The Supreme Court affirmed that a contract entered into by the Mayor of Quezon City for waste management services was valid and binding, despite initial procedural issues regarding prior appropriation by the City Council. This ruling emphasizes that local government units must honor their contractual obligations, especially when services have been rendered and public benefit derived, ensuring accountability and preventing unjust enrichment at the expense of private contractors. The decision protects businesses that contract with local governments, reinforcing the principle that these contracts have the force of law.

Garbage, Agreements, and Accountability: Can a City Disavow Its Mayor’s Contract?

In 1990, Quezon City, under then Mayor Brigido R. Simon, Jr., entered into a Tri-Partite Memorandum of Agreement with Lexber Incorporated and the Municipality of Antipolo to utilize a parcel of land in Antipolo as a garbage dumping site. Lexber was contracted to provide manpower, equipment, and engineering services. Two negotiated contracts followed: one for the construction of infrastructure at the Quezon City Sanitary Landfill and another for maintenance services. However, after May 1992, Quezon City stopped using the dumpsite but was billed for the maintenance services, leading to a legal dispute when the city, under a new mayor, refused to pay, claiming the contract was invalid due to lack of City Council approval and budget appropriation. This case thus asks: Can a city government disavow a contract entered into by its mayor, especially after benefiting from the services rendered?

The City of Quezon argued that the second negotiated contract was null and void from the start because it violated Sections 85, 86, and 87 of Presidential Decree No. 1445, known as the Auditing Code of the Philippines, and Section 177(b) of Batas Pambansa Blg. 337, the Local Government Code of 1983. These provisions emphasize the necessity of prior appropriation and certification of funds availability before entering into contracts involving public funds. According to the City, the absence of these prerequisites rendered the contract void, making the city not liable for payments. They invoked Section 87 of PD 1445, stating that any contract entered into against these requirements is void.

Lexber, on the other hand, contended that the contract was valid because it was entered into by the Mayor pursuant to specific statutory authority, particularly Executive Order No. 392, which constituted the Metropolitan Manila Authority (MMA) and empowered it to oversee basic urban services, including waste management. Moreover, Lexber argued that Quezon City had ratified the contract through its actions. After the infrastructure was built, the City started dumping garbage at the site and made initial payments for the services. These actions, according to Lexber, indicated an implicit approval and acceptance of the contract’s terms, making the City bound to fulfill its obligations.

The Supreme Court, in its analysis, clarified that while prior appropriation by the City Council is generally required for contracts involving public funds, it is not the only basis for lawful disbursement. Section 84 of PD 1445 states that public funds may be disbursed not only under an appropriation law but also under other specific statutory authority. The Court noted that at the time the contract was made, the Local Government Code of 1983 (B.P. Blg. 337) specifically empowered the city mayor to represent the city in its business transactions and sign contracts. This power was not explicitly restricted by any requirement for prior approval from the City Council. The subsequent Local Government Code of 1991 (R.A. No. 7160) introduced the requirement for the mayor’s representation to be authorized by the sangguniang panlungsod, but this was not in effect when the contracts with Lexber were executed.

The Court emphasized that Mayor Simon did not usurp the City Council’s power by entering into the contracts. The Mayor’s duty was to represent the city in business transactions, while the City Council was responsible for providing funds for essential services like waste disposal. Moreover, Executive Order No. 392 and related MMA resolutions provided additional statutory authority for the Mayor’s actions. E.O. 392 empowered the MMA to coordinate basic urban services, including sanitation and waste management. The MMA resolutions granted financial assistance to local government units for delivering these services. These measures allowed for direct coordination between the MMA and local units, expediting the delivery of services like garbage collection.

The Supreme Court addressed the argument regarding the lack of proper certification of funds availability. While there might not have been an explicit certification covering the entire duration of the contract, the Court pointed out that funds had been allocated for the initial months of operation. A Certificate of Availability of Funds dated April 4, 1991, signed by the City Auditor and Treasurer, confirmed that funds were available for the contract with Lexber. The court emphasized that the project was completed in December 1991, and dumping operations commenced shortly thereafter. Therefore, funds for the 1992 fiscal year could have been made available and appropriated at the beginning of that year. The City’s subsequent refusal to appropriate funds did not negate the initial validity of the contract or absolve it of its obligations.

The Court also addressed the argument regarding subsequent ratification. Even if prior authorization from the City Council was necessary, the Court found that Quezon City had constructively ratified the contract through its actions. The City started dumping garbage at the site after the infrastructure was completed, and a Notice to Commence Work was issued. Disbursement Vouchers were also issued for services related to hauling garbage to the landfill. The Court concluded that the City’s actions demonstrated an implicit approval and acceptance of the contract’s terms, thereby ratifying it. This ratification made the City bound to fulfill its obligations to Lexber.

The Supreme Court also addressed concerns raised in the dissenting opinion. The dissent argued that the Mayor’s power to enter into contracts required an enabling ordinance from the City Council, that the contracts lacked a proper certification of funds availability, and that the negotiated nature of the contracts violated the requirement for public bidding. The Supreme Court clarified that Executive Order No. 392 and related MMA resolutions provided specific statutory authority for the Mayor’s actions, that there was initial certification of funds availability, and that public bidding was not strictly required under the specific circumstances of the case, especially considering the urgent need for a waste disposal solution.

Ultimately, the Supreme Court found that Quezon City had acted unfairly towards Lexber. The City had persuaded Lexber to convert its property into a sanitary landfill with assurances of contractual obligations. Lexber relied on these assurances, only to be rebuffed after the City had already benefited from the use of the facilities. The Court concluded that Quezon City could not unilaterally disregard the contract to the detriment of Lexber. Therefore, the Supreme Court upheld the decisions of the lower courts, affirming the validity of the contract and requiring Quezon City to fulfill its financial obligations to Lexber.

FAQs

What was the key issue in this case?	The key issue was whether a contract entered into by the Mayor of Quezon City for waste management services was valid and binding, despite alleged procedural deficiencies such as lack of prior appropriation by the City Council. The case examined the extent of the Mayor’s authority and the impact of subsequent actions by the city government.
What did the City of Quezon argue?	The City of Quezon argued that the contract was null and void because it violated the Auditing Code of the Philippines and the Local Government Code, which require prior appropriation and certification of funds availability before entering into contracts involving public funds. The City claimed that the Mayor lacked the necessary authority to enter into the contract without prior approval from the City Council.
What did Lexber Incorporated argue?	Lexber argued that the contract was valid because it was entered into pursuant to specific statutory authority, particularly Executive Order No. 392, and that Quezon City had ratified the contract through its actions, such as using the landfill and making initial payments. Lexber contended that the City was estopped from denying the validity of the contract after benefiting from the services rendered.
What was the Supreme Court’s ruling?	The Supreme Court ruled in favor of Lexber, affirming the validity of the contract and requiring Quezon City to fulfill its financial obligations. The Court held that the Mayor had acted within his authority and that the City had ratified the contract through its actions.
What is the significance of Executive Order No. 392?	Executive Order No. 392 constituted the Metropolitan Manila Authority (MMA) and empowered it to oversee basic urban services, including waste management. This order provided specific statutory authority for the Mayor to enter into contracts related to waste disposal.
What is the impact of the Local Government Code of 1983 (B.P. Blg. 337)?	The Local Government Code of 1983 empowered the city mayor to represent the city in its business transactions and sign contracts. This power was not explicitly restricted by any requirement for prior approval from the City Council, as later introduced in the Local Government Code of 1991.
What does it mean to ratify a contract?	To ratify a contract means to approve or confirm it, even if there were initial defects. In this case, the Supreme Court found that Quezon City had ratified the contract by using the landfill and making initial payments, indicating an implicit approval and acceptance of the contract’s terms.
What was the main reason for the Court’s decision?	The Court emphasized that Quezon City had acted unfairly towards Lexber by persuading the company to convert its property into a landfill and then refusing to honor the contract. The Court found that the City had benefited from the use of the facilities and could not unilaterally disregard the contract to the detriment of Lexber.

This case underscores the importance of fulfilling contractual obligations and acting in good faith, especially for local government units. It highlights that statutory authority and subsequent actions can validate contracts, even if initial procedural requirements were not strictly followed. The ruling serves as a reminder to local governments to honor their commitments and avoid unjust enrichment at the expense of private contractors.

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: CITY OF QUEZON VS. LEXBER INCORPORATED, G.R. No. 141616, March 15, 2001