In The Municipality of Hagonoy, Bulacan vs. Hon. Simeon P. Dumdum, Jr., the Supreme Court addressed whether a municipality could invoke immunity from suit to avoid contractual obligations. The Court ruled that while municipalities have the power to sue and be sued, this suability does not automatically translate to liability enforceable through execution against public funds. The decision underscores the importance of balancing the protection of public funds with the need to honor valid contractual commitments, providing clarity on the extent of municipal liability and the enforceability of writs of preliminary attachment against local government entities.

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The case originated from a complaint filed by Emily Rose Go Ko Lim Chao, doing business as KD Surplus, against the Municipality of Hagonoy, Bulacan, and its former mayor, Felix V. Ople. Chao sought to collect payment for twenty-one motor vehicles delivered to the municipality, alleging that despite repeated demands, the municipality failed to pay the agreed amount. The vehicles, valued at P5,820,000.00, were purportedly needed for developmental projects within the municipality. Chao supported her claim with bills of lading showing the municipality as the consignee.

Instead of addressing Chao’s allegations, the municipality filed a Motion to Dismiss, arguing that the alleged agreement was unenforceable under the Statute of Frauds because there was no written contract. They also filed a Motion to Dissolve the Writ of Preliminary Attachment, asserting immunity from suit and a lack of substantiation of fraud. The trial court denied both motions, prompting the municipality to elevate the matter to the Court of Appeals, which also ruled against them, leading to the Supreme Court case.

At the heart of the legal debate was the applicability of the Statute of Frauds. This legal principle, as outlined in Article 1403 of the Civil Code, requires certain contracts to be evidenced by a written note or memorandum to be enforceable. The Supreme Court clarified that the Statute of Frauds does not invalidate unwritten contracts but merely regulates the formalities necessary to render them enforceable.

“The term ‘Statute of Frauds’ is descriptive of statutes that require certain classes of contracts to be in writing; and that do not deprive the parties of the right to contract with respect to the matters therein involved, but merely regulate the formalities of the contract necessary to render it enforceable.”

The Court emphasized that the Statute of Frauds is designed to prevent fraud and perjury by requiring written evidence of certain agreements. However, this requirement is not absolute. Partial or total performance of the obligation by either party removes the contract from the Statute’s coverage. In this case, Chao argued that she had already fulfilled her part of the agreement by delivering the motor vehicles, as evidenced by the bills of lading. The Court agreed that this allegation of performance was sufficient to overcome a motion to dismiss based on the Statute of Frauds.

Building on this principle, the Court reiterated the well-established rule that when considering a motion to dismiss, the material allegations of the complaint are hypothetically admitted. This means that the court must assume the truth of the plaintiff’s factual assertions. The Supreme Court has consistently held that such hypothetical admission extends not only to the relevant and material facts pleaded in the complaint but also to inferences that may be fairly deduced from them. Therefore, the Court found that the trial court had not erred in denying the municipality’s motion to dismiss, as the complaint furnished a sufficient basis upon which the action could be maintained.

However, the Supreme Court took a different view regarding the writ of preliminary attachment. The municipality argued that as a local government unit, it was immune from suit and its properties were exempt from execution and garnishment. The Court acknowledged the general rule that the state and its political subdivisions cannot be sued without their consent, as enshrined in Section 3, Article XVI of the Constitution. This immunity is rooted in the principle of sovereign immunity, which protects the state from being subjected to legal actions without its consent.

However, this immunity is not absolute. Consent to be sued may be express or implied. Implied consent occurs when the government enters into a business contract, thus descending to the level of the other contracting party, or when embodied in a general or special law. The Local Government Code of 1991, specifically Section 22, grants local government units the power to sue and be sued, effectively waiving their immunity in certain circumstances.

Despite this waiver of immunity, the Supreme Court distinguished between suability and liability. While a local government unit may be sued, this does not automatically mean that its assets are subject to execution. The Court, citing previous rulings, clarified that even when the suability of the state is conceded, the state retains the prerogative to determine whether to satisfy the judgment. Execution may not issue upon such judgment because statutes waiving non-suability do not authorize the seizure of property to satisfy judgments recovered from the action.

The Court emphasized the importance of protecting public funds from execution or garnishment. Disbursements of public funds must be covered by corresponding appropriations as required by law. Allowing the seizure of public funds would paralyze or disrupt the functions and public services rendered by the State. As such, the Court concluded that the writ of preliminary attachment in this case was improper, as it would be ineffective if the municipality’s property could not be subjected to execution and garnishment in the event of an unfavorable judgment.

“The universal rule that where the State gives its consent to be sued by private parties either by general or special law, it may limit claimant’s action ‘only up to the completion of proceedings anterior to the stage of execution’ and that the power of the Courts ends when the judgment is rendered, since government funds and properties may not be seized under writs of execution or garnishment to satisfy such judgments, is based on obvious considerations of public policy.”

In summary, the Supreme Court upheld the denial of the motion to dismiss based on the Statute of Frauds, recognizing that the allegation of partial performance removed the contract from its coverage. However, the Court reversed the denial of the motion to discharge the writ of preliminary attachment, emphasizing the municipality’s immunity from execution and garnishment of public funds. The court’s ruling underscores the principle that while local government units can enter into contracts and be held accountable, their ability to meet financial obligations is constrained by the need to protect public funds and adhere to budgetary requirements.

FAQs

What was the key issue in this case?	The key issue was whether a municipality could invoke immunity from suit to prevent the enforcement of a contractual obligation and the execution of a writ of preliminary attachment against its assets.
What is the Statute of Frauds?	The Statute of Frauds requires certain contracts to be in writing to be enforceable. Its purpose is to prevent fraud and perjury by requiring written evidence of specific agreements.
How does partial performance affect the Statute of Frauds?	Partial performance of a contract takes the agreement outside the scope of the Statute of Frauds, allowing it to be proven and enforced even without a written document.
Can local government units be sued?	Yes, local government units can be sued because the Local Government Code of 1991 grants them the power to sue and be sued, effectively waiving their immunity in certain circumstances.
Does suability mean liability?	No, suability does not automatically mean liability. While a local government unit may be sued, its assets are not necessarily subject to execution to satisfy a judgment.
Why are public funds protected from execution?	Public funds are protected to ensure that the government can continue to perform its essential functions and provide public services without disruption.
What is a writ of preliminary attachment?	A writ of preliminary attachment is a court order to seize property to secure a potential judgment. However, it cannot be enforced against public funds without a corresponding appropriation.
What was the Supreme Court’s ruling on the writ of preliminary attachment in this case?	The Supreme Court ruled that the writ of preliminary attachment should be lifted because it would be ineffective against the municipality’s property, which is protected from execution and garnishment.

This case highlights the delicate balance between holding local government units accountable for their contractual obligations and protecting public funds for essential services. The Supreme Court’s decision clarifies the limitations on enforcing judgments against municipalities, underscoring the need for claimants to consider these limitations when entering into agreements with government entities.

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

Disclaimer: This analysis is provided for informational purposes only and does not constitute legal advice. For specific legal guidance tailored to your situation, please consult with a qualified attorney.
Source: The Municipality of Hagonoy, Bulacan vs. Hon. Simeon P. Dumdum, Jr., G.R. No. 168289, March 22, 2010