In Socorro T. Clemente vs. Republic of the Philippines, the Supreme Court addressed the revocation of a donation due to non-compliance with its conditions, particularly concerning the construction of a government hospital. The Court ruled in favor of the donor’s heirs, emphasizing that failure to fulfill the stipulated condition—constructing and operating a hospital—warrants the donation’s revocation. This decision underscores the principle that donations with specific conditions attached must be honored, and it clarifies the rights of donors and their heirs when donees fail to meet their obligations.

Unmet Promises: Can a Hospital Donation Be Revoked After Decades of Inaction?

The case revolves around a Deed of Donation executed in 1963 by the Clemente Siblings, who donated a one-hectare property to the Republic of the Philippines, specifically for the construction of a government hospital. The Deed stipulated that the land was to be used “solely for hospital site only and for no other else, where a Government Hospital shall be constructed.” District Engineer II Ciceron A. Guerrero of DPWH Region IV-A accepted the donation on behalf of the Republic. While construction of a hospital building commenced the following year, it was never completed, leaving only the foundation. Decades later, Socorro Clemente, an heir of one of the donors, sought information about the project’s status. Upon learning that the DPWH had no plans to continue the construction due to budget constraints, she filed a complaint for revocation of the donation, reconveyance, and recovery of possession. The central legal question is whether the Republic’s failure to complete the hospital construction justifies the revocation of the donation, and whether the action to revoke has prescribed due to the lapse of time.

The Regional Trial Court (RTC) initially dismissed the case, citing prematurity because the parties had not fixed a period for compliance. The RTC suggested that the court should fix a period for the donee’s obligation under Article 1197 of the Civil Code. The Court of Appeals (CA) affirmed the RTC’s decision, holding that Socorro, as an heir, could not assert her right without a judicial or extra-judicial settlement of the estate. The Supreme Court, however, reversed these decisions, emphasizing the nature of the donation as one subject to a resolutory condition. A resolutory condition is one that is demandable at once, but its non-fulfillment gives the donor the right to revoke the donation.

The Court underscored that upon executing the Deed of Donation and its acceptance, ownership of the property was transferred to the Republic, as evidenced by a new certificate of title issued in the name of the Province of Quezon. However, this transfer was contingent upon the donee’s compliance with the obligation to construct and operate a government hospital. Article 764 of the Civil Code provides the legal basis for revoking a donation when the donee fails to comply with the imposed conditions. The Court stated explicitly:

Art. 764. The donation shall be revoked at the instance of the donor, when the donee fails to comply with any of the conditions which the former imposed upon the latter.

In this case, the property donated shall be returned to the donor, the alienations made by the donee and the mortgages imposed thereon by him being void, with the limitations established, with regard to third persons, by the Mortgage Law and the Land Registration Laws.

This action shall prescribe after four years from the non-compliance with the condition, may be transmitted to the heirs of the donor, and may be exercised against the donee’s heirs.

The respondent argued that starting the hospital’s construction fulfilled the obligation. The Supreme Court rejected this argument, emphasizing that the intention was to have a completed, functioning hospital. The Court reasoned that merely constructing the foundation did not satisfy the condition of operating a hospital. The Deed of Donation specified that the property was to be used “solely for hospital site only and for no other else, where a [g]overnment [h]ospital shall be constructed.” Thus, both constructing the hospital and using the property as a hospital site were conditions that needed to be met. Failure to complete the construction and use the property as intended constituted a breach of the donation agreement.

The Court also addressed the issue of whether Socorro, as an heir, could file the action without a formal settlement of the estate or impleading all co-owners. Citing Spouses Mendoza v. Coronel, the Court reiterated that a co-owner may bring suit without impleading other co-owners if the suit benefits all. In Catedrilla v. Lauron, the Court further clarified that any co-owner could bring an action for ejectment, which includes actions for the recovery of possession, without needing to join all other co-owners. The Court emphasized that as long as the co-owner recognizes the co-ownership, there is no need to implead all co-owners in actions for recovery of possession. Socorro’s intent was to benefit all heirs by recovering the property for the heirs of the Clemente Siblings, the Court held that it was not necessary to implead all the other co-heirs.

Regarding the argument of prescription, the Court acknowledged that actions for reconveyance based on a violation of a condition in a Deed of Donation must be instituted within ten years from the violation. Furthermore, actions to revoke a donation based on non-compliance prescribe after four years. The key determination is when the non-compliance occurred. The Deed of Donation did not specify a period within which the hospital had to be constructed, thus making it difficult to pinpoint the exact moment of non-compliance. However, the Court noted that a period was intended, and a reasonable time had already lapsed. In Central Philippine University v. Court of Appeals, the Court held that when the obligation does not fix a period but it can be inferred that a period was intended, the courts may fix the duration thereof. In the Clemente case, the Supreme Court deemed it futile to fix a period, given the decades that had passed and the donee’s apparent abandonment of the project. In essence, the reasonable time contemplated by the parties had already elapsed, and the failure to construct the hospital became evident.

The Court also dismissed the argument of laches, which is the failure or neglect to assert a right within a reasonable time, warranting a presumption that the party has abandoned it. Because the Deed of Donation did not specify a period for compliance, there was no basis to claim that the donor or her heirs had unreasonably delayed asserting their rights. The Republic, on the other hand, was found guilty of unreasonable delay and neglect in fulfilling its obligation to construct the hospital. The Supreme Court conclusively held that the revocation of the donation and the reconveyance of the property to the heirs of the donors were necessary and proper.

Justice Caguioa concurred with the decision but offered a different rationale, suggesting that the donation should be classified as an onerous donation governed by the rules on obligations and contracts. An onerous donation is subject to burdens, charges, or future services equal in value to the donated property. In this view, the construction of the hospital was a mode, burden, or charge, making Article 1191 of the Civil Code applicable. This classification would provide a more consistent application of the rules on fixing a period and the prescriptive periods under Articles 764 and 1144 of the Civil Code. Caguioa agreed that the 10-year prescriptive period under Article 1144(1) should apply and that laches had not set in because the Republic failed to prove the elements of laches positively.

FAQs

What was the key issue in this case?	The key issue was whether the Republic of the Philippines’ failure to construct a government hospital on land donated for that specific purpose justified the revocation of the donation and the return of the property to the donor’s heirs.
What is a resolutory condition in a donation?	A resolutory condition is a condition attached to a donation that, if not fulfilled, gives the donor the right to revoke the donation and reclaim the property. It means the donation is valid until the condition is broken.
Can an heir file an action to revoke a donation?	Yes, an heir can file an action to revoke a donation, even without a formal settlement of the estate, provided the action benefits all co-heirs. The Supreme Court has clarified that this is permissible under Article 487 of the Civil Code.
What is the prescriptive period for revoking a donation?	The prescriptive period for revoking a donation based on non-compliance with a condition is either four years from non-compliance under Article 764 or ten years for onerous donations under Article 1144 of the Civil Code.
What is the significance of Article 1197 of the Civil Code?	Article 1197 allows the courts to fix a period for compliance when an obligation does not fix a period but it can be inferred that a period was intended. However, the Court may forego fixing a period if it deems it futile, especially when a reasonable time has already lapsed.
What is the legal concept of laches?	Laches is the failure or neglect to assert a right within a reasonable time, warranting a presumption that the party has abandoned it. It did not apply in this case because no specific time was stipulated for the donee’s compliance.
What is an onerous donation?	An onerous donation is a donation subject to burdens, charges, or future services equal in value to the donated property. This type of donation is governed by the rules on obligations and contracts.
What was the Court’s ruling on the Republic’s partial construction?	The Court ruled that merely starting construction was insufficient. The clear intent was to have a completed and functioning hospital, and the Republic’s failure to do so constituted a breach of the donation’s conditions.

The Supreme Court’s decision in Socorro T. Clemente vs. Republic of the Philippines reaffirms the importance of fulfilling conditions attached to donations and provides clarity on the rights of donors and their heirs. It serves as a reminder that failure to comply with stipulated conditions can lead to the revocation of a donation, even after a considerable period.

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: SOCORRO T. CLEMENTE, AS SUBSTITUTED BY SALVADOR T. CLEMENTE, VS. REPUBLIC OF THE PHILIPPINES (DEPARTMENT OF PUBLIC WORKS AND HIGHWAYS, REGION IV-A), G.R. No. 220008, February 20, 2019