In the Philippines, a party participating in a bidding process does not have a legal right to demand that the project be awarded to them, even if they submitted the lowest bid. The Supreme Court clarified this principle, emphasizing that advertisements for bids are merely invitations to make proposals. Unless otherwise stated, the entity calling for bids is not obligated to accept the lowest offer. This ruling protects the discretion of companies to choose contractors based on various factors, ensuring they are not unduly restricted by the bidding process.

When is a Bid Not a Contract? Examining Discretion in Tender Processes

Northern Mindanao Industrial Port and Services Corporation (NOMIPSCO) sued Iligan Cement Corporation (ICC) for damages after ICC did not award it a cargo handling contract despite NOMIPSCO submitting the lowest bid. NOMIPSCO claimed that ICC acted in bad faith by using the bidding process merely to secure the lowest bid, which it then used to negotiate with another company, Europort. NOMIPSCO alleged that ICC’s actions constituted an abuse of rights under Article 19 of the Civil Code, which states:

Every person must, in the exercise of his rights and in the performance of his duties, act with justice, give everyone his due, and observe honesty and good faith.

NOMIPSCO argued that ICC’s bad faith was evident because ICC made it appear that NOMIPSCO had not submitted a bid, Europort was not a participant in the bidding process, and ICC awarded the project based on undisclosed criteria. However, the Supreme Court found that these claims were not supported by the evidence. The Court noted that Oroport, one of the original bidders, had changed its name to Europort during the bidding process. Therefore, the contract was legitimately awarded to a participating bidder under its new corporate name.

The Supreme Court emphasized that ICC had the right to reject any bid, including the lowest one, unless the bidding terms explicitly stated otherwise. This principle is rooted in Article 1326 of the Civil Code, which states: “Advertisements for bidders are simply invitations to make proposals, and the advertiser is not bound to accept the highest or lowest bidder, unless the contrary appears.” The Court reiterated that a call for bids is merely an invitation to make proposals, and the entity calling for bids retains the discretion to accept or reject any offer.

Building on this principle, the Court underscored that absent evidence of arbitrariness or fraud, courts should not interfere with the discretion of entities to accept or reject bids. This discretion is essential for policy decisions that require thorough investigation, comparison, evaluation, and deliberation. The Supreme Court cited National Power Corporation v. Pinatubo Commercial, stating that “as the discretion to accept or reject bids and award contracts is of such wide latitude, courts will not interfere, unless it is apparent that such discretion is exercised arbitrarily, or used as a shield to a fraudulent award.”

The Court also addressed NOMIPSCO’s claim that ICC awarded the contract based on undisclosed policies. The Court found that the evidence did not support this assertion. One witness testified that there was no prior consultation before the award, undermining NOMIPSCO’s claim that undisclosed policies were the basis for the decision. The Court noted that even if ICC had a policy of preferring new contractors, this did not constitute an abuse of rights, as “preference” does not necessarily mean the exclusion of other contractors.

Furthermore, the Court rejected NOMIPSCO’s argument that Europort’s alleged ineligibility due to non-participation in the bidding process was a valid ground for complaint. The Court clarified that Europort was merely the new name of Oroport, one of the original bidders. The change of corporate name did not affect the entity’s rights or obligations. Citing Zuellig Freight and Cargo Systems v. National Labor Relations Commission, the Court stated: “The changing of the name of a corporation is no more the creation of a corporation than the changing of the name of a natural person is begetting of a natural person. The act, in both cases, would seem to be what the language which we use to designate it imports – a change of name, and not a change of being.”

The Supreme Court concluded that NOMIPSCO had no cause of action against ICC. NOMIPSCO’s complaint was based on false assumptions and non-existent facts, attempting to mislead the Court into believing that ICC committed an abuse of rights. The Court warned NOMIPSCO against any further attempts to manipulate the facts, emphasizing that its claim was illusory. The Court affirmed the Court of Appeals’ decision, which had set aside the Regional Trial Court’s order denying the dismissal of NOMIPSCO’s complaint.

FAQs

What was the key issue in this case?	The key issue was whether NOMIPSCO had a valid cause of action against ICC for not being awarded the cargo handling contract despite submitting the lowest bid. The Supreme Court determined that ICC was not obligated to accept the lowest bid and had not abused its rights.
Does submitting the lowest bid guarantee a contract award in the Philippines?	No, submitting the lowest bid does not guarantee a contract award. Under Article 1326 of the Civil Code, advertisements for bidders are merely invitations to make proposals, and the advertiser is not bound to accept the lowest bidder unless the contrary appears.
What constitutes an abuse of rights in the context of bidding processes?	An abuse of rights occurs when a party acts in bad faith or with intent to injure another party while exercising their legal rights. In this case, the Court found no evidence that ICC acted in bad faith or with intent to harm NOMIPSCO.
Can a company change its name during a bidding process?	Yes, a company can change its name during a bidding process. The change of corporate name does not create a new corporation or affect its rights and obligations. The company remains the same legal entity with a different name.
What should a bidder do if they suspect unfair practices in a bidding process?	If a bidder suspects unfair practices, they must present concrete evidence of bad faith, arbitrariness, or fraud. General allegations or suspicions are not sufficient to establish a cause of action.
What is the role of courts in reviewing bidding decisions?	Courts generally defer to the discretion of entities to accept or reject bids, unless there is clear evidence that the discretion was exercised arbitrarily or used as a shield to a fraudulent award.
What is the significance of Article 1326 of the Civil Code in bidding cases?	Article 1326 clarifies that calls for bids are merely invitations to make proposals. This provision gives entities the flexibility to choose the best offer based on various factors, not just the lowest price.
Can a bidder compel the advertiser to execute a contract in their favor?	No, a bidder cannot compel the advertiser to execute a contract in their favor simply because they submitted a bid. The advertiser retains the right to reject any or all bids.
How can a bidder protect its interests in a bidding process?	A bidder can protect its interests by ensuring that it meets all the requirements of the bidding process and by carefully documenting all communications and submissions. If unfair practices are suspected, the bidder should gather concrete evidence to support its claims.

This case serves as a reminder that participating in a bidding process does not automatically create a legal right to be awarded the contract. Companies calling for bids retain significant discretion in choosing contractors, and courts will not interfere unless there is clear evidence of abuse or fraud.

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: Northern Mindanao Industrial Port and Services Corporation v. Iligan Cement Corporation, G.R. No. 215387, April 23, 2018