case. There is excess of
jurisdiction where, being clothed with the power to determine the
case, the tribunal, board or officer oversteps its/his authority as
determined by law. And there is grave abuse of discretion where
the tribunal, board or officer acts in a capricious, whimsical,
arbitrary or despotic manner in the exercise of his judgment as to
be said to be equivalent to lack of jurisdiction. Certiorari is often
resorted to in order to correct errors of jurisdiction. Where the
error is one of law or of fact, which is a mistake of judgment,
appeal is the remedy.86
It is very conceivable that the DTI Secretary, after deliberate thought and
careful evaluation of the evidence, may either make a negative preliminary
determination as he is so empowered under Section 7 of the SMA, or
refuse to adopt the definitive safeguard measure under Section 13 of the
same law. Adopting the respondents' theory, this negative ruling is
susceptible to reversal only through a special civil action for certiorari, thus
depriving the affected party the chance to elevate the ruling on appeal on
the rudimentary grounds of errors in fact or in law. Instead, and despite
whatever indications that the DTI Secretary acted with measure and within
the bounds of his jurisdiction are, the aggrieved party will be forced to
resort to a gymnastic exercise, contorting the straight and narrow in an
effort to discombobulate the courts into believing that what was within was
actually beyond and what was studied and deliberate actually whimsical
and capricious. What then would be the remedy of the party aggrieved by
a negative ruling that simply erred in interpreting the facts or the law? It
certainly cannot be the special civil action for certiorari, for as the Court
held in Silverio v. Court of Appeals: "Certiorari is a remedy narrow in its
scope and inflexible in its character. It is not a general utility tool in the
legal workshop."87
Fortunately, this theoretical quandary need not come to pass. Section 29
of the SMA is worded in such a way that it places under the CTA's judicial
review all rulings of the DTI Secretary, which are connected with the
imposition of a safeguard measure. This is sound and proper in light of the
specialized jurisdiction of the CTA over tax matters. In the same way that
a question of whether to tax or not to tax is properly a tax matter, so is
the question of whether to impose or not to impose a definitive safeguard
measure.
On another note, the second paragraph of Section 29 similarly reveals the
legislative intent that rulings of the DTI Secretary over safeguard
measures should first be reviewed by the CTA and not the Court of
Appeals. It reads:
The petition for review shall comply with the same requirements
and shall follow the same rules of procedure and shall be subject
to the same disposition as in appeals in connection with adverse
rulings on tax matters to the Court of Appeals.
This is the only passage in the SMA in which the Court of Appeals is
mentioned. The express wish of Congress is that the petition conform to
the requirements and procedure under Rule 43 of the Rules of Civil
Procedure. Since Congress mandated that the form and procedure adopted
be analogous to a review of a CTA ruling by the Court of Appeals, the
legislative contemplation could not have been that the appeal be directly
taken to the Court of Appeals.
Issue of Binding Effect of Tariff
Commission's Factual Determination
on DTI Secretary.
The next issue for resolution is whether the factual determination made by
the Tariff Commission under the SMA is binding on the DTI Secretary.
Otherwise stated, the question is whether the DTI Secretary may impose
general safeguard measures in the absence of a positive final
determination by the Tariff Commission.
The Court of Appeals relied upon Section 13 of the SMA in ruling that the
findings of the Tariff Commission do not necessarily constitute a final
decision. Section 13 details the procedure for the adoption of a safeguard
measure, as well as the steps to be taken in case there is a negative final
determination. The implication of the Court of Appeals' holding is that the
DTI Secretary may adopt a definitive safeguard measure, notwithstanding
a negative determination made by the Tariff Commission.
Undoubtedly, Section 13 prescribes certain limitations and restrictions
before general safeguard measures may be imposed. However, the most
fundamental restriction on the DTI Secretary's power in that
respect is contained in Section 5 of the SMAthat there should
first be a positive final determination of the Tariff
The applicable law governing the issue in Cario is Section 18, Article XIII
of the Constitution, which delineates the powers and functions of the CHR.
The provision does not vest on the CHR the power to adjudicate cases, but
only to investigate all forms of human rights violations. 110 Yet, without
modifying the thorough disquisition of the Court in Cario on the general
limitations on the investigatory power, the precedent is inapplicable
because of the difference in the involved statutory frameworks. The
Constitution does not repose binding effect on the results of the CHR's
investigation.111 On the other hand, through Section 5 of the SMA and
under the authority of Section 28(2), Article VI of the Constitution,
Congress did intend to bind the DTI Secretary to the determination made
by the Tariff Commission.112 It is of no consequence that such
determination results from the exercise of investigatory powers by the
Tariff Commission since Congress is well within its constitutional mandate
to limit the authority of the DTI Secretary to impose safeguard measures
in the manner that it sees fit.
The Court of Appeals and Philcemcor also rely on Section 13 of the SMA
and Rule 13 of the SMA's Implementing Rules in support of the view that
the DTI Secretary may decide independently of the determination made by
the Tariff Commission. Admittedly, there are certain infelicities in the
language of Section 13 and Rule 13. But reliance should not be placed on
the textual imprecisions. Rather, Section 13 and Rule 13 must be viewed in
light of the fundamental prescription imposed by Section 5. 113
Section 13 of the SMA lays down the procedure to be followed after the
Tariff Commission renders its report. The provision reads in full:
SEC. 13. Adoption of Definitive Measures. Upon its positive
determination, the Commission shall recommend to the Secretary
an appropriate definitive measure, in the form of:
(a) An increase in, or imposition of, any duty on the imported
product;
(b) A decrease in or the imposition of a tariff-rate quota (MAV) on
the product;
(c) A modification or imposition of any quantitative restriction on
the importation of the product into the Philippines;
(d) One or more appropriate adjustment measures, including the
provision of trade adjustment assistance;
(e) Any combination of actions described in subparagraphs (a) to
(d).
The Commission may also recommend other actions, including the
initiation of international negotiations to address the underlying
cause of the increase of imports of the product, to alleviate the
injury or threat thereof to the domestic industry, and to facilitate
positive adjustment to import competition.
the DTI Secretary issued his ruling imposing the safeguard measure. Since
the 5 June 2003 Decision derives its legal effect from the void Decision of
the Court of Appeals, this ruling of the DTI Secretary is consequently void.
The spring cannot rise higher than the source.
The DTI Secretary himself acknowledged that he drew stimulating force
from the appellate court's Decision for in his own 5 June 2003 Decision, he
declared:
From the aforementioned ruling, the CA has remanded the case to
the DTI Secretary for a final decision. Thus, there is no legal
impediment for the Secretary to decide on the application. 141
The inescapable conclusion is that the DTI Secretary needed the assailed
Decision of the Court of Appeals to justify his rendering a second Decision.
He explicitly invoked the Court of Appeals' Decision as basis for rendering
his 5 June 2003 ruling, and implicitly recognized that without such
Decision he would not have the authority to revoke his previous ruling and
render a new, obverse ruling.
It is clear then that the 25 June 2003 Decision of the DTI Secretary is a
product of the void Decision, it being an attempt to carry out such null
judgment. There is therefore no choice but to declare it void as well, lest
we sanction the perverse existence of a fruit from a non-existent tree. It
does not even matter what the disposition of the 25 June 2003 Decision
was, its nullity would be warranted even if the DTI Secretary chose to
uphold his earlier ruling denying the application for safeguard measures.
It is also an unfortunate spectacle to behold the DTI Secretary, seeking to
enforce a judicial decision which is not yet final and actually pending
review on appeal. Had it been a judge who attempted to enforce a decision
that is not yet final and executory, he or she would have readily been
subjected to sanction by this Court. The DTI Secretary may be beyond the
ambit of administrative review by this Court, but we are capacitated to
allocate the boundaries set by the law of the land and to exact fealty to
the legal order, especially from the instrumentalities and officials of
government.
WHEREFORE, the petition is GRANTED. The assailed Decision of the Court of
Appeals is DECLARED NULL AND VOID and SET ASIDE. The Decision of the DTI
Secretary dated 25 June 2003 is also DECLARED NULL AND VOID and SET ASIDE.
No Costs.
SO ORDERED.
On 16 April 1990, CIC filed its corporate annual income tax return 7 for the
year 1989, declaring, among other things, its gain from the sale of real
property in the amount of P75,728.021. After crediting withholding taxes
of P254,497.00, it paid P26,341,2078 for its net taxable income of
P75,987,725.
On 12 July 1990, Toda sold his entire shares of stocks in CIC to Le Hun T.
Choa for P12.5 million, as evidenced by a Deed of Sale of Shares of
Stocks.9 Three and a half years later, or on 16 January 1994, Toda died.
On 29 March 1994, the Bureau of Internal Revenue (BIR) sent an
assessment notice10 and demand letter to the CIC for deficiency income
tax for the year 1989 in the amount of P79,099,999.22.
The new CIC asked for a reconsideration, asserting that the assessment
should be directed against the old CIC, and not against the new CIC, which
is owned by an entirely different set of stockholders; moreover, Toda had
undertaken to hold the buyer of his stockholdings and the CIC free from all
tax liabilities for the fiscal years 1987-1989.11
On 27 January 1995, the Estate of Benigno P. Toda, Jr., represented by
special co-administrators Lorna Kapunan and Mario Luza Bautista, received
a Notice of Assessment12 dated 9 January 1995 from the Commissioner of
Internal Revenue for deficiency income tax for the year 1989 in the
amount of P79,099,999.22, computed as follows:
Income Tax 1989
Net
Income
per return
Add:
Additional
gain on
sale of real
property
taxable
under
ordinary
corporate
income but
were
substituted
with
individual
capital
P75,987,72
5.00
100,000,00
0.00
Total
gains(P200
M 100M)
A
d
d
:
I
n
t
e
r
e
s
t
2
0
%
P175,987,7
25.00
P 61,595,703.75
Less:
Payment
already
made
1. Per
return
P26,595
,704.00
2. Thru
Capital
Gains Tax
made
by R.A.
Altonaga
10,000,
000.00
36,595,704.
00
P
24,999,999.
75
A
d
d
:
5
0
%
Bal
anc
e
of
tax
due
f
r
o
m
4/16/904/30/94
(.808)
35,349,999.65
P
79,099,999.
22
=======
=======
S 12,499,999.88
u
r
c
h
a
r
g
e
25%
Surcharge
P
43,749,999.
57
6,249,999.9
4
In his Answer16 and Amended Answer,17 the Commissioner argued that the
two transactions actually constituted a single sale of the property by CIC
to RMI, and that Altonaga was neither the buyer of the property from CIC
nor the seller of the same property to RMI. The additional gain of P100
million (the difference between the second simulated sale for P200 million
and the first simulated sale for P100 million) realized by CIC was taxed at
the rate of only 5% purportedly as capital gains tax of Altonaga, instead of
at the rate of 35% as corporate income tax of CIC. The income tax return
filed by CIC for 1989 with intent to evade payment of the tax was thus
false or fraudulent. Since such falsity or fraud was discovered by the BIR
only on 8 March 1991, the assessment issued on 9 January 1995 was well
within the prescriptive period prescribed by Section 223 (a) of the National
Internal Revenue Code of 1986, which provides that tax may be assessed
within ten years from the discovery of the falsity or fraud. With the sale
being tainted with fraud, the separate corporate personality of CIC should
be disregarded. Toda, being the registered owner of the 99.991% shares
of stock of CIC and the beneficial owner of the remaining 0.009% shares
registered in the name of the individual directors of CIC, should be held
liable for the deficiency income tax, especially because the gains realized
from the sale were withdrawn by him as cash advances or paid to him as
cash dividends. Since he is already dead, his estate shall answer for his
liability.
In its decision18 of 3 January 2000, the CTA held that the Commissioner
failed to prove that CIC committed fraud to deprive the government of the
taxes due it. It ruled that even assuming that a pre-conceived scheme was
adopted by CIC, the same constituted mere tax avoidance, and not tax
evasion. There being no proof of fraudulent transaction, the applicable
period for the BIR to assess CIC is that prescribed in Section 203 of the
NIRC of 1986, which is three years after the last day prescribed by law for
the filing of the return. Thus, the governments right to assess CIC
prescribed on 15 April 1993. The assessment issued on 9 January 1995
was, therefore, no longer valid. The CTA also ruled that the mere
ownership by Toda of 99.991% of the capital stock of CIC was not in itself
sufficient ground for piercing the separate corporate personality of CIC.
Hence, the CTA declared that the Estate is not liable for deficiency income
tax of P79,099,999.22 and, accordingly, cancelled and set aside the
assessment issued by the Commissioner on 9 January 1995.
In its motion for reconsideration,19 the Commissioner insisted that the sale
of the property owned by CIC was the result of the connivance between
Toda and Altonaga. She further alleged that the latter was a
representative, dummy, and a close business associate of the former,
having held his office in a property owned by CIC and derived his salary
from a foreign corporation (Aerobin, Inc.) duly owned by Toda for
representation services rendered. The CTA denied20 the motion for
reconsideration, prompting the Commissioner to file a petition for review 21
with the Court of Appeals.
For its part, respondent Estate asserts that the Commissioner failed to
present the income tax return of Altonaga to prove that the latter is
financially incapable of purchasing the Cibeles property.
2. Has the period for assessment of deficiency income tax for the
year 1989 prescribed? and
3. Can respondent Estate be held liable for the deficiency income
tax of CIC for the year 1989, if any?
We shall discuss these questions in seriatim.
Is this a case of tax evasion or tax avoidance?
Tax avoidance and tax evasion are the two most common ways used by
taxpayers in escaping from taxation. Tax avoidance is the tax saving
device within the means sanctioned by law. This method should be used by
the taxpayer in good faith and at arms length. Tax evasion, on the other
hand, is a scheme used outside of those lawful means and when availed of,
it usually subjects the taxpayer to further or additional civil or criminal
liabilities.23
Tax evasion connotes the integration of three factors: (1) the end to be
achieved, i.e., the payment of less than that known by the taxpayer to be
legally due, or the non-payment of tax when it is shown that a tax is due;
(2) an accompanying state of mind which is described as being "evil," in
"bad faith," "willfull," or "deliberate and not accidental"; and (3) a course
of action or failure of action which is unlawful. 24
All these factors are present in the instant case. It is significant to note
that as early as 4 May 1989, prior to the purported sale of the Cibeles
property by CIC to Altonaga on 30 August 1989, CIC received P40 million
from RMI,25 and not from Altonaga. That P40 million was debited by RMI
and reflected in its trial balance26 as "other inv. Cibeles Bldg." Also, as of
31 July 1989, another P40 million was debited and reflected in RMIs trial
balance as "other inv. Cibeles Bldg." This would show that the real buyer
of the properties was RMI, and not the intermediary Altonaga.lavvphi1.net
The investigation conducted by the BIR disclosed that Altonaga was a close
business associate and one of the many trusted corporate executives of
Toda. This information was revealed by Mr. Boy Prieto, the assistant
accountant of CIC and an old timer in the company.27 But Mr. Prieto did not
testify on this matter, hence, that information remains to be hearsay and is
thus inadmissible in evidence. It was not verified either, since the letterrequest for investigation of Altonaga was unserved, 28 Altonaga having left
for the United States of America in January 1990. Nevertheless, that
Altonaga was a mere conduit finds support in the admission of respondent
Estate that the sale to him was part of the tax planning scheme of CIC.
That admission is borne by the records. In its Memorandum, respondent
Estate declared:
be transformed for tax purposes into a sale by another by using the latter
as a conduit through which to pass title. To permit the true nature of the
transaction to be disguised by mere formalisms, which exist solely to alter
tax liabilities, would seriously impair the effective administration of the tax
policies of Congress.33
To allow a taxpayer to deny tax liability on the ground that the sale was
made through another and distinct entity when it is proved that the latter
was merely a conduit is to sanction a circumvention of our tax laws.
Hence, the sale to Altonaga should be disregarded for income tax
purposes.34 The two sale transactions should be treated as a single direct
sale by CIC to RMI.
Accordingly, the tax liability of CIC is governed by then Section 24 of the
NIRC of 1986, as amended (now 27 (A) of the Tax Reform Act of 1997),
which stated as follows:
Sec. 24. Rates of tax on corporations. (a) Tax on domestic
corporations.- A tax is hereby imposed upon the taxable net
income received during each taxable year from all sources by
every corporation organized in, or existing under the laws of the
Philippines, and partnerships, no matter how created or organized
but not including general professional partnerships, in accordance
with the following:
Twenty-five percent upon the amount by which the taxable
net income does not exceed one hundred thousand pesos;
and
Thirty-five percent upon the amount by which the taxable
net income exceeds one hundred thousand pesos.
CIC is therefore liable to pay a 35% corporate tax for its taxable net
income in 1989. The 5% individual capital gains tax provided for in Section
34 (h) of the NIRC of 198635 (now 6% under Section 24 (D) (1) of the Tax
Reform Act of 1997) is inapplicable. Hence, the assessment for the
deficiency income tax issued by the BIR must be upheld.
Has the period of assessment prescribed?
No. Section 269 of the NIRC of 1986 (now Section 222 of the Tax Reform
Act of 1997) read:
Sec. 269. Exceptions as to period of limitation of assessment and
collection of taxes.-(a) In the case of a false or fraudulent return
with intent to evade tax or of failure to file a return, the tax may
PARAS, J.:
This is a petition for review on certiorari to reverse the June 10, 1977
decision of the Central Board of Assessment Appeals1 in CBAA Cases Nos.
72-79 entitled "J.B.L. Reyes, Edmundo Reyes, et al. v. Board of
Assessment Appeals of Manila and City Assessor of Manila" which affirmed
the March 29, 1976 decision of the Board of Tax Assessment Appeals2 in
BTAA Cases Nos. 614, 614-A-J, 615, 615-A, B, E, "Jose Reyes, et al. v. City
Assessor of Manila" and "Edmundo Reyes and Milagros Reyes v. City
Assessor of Manila" upholding the classification and assessments made by
the City Assessor of Manila.
The facts of the case are as follows:
Petitioners J.B.L. Reyes, Edmundo and Milagros Reyes are owners of
parcels of land situated in Tondo and Sta. Cruz Districts, City of Manila,
which are leased and entirely occupied as dwelling sites by tenants. Said
tenants were paying monthly rentals not exceeding three hundred pesos
(P300.00) in July, 1971. On July 14, 1971, the National Legislature
enacted Republic Act No. 6359 prohibiting for one year from its effectivity,
an increase in monthly rentals of dwelling units or of lands on which
another's dwelling is located, where such rentals do not exceed three
hundred pesos (P300.00) a month but allowing an increase in rent by not
more than 10% thereafter. The said Act also suspended paragraph (1) of
Article 1673 of the Civil Code for two years from its effectivity thereby
disallowing the ejectment of lessees upon the expiration of the usual legal
period of lease. On October 12, 1972, Presidential Decree No. 20 amended
R.A. No. 6359 by making absolute the prohibition to increase monthly
rentals below P300.00 and by indefinitely suspending the aforementioned
provision of the Civil Code, excepting leases with a definite period.