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4 Cemco Holdings, Inc. vs. National Life Insurance Company of The Philippines, Inc., 529 SCRA 355, August 07, 2007
4 Cemco Holdings, Inc. vs. National Life Insurance Company of The Philippines, Inc., 529 SCRA 355, August 07, 2007
Code, is
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* THIRD DIVISION.
VOL. 529, AUGUST 7, 2007 355
Cemco Holdings, Inc. vs. National Life Insurance 356
Company of the Philippines, Inc.
*
G.R. No. 171815. August 7, 2007.
356 SUPREME COURT REPORTS ANNOTATED
CEMCO HOLDINGS, INC., petitioner, vs. NATIONAL Cemco Holdings, Inc. vs. National Life Insurance Company of the
LIFE INSURANCE COMPANY OF THE PHILIPPINES, Philippines, Inc.
INC., respondent.
Section 5.1(n), viz.: [T]he Commission shall have, among others, the
Corporation Law; Securities Regulation Code (R.A. No. 8799); following powers and functions: x x x x (n) Exercise such other
Mandatory Offer Rule; Securities and Exchange Commission (SEC); powers as may be provided by law as well as those which may be
Jurisdictions; Administrative Law; Rule 19(13) of the Amended implied from, or which are necessary or incidental to the carrying
Implementing Rules and Regulations of the Securities Regulation out of, the express powers granted the Commission to achieve the
Code emanates from the Securities and Exchange CommissionÊs objectives and purposes of these laws. The foregoing provision
(SECÊs) power and authority to regulate, investigate or supervise the bestows upon the SEC the general adjudicative power which is
activities of persons to ensure compliance with the Securities implied from the express powers of the Commission or which is
Regulation Code, more specifically the provision on mandatory incidental to, or reasonably necessary to carry out, the performance
tender offer under Section 19 thereof.·In taking cognizance of of the administrative duties entrusted to it. As a regulatory agency,
respondentÊs complaint against petitioner and eventually rendering it has the incidental power to conduct hearings and render decisions
a judgment which ordered the latter to make a tender offer, the fixing the rights and obligations of the parties. In fact, to deprive
SEC was acting pursuant to Rule 19(13) of the Amended the SEC of this power would render the agency inutile, because it
Implementing Rules and Regulations of the Securities Regulation would become powerless to regulate and implement the law.
Code, to wit: 13. Violation. If there shall be violation of this Rule by Same; Same; Same; Same; Same; Same; The power conferred
pursuing a purchase of equity shares of a public company at upon the Securities and Exchange Commission (SEC) to promulgate
threshold amounts without the required tender offer, the rules and regulations is a legislative recognition of the complexity
Commission, upon complaint, may nullify the said acquisition and and the constantly-fluctuating nature of the market and the
direct the holding of a tender offer. This shall be without prejudice impossibility of foreseeing all the possible contingencies that cannot
to the imposition of other sanctions under the Code. The foregoing be addressed in advance.·The power conferred upon the SEC to
rule emanates from the SECÊs power and authority to regulate, promulgate rules and regulations is a legislative recognition of the
investigate or supervise the activities of persons to ensure complexity and the constantly-fluctuating nature of the market and
compliance with the Securities Regulation Code, more specifically the impossibility of foreseeing all the possible contingencies that
the provision on mandatory tender offer under Section 19 thereof. cannot be addressed in advance. As enunciated in Victorias Milling
Same; Same; Same; Same; Same; Same; As a regulatory agency, Co., Inc. v. Social Security Commission, 4 SCRA 627: Rules and
Securities and Exchange Commission (SEC) has the incidental regulations when promulgated in pursuance of the procedure or
power to conduct hearings and render decisions fixing the rights and authority conferred upon the administrative agency by law, partake
obligations of the parties·to deprive the SEC of this power would of the nature of a statute, and compliance therewith may be
render the agency inutile, because it would become powerless to enforced by a penal sanction provided in the law. This is so because
regulate and implement the law.·Another provision of the statute, statutes are usually couched in general terms, after expressing the
which provides the basis of Rule 19(13) of the Amended policy, purposes, objectives, remedies and sanctions intended by the
legislature. The details and the manner of carrying out the law are offer is an offer by the acquiring person to stockholders of a public
often times left to the administrative agency entrusted with its company for them to tender their shares therein on the terms
enforcement. In this sense, it has been said that rules and specified in the offer. Tender offer is in place to protect minority
regulations are the product of a delegated power to create new or shareholders against any scheme that dilutes the share value of
additional legal provisions that have the effect of law. their investments. It gives the minority shareholders the chance to
Same; Same; Same; Same; Same; Same; Estoppel; While the exit the company under reasonable terms, giving them the
lack of jurisdiction of a court may be raised at any stage of an opportunity to sell their shares at the same price as those of the
action, nevertheless, the party raising such question may be estopped majority shareholders.
if he Same; Same; Same; Same; Administrative Law; Statutory
Construction; The coverage of the mandatory tender offer rule covers
357 not only direct acquisition but also indirect acquisition or „any type
of
358
VOL. 529, AUGUST 7, 2007 357
has actively taken part in the very proceedings which he questions Cemco Holdings, Inc. vs. National Life Insurance Company of the
and he only objects to the courtÊs jurisdiction because the judgment Philippines, Inc.
or the order subsequently rendered is adverse to him.·Petitioner did
not question the jurisdiction of the SEC when it rendered an acquisition‰; The rule in this jurisdiction is that the construction
opinion favorable to it, such as the 27 July 2004 Resolution, where given to a statute by an administrative agency charged with the
the SEC opined that the Cemco transaction was not covered by the interpretation and application of that statute is entitled to great
mandatory tender offer rule. It was only when the case was before weight by the courts, unless such construction is clearly shown to be
the Court of Appeals and after the SEC rendered an unfavorable in sharp contrast with the governing law or statute.·The SEC and
judgment against it that petitioner challenged the SECÊs the Court of Appeals ruled that the indirect acquisition by
competence. As articulated in Ceroferr Realty Corporation v. Court petitioner of 36% of UCC shares through the acquisition of the non-
of Appeals, 376 SCRA 144 (2002): While the lack of jurisdiction of a listed UCHC shares is covered by the mandatory tender offer rule.
court may be raised at any stage of an action, nevertheless, the This interpretation given by the SEC and the Court of Appeals
party raising such question may be estopped if he has actively must be sustained. The rule in this jurisdiction is that the
taken part in the very proceedings which he questions and he only construction given to a statute by an administrative agency charged
objects to the courtÊs jurisdiction because the judgment or the order with the interpretation and application of that statute is entitled to
subsequently rendered is adverse to him. great weight by the courts, unless such construction is clearly
shown to be in sharp contrast with the governing law or statute.
Same; Same; Same; Same; Words and Phrases; A tender offer is
The rationale for this rule relates not only to the emergence of the
an offer by the acquiring person to stockholders of a public company
multifarious needs of a modern or modernizing society and the
for them to tender their shares therein on the terms specified in the
establishment of diverse administrative agencies for addressing and
offer; A public company is defined as a corporation which is listed on
satisfying those needs; it also relates to accumulation of experience
an exchange, or a corporation with assets exceeding P50,000,000.00
and growth of specialized capabilities by the administrative agency
and with 200 or more stockholders, at least 200 of them holding not
charged with implementing a particular statute. The SEC and the
less than 100 shares of such company.·Tender offer is a publicly
Court of Appeals accurately pointed out that the coverage of the
announced intention by a person acting alone or in concert with
mandatory tender offer rule covers not only direct acquisition but
other persons to acquire equity securities of a public company. A
also indirect acquisition or „any type of acquisition.‰ This is clear
public company is defined as a corporation which is listed on an
from the discussions of the Bicameral Conference Committee on the
exchange, or a corporation with assets exceeding P50,000,000.00
Securities Act of 2000, on 17 July 2000.
and with 200 or more stockholders, at least 200 of them holding not
less than 100 shares of such company. Stated differently, a tender Same; Same; Same; Same; Same; Same; The legislative intent
of Section 19 of the Code is to regulate activities relating to the date that law was originally passed, this is subject to the
acquisition of control of the listed company and for the purpose of qualification that when a doctrine of this Court is overruled and a
protecting the minority stockholders of a listed corporation.·The different view is adopted, and more so when there is a reversal
legislative intent of Section 19 of the Code is to regulate activities thereof, the new doctrine should be applied prospectively and
relating to acquisition of control of the listed company and for the should not apply to parties who relied on the old doctrine and acted
purpose of protecting the minority stockholders of a listed in good faith. To hold otherwise would be to deprive the law of its
corporation. Whatever may be the method by which control of a quality of fairness and justice then, if there is no recognition of
public company is obtained, either through the direct purchase of what had transpired prior to such adjudication. It is apparent that
its stocks or through an indirect means, mandatory tender offer private respondent misconceived the import of the ruling. The
applies. decision in Columbia Pictures does not mean that if a new rule is
Same; Same; Same; Same; Same; An advisory opinion of an laid down in a case, it should not be applied in that case but that
agency may be stricken down if it deviates from the provision of the said rule should apply prospectively to cases arising afterwards.
statute.·The action of the SEC on the PSE request for opinion on Private respondentÊs view of the principle of prospective application
the Cemco transaction cannot be construed as passing merits or of new judicial doctrines would turn the judicial function into a
mere academic exercise with the result that the doctrine laid down
359 would be no more than a dictum and would deprive the holding in
the case of any force.
360
VOL. 529, AUGUST 7, 2007 359
Cemco Holdings, Inc. vs. National Life Insurance Company of the 360 SUPREME COURT REPORTS ANNOTATED
Philippines, Inc. Cemco Holdings, Inc. vs. National Life Insurance
Company of the Philippines, Inc.
giving approval to the questioned transaction. As aptly pointed out
by the respondent, the letter dated 27 July 2004 of the SEC was PETITION for review on certiorari of the decision and
nothing but an approval of the draft letter prepared by Director resolution of the Court of Appeals.
Callanga. There was no public hearing where interested parties
could have been heard. Hence, it was not issued upon a definite and The facts are stated in the opinion of the Court.
concrete controversy affecting the legal relations of parties thereby Florentino P. Feliciano and Sycip, Salazar, Hernandez
making it a judgment conclusive on all the parties. Said letter was and Gatmaitan for petitioner.
merely advisory. Jurisprudence has it that an advisory opinion of an Sobreviñas, Hayudini, Bodegon, Navarro and San
agency may be stricken down if it deviates from the provision of the Juan for respondent.
statute. Since the letter dated 27 July 2004 runs counter to the
Securities Regulation Code, the same may be disregarded as what CHICO-NAZARIO, J.:
the SEC has done in its decision dated 14 February 2005.
This Petition for Review under Rule 45 of the Rules of
Supreme Court; Judgments; A new rule laid down in a case Court seeks to reverse and set aside the 24 October 2005
1 2
applies immediately to that case.·Assuming arguendo that the Decision and the 6 March 2006 Resolution of the Court of
letter dated 27 July 2004 constitutes a ruling, the same cannot be Appeals in CA-G.R. SP No. 88758 which affirmed the
3
utilized to determine the rights of the parties. What is to be applied judgment dated 14 February 2005 of the Securities and
in the present case is the subsequent ruling of the SEC dated 14 Exchange Commission (SEC) finding that the acquisition of
February 2005 abandoning the opinion embodied in the letter dated petitioner Cemco Holdings, Inc. (Cemco) of the shares of
27 July 2004. In Serrano v. National Labor Relations Commission, stock of Bacnotan Consolidated Industries, Inc. (BCI) and
331 SCRA 331 (2000), was raised similar to the case under Atlas Cement Corporation (ACC) in Union Cement
consideration. Private respondent therein argued that the new Holdings Corporation (UCHC) was covered by the
doctrine pronounced by the Court should only be applied Mandatory Offer Rule under Section 19 of Republic Act No.
prospectively. Said postulation was ignored by the Court when it 8799, otherwise known as the Securities Regulation Code.
ruled: While a judicial interpretation becomes a part of the law as of
Total ownership of Cemco in UCC 53%
The Facts
As a consequence of this disclosure, the PSE, in a letter to
Union Cement Corporation (UCC), a publicly-listed the SEC dated 15 July 2004, inquired as to whether the
company, has two principal stockholders·UCHC, a non- Tender Offer Rule under Rule 19 of the Implementing
listed company, with shares amounting to 60.51%, and Rules of the Securities Regulation Code is not applicable to
petitioner Cemco with 17.03%. Majority of UCHCÊs stocks the purchase by petitioner of the majority of shares of UCC.
were owned In a letter dated 16 July 2004, Director Justina
Callangan of the SECÊs Corporate Finance Department
responded to the query of the PSE that while it was the
_______________
stance of the depart-
1 Penned by Associate Justice Mario L. Guariña III with Associate
Justices Rebecca De Guia-Salvador and Arturo G. Tayag, concurring. _______________
Rollo, pp. 68-79.
2 Id., at p. 119. 4 Id., at pp. 71-72.
3 Id., at pp. 254-264.
362
361
362 SUPREME COURT REPORTS ANNOTATED
VOL. 529, AUGUST 7, 2007 361 Cemco Holdings, Inc. vs. National Life Insurance
Cemco Holdings, Inc. vs. National Life Insurance Company of the Philippines, Inc.
Company of the Philippines, Inc.
ment that the tender offer rule was not applicable, the
by BCI with 21.31% and ACC with 29.69%. Cemco, on the matter must still have to be confirmed by the SEC en banc.
other hand, owned 9% of UCHC stocks. Thereafter, in a subsequent letter dated 27 July 2004,
In a disclosure letter dated 5 July 2004, BCI informed Director Callangan confirmed that the SEC en banc had
the Philippine Stock Exchange (PSE) that it and its resolved that the Cemco transaction was not covered by the
subsidiary ACC had passed resolutions to sell to Cemco tender offer rule.
BCIÊs stocks in UCHC equivalent to 21.31% and ACCÊs On 28 July 2004, feeling aggrieved by the transaction,
stocks in UCHC equivalent to 29.69%. respondent National Life Insurance Company of the
In the PSE Circular for Brokers No. 3146-2004 dated 8 Philippines, Inc., a minority stockholder of UCC, sent a
July 2004, it was stated that as a result of petitioner letter to Cemco demanding the latter to comply with the
CemcoÊs acquisition of BCI and ACCÊs shares in UCHC, rule on mandatory tender offer. Cemco, however, refused.
petitionerÊs total beneficial ownership, direct and indirect, On 5 August 2004, a Share Purchase Agreement was
in UCC has increased by 36% 4and amounted to at least executed by ACC and BCI, as sellers, and Cemco, as buyer.
53% of the shares of UCC, to wit : On 12 August 2004, the transaction was consummated
and closed.
Particulars Percentage On 19 August 2004, respondent National Life Insurance
Existing shares of Cemco in UCHC 9% Company of the Philippines, Inc. filed a complaint with the
SEC asking it to reverse its 27 July 2004 Resolution and to
Acquisition by Cemco of BCIÊs and ACCÊs 51% declare the purchase agreement of Cemco void and praying
shares in UCHC
that the mandatory tender offer rule be applied to its UCC
Total stocks of Cemco in UCHC 60% shares. Impleaded in the complaint were Cemco, UCC,
Percentage of UCHC ownership in UCC 60% UCHC, BCI and ACC, which were then required by the
SEC to file their respective comment on the complaint. In
Indirect ownership of Cemco in UCC 36% their comments, they were uniform in arguing that the
Direct ownership of Cemco in UCC 17% tender offer rule applied only to a direct acquisition of the
shares of the listed company and did not extend to an
indirect acquisition arising from the purchase of the shares II.
of a holding company of the listed firm.
In a Decision dated 14 February 2005, the SEC ruled in WHETHER OR NOT THE SEC HAS JURISDICTION TO
favor of the respondent by reversing and setting aside its ADJUDICATE THE DISPUTE BETWEEN THE PARTIES A QUO
27 July 2004 Resolution and directed petitioner Cemco to OR TO
make a tender offer for UCC shares to respondent and
other holders of UCC shares similar to the class held by _______________
UCHC in accordance with Section 9(E), Rule 19 of the
5 Id., at p. 78.
Securities Regulation Code.
364
363
VOL. 529, AUGUST 7, 2007 363 364 SUPREME COURT REPORTS ANNOTATED
Cemco Holdings, Inc. vs. National Life Insurance Cemco Holdings, Inc. vs. National Life Insurance
Company of the Philippines, Inc. Company of the Philippines, Inc.
365 366
VOL. 529, AUGUST 7, 2007 365 366 SUPREME COURT REPORTS ANNOTATED
Cemco Holdings, Inc. vs. National Life Insurance Cemco Holdings, Inc. vs. National Life Insurance
Company of the Philippines, Inc. Company of the Philippines, Inc.
and the like. Petitioner stresses that there is nothing in the Another provision of the statute, which provides the basis
statute which authorizes the SEC to issue orders granting of Rule 19(13) of the Amended Implementing Rules and
affirmative reliefs. Since the SECÊs order commanding it to Regulations of the Securities Regulation Code, is Section
make a tender offer is an affirmative relief fixing the 5.1(n), viz.:
respective rights and obligations of parties, such order is
void. „[T]he Commission shall have, among others, the following powers
Petitioner further contends that in the absence of any and functions:
specific grant of jurisdiction by Congress, the SEC cannot, xxxx
by mere administrative regulation, confer on itself that (n) Exercise such other powers as may be provided by law as well
jurisdiction. as those which may be implied from, or which are necessary or
PetitionerÊs stance fails to persuade. incidental to the carrying out of, the express powers granted the
In taking cognizance of respondentÊs complaint against Commission to achieve the objectives and purposes of these laws.‰
petitioner and eventually rendering a judgment which
The foregoing provision bestows upon the SEC the general
ordered the latter to make a tender offer, the SEC was
adjudicative power which is implied from the express
acting pursuant to Rule 19(13) of the Amended
powers of the Commission or which is incidental to, or
Implementing Rules and Regulations of the Securities
reasonably necessary to carry out, the performance of the
Regulation Code, to wit:
administrative duties entrusted to it. As a regulatory
13. Violation agency, it has the incidental power to conduct hearings and
If there shall be violation of this Rule by pursuing a purchase of render decisions fixing the rights and obligations of the
equity shares of a public company at threshold amounts without the parties. In fact, to deprive the SEC of this power would
required tender offer, the Commission, upon complaint, may nullify render the agency inutile, because it would become
the said acquisition and direct the holding of a tender offer. This powerless to regulate and implement the law. As correctly
shall be without prejudice to the imposition of other sanctions held by the Court of Appeals:
under the Code.
„We are nonetheless convinced that the SEC has the competence to
The foregoing rule emanates from the SECÊs power and render the particular decision it made in this case. A definite
inference may be drawn from the provisions of the SRC that the
SEC has the authority not only to investigate complaints of number of shares to be purchased, the price to be paid for such
violations of the tender offer rule, but to adjudicate certain rights securities, the method of purchase and such additional information
and obligations of the contending parties and grant appropriate as the Commission deems necessary or appropriate in the public
reliefs in the exercise of its regulatory functions under the SRC. interest or for the protection of investors, or which the Commission
Section 5.1 of the SRC allows a general grant of adjudicative powers deems to be material to a determination by holders whether such
to the SEC which may be implied from or are necessary or security should be sold.‰
incidental to the carrying out of its express powers to achieve the
objectives and purposes of the SRC. We must bear in mind in The power conferred upon the SEC to promulgate rules and
interpreting the powers and functions of the SEC that the law has regulations is a legislative recognition of the complexity
made the SEC primarily a regulatory body with the incidental and the constantly-fluctuating nature of the market and
power to conduct administrative hearings and make decisions. A the im-
regulatory body like the SEC may conduct hearings in the exercise
of its regulatory powers, and if the _______________
368
VOL. 529, AUGUST 7, 2007 367
Cemco Holdings, Inc. vs. National Life Insurance 368 SUPREME COURT REPORTS ANNOTATED
Company of the Philippines, Inc.
Cemco Holdings, Inc. vs. National Life Insurance
Company of the Philippines, Inc.
case involves violations or conflicts in connection with the
performance of its regulatory functions, it will have the duty and
authority to resolve the dispute for the best interests of the public.‰
8 possibility of foreseeing all the possible contingencies that
cannot be addressed in advance. As enunciated9 in Victorias
For sure, the SEC has the authority to promulgate rules Milling Co., Inc. v. Social Security Commission :
and regulations, subject to the limitation that the same are
„Rules and regulations when promulgated in pursuance of the
consistent with the declared policy of the Code. Among
procedure or authority conferred upon the administrative agency by
them is the protection of the investors and the
law, partake of the nature of a statute, and compliance therewith
minimization, if not total elimination, of fraudulent and
may be enforced by a penal sanction provided in the law. This is so
manipulative devises. Thus, Subsection 5.1(g) of the law
because statutes are usually couched in general terms, after
provides:
expressing the policy, purposes, objectives, remedies and sanctions
„Prepare, approve, amend or repeal rules, regulations and orders, intended by the legislature. The details and the manner of carrying
and issue opinions and provide guidance on and supervise out the law are oftentimes left to the administrative agency
compliance with such rules, regulations and orders.‰ entrusted with its enforcement. In this sense, it has been said that
rules and regulations are the product of a delegated power to create
Also, Section 72 of the Securities Regulation Code reads: new or additional legal provisions that have the effect of law.‰
„72.1. x x x To effect the provisions and purposes of this Code, the Moreover, petitioner is barred from questioning the
Commission may issue, amend, and rescind such rules and jurisdiction of the SEC. It must be pointed out that
regulations and orders necessary or appropriate, x x x. petitioner had participated in all the proceedings before the
72.2. The Commission shall promulgate rules and regulations SEC and had prayed for affirmative relief. In fact,
providing for reporting, disclosure and the prevention of fraudulent, petitioner defended the jurisdiction of the SEC in its
deceptive or manipulative practices in connection with the purchase Comment dated 15 September 2004, filed with the SEC
by an issuer, by tender offer or otherwise, of and equity security of a wherein it asserted:
class issued by it that satisfies the requirements of Subsection 17.2.
Such rules and regulations may require such issuer to provide „This Honorable Commission is a highly specialized body created
holders of equity securities of such dates with such information for the purpose of administering, overseeing, and managing the
relating to the reasons for such purchase, the source of funds, the corporate industry, share investment and securities market in the
Philippines. By the very nature of its functions, it dedicated to the company is defined as a corporation which is listed on an
study and administration of the corporate and securities laws and exchange, or a corporation with assets exceeding
has necessarily developed an expertise on the subject. Based on said P50,000,000.00 and with 200 or more stockholders, at least
functions, the Honorable Commission is necessarily tasked to issue 200 of them
13
holding not less than 100 shares of such
rulings with respect to matters involving corporate matters and company. Stated differently, a tender offer is an offer by
share acquisitions. Verily when this Honorable Commission the acquiring person to stockholders of a
rendered the Ruling that „. . . the acquisition of Cemco Holdings of
the majority shares of Union Cement Holdings, Inc., a substantial _______________
stockholder of a listed company, Union Cement Corporation, is not
covered by the mandatory tender offer requirement of the SRC Rule 10 Rollo, pp. 182-183.
19,‰ it was well within its powers and expertise to do so. Such ruling 11 426 Phil. 522, 530; 376 SCRA 144, 150 (2002).
12 The Philippine Securities Regulation Code (Annotated), Rafael A.
Morales (2005 Ed.), p. 153.
_______________
13 Id.
9 114 Phil. 555, 558; 4 SCRA 627, 630 (1962).
370
369
372
_______________
SO ORDERED.
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