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G.R. No.

183591 October 14, 2008


THE PROVINCE OF NORTH COTABATO
vs.
THE GOVERNMENT OF THE REPUBLIC OF THE PHILIPPINES

FACTS:

President Gloria Macapagal-Arroyo, in line with the government‘s policy of pursuing peace negotiations with the Moro
Islamic Liberation Front (MILF), asked Prime Minister Mahathir Mohammad to convince the MILF to continue
negotiating with the government. MILF, thereafter, convened its Central Committee and decided to meet with the
Government of the Republic of the Philippines (GRP). Formal peace talks were held in Libya which resulted to the
crafting of the GRP-MILF Tripoli Agreement on Peace (Tripoli Agreement 2001) which consists of three (3) aspects:
a.) security aspect; b.) rehabilitation aspect; and c.) ancestral domain aspect. Various negotiations were held which
led to the finalization of the Memorandum of Agreement on the Ancestral Domain (MOA-AD). The said memorandum
was set to be signed last August 5, 2008. In its body, it grants ―the authority and jurisdiction over the Ancestral
Domain and Ancestral Lands of the Bangsamoro to the Bangsamoro Juridical Entity (BJE). The latter, in addition, has
the freedom to enter into any economic cooperation and trade relation with foreign countries. ―The sharing between
the Central Government and the BJE of total production pertaining to natural resources is to be 75:25 in favor of the
BJE. The MOA-AD further provides for the extent of the territory of the Bangsamoro. It describes it as ―the land
mass as well as the maritime, terrestrial, fluvial and alluvial domains, including the aerial domain and the atmospheric
space above it, embracing the Mindanao-Sulu-Palawan geographic region. With regard to governance, on the other
hand, a shared responsibility and authority between the Central Government and BJE was provided. The relationship
was described as ―associative. With the formulation of the MOA-AD, petitioners aver that the negotiation and
finalization of the MOA-AD violates constitutional and statutory provisions on public consultation, as mandated by
Executive Order No. 3, and right to information. They further contend that it violates the Constitution and laws. Hence,
the filing of the petition.

ISSUE:

Do the contents of the MOA-AD violate the Constitution and the laws?

Whether by signing the MOA, the Government of the Republic of the Philippines would be BINDING itself

a) to create and recognize the Bangsamoro Juridical Entity (BJE) as a separate state, or a juridical, territorial or
political subdivision not recognized by law;

b) to revise or amend the Constitution and existing laws to conform to the MOA;

HELD:

YES. ​T​he MOA-AD is inconsistent with the Constitution and laws.

1. The powers granted to the BJE exceed those granted to any local government under present laws, and even go
beyond those of the present ARMM. The general idea that serves as a unifying link to the different provisions of the
MOA-AD is the international law concept of “association”. In international practice, the "​associated state​"
arrangement has usually been used as a ​transitional device of former colonies on their way to full
independence.The MOA-AD contains many provisions which are consistent with the international legal concept
specifically the following: the BJE's capacity to enter into economic and trade relations with foreign countries, the
commitment of the Central Government to ensure the BJE's participation in meetings and events in the ASEAN and
the specialized UN agencies, and the continuing responsibility of the Central Government over external defense.
Moreover, the BJE's right to participate in Philippine official missions bearing on negotiation of border agreements,
environmental protection, and sharing of revenues pertaining to the bodies of water adjacent to or between islands
forming part of the ancestral domain, resembles the right of the governments of FSM and the Marshall Islands to be
consulted by the U.S. government on any foreign affairs matter affecting them. These provisions of the MOA indicate,
among other things, that the Parties aimed to vest in the BJE the status of an ​associated state or, at any rate, a
status closely approximating it. The concept of ​association​ is not recognized under the present Constitution

No province, city, or municipality, not even the ARMM, is recognized under our laws as having an "associative"
relationship with the national government. Indeed, the concept implies powers that go beyond anything ever granted
by the Constitution to any local or regional government. It also implies the recognition of the ​associated entity as a
state. The Constitution, however, does not contemplate any state in this jurisdiction other than the Philippine State,
much less does it provide for a transitory status that aims to prepare any part of Philippine territory for independence.
Even the mere concept animating many of the MOA-AD's provisions, therefore, already requires for its validity the
amendment of constitutional provisions, specifically the following provisions of Article X:

SECTION 1. The territorial and political subdivisions of the Republic of the Philippines are the ​provinces, cities,
municipalities, and barangays​. There shall be ​autonomous regions in Muslim Mindanao and the Cordilleras as
hereinafter provided.

SECTION 15. There shall be created autonomous regions in Muslim Mindanao and in the Cordilleras consisting of
provinces, cities, municipalities, and geographical areas sharing common and distinctive historical and cultural
heritage, economic and social structures, and other relevant characteristics ​within the framework of this
Constitution and the national sovereignty as well as territorial integrity of the Republic of the Philippines.

Thus, BJE is not merely an expanded version of the ARMM, the status of its relationship with the national government
being fundamentally different from that of the ARMM. Indeed, ​BJE is a state in all but name as it meets the criteria
of a state laid down in the Montevideo Convention​, namely, ​a permanent population, a defined territory, a
government, and a capacity to enter into relations with other states.

Even assuming ​arguendo that the MOA-AD would not necessarily sever any portion of Philippine territory, the spirit
animating it - which has betrayed itself by its use of the concept of association - runs counter to the national
sovereignty and territorial integrity of the Republic.

The defining concept underlying the relationship between the national government and the BJE being itself
contrary to the present Constitution, it is not surprising that many of the specific provisions of the MOA-AD
on the formation and powers of the BJE are in conflict with the Constitution and the laws​.

Article X, Section 18 of the Constitution provides that "[t]he creation of the autonomous region shall be effective when
approved by a majority of the votes cast by the constituent units in a plebiscite called for the purpose, provided that
only provinces, cities, and geographic areas voting favorably in such plebiscite shall be included in the
autonomous region​."

BJE is more of a state than an autonomous region. But even assuming that it is covered by the term "autonomous
region" in the constitutional provision just quoted, the MOA-AD would still be in conflict with it. Under paragraph 2(c)
on TERRITORY in relation to 2(d) and 2(e), the present geographic area of the ARMM and, in addition, the
municipalities of Lanao del Norte which voted for inclusion in the ARMM during the 2001 plebiscite ​- Baloi, Munai,
Nunungan, Pantar, Tagoloan and Tangkal - are automatically part of the BJE without need of another plebiscite, in
contrast to the areas under Categories A and B mentioned earlier in the overview. That the present components of
the ARMM and the above-mentioned municipalities voted for inclusion therein in 2001, however, does ​not render
another plebiscite unnecessary under the Constitution, precisely because ​what these areas voted for then was
their inclusion in the ARMM, not the BJE.

2. The MOA-AD, moreover, would not comply with Article X, Section 20 of the Constitution since that provision
defines the powers of autonomous regions as follows:

SECTION 20. Within its territorial jurisdiction and ​subject to the provisions of this Constitution and national laws​, the
organic act of autonomous regions shall ​provide for legislative powers over​:

(1) Administrative organization;

(2) Creation of sources of revenues;

(3) Ancestral domain and natural resources;

(4) Personal, family, and property relations;

(5) Regional urban and rural planning development;

(6) Economic, social, and tourism development;

(7) Educational policies;

(8) Preservation and development of the cultural heritage; and

(9) ​Such other matters as may be authorized by law for the promotion of the general welfare of the people of the
region​. (Underscoring supplied)

Again on the premise that the BJE may be regarded as an autonomous region, ​the MOA-AD would require an
amendment that would expand the above-quoted provision. The mere passage of new legislation pursuant to
sub-paragraph No. 9 of said constitutional provision would not suffice, since any new law that might vest in the BJE
the powers found in the MOA-AD must, itself, comply with other provisions of the Constitution. It would not do, for
instance, to merely pass legislation vesting the BJE with treaty-making power in order to accommodate paragraph 4
of the strand on RESOURCES which states: "The BJE is free to enter into any economic cooperation and trade
relations with foreign countries: provided, however, that such relationships and understandings do not include
aggression against the Government of the Republic of the Philippines x x x." Under our constitutional system, it is
only the President who has that power.​ ​Pimentel v. Executive Secretary​155​ instructs:

In our system of government, the President, being the head of state, is regarded as the ​sole organ and authority in
external relations and is the country's sole representative with foreign nations. As the chief architect of foreign policy,
the President acts as the country's mouthpiece with respect to international affairs. Hence, the President is vested
with the authority to deal with foreign states and governments, extend or withhold recognition, maintain diplomatic
relations, enter into treaties, and otherwise transact the business of foreign relations. ​In the realm of treaty-making,
the President has the sole authority to negotiate with other states.

3. Article II, Section 22 of the Constitution must also be amended if the scheme envisioned in the MOA-AD is to be
effected. That constitutional provision states: The State recognizes and promotes the rights of indigenous cultural
communities within the framework of national unity and development. An associative arrangement does not uphold
national unity. While there may be a semblance of unity because of the associative ties between the BJE and the
national government, ​the act of placing a portion of Philippine territory in a status which, in international
practice, has generally been a preparation for independence, is certainly not conducive to national unity.

The MOA-AD cannot be reconciled with the present Constitution and laws. Not only its specific provisions but the
very concept underlying them, namely, the associative relationship envisioned between the GRP and the BJE, are
unconstitutional, for the concept presupposes that the associated entity is a state and implies that the same is on its
way to independence.

While there is a clause in the MOA-AD stating that the provisions thereof inconsistent with the present legal
framework will not be effective until that framework is amended, the same does not cure its defect. The inclusion of
provisions in the MOA-AD establishing an associative relationship between the BJE and the Central Government is,
itself, a violation of the Memorandum of Instructions from the President dated March 1, 2001, addressed to the
government peace panel. Moreover, as the clause is worded, it virtually guarantees that the necessary amendments
to the Constitution and the laws will eventually be put in place. Neither the GRP Peace Panel nor the President
herself is authorized to make such a guarantee. Upholding such an act would amount to authorizing a usurpation of
the constituent powers vested only in Congress, a Constitutional Convention, or the people themselves through the
process of initiative, for the only way that the Executive can ensure the outcome of the amendment process is
through an undue influence or interference with that process.
G.R. No. L-13250 October 29, 1971

THE COLLECTOR OF INTERNAL REVENUE

vs.

ANTONIO CAMPOS RUEDA

FACTS: ​Antonio Campos Rueda is the administrator of the estate of the deceased Maria Cerdeira. Cerdeira is a
Spanish national, by reason of her marriage to a Spanish citizen and was a resident of Tangier, Morocco up to her
death. At the time of her demise she left, among others, intangible personal properties in the Philippines. The CIR
then issued an assessment for state and inheritance taxes of P369,383.96. Rueda filed an amended return stating
that intangible personal properties worth P396,308.90 should be exempted from taxes. The CIR denied the request
on the ground that the law of Tangier is not reciprocal to Section 122 (now Section 104) of the National Internal
Revenue Code.

The case was elevated to the CTA which sided with Rueda. The CTA stated that the foreign country mentioned in
Section 122 "refers to a government of that foreign power which, although not an international person in the sense of
international law, does not impose transfer or death upon intangible person properties of our citizens not residing
therein, or whose law allows a similar exemption from such taxes. It is, therefore, not necessary that Tangier should
have been recognized by our Government order to entitle the petitioner to the exemption benefits of the proviso of
Section 122 of our Tax. Code."

ISSUE​: Whether or not the requisites of statehood, or at least so much thereof as may be necessary for the
acquisition of an international personality, must be satisfied for a “foreign country” to fall within the exemption of
Section 122 of the National Internal Revenue Code.

HELD​: ​YES.

The controlling legal provision as noted is a proviso in Section 122 of the National Internal Revenue Code. It reads
thus: "That no tax shall be collected under this Title in respect of intangible personal property (a) if the decedent at
the time of his death was a resident of a foreign country which at the time of his death did not impose a transfer tax or
death tax of any character in respect of intangible person property of the Philippines not residing in that foreign
country, or (b) if the laws of the foreign country of which the decedent was a resident at the time of his death allow a
similar exemption from transfer taxes or death taxes of every character in respect of intangible personal property
owned by citizens of the Philippines not residing in that foreign country."

It does not admit of doubt that if a foreign country is to be identified with a state, it is required in line with Pound's
formulation that it be a politically organized sovereign community independent of outside control bound by penalties
of nationhood, legally supreme within its territory, acting through a government functioning under a regime of law. ​A
foreign country is thus a sovereign person with the people composing it viewed as an organized corporate society
under a government with the legal competence to exact obedience to its commands.

Even on the assumption then that Tangier is bereft of international personality, the CIR has not successfully made out
a case. The Court did commit itself to the doctrine that even a tiny principality, like Liechtenstein, hardly an
international personality in the sense, did fall under this exempt category.

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