In a landmark decision, the Supreme Court of the Philippines addressed the critical question of who holds the power to vote shares of stock acquired through coconut levy funds. The Court definitively ruled that the government, represented by the Presidential Commission on Good Government (PCGG), has the authority to vote these shares. This decision rests on the principle that coconut levy funds are considered prima facie public funds, having been raised through the State’s taxing and police powers for the benefit of the coconut industry. This ruling ensures government oversight in the management of assets derived from these funds, pending a final determination on their ownership.

Coco Levy Funds: A Battle for Control at United Coconut Planters Bank

At the heart of this legal battle is the United Coconut Planters Bank (UCPB), whose shares were purchased using coconut levy funds. These funds, collected from coconut farmers through various presidential decrees, were intended to stabilize the coconut industry. However, after the 1986 EDSA Revolution, questions arose regarding the rightful ownership and control of these funds and the assets acquired with them, including the UCPB shares. The Presidential Commission on Good Government (PCGG) sequestered these shares, leading to a protracted legal dispute over who had the right to vote them – the registered private owners or the government, acting on behalf of the public interest.

The legal framework governing this issue is complex, involving executive orders, presidential decrees, and the Corporation Code. The Supreme Court had to navigate these laws to determine the extent of the PCGG’s authority over sequestered assets. The central question was whether the PCGG, as a mere conservator, could exercise acts of dominion, such as voting the shares, or whether that right belonged to the registered owners, even if those shares were acquired with funds of questionable origin.

The Sandiganbayan, the anti-graft court, initially sided with the registered owners, authorizing them to vote the UCPB shares. It applied a “two-tiered test,” typically used when sequestered assets in private hands are alleged to be ill-gotten, requiring the PCGG to show prima facie evidence of ill-gotten wealth and imminent danger of dissipation. However, the Supreme Court reversed this decision, holding that the two-tiered test was inapplicable in this case.

The Supreme Court emphasized that a different principle applies when sequestered shares are acquired with funds that are prima facie public in character or affected with public interest. In such cases, the government has the authority to vote the shares. The Court relied on its earlier pronouncements in Baseco v. PCGG and Cojuangco Jr. v. Roxas, which established exceptions to the general rule that the registered owner exercises voting rights over sequestered shares.

The Court underscored the nature of coconut levy funds as having been raised through the State’s police and taxing powers, thereby satisfying the definition of public funds. These funds were not voluntary contributions, but enforced exactions levied on coconut farmers. The Court took judicial notice of the vital role of the coconut industry in the national economy, justifying the use of the State’s powers to protect and stabilize it. These points further highlight the public character of the coco levy funds.

“The utilization and proper management of the coconut levy funds, raised as they were by the State’s police and taxing powers, are certainly the concern of the Government. It cannot be denied that it was the welfare of the entire nation that provided the prime moving factor for the imposition of the levy. The coconut levy funds are clearly affected with public interest.”

The Court also noted that the Bureau of Internal Revenue (BIR) has treated coconut levy funds as public funds. Executive Order No. 277 directed that coconut levy funds be treated, utilized, administered, and managed as public funds. The very laws governing coconut levies recognize their public character. Former President Marcos himself deleted the phrase “which is a private fund of the coconut farmers” from an executive order, demonstrating a clear intent to regard the CCSF as public, not private, funds.

Building on this, the Supreme Court declared that the coconut levy funds are not only affected with public interest but are, in fact, prima facie public funds. This is because the funds are raised through the State’s police and taxing powers, are levied for the benefit of the coconut industry and its farmers, and are subject to audit by the Commission on Audit (COA). Private respondents judicially admitted that the funds are government funds. All of these factors weighed heavily in the court’s analysis of the nature of coco levy funds.

As the prima facie beneficial and true owner of the funds used to acquire the UCPB shares, the government, therefore, should be allowed to exercise the right to vote those shares. Until private respondents can demonstrate in the main cases before the Sandiganbayan that the shares have legitimately become private, the government’s right to vote them remains paramount.

“Public funds are those moneys belonging to the State or to any political subdivision of the State; more specifically, taxes, customs duties and moneys raised by operation of law for the support of the government or for the discharge of its obligations.”

Procedurally, the Court found that the Sandiganbayan committed grave abuse of discretion in contravening established jurisprudence and depriving the government of its right to vote the sequestered shares. It rejected the argument that the public nature of the coconut levy funds was not raised as an issue before the Sandiganbayan, stating that the issue was intrinsic to determining who had the right to vote the shares. The Court has the authority to waive the lack of proper assignment of errors if the unassigned errors closely relate to errors properly pinpointed out.

The Republic should continue to vote those shares until and unless private respondents are able to demonstrate, in the main cases pending before the Sandiganbayan, that “they [the sequestered UCPB shares] have legitimately become private.” Finally, the Supreme Court ordered the Sandiganbayan to decide the main civil cases regarding the ownership of the UCPB shares with finality within six months.

FAQs

What was the key issue in this case?	The central issue was who had the right to vote sequestered shares of stock in the United Coconut Planters Bank (UCPB) that were acquired using coconut levy funds. The registered private owners or the government, acting on behalf of the public interest?
What are coconut levy funds?	Coconut levy funds are funds collected from coconut farmers through various presidential decrees, intended to stabilize the coconut industry. These funds have been the subject of legal disputes regarding their ownership and control.
What is the Presidential Commission on Good Government (PCGG)?	The PCGG is a government agency created after the 1986 EDSA Revolution to recover ill-gotten wealth accumulated by former President Marcos, his family, and close associates. The PCGG has the power to sequester assets believed to have been acquired illegally.
What is sequestration?	Sequestration is the act of taking private assets into government custody, in order to preserve them. It does not mean ownership, but is a way for the government to maintain and conserve assets.
What is the “two-tiered test”?	The “two-tiered test” is a legal standard used to determine whether the PCGG can vote sequestered shares. It requires the PCGG to show prima facie evidence that the shares are ill-gotten and that there is an imminent danger of dissipation.
Why did the Supreme Court say the “two-tiered test” didn’t apply here?	The Court ruled that the “two-tiered test” is not applicable when the sequestered shares are acquired with funds that are prima facie public in character. The coco levy funds meet this criteria.
What did the Court mean by prima facie public funds?	The Court meant that, based on initial evidence, the coconut levy funds appear to be public funds because they were raised through the State’s taxing and police powers for a public purpose, the benefit of the coconut industry.
What happens next in this case?	The Supreme Court ordered the Sandiganbayan to decide with finality the civil cases regarding the ownership of the UCPB shares within six months. The PCGG will continue voting the sequestered shares until those cases are resolved.

The Supreme Court’s decision clarifies the government’s role in safeguarding assets derived from public funds, particularly in the context of the coconut levy. While the legal battles surrounding the coco levy funds continue, this ruling reinforces the principle that public resources should be managed in the public interest. The government will continue to be able to exercise its right to vote the sequestered shares.

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: Republic vs. COCOFED ET AL., G.R. Nos. 147062-64, December 14, 2001