G.R. No. 177131. June 7, 2011.

*
BOY SCOUTS OF THE PHILIPPINES, petitioner, vs.
COMMISSION ON AUDIT, respondent.

Corporation Law; Commission on Audit; Boy Scouts of the

Philippines; The Boy Scouts of the Philippines (BSP) is a public
corporation and its funds are subject to the Commission on AuditÊs
(COAÊs) audit jurisdiction.·After looking at the legislative history
of its amended charter and carefully studying the applicable laws
and the arguments of both parties, we find that the BSP is a public
corporation and its funds are subject to the COAÊs audit jurisdiction.
Same; Same; Same; Boy Scouts of the Philippines (BSP) as
presently constituted under Republic Act No. 7278, falls under the
second classification of juridical persons under Article 44 of the Civil
Code.·There are three classes of juridical persons under Article 44
of the Civil Code and the BSP, as presently constituted under
Republic Act No. 7278, falls under the second classification.
Article 44 reads: Art. 44. The following are juridical persons: (1)
The State and its political subdivisions; (2) Other corporations,
institutions and entities for public interest or purpose
created by law; their personality begins as soon as they have
been constituted according to law; (3) Corporations,
partnerships and asso-

_______________

* EN BANC.

147

VOL. 651, JUNE 7, 2011 147

Boy Scouts of the Philippines vs. Commission on Audit

ciations for private interest or purpose to which the law grants a

juridical personality, separate and distinct from that of each
shareholder, partner or member.
Same; Same; Same; The Boy Scouts of the Philippines (BSP)
which was created by a special law to serve a public purpose in
pursuit of a constitutional mandate, comes within the class of
„public corporations‰ defined by paragraph 2, Article 44 of the Civil
Code.·Evidently, the BSP, which was created by a special law to
serve a public purpose in pursuit of a constitutional mandate, comes
within the class of „public corporations‰ defined by paragraph 2,
Article 44 of the Civil Code and governed by the law which creates
it, pursuant to Article 45 of the same Code.
Same; Same; Same; The Boy Scouts of the Philippines (BSP) is
a public corporation or a government agency or instrumentality with
judicial personality, which does not fall within the constitutional
prohibition in Article XII, Section 16, notwithstanding the
amendments to its charter; Not all corporations, which are not
government owned or controlled, are ipso facto to be considered
private corporations, as there exists another distinct class of
corporations or chartered institutions which are otherwise known as
„public corporations.‰·The BSP is a public corporation or a
government agency or instrumentality with juridical personality,
which does not fall within the constitutional prohibition in Article
XII, Section 16, notwith​standing the amendments to its charter. Not
all corporations, which are not government owned or controlled, are
ipso facto to be considered private corporations as there exists
another distinct class of corporations or chartered institutions
which are otherwise known as „public corporations.‰ These
corporations are treated by law as agencies or instrumentalities of
the government which are not subject to the tests of ownership or
control and economic viability but to different criteria relating to
their public purposes/interests or constitutional policies and
objectives and their administrative relationship to the government
or any of its Departments or Offices.
Same; Same; Same; The ownership and control test is likewise
irrelevant for a public corporation like the Boy Scouts of the
Philippines (BSP).·The ownership and control test is likewise
irrelevant for a public corporation like the BSP. To reiterate, the
relationship of the BSP, an attached agency, to the government,
through the DECS,

148

148 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

is defined in the Revised Administrative Code of 1987. The BSP

meets the minimum statutory requirement of an attached
government agency as the DECS Secretary sits at the BSP Board ex
officio, thus facilitating the policy and program coordination
between the BSP and the DECS.
Same; Same; Same; Boy Scouts of the Philippines (BSP) is
subject to the exercise by the Commission on Audit (COA) of its audit
jurisdiction in the manner consistent with the provisions of the BSP
charter.·Since the BSP, under its amended charter, continues to be
a public corporation or a government instrumentality, we come to
the inevitable conclusion that it is subject to the exercise by the
COA of its audit jurisdiction in the manner consistent with the
provisions of the BSP Charter.
CARPIO, J., Dissenting Opinion:
Corporation Law; Commission on Audit; Boy Scouts of the
Philippines; The Boy Scouts of the Philippines (BSP) is a private,
non-stock, and non-profit corporation beyond the Commission on
AuditÊs (COAÊs) audit jurisdiction.·The Boy Scouts of the
Philippines (BSP) is neither a government-owned or controlled
corporation nor a government instrumentality subject to the
Commission on AuditÊs (COA) jurisdiction. The BSP is a private,
non-stock, and non-profit corporation beyond the COAÊs audit
jurisdiction.
Same; Same; Same; Entities over which Commission on Audit
(COA) exercises jurisdiction on a pre-audit and post-audit basis
under Section 2 (1) Article IX-D of the Constitution.·Based on this
Constitutional provision, the COA exercises jurisdiction on a pre-
audit basis over the (1) Government, (2) any of its subdivisions, (3)
agencies, (4) instrumentalities, and (5) GOCCs with original
charters. The COA also has jurisdiction on a post-audit basis over
(1) constitutional bodies, commissions and offices that have been
granted fiscal autonomy under the Constitution; (2) autonomous
state colleges and universities; (3) other GOCCs and their
subsidiaries; and (4) non-governmental entities receiving subsidy or
equity, directly or indirectly, from or through the government, which
are required by law or the granting institution to submit to such
audit as a condition of subsidy or equity.

149

VOL. 651, JUNE 7, 2011 149

Boy Scouts of the Philippines vs. Commission on Audit

Same; Same; Same; The determining factor of Commission on

AuditÊs (COAÊs) audit jurisdiction is government ownership or
control of the corporation.·In Feliciano v. Commission on Audit,
419 SCRA 363 (2004), the Court declared that the determining
factor of COAÊs audit jurisdiction is government ownership or
control of the corporation. Citing Philippine Veterans Bank
Employees Union-NUBE v. Philippine Veterans Bank, 189 SCRA 14
(1990), the Court held in Feliciano that the criterion of
ownership and control is more important than the issue of
original charter.
Same; Same; Same; The structural set-up and membership of
Boy Scouts of the Philippines (BSP) governing body under RA 7278,
where all except one come from the private sector, glaringly negate
any form of government control over the BSP.·As pointed out by
the BSP, under RA 7278 only one Cabinet Secretary remains
a member of the National Executive Board, as opposed to
the previous composition where the President of the
Philippines and six cabinet secretaries were members of the
same board. To repeat, the National Executive Board is presently
composed of (1) a charter member of the BSP; (2) the regional
chairmen of the scouts regions; (3) the Secretary of Education,
Culture and Sports; (4) National President of the Girl Scouts of the
Philippines; (5) a senior scout, one each from Luzon, Visayas and
Mindanao; (6) twelve regular members to be elected by the
members of the National Council; (7) at least ten but not more than
fifteen additional members from the private sector. Significantly,
the lone cabinet member, who is the Education Secretary,
merely serves as an ex-officio member. Meanwhile, the
President of the Philippines is no longer a member of the National
Executive Board and simply acts as the Chief Scout of the BSP.
Except for the Education Secretary, none of the other
members of the National Executive Board is a government
official or holds such position or membership through
appointment or designation by the government. Moreover, the
government lacks the power to fill up vacancies in the National
Executive Board of the BSP or remove any of its members. In fact,
„vacancies in the National Executive Board shall be filled by a
majority vote of the remaining members.‰ This structural set-up
and membership of BSPÊs governing body under RA 7278,
where all except one come from the private sector, glaringly
negate any form of government control over the BSP.

150

150 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

Same; Same; Same; It is crystal-clear that the funds of the Boy

Scouts of the Philippines (BSP) come from private sources; as such,
the BSP funds are necessarily beyond the jurisdiction of the
Commission on Audit (COA), which exclusively audits public funds
and assets.·BSPÊs properties are being managed and operated by
the BSP itself, not by the government or any of its agencies.
Therefore, it is crystal-clear that the funds of the BSP come from
private sources. As such, the BSP funds are necessarily beyond the
jurisdiction of the COA, which exclusively audits public funds and
assets.
Same; Same; Same; Only corporations controlled and owned by
the government, which are subject to the test of economic viability,
and government instrumentalities, as defined by the Administrative
Code, fall under Commission on AuditÊs (COAÊs) audit jurisdiction.·
The majority theorizes that public corporations are „treated by law
as agencies or instrumentalities of the government which are not
subject to the tests of ownership or control and economic viability
but to different criteria relating to their public purposes/interests or
constitutional policies and objectives and their administrative
relationship to the government or any of its Departments or
Offices.‰ This theory finds no basis in law. As the Court
emphatically stated in Philippine Society for the Prevention of
Cruelty to Animals, „the fact that a certain juridical entity is
impressed with public interest does not, by that
circumstance alone, make the entity a public corporation,
inasmuch as a corporation may be private although its
charter contains provisions of a public character,
incorporated solely for the public good.‰ Neither does
„administrative relationship to the government‰ indicate that an
entity is an instrumentality within the purview of the COAÊs audit
jurisdiction. Only corporations controlled and owned by the
government, which are subject to the test of economic viability, and
government instrumentalities, as defined by the Administrative
Code, fall under COAÊs audit jurisdiction. The BSP is neither; hence,
it is beyond the COAÊs audit jurisdiction.
Same; Same; Same; Definition of a Government
Instrumentality; Elements to be Considered a Government
Instrumentality; The BSP is not an agency of the National
Government because the Boy Scouts of the Philippines (BSP) is not a
unit of the National Government; Boy Scouts of the Philippines
(BSP) is not vested with special functions or jurisdiction by law.·A
government instru​mentality is

151

VOL. 651, JUNE 7, 2011 151

Boy Scouts of the Philippines vs. Commission on Audit

defined by the Revised Administrative Code as „any agency of the

National Government, not integrated within the department
framework vested with special functions or jurisdiction by law,
endowed with some if not all corporate powers, administering
special funds, and enjoying operational autonomy, usually through
a charter.‰ In other words, to be considered a government
instrumentality, an entity must be (1) an agency of the National
Government; (2) outside the department framework of the
National Government; (3) vested with special functions or
jurisdiction by law; (4) endowed with some, if not all, corporate
powers; (5) administering special funds; and (6) enjoying
operational autonomy. The BSP is not an agency of the
National Government because the BSP is not a unit of the
National Government, like a „department, bureau, office,
instrumentality or government owned or controlled corporation, or
a local government or a distinct unit therein.‰ There is also no
dispute that the BSP does not administer special funds of
the government. While the BSP may receive donations or
contributions from the government just like other non-government
organizations, the same cannot be characterized as special funds.
Moreover, the BSP is not vested with special functions or
jurisdiction by law. Hence, the BSP is not a government
instrumentality.

SPECIAL CIVIL ACTION in the Supreme Court.

Prohibition.
The facts are stated in the opinion of the Court.
Chato & Vinzons-Chato for petitioner.
The Solicitor General for respondent.

LEONARDO-DE CASTRO, J.:

The jurisdiction of the Commission on Audit (COA) over

the Boy Scouts of the Philippines (BSP) is the subject
matter of this controversy that reached us via petition for
pro​hibition1 filed by the BSP under Rule 65 of the 1997
Rules of Court. In this petition, the BSP seeks that the
COA be pro​-

_______________

1With prayer for preliminary injunction and/or temporary restraining

order.

152

152 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

hibited from implementing its June 18, 2002 Decision,2 its

February 21, 2007 Resolution,3 as well as all other
issuances arising therefrom, and that all of the foregoing be
rendered null and void.4
Antecedent Facts and Background of the Case
This case arose when the COA issued Resolution No.
99-0115 on August 19, 1999 („the COA Resolution‰), with
the subject „Defining the CommissionÊs policy with respect
to the audit of the Boy Scouts of the Philippines.‰ In its
whereas clauses, the COA Resolution stated that the BSP
was created as a public corporation under Commonwealth
Act No. 111, as amended by Presidential Decree No. 460
and Republic Act No. 7278; that in Boy Scouts of the
Philippines v. National Labor Relations Commission,6 the
Supreme Court ruled that the BSP, as constituted under its
charter, was a „government-controlled corporation within
the meaning of Article IX(B)(2)(1) of the Constitution‰; and
that „the BSP is appropriately regarded as a government
instrumentality under the 1987 Administrative Code.‰7 The
COA Resolution also cited its constitutional mandate under
Section 2(1), Article IX (D). Finally, the COA Resolution
reads:

„NOW THEREFORE, in consideration of the foregoing premises,

the COMMISSION PROPER HAS RESOLVED, AS IT DOES
HEREBY RESOLVE, to conduct an annual financial audit of
the Boy Scouts of the Philippines in accordance with
generally accepted auditing standards, and express an opinion
on whether the financial statements which include the Balance
Sheet,

_______________

2 Rollo, pp. 35-38; COA Decision No. 2002-107.

3 Id., at pp. 39-41; COA Decision No. 2007-008.
4 Id., at p. 29.
5 Id., at pp. 42-43.
6 G.R. No. 80767, April 22, 1991, 196 SCRA 176.
7 Rollo, p. 42.

153

VOL. 651, JUNE 7, 2011 153

Boy Scouts of the Philippines vs. Commission on Audit

the Income Statement and the Statement of Cash Flows present

fairly its financial position and results of operations.
xxxx
BE IT RESOLVED FURTHERMORE, that for purposes of audit
supervision, the Boy Scouts of the Philippines shall be
classified among the government corporations belonging to
the Educational, Social, Scientific, Civic and Research
Sector under the Corporate Audit Office I, to be audited, similar to
the subsidiary corporations, by employing the team audit
approach.‰8 (Emphases supplied.)

The BSP sought reconsideration of the COA Resolution

in a letter9 dated November 26, 1999 signed by the BSP
National President Jejomar C. Binay, who is now the Vice
President of the Republic, wherein he wrote:

„It is the position of the BSP, with all due respect, that it is not subject to
the CommissionÊs jurisdiction on the following grounds:
1. We reckon that the ruling in the case of Boy Scouts of the Philippines
vs. National Labor Relations Commission, et al. (G.R. No. 80767)
classifying the BSP as a government-controlled corporation is
anchored on the „substantial Government participation‰ in the
National Executive Board of the BSP. It is to be noted that the case
was decided when the BSP Charter is defined by Commonwealth Act
No. 111 as amended by Presidential Decree 460.
  However, may we humbly refer you to Republic Act No. 7278 which
amended the BSPÊs charter after the cited case was decided. The most
salient of all amendments in RA No. 7278 is the alteration of the
composition of the National Executive Board of the BSP.
  The said RA virtually eliminated the „substantial government
participation‰ in the National Executive Board by removing: (i) the
President of the Philippines and executive secretaries, with the
exception of the Secretary of Education, as members thereof;

_______________
 8 Id., at pp. 42-43.
9 Id., at pp. 44-46.

154

154 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

and (ii) the appointment and confirmation power of the

President of the Philippines, as Chief Scout, over the
members of the said Board.
  The BSP believes that the cited case has been superseded by RA
7278. Thereby weakening the caseÊs conclusion that the BSP is a
government-controlled corporation (sic). The 1987 Administrative
Code itself, of which the BSP vs. NLRC relied on for some terms,
defines government-owned and controlled corporations as agencies
organized as stock or non-stock corporations which the BSP, under its
present charter, is not.
  Also, the Government, like in other GOCCs, does not have funds
invested in the BSP. What RA 7278 only provides is that the
Government or any of its subdivisions, branches, offices, agencies and
instrumentalities can from time to time donate and contribute funds
to the BSP.
  x x x x
  Also the BSP respectfully believes that the BSP is not „appropriately
regarded as a government instrumentality under the 1987
Administrative Code‰ as stated in the COA resolution. As defined by
Section 2(10) of the said code, instrumentality refers to „any agency of
the National Government, not integrated within the department
framework, vested with special functions or jurisdiction by law,
endowed with some if not all corporate powers, administering special
funds, and enjoying operational autonomy, usually through a
charter.‰
  The BSP is not an entity administering special funds. It is not even
included in the DECS National Budget. x x x
  It may be argued also that the BSP is not an „agency‰ of the
Government. The 1987 Administrative Code, merely referred the BSP
as an „attached agency‰ of the DECS as distinguished from an actual
line agency of departments that are included in the National Budget.
The BSP believes that an „attached agency‰ is different from an
„agency.‰ Agency, as defined in Section 2(4) of the Administrative
Code, is defined as any of the various units of the Government
including a department, bureau, office, instrumentality, government-
owned or controlled corporation or local government or distinct unit
therein.

155

VOL. 651, JUNE 7, 2011 155

Boy Scouts of the Philippines vs. Commission on Audit

  Under the above definition, the BSP is neither a unit of the

Government; a department which refers to an executive department
as created by law (Section 2[7] of the Administrative Code); nor a
bureau which refers to any principal subdivision or unit of any
department (Section 2[8], Administrative Code).10

Subsequently, requests for reconsideration of the COA

Resolution were also made separately by Robert P.
Valdellon, Regional Scout Director, Western Visayas
Region, Iloilo City and Eugenio F. Capreso, Council Scout
Executive of Calbayog City.11
In a letter12 dated July 3, 2000, Director Crescencio S.
Sunico, Corporate Audit Officer (CAO) I of the COA,
furnished the BSP with a copy of the Memorandum13
dated June 20, 2000 of Atty. Santos M. Alquizalas, the COA
General Counsel. In said Memorandum, the COA General
Counsel opined that Republic Act No. 7278 did not
supersede the CourtÊs ruling in Boy Scouts of the
Philippines v. National Labor Relations Commission, even
though said law eliminated the substantial government
participation in the selection of members of the National
Executive Board of the BSP. The Memorandum further
provides:

„Analysis of the said case disclosed that the substantial

government participation is only one (1) of the three (3) grounds
relied upon by the Court in the resolution of the case. Other
considerations include the character of the BSPÊs purposes and
functions which has a public aspect and the statutory designation of
the BSP as a „public corporation‰. These grounds have not been
deleted by R.A. No. 7278. On the contrary, these were strengthened
as evidenced by the amendment made relative to BSPÊs purposes
stated in Section 3 of R.A. No. 7278.

_______________

10 Id., at pp. 44-46.

11 Id., at p. 8.
12 Id., at p. 47.
13 Id., at pp. 48-50.

156

156 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

On the argument that BSP is not appropriately regarded as „a

government instrumentality‰ and „agency‰ of the government, such
has already been answered and clarified. The Supreme Court has
elucidated this matter in the BSP case when it declared that BSP is
regarded as, both a „government-controlled corporation with an
original charter‰ and as an „instrumentality‰ of the Government.
Likewise, it is not disputed that the Administrative Code of 1987
designated the BSP as one of the attached agencies of DECS. Being
an attached agency, however, it does not change its nature as a
government-controlled corporation with original charter and,
necessarily, subject to COA audit jurisdiction. Besides, Section 2(1),
Article IX-D of the Constitution provides that COA shall have the
power, authority, and duty to examine, audit and settle all accounts
pertaining to the revenue and receipts of, and expenditures or uses
of funds and property, owned or held in trust by, or pertaining to,
the Government, or any of its subdivisions, agencies or
instrumentalities, including government-owned or controlled
corporations with original charters.‰14

Based on the Memorandum of the COA General

Counsel, Director Sunico wrote:

„In view of the points clarified by said Memorandum upholding

COA Resolution No. 99-011, we have to comply with the provisions
of the latter, among which is to conduct an annual financial audit of
the Boy Scouts of the Philippines.‰15

In a letter dated November 20, 2000 signed by Director

Amorsonia B. Escarda, CAO I, the COA informed the BSP
that a preliminary survey of its organizational structure,
operations and accounting system/records shall be
conducted on November 21 to 22, 2000.16
Upon the BSPÊs request, the audit was deferred for
thirty (30) days. The BSP then filed a Petition for Review
with Prayer for Preliminary Injunction and/or Temporary
Re-

_______________

14 Id., at pp. 49-50.

15 Id., at p. 47.
16 Id., at p. 51.

157

VOL. 651, JUNE 7, 2011 157

Boy Scouts of the Philippines vs. Commission on Audit

straining Order before the COA. This was denied by the

COA in its questioned Decision, which held that the BSP is
under its audit jurisdiction. The BSP moved for
reconsideration but this was likewise denied under its
questioned Resolution.17
This led to the filing by the BSP of this petition for
prohibition with preliminary injunction and temporary
restraining order against the COA.
The Issue
As stated earlier, the sole issue to be resolved in this
case is whether the BSP falls under the COAÊs audit
jurisdiction.
The PartiesÊ Respective Arguments
The BSP contends that Boy Scouts of the Philippines v.
National Labor Relations Commission is inapplicable for
purposes of determining the audit jurisdiction of the COA
as the issue therein was the jurisdiction of the National
Labor Relations Commission over a case for illegal
dismissal and unfair labor practice filed by certain BSP
employees.18
While the BSP concedes that its functions do relate to
those that the government might otherwise completely
assume on its own, it avers that this alone was not
determinative of the COAÊs audit jurisdiction over it. The
BSP further avers that the Court in Boy Scouts of the
Philippines v. National Labor Relations Commission
„simply stated x x x that in respect of functions, the BSP is
akin to a public corporation‰ but this was not synonymous
to holding that the BSP is a government corporation or
entity subject to audit by the COA.19
The BSP contends that Republic Act No. 7278
introduced crucial amendments to its charter; hence, the
findings of the Court in Boy Scouts of the Philippines v.
National Labor Rela-

_______________

17 Id., at p. 9.
18 Id., at p. 11.
19 Id., at p. 13.

158

158 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

tions Commission are no longer valid as the government

has ceased to play a controlling influence in it. The BSP
claims that the pronouncements of the Court therein must
be taken only within the context of that case; that the
Court had categorically found that its assets were acquired
from the Boy Scouts of America and not from the
Philippine government, and that its operations are
financed chiefly from membership dues of the Boy Scouts
themselves as well as from property rentals; and that „the
BSP may correctly be characterized as non-governmental,
and hence, beyond the audit jurisdiction of the COA.‰ It
further claims that the designation by the Court of the BSP
as a government agency or instrumentality is mere obiter
dictum.20
The BSP maintains that the provisions of Republic Act
No. 7278 suggest that „governance of BSP has come to be
overwhelmingly a private affair or nature, with
government participation restricted to the seat of the
Secretary of Education, Culture and Sports.‰21 It cites
Philippine Airlines Inc. v. Commission on Audit22 wherein
the Court declared that, „PAL, having ceased to be a
government-owned or controlled corporation is no longer
under the audit jurisdiction of the COA.‰23 Claiming that
the amendments introduced by Republic Act No. 7278
constituted a supervening event that changed the BSPÊs
corporate identity in the same way that the governmentÊs
privatization program changed PALÊs, the BSP makes the
case that the government no longer has control over it;
thus, the COA cannot use the Boy Scouts of the Philippines
v. National Labor Relations Commission as its basis for the
exercise of its jurisdiction and the issuance of COA
Resolution No. 99-011.24 The BSP further claims as follows:

_______________

20 Id., at pp. 15-16.

21 Id., at p. 18.
22 314 Phil. 896; 245 SCRA 39 (1995).
23 Id., at p. 903; p. 44.
24 Rollo, pp. 19-20.

159

VOL. 651, JUNE 7, 2011 159

Boy Scouts of the Philippines vs. Commission on Audit

„It is not far-fetched, in fact, to concede that BSPÊs funds and

assets are private in character. Unlike ordinary public corporations,
such as provinces, cities, and municipalities, or government-owned
and controlled corporations, such as Land Bank of the Philippines
and the Development Bank of the Philippines, the assets and funds
of BSP are not derived from any government grant. For its
operations, BSP is not dependent in any way on any government
appropriation; as a matter of fact, it has not even been included in
any appropriations for the government. To be sure, COA has not
alleged, in its Resolution No. 99-011 or in the Memorandum of its
General Counsel, that BSP received, receives or continues to receive
assets and funds from any agency of the government. The foregoing
simply point to the private nature of the funds and assets of
petitioner BSP.
xxxx
As stated in petitionerÊs third argument, BSPÊs assets and funds
were never acquired from the government. Its operations are not in
any way financed by the government, as BSP has never been
included in any appropriations act for the government. Neither has
the government invested funds with BSP. BSP, has not been, at any
time, a user of government property or funds; nor have properties of
the government been held in trust by BSP. This is precisely the
reason why, until this time, the COA has not attempted to subject
BSP to its audit jurisdiction. x x x.‰25

To summarize its other arguments, the BSP contends

that it is not a government-owned or controlled corporation;
neither is it an instrumentality, agency, or subdivision of
the government.
In its Comment,26 the COA argues as follows:

1. The BSP is a public corporation created under Commonwealth Act

No. 111 dated October 31, 1936, and whose functions relate to the
fostering of public virtues of citizenship and patriotism and the
general improvement of the moral spirit and fiber of the youth.
The manner of

_______________

25 Id., at pp. 21-22.

26 Id., at pp. 61-82.

160

160 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

creation and the purpose for which the BSP was created
indubitably prove that it is a government agency.
2. Being a government agency, the funds and property owned or held
in trust by the BSP are subject to the audit authority of
respondent Commission on Audit pursuant to Section 2 (1), Article
 IX-D of the 1987 Constitution.
3. Republic Act No. 7278 did not change the character of the BSP as
a government-owned or controlled corporation and government
instrumentality.27

The COA maintains that the functions of the BSP that

include, among others, the teaching to the youth of
patriotism, courage, self-reliance, and kindred virtues, are
undeniably sovereign functions enshrined under the
Constitution and discussed by the Court in Boy Scouts of
the Philippines v. National Labor Relations Commission.
The COA contends that any attempt to classify the BSP as
a private corporation would be incomprehensible since no
less than the law which created it had designated it as a
public corporation and its statutory mandate embraces
performance of sovereign functions.28
The COA claims that the only reason why the BSP
employees fell within the scope of the Civil Service
Commission even before the 1987 Constitution was the fact
that it was a government-owned or controlled corporation;
that as an attached agency of the Department of
Education, Culture and Sports (DECS), the BSP is an
agency of the government; and that the BSP is a chartered
institution under Section 1(12) of the Revised
Administrative Code of 1987, embraced under the term
government instrumentality.29
The COA concludes that being a government agency, the
funds and property owned or held by the BSP are subject to

_______________

27 Id., at p. 67.
28 Id., at pp. 70-71.
29 Id., at pp. 72-73.

161

VOL. 651, JUNE 7, 2011 161

Boy Scouts of the Philippines vs. Commission on Audit

the audit authority of the COA pursuant to Section 2(1),

Article IX (D) of the 1987 Constitution.
In support of its arguments, the COA cites The Veterans
Federation of the Philippines (VFP) v. Reyes,30 wherein the
Court held that among the reasons why the VFP is a public
corporation is that its charter, Republic Act No. 2640,
designates it as one. Furthermore, the COA quotes the
Court as saying in that case:

„In several cases, we have dealt with the issue of whether certain
specific activities can be classified as sovereign functions. These
cases, which deal with activities not immediately apparent to be
sovereign functions, upheld the public sovereign nature of
operations needed either to promote social justice or to stimulate
patriotic sentiments and love of country.
xxxx
Petitioner claims that its funds are not public funds because no
budgetary appropriations or government funds have been released
to the VFP directly or indirectly from the DBM, and because VFP
funds come from membership dues and lease rentals earned from
administering government lands reserved for the VFP.
The fact that no budgetary appropriations have been released to
the VFP does not prove that it is a private corporation. The DBM
indeed did not see it fit to propose budgetary appropriations to the
VFP, having itself believed that the VFP is a private corporation. If
the DBM, however, is mistaken as to its conclusion regarding the
nature of VFP's incorporation, its previous assertions will not
prevent future budgetary appropriations to the VFP. The erroneous
application of the law by public officers does not bar a subsequent
correct application of the law.‰31 (Citations omitted.)

The COA points out that the government is not

precluded by law from extending financial support to the
BSP and adding to its funds, and that „as a government
instrumentality which continues to perform a vital function
imbued with pub-

_______________

30 G.R. No. 155027, February 28, 2006, 483 SCRA 426.

31 Id., at pp. 553-556.

162

162 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

lic interest and reflective of the governmentÊs policy to

stimulate patriotic sentiments and love of country, the
BSPÊs funds from whatever source are public funds, and
can be used solely for public purpose in pursuance of the
provisions of Republic Act No. [7278].‰32
The COA claims that the fact that it has not yet audited
the BSPÊs funds may not bar the subsequent exercise of its
audit jurisdiction.
The BSP filed its Reply33 on August 29, 2007
maintaining that its statutory designation as a „public
corporation‰ and the public character of its purpose and
functions are not determinative of the COAÊs audit
jurisdiction; reiterating its stand that Boy Scouts of the
Philippines v. National Labor Relations Commission is not
applicable anymore because the aspect of government
ownership and control has been removed by Republic Act
No. 7278; and concluding that the funds and property that
it either owned or held in trust are not public funds and are
not subject to the COAÊs audit jurisdiction.
Thereafter, considering the BSPÊs claim that it is a
private corporation, this Court, in a Resolution34 dated
July 20, 2010, required the parties to file, within a period of
twenty (20) days from receipt of said Resolution, their
respective comments on the issue of whether
Commonwealth Act No. 111, as amended by Republic Act
No. 7278, is constitutional.
In compliance with the CourtÊs resolution, the parties
filed their respective Comments.
In its Comment35 dated October 22, 2010, the COA
argues that the constitutionality of Commonwealth Act No.
111, as amended, is not determinative of the resolution of
the present

_______________

32 Rollo, p. 76.
33 Id., at pp. 86-104.
34 Id., at pp. 129-130.
35 Id., at pp. 143-159.

163

VOL. 651, JUNE 7, 2011 163

Boy Scouts of the Philippines vs. Commission on Audit

controversy on the COAÊs audit jurisdiction over petitioner,

and in fact, the controversy may be resolved on other
grounds; thus, the requisites before a judicial inquiry may
be made, as set forth in Commissioner of Internal Revenue
v. Court of Tax Appeals,36 have not been fully met.37
Moreover, the COA maintains that behind every law lies
the presumption of constitutionality.38 The COA likewise
argues that contrary to the BSPÊs position, repeal of a law
by implication is not favored.39 Lastly, the COA claims that
there was no violation of Section 16, Article XII of the 1987
Constitution with the creation or declaration of the BSP as
a government corporation. Citing Philippine Society for the
Prevention of Cruelty to Animals v. Commission on Audit,40
the COA further alleges:

„The true criterion, therefore, to determine whether a

corporation is public or private is found in the totality of the
relation of the corporation to the State. If the corporation is created
by the State as the latterÊs own agency or instrumentality to help it
in carrying out its governmental functions, then that corporation is
considered public; otherwise, it is private. x x x.‰41

For its part, in its Comment42 filed on December 3,

2010, the BSP submits that its charter, Commonwealth Act
No. 111, as amended by Republic Act No. 7278, is
constitutional as it does not violate Section 16, Article XII
of the Constitution. The BSP alleges that „while [it] is not a
public corporation within the purview of COAÊs audit
jurisdiction, neither is it a private corporation created by
special law falling within

_______________

36 G.R. No. 44007, March 20, 1991, 195 SCRA 444.

37 Rollo, pp. 147-148.
38 Id., at p. 149.
39 Id., at p. 152.
40 G.R. No. 169752, September 25, 2007, 534 SCRA 112.
41 Id., at p. 132.
42 The BSPÊs Comment, filed on December 3, 2010, has yet to be
incorporated in the Rollo.

164

164 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

the ambit of the constitutional prohibition x x x.‰43 The

BSP further alleges:

„PetitionerÊs purpose is embodied in Section 3 of C.A. No. 111, as

amended by Section 1 of R.A. No. 7278, thus:
xxxx
A reading of the foregoing provision shows that petitioner was
created to advance the interest of the youth, specifically of young
boys, and to mold them into becoming good citizens. Ultimately, the
creation of petitioner redounds to the benefit, not only of those boys,
but of the public good or welfare. Hence, it can be said that
petitionerÊs purpose and functions are more of a public rather than
a private character. Petitioner caters to all boys who wish to join the
organization without any distinction. It does not limit its
membership to a particular class of boys. PetitionerÊs members are
trained in scoutcraft and taught patriotism, civic consciousness and
responsibility, courage, self-reliance, discipline and kindred virtues,
and moral values, preparing them to become model citizens and
outstanding leaders of the country.‰44

The BSP reiterates its stand that the public character of

its purpose and functions do not place it within the ambit
of the audit jurisdiction of the COA as it lacks the
government ownership or control that the Constitution
requires before an entity may be subject of said
jurisdiction.45 It avers that it merely stated in its Reply
that the withdrawal of government control is akin to
privatization, but it does not necessarily mean that
petitioner is a private corporation.46 The BSP claims that it
has a unique characteristic which „neither classifies it as a
purely public nor a purely private corporation‰;47 that it is
not a quasi-public corporation; and that it may belong to a
different class altogether.48

_______________

43 Id., at p. 2.
44 Id., at p. 3.
45 Id., at p. 4.
 46 Id., at p. 6.
47 Id., at p. 7.
48 Id., at p. 8.

165

VOL. 651, JUNE 7, 2011 165

Boy Scouts of the Philippines vs. Commission on Audit

The BSP claims that assuming arguendo that it is a

private corporation, its creation is not contrary to the
purpose of Section 16, Article XII of the Constitution; and
that the evil sought to be avoided by said provision is
inexistent in the enactment of the BSPÊs charter,49 as, (i) it
was not created for any pecuniary purpose; (ii) those who
will primarily benefit from its creation are not its officers
but its entire membership consisting of boys being trained
in scoutcraft all over the country; (iii) it caters to all boys
who wish to join the organization without any distinction;
and (iv) it does not limit its membership to a particular
class or group of boys. Thus, the enactment of its charter
confers no special privilege to particular individuals,
families, or groups; nor does it bring about the danger of
granting undue favors to certain groups to the prejudice of
others or of the interest of the country, which are the evils
sought to be prevented by the constitutional provision
involved.50
Finally, the BSP states that the presumption of
constitutionality of a legislative enactment prevails absent
any clear showing of its repugnancy to the Constitution.51
The Ruling of the Court
After looking at the legislative history of its amended
charter and carefully studying the applicable laws and the
arguments of both parties, we find that the BSP is a public
corporation and its funds are subject to the COAÊs audit
jurisdiction.
The BSP Charter (Commonwealth Act No. 111, approved
on October 31, 1936), entitled „An Act to Create a Public
Corporation to be Known as the Boy Scouts of the
Philippines, and to Define its Powers and Purposes‰ created
the BSP as a „pub-

_______________

49 Id.
50 Id., at p. 9.
51 Id., at p. 13, citing 16 Am Jur 2d 645 and 647.

166

166 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

lic corporation‰ to serve the following public interest or

purpose:

„Sec. 3. The purpose of this corporation shall be to promote

through organization and cooperation with other agencies, the
ability of boys to do useful things for themselves and others, to train
them in scoutcraft, and to inculcate in them patriotism, civic
consciousness and responsibility, courage, self-reliance, discipline
and kindred virtues, and moral values, using the method which are
in common use by boy scouts.‰

Presidential Decree No. 460, approved on May 17, 1974,

amended Commonwealth Act No. 111 and provided
substantial changes in the BSP organizational structure.
Pertinent provisions are quoted below:

„Section II. Section 5 of the said Act is also amended to read as

follows:
The governing body of the said corporation shall consist of a
National Executive Board composed of (a) the President of the
Philippines or his representative; (b) the charter and life members
of the Boy Scouts of the Philippines; (c) the Chairman of the Board
of Trustees of the Philippine Scouting Foundation; (d) the Regional
Chairman of the Scout Regions of the Philippines; (e) the Secretary
of Education and Culture, the Secretary of Social Welfare, the
Secretary of National Defense, the Secretary of Labor, the Secretary
of Finance, the Secretary of Youth and Sports, and the Secretary of
Local Government and Community Development; (f) an equal
number of individuals from the private sector; (g) the National
President of the Girl Scouts of the Philippines; (h) one Scout of
Senior age from each Scout Region to represent the boy
membership; and (i) three representatives of the cultural
minorities. Except for the Regional Chairman who shall be elected
by the Regional Scout Councils during their annual meetings, and
the Scouts of their respective regions, all members of the National
Executive Board shall be either by appointment or cooption, subject
to ratification and confirmation by the Chief Scout, who shall be the
Head of State. Vacancies in the Executive Board shall be filled by a
majority vote of the remaining members, subject to ratification and
confirmation by the Chief Scout. The by-laws may prescribe the
number of members of the National

167

VOL. 651, JUNE 7, 2011 167

Boy Scouts of the Philippines vs. Commission on Audit

Executive Board necessary to constitute a quorum of the board,

which number may be less than a majority of the whole number of
the board. The National Executive Board shall have power to make
and to amend the by-laws, and, by a two-thirds vote of the whole
board at a meeting called for this purpose, may authorize and cause
to be executed mortgages and liens upon the property of the
corporation.‰

Subsequently, on March 24, 1992, Republic Act No. 7278

further amended Commonwealth Act No. 111 „by
strengthening the volunteer and democratic character‰ of
the BSP and reducing government representation in its
governing body, as follows:

„Section 1. Sections 2 and 3 of Commonwealth Act No. 111, as

amended, is hereby amended to read as follows:
„Sec. 2. The said corporation shall have the powers of
perpetual succession, to sue and be sued; to enter into contracts; to
acquire, own, lease, convey and dispose of such real and personal
estate, land grants, rights and choses in action as shall be necessary
for corporate purposes, and to accept and receive funds, real and
personal property by gift, devise, bequest or other means, to conduct
fund-raising activities; to adopt and use a seal, and the same to
alter and destroy; to have offices and conduct its business and
affairs in Metropolitan Manila and in the regions, provinces, cities,
municipalities, and barangays of the Philippines, to make and
adopt by-laws, rules and regulations not inconsistent with this Act
and the laws of the Philippines, and generally to do all such acts
and things, including the establishment of regulations for the
election of associates and successors, as may be necessary to carry
into effect the provisions of this Act and promote the purposes of
said corporation: Provided, That said corporation shall have no
power to issue certificates of stock or to declare or pay dividends, its
objectives and purposes being solely of benevolent character and not
for pecuniary profit of its members.
„Sec. 3. The purpose of this corporation shall be to
promote through organization and cooperation with other
agencies, the ability of boys to do useful things for
themselves and others, to train them in scoutcraft, and to
inculcate in them patriotism, civic consciousness and
responsibil-

168

168 SUPREME COURT REPORTS ANNOTATED

 Boy Scouts of the Philippines vs. Commission on Audit

ity, courage, self-reliance, discipline and kindred virtues,

and moral values, using the method which are in common
use by boy scouts.‰
Sec.  2. Section 4 of Commonwealth Act No. 111, as amended,
is hereby repealed and in lieu thereof, Section 4 shall read as
follows:
„Sec.  4. 
 The President of the Philippines shall be the
Chief Scout of the Boy Scouts of the Philippines.‰
Sec. 3. Sections 5, 6, 7 and 8 of Commonwealth Act No. 111, as
amended, are hereby amended to read as follows:
„Sec. 5. The governing body of the said corporation shall
consist of a National Executive Board, the members of which
shall be Filipino citizens of good moral character. The Board shall
be composed of the following:
„(a)  One (1) charter member of the Boy Scouts of the
Philippines who shall be elected by the members of the National
Council at its meeting called for this purpose;
„(b) The regional chairmen of the scout regions who shall be
elected by the representatives of all the local scout councils of the
region during its meeting called for this purpose: Provided, That a
candidate for regional chairman need not be the chairman of a local
scout council;
„(c) The Secretary of Education, Culture and Sports;
„(d) The National President of the Girl Scouts of the
Philippines;
„(e) One (1) senior scout, each from Luzon, Visayas and
Mindanao areas, to be elected by the senior scout delegates of the
local scout councils to the scout youth forums in their respective
areas, in its meeting called for this purpose, to represent the boy
scout membership;
„(f) Twelve (12) regular members to be elected by the members
of the National Council in its meeting called for this purpose;
„(g) At least ten (10) but not more than fifteen (15) additional
members from the private sector who shall be elected by the
members of the National Executive Board referred to in the
immediately preceding paragraphs (a), (b), (c), (d), (e) and (f) at the
organizational meeting of the newly reconstituted National
Executive Board which shall be held immediately after the meeting
of the National Council

169

VOL. 651, JUNE 7, 2011 169

Boy Scouts of the Philippines vs. Commission on Audit

wherein the twelve (12) regular members and the one (1) charter
member were elected.
xxxx
„Sec.  8. Any donation or contribution which from time to time
may be made to the Boy Scouts of the Philippines by the
Government or any of its subdivisions, branches, offices, agencies or
instrumentalities or by a foreign government or by private, entities
and individuals shall be expended by the National Executive Board
in pursuance of this Act.‰

The BSP as a Public Corporation under

Par. 2, Art. 2 of the Civil Code
There are three classes of juridical persons under Article
44 of the Civil Code and the BSP, as presently constituted
under Republic Act No. 7278, falls under the second
classification. Article 44 reads:

„Art. 44. The following are juridical persons:

(1) The State and its political subdivisions;
(2) Other corporations, institutions and entities for
public interest or purpose created by law; their personality
begins as soon as they have been constituted according to
law;
(3) Corporations, partnerships and associations for private
interest or purpose to which the law grants a juridical
personality, separate and distinct from that of each shareholder,
partner or member.‰ (Emphases supplied.)

The BSP, which is a corporation created for a public

interest or purpose, is subject to the law creating it under
Article 45 of the Civil Code, which provides:

„Art.  45. 
 Juridical persons mentioned in Nos. 1 and 2 of
the preceding article are governed by the laws creating or
recognizing them.
Private corporations are regulated by laws of general application
on the subject.

170

170 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

Partnerships and associations for private interest or purpose are

governed by the provisions of this Code concerning partnerships.‰
(Emphasis and underscoring supplied.)

The purpose of the BSP as stated in its amended charter

shows that it was created in order to implement a State
policy declared in Article II, Section 13 of the Constitution,
which reads:

ARTICLE II·DECLARATION OF PRINCIPLES
AND STATE POLICIES
„Section 13. The State recognizes the vital role of the youth in
nation-building and shall promote and protect their physical, moral,
spiritual, intellectual, and social well-being. It shall inculcate in the
youth patriotism and nationalism, and encourage their involvement
in public and civic affairs.‰

Evidently, the BSP, which was created by a special law

to serve a public purpose in pursuit of a constitutional
mandate, comes within the class of „public corporations‰
defined by paragraph 2, Article 44 of the Civil Code and
governed by the law which creates it, pursuant to Article
45 of the same Code.
The BSPÊs Classification Under the Ad-
ministrative Code of 1987
The public, rather than private, character of the BSP is
recognized by the fact that, along with the Girl Scouts of
the Philippines, it is classified as an attached agency of
the DECS under Executive Order No. 292, or the
Administrative Code of 1987, which states:

TITLE  VI·EDUCATION, CULTURE AND SPORTS

Chapter 8·Attached Agencies
SEC. 20. Attached Agencies.·The following agencies are hereby
attached to the Department:
xxxx

171

VOL. 651, JUNE 7, 2011 171

Boy Scouts of the Philippines vs. Commission on Audit

(12) Boy Scouts of the Philippines;

(13) Girl Scouts of the Philippines.

The administrative relationship of an attached agency to

the department is defined in the Administrative Code of
1987 as follows:

BOOK  IV
THE EXECUTIVE BRANCH
Chapter 7·ADMINISTRATIVE RELATIONSHIP
„SEC. 38. Definition of Administrative Relationship.·Unless
otherwise expressly stated in the Code or in other laws defining the
special relationships of particular agencies, administrative
relationships shall be categorized and defined as follows:
xxxx
(3) Attachment.·(a) This refers to the lateral relationship
between the department or its equivalent and the attached agency
or corporation for purposes of policy and program
coordination. The coordination may be accomplished by
having the department represented in the governing board
of the attached agency or corporation, either as chairman or
as a member, with or without voting rights, if this is
permitted by the charter; having the attached corporation or
agency comply with a system of periodic reporting which shall
reflect the progress of programs and projects; and having the
department or its equivalent provide general policies through its
representative in the board, which shall serve as the framework for
the internal policies of the attached corporation or agency.‰
(Emphasis ours.)

As an attached agency, the BSP enjoys operational

autonomy, as long as policy and program coordination is
achieved by having at least one representative of
government in its governing board, which in the case
of the BSP is the DECS Secretary. In this sense, the BSP is
not under government control or „supervision and control.‰
Still this characteristic does not make the attached
chartered agency a private

172

172 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

corporation covered by the constitutional proscription in

question.
Art. XII, Sec. 16 of the Constitution
refers to „private corporations‰ created
by government for proprietary or eco-
nomic/business purposes
At the outset, it should be noted that the provision of
Section 16 in issue is found in Article XII of the
Constitution, entitled „National Economy and
Patrimony.‰ Section 1 of Article XII is quoted as follows:

„SECTION 1. The goals of the national economy are a more

equitable distribution of opportunities, income, and wealth; a
sustained increase in the amount of goods and services produced by
the nation for the benefit of the people; and an expanding
productivity as the key to raising the quality of life for all,
especially the underprivileged.
The State shall promote industrialization and full employment
based on sound agricultural development and agrarian reform,
through industries that make full and efficient use of human and
natural resources, and which are competitive in both domestic and
foreign markets. However, the State shall protect Filipino
enterprises against unfair foreign competition and trade practices.
In the pursuit of these goals, all sectors of the economy and all
regions of the country shall be given optimum opportunity to
develop. Private enterprises, including corporations, cooperatives,
and similar collective organizations, shall be encouraged to broaden
the base of their ownership.‰

The scope and coverage of Section 16, Article XII of the

Constitution can be seen from the aforementioned
declaration of state policies and goals which pertains to
national economy and patrimony and the interests of
the people in economic development.

173

VOL. 651, JUNE 7, 2011 173

Boy Scouts of the Philippines vs. Commission on Audit

Section 16, Article XII deals with „the formation,

organi​zation, or regulation of private
corporations,‰52 which should be done through a general
law enacted by Congress, provides for an exception, that is:
if the corporation is government owned or controlled; its
creation is in the interest of the common good; and it meets
the test of economic viability. The rationale behind Article
XII, Section 16 of the 1987 Constitution was explained in
Feliciano v. Commission on Audit,53 in the following
manner:

„The Constitution emphatically prohibits the creation of private

corporations except by a general law applicable to all citizens. The
purpose of this constitutional provision is to ban private
corporations created by special charters, which historically
gave certain individuals, families or groups special
privileges denied to other citizens.‰54 (Emphasis added.)

It may be gleaned from the above discussion that Article

XII, Section 16 bans the creation of „private
corporations‰ by special law. The said constitutional
provision should not be construed so as to prohibit the
creation of public corporations or a corporate agency or
instrumentality of the government intended to serve a
public interest or purpose, which should not be measured
on the basis of economic viability, but according to the
public interest or purpose it serves as envisioned by
paragraph (2), of Article 44 of the Civil Code and the
pertinent provisions of the Administrative Code of 1987.
The BSP is a Public Corporation Not
Subject to the Test of Government

_______________

52 Record of the 1986 Constitutional Commission, Vol. 3, August 13,

1986, p. 260.
53 464 Phil. 439; 419 SCRA 363 (2004).
54 Id., at p. 454; p. 369, citing Bernas, The 1987 Constitution of the
Republic of the Philippines: A Commentary 1181 (2003).

174

174 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

Ownership or Control and Economic

Viability
The BSP is a public corporation or a government agency
or instrumentality with juridical personality, which does
not fall within the constitutional prohibition in Article XII,
Section 16, notwithstanding the amendments to its charter.
Not all corporations, which are not government owned or
controlled, are ipso facto to be considered private
corporations as there exists another distinct class of
corporations or chartered institutions which are otherwise
known as „public corpora​tions.‰ These corporations are
treated by law as agencies or instrumentalities of the
government which are not subject to the tests of ownership
or control and economic viability but to different criteria
relating to their public purposes/interests or constitutional
policies and objectives and their administrative
relationship to the government or any of its Departments
or Offices.
Classification of Corporations
Under Section 16, Article XII of the
Constitu​tion on National Economy
and Patrimony
The dissenting opinion of Associate Justice Antonio T.
Carpio, citing a line of cases, insists that the Constitution
recognizes only two classes of corporations: private
corporations under a general law, and government-owned
or controlled corporations created by special charters.
We strongly disagree. Section 16, Article XII should not
be construed so as to prohibit Congress from creating
public corporations. In fact, Congress has enacted
numerous laws creating public corporations or government
agencies or instrumentalities vested with corporate powers.
Moreover, Section 16, Article XII, which relates to National
Economy and Patrimony, could not have tied the hands of
Congress in

175

VOL. 651, JUNE 7, 2011 175

Boy Scouts of the Philippines vs. Commission on Audit

creating public corporations to serve any of the

constitutional policies or objectives.

In his dissent, Justice Carpio contends that this ponente

introduces „a totally different species of corporation, which
is neither a private corporation nor a government owned or
controlled corporation‰ and, in so doing, is missing the fact
that the BSP, „which was created as a non-stock, non-profit
corporation, can only be either a private corporation or a
government owned or controlled corporation.‰
Note that in Boy Scouts of the Philippines v. National
Labor Relations Commission, the BSP, under its former
charter, was regarded as both a government owned or
controlled corporation with original charter and a „public
corporation.‰ The said case pertinently stated:

„While the BSP may be seen to be a mixed type of entity,

combining aspects of both public and private entities, we
believe that considering the character of its purposes and its
functions, the statutory designation of the BSP as „a public
corporation‰ and the substantial participation of the Government
in the selection of members of the National Executive Board of the
BSP, the BSP, as presently constituted under its charter, is a
government-controlled corporation within the meaning of
Article IX (B) (2) (1) of the Constitution.
We are fortified in this conclusion when we note that the
Administrative Code of 1987 designates the BSP as one of the
attached agencies of the Department of Education, Culture and
Sports („DECS‰). An „agency of the Government‰ is defined as
referring to any of the various units of the Government including a
department, bureau, office, instrumentality, government-owned or -
controlled corporation, or local government or distinct unit therein.
„Government instrumentality‰ is in turn defined in the 1987
Administrative Code in the following manner:
Instrumentality·refers to any agency of the National
Government, not integrated within the department
framework, vested with special functions or jurisdiction by
law, endowed with some if not all corporate powers,
administering special funds, and enjoying operational
autonomy usually through

176

176 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

a charter. This term includes regulatory agencies, chartered

institutions and government-owned or controlled
corporations.
The same Code describes a „chartered institution‰ in the
following terms:
Chartered institution·refers to any agency organized
or operating under a special charter, and vested by law
with functions relating to specific constitutional policies or
objectives. This term includes the state universities and
colleges, and the monetary authority of the State.
We believe that the BSP is appropriately regarded as „a
government instrumentality‰ under the 1987 Administrative Code.
It thus appears that the BSP may be regarded as both a
„government controlled corporation with an original
charter‰ and as an „instrumentality‰ of the Government
within the meaning of Article IX (B) (2) (1) of the
Constitution. x x x.‰55 (Emphases supplied.)
 The existence of public or government corporate or
juridical entities or chartered institutions by legislative fiat
distinct from private corporations and government owned
or controlled corporation is best exemplified by the 1987
Administrative Code cited above, which we quote in part:

„Sec. 2. General Terms Defined.·Unless the specific words of

the text, or the context as a whole, or a particular statute, shall
require a different meaning:
xxxx
(10) „Instrumentality‰ refers to any agency of the National
Government, not integrated within the department framework,
vested with special functions or jurisdiction by law, endowed with
some if not all corporate powers, administering special funds,
and enjoying operational autonomy, usually through a
charter. This term includes regulatory agencies, chartered
institutions and government-owned or controlled corporations.

_______________

55 Boy Scouts of the Philippines v. National Labor Relations Commission,

supra note 6 at pp. 186-187.

177

VOL. 651, JUNE 7, 2011 177

Boy Scouts of the Philippines vs. Commission on Audit

xxxx
(12) „Chartered institution‰ refers to any agency organized
or operating under a special charter, and vested by law with
functions relating to specific constitutional policies or
objectives. This term includes the state universities and colleges
and the monetary authority of the State.
(13) „Government-owned or controlled corporation‰
refers to any agency organized as a stock or non-stock corporation,
vested with functions relating to public needs whether
governmental or proprietary in nature, and owned by the
Government directly or through its instrumentalities either wholly,
or, where applicable as in the case of stock corporations, to the
extent of at least fifty-one (51) per cent of its capital stock:
Provided, That government-owned or controlled corporations
may be further categorized by the Department of the
Budget, the Civil Service Commission, and the Commission
on Audit for purposes of the exercise and discharge of their
respective powers, functions and responsibilities with
respect to such corporations.‰

Assuming for the sake of argument that the BSP ceases

to be owned or controlled by the government because of
reduction of the number of representatives of the
government in the BSP Board, it does not follow that it also
ceases to be a government instrumentality as it still retains
all the characteristics of the latter as an attached agency of
the DECS under the Administrative Code. Vesting
corporate powers to an attached agency or instrumentality
of the government is not constitutionally prohibited and is
allowed by the above-mentioned provisions of the Civil
Code and the 1987 Administrative Code.
Economic Viability and Ownership
and Control Tests Inapplicable to
Public Corporations
As presently constituted, the BSP still remains an
instrumentality of the national government. It is a public
corporation created by law for a public purpose, attached to

178

178 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

the DECS pursuant to its Charter and the Administrative

Code of 1987. It is not a private corporation which is
required to be owned or controlled by the government and
be economically viable to justify its existence under a
special law.
The dissent of Justice Carpio also submits that by
recognizing „a new class of public corporation(s)‰ created by
special charter that will not be subject to the test of
economic viability, the constitutional provision will be
circumvented.
However, a review of the Record of the 1986
Constitutional Convention reveals the intent of the framers
of the highest law of our land to distinguish between
government corporations performing governmental
functions and corporations involved in business or
proprietary functions:

THE PRESIDENT. Commissioner Foz is recognized.

MR. FOZ. Madam President, I support the proposal to insert
„ECONOMIC VIABILITY‰ as one of the grounds for organizing
government corporations. x x x.
MR. OPLE. Madam President, the reason for this concern is
really that when the government creates a corporation, there is a
sense in which this corporation becomes exempt from the test of
economic performance. We know what happened in the past. If a
government corporation loses, then it makes its claim upon the
taxpayersÊ money through new equity infusions from the
government and what is always invoked is the common good. x x x
Therefore, when we insert the phrase „ECONOMIC VIABILITY‰
together with the „common good,‰ this becomes a restraint on future
enthusiasts for state capitalism to excuse themselves from the
responsibility of meeting the market test so that they become
viable. x x x.
xxxx
THE PRESIDENT. Commissioner Quesada is recognized.
MS. QUESADA. Madam President, may we be clarified by the
committee on what is meant by economic viability?
THE PRESIDENT. Please proceed.

179

VOL. 651, JUNE 7, 2011 179

Boy Scouts of the Philippines vs. Commission on Audit

MR. MONSOD. Economic viability normally is determined by

cost-benefit ratio that takes into consideration all benefits,
including economic external as well as internal benefits. These are
what they call externalities in economics, so that these are not
strictly financial criteria. Economic viability involves what we call
economic returns or benefits of the country that are not quantifiable
in financial terms. x x x.
xxxx
MS. QUESADA. So, would this particular formulation now really
limit the entry of government corporations into activities engaged
in by corporations?
MR. MONSOD. Yes, because it is also consistent with the
economic philosophy that this Commission approved·that
there should be minimum government participation and
intervention in the economy.
MS. QUESDA. Sometimes this Commission would just refer to
Congress to provide the particular requirements when the
government would get into corporations. But this time around, we
specifically mentioned economic viability. x x x.
MR. VILLEGAS. Commissioner Ople will restate the reason for
his introducing that amendment.
MR. OPLE. I am obliged to repeat what I said earlier in moving
for this particular amendment jointly with Commissioner Foz.
During the past three decades, there had been a proliferation of
government corporations, very few of which have succeeded, and
many of which are now earmarked by the Presidential
Reorganization Commission for liquidation because they failed the
economic test. x x x.
xxxx
MS. QUESADA. But would not the Commissioner say that the
reason why many of the government-owned or controlled
corporations failed to come up with the economic test is due to the
management of these corporations, and not the idea itself of
government corporations? It is a problem of efficiency and
effectiveness of management of these corporations which could be
remedied, not by eliminating government corporations or the idea of
getting into state-owned corporations, but improving management
which our

180

180 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

technocrats should be able to do, given the training and the

experience.
MR. OPLE. That is part of the economic viability, Madam
President.
MS. QUESADA. So, is the Commissioner saying then that the
Filipinos will benefit more if these government-controlled
corporations were given to private hands, and that there will be
more goods and services that will be affordable and within the
reach of the ordinary citizens?
MR. OPLE. Yes. There is nothing here, Madam President,
that will prevent the formation of a government corporation
in accordance with a special charter given by Congress.
However, we are raising the standard a little bit so that, in
the future, corporations established by the government will
meet the test of the common good but within that
framework we should also build a certain standard of
economic viability.
xxxx
THE PRESIDENT. Commissioner Padilla is recognized.
MR. PADILLA. This is an inquiry to the committee. With regard
to corporations created by a special charter for government-owned
or controlled corporations, will these be in the pioneer fields or in
places where the private enterprise does not or cannot enter? Or is
this so general that these government corporations can compete
with private corporations organized under a general law?
MR. MONSOD. Madam President, x x x. There are two types
of government corporations·those that are involved in
performing governmental functions, like garbage disposal,
Manila waterworks, and so on; and those government corporations
that are involved in business functions. As we said earlier, there
are two criteria that should be followed for corporations
that want to go into business. First is for government
corporations to first prove that they can be efficient in the areas of
their proper functions. This is one of the problems now because they
go into all kinds of activities but are not even efficient in their
proper functions. Secondly, they should not go into activities that
the private sector can do better.

181

VOL. 651, JUNE 7, 2011 181

Boy Scouts of the Philippines vs. Commission on Audit

MR. PADILLA. There is no question about corporations

performing governmental functions or functions that are
impressed with public interest. But the question is with
regard to matters that are covered, perhaps not
exhaustively, by private enterprise. It seems that under this
provision the only qualification is economic viability and common
good, but shall government, through government-controlled
corporations, compete with private enterprise?
MR. MONSOD. No, Madam President. As we said, the
government should not engage in activities that private enterprise
is engaged in and can do better. x x x.56 (Emphases supplied.)

Thus, the test of economic viability clearly does not

apply to public corporations dealing with governmental
functions, to which category the BSP belongs. The
discussion above conveys the constitutional intent not to
apply this constitutional ban on the creation of public
corporations where the economic viability test would be
irrelevant. The said test would only apply if the corporation
is engaged in some economic activity or business function
for the government.
It is undisputed that the BSP performs functions that
are impressed with public interest. In fact, during the
consideration of the Senate Bill that eventually became
Republic Act No. 7278, which amended the BSP Charter,
one of the billÊs sponsors, Senator Joey Lina, described the
BSP as follows:

„Senator Lina. Yes, I can only think of two organizations

involving the masses of our youth, Mr. President, that should be
given this kind of a privilege·the Boy Scouts of the Philippines and
the Girl Scouts of the Philippines. Outside of these two groups, I do
not think there are other groups similarly situated.
The Boy Scouts of the Philippines has a long history of
providing value formation to our young, and considering
how huge the population of the young people is, at this point
in time, and also considering the importance of having an

_______________

56 Record of the 1986 Constitutional Commission, Vol. 3, August 22, 1986,

pp. 623-626.

182

182 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

organization such as this that will inculcate moral

uprightness among the young people, and further
considering that the development of these young people at
that tender age of seven to sixteen is vital in the
development of the country producing good citizens, I believe
that we can make an exception of the Boy Scouting movement of the
Philippines from this general prohibition against providing tax
exemption and privileges.‰57

Furthermore, this Court cannot agree with the

dissenting opinion which equates the changes introduced
by Republic Act No. 7278 to the BSP Charter as clear
manifestation of the intent of Congress „to return the BSP
to the private sector.‰ It was not the intent of Congress in
enacting Republic Act No. 7278 to give up all interests in
this basic youth organization, which has been its partner in
forming responsible citizens for decades.
In fact, as may be seen in the deliberation of the House
Bills that eventually resulted to Republic Act No. 7278,
Congress worked closely with the BSP to rejuvenate the
organization, to bring it back to its former glory reached
under its original charter, Commonwealth Act No. 111, and
to correct the perceived ills introduced by the amendments
to its Charter under Presidential Decree No. 460. The BSP
suffered from low morale and decrease in number because
the Secretaries of the different departments in government
who were too busy to attend the meetings of the BSPÊs
National Executive Board („the Board‰) sent
representatives who, as it turned out, changed from
meeting to meeting. Thus, the Scouting Councils
established in the provinces and cities were not in touch
with what was happening on the national level, but they
were left to implement what was decided by the Board.58
A portion of the legislatorsÊ discussion is quoted below to
clearly show their intent:

_______________

57 Record of the Senate, Monday, November 5, 1990, p. 1533.

58 Committee on Government Enterprises, February 13, 1991, pp. 8-
11.

183
 VOL. 651, JUNE 7, 2011 183
Boy Scouts of the Philippines vs. Commission on Audit

HON. DEL MAR. x x x I need not mention to you the value

and the tremendous good that the Boy Scout Movement has
done not only for the youth in particular but for the country
in general. And that is why, if we look around, our past and
present national leaders, prominent men in the various
fields of endeavor, public servants in government offices,
and civic leaders in the communities all over the land, and
not only in our country but all over the world many if not
most of them have at one time or another been beneficiaries
of the Scouting Movement. And so, it is along this line, Mr.
Chairman, that we would like to have the early approval of this
measure if only to pay back what we owe much to the Scouting
Movement. Now, going to the meat of the matter, Mr. Chairman, if I
may just·the Scouting Movement was enacted into law in October
31, 1936 under Commonwealth Act No. 111. x x x [W]e were
acknowledged as the third biggest scouting organization in the
world x x x. And to our mind, Mr. Chairman, this erratic growth
and this decrease in membership [number] is because of the bad
policy measures that were enunciated with the enactment or
promulgation by the President before of Presidential Decree No. 460
which we feel is the culprit of the ills that is flagging the Boy Scout
Movement today. And so, this is specifically what we are attacking,
Mr. Chairman, the disenfranchisement of the National Council in
the election of the national board. x x x. And so, this is what we
would like to be appraised of by the officers of the Boy [Scouts] of
the Philippines whom we are also confident, have the best interest
of the Boy Scout Movement at heart and it is in this spirit, Mr.
Chairman, that we see no impediment towards working together,
the Boy Scout of the Philippines officers working together with the
House of Representa​tives in coming out with a measure that will
put back the vigor and enthusiasm of the Boy Scout Movement.
x x x.‰59 (Emphasis ours.)

The following is another excerpt from the discussion on

the House version of the bill, in the Committee on
Government Enterprises:

HON. AQUINO: x x x Well, obviously, the two bills as well as the

previous laws that have created the Boy Scouts of the Philip-

_______________

59 Id., at pp. 5-8.

184

184 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

pines did not provide for any direct government support by way
of appropriation from the national budget to support the activities
of this organization. The point here is, and at the same time they
have been subjected to a governmental intervention, which to their
mind has been inimical to the objectives and to the institution per
se, that is why they are seeking legislative fiat to restore back the
original mandate that they had under Commonwealth Act 111.
Such having been the experience in the hands of
government, meaning, there has been negative interference
on their part and inasmuch as their mandate is coming from
a legislative fiat, then shouldnÊt it be, this rhetorical
question, shouldnÊt it be better for this organization to seek
a mandate from, letÊs say, the government the Corporation
Code of the Philippines and register with the SEC as non-
profit non-stock corporation so that government
intervention could be very very minimal. Maybe thatÊs a
rhetorical question, they may or they may not answer, ano. I donÊt
know what would be the benefit of a charter or a mandate being
provided for by way of legislation versus a registration with the
SEC under the Corporation Code of the Philippines inasmuch as
they donÊt get anything from the government anyway insofar as
direct funding. In fact, the only thing that they got from
government was intervention in their affairs. Maybe we can solicit
some commentary comments from the resource persons.
Incidentally, donÊt take that as an objection, IÊm not objecting. IÊm
all for the objectives of these two bills. It just occurred to me that
since you have had very bad experience in the hands of government
and you will always be open to such possible intervention even in
the future as long as you have a legislative mandate or your
mandate or your charter coming from legislative action.
xxxx
MR. ESCUDERO: Mr. Chairman, there may be a
disadvantage if the Boy Scouts of the Philippines will be
required to register with the SEC. If we are registered with the
SEC, there could be a danger of proliferation of scout organization.
Anybody can organize and then register with the SEC. If there will
be a proliferation of this, then the organization will lose control of
the entire organization. Another disadvantage, Mr. Chairman,
anybody can file a complaint in the SEC against the Boy Scouts of
the Philippines and the SEC may suspend the operation or freeze
the assets of the organization and hamper the operation of the
organization. I donÊt

185

VOL. 651, JUNE 7, 2011 185

Boy Scouts of the Philippines vs. Commission on Audit

know, Mr. Chairman, how you look at it but there could be a danger
for anybody filing a complaint against the organization in the SEC
and the SEC might suspend the registration permit of the
organization and we will not be able to operate.
HON. AQUINO: Well, that I think would be a problem that will
not be exclusive to corporations registered with the SEC because
even if you are government corporation, court action may be taken
against you in other judicial bodies because the SEC is simply
another quasi-judicial body. But, I think, the first point would
be very interesting, the first point that you raised. In effect,
what you are saying is that with the legislative mandate
creating your charter, in effect, you have been given some
sort of a franchise with this movement.
MR. ESCUDERO: Yes.
HON. AQUINO: Exclusive franchise of that movement?
MR. ESCUDERO: Yes.
HON. AQUINO: Well, thatÊs very well taken so I will
proceed with other issues, Mr. Chairman. x x x.60 (Emphases
added.)

Therefore, even though the amended BSP charter did

away with most of the governmental presence in the BSP
Board, this was done to more strongly promote the BSPÊs
objectives, which were not supported under Presidential
Decree No. 460. The BSP objectives, as pointed out earlier,
are consistent with the public purpose of the promotion
of the well-being of the youth, the future leaders of the
country. The amendments were not done with the view of
changing the character of the BSP into a privatized
corporation. The BSP remains an agency attached to a
department of the government, the DECS, and it was not
at all stripped of its public character.
The ownership and control test is likewise irrelevant for
a public corporation like the BSP. To reiterate, the
relationship of the BSP, an attached agency, to the
government, through the DECS, is defined in the Revised
Administrative Code of

_______________

60 Id., at pp. 35-37.

186

186 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit
1987. The BSP meets the minimum statutory requirement
of an attached government agency as the DECS Secretary
sits at the BSP Board ex officio, thus facilitating the policy
and program coordination between the BSP and the DECS.
Requisites for Declaration of
Unconstitutionality Not Met
in this Case
The dissenting opinion of Justice Carpio improperly
raised the issue of unconstitutionality of certain provisions
of the BSP Charter. Even if the parties were asked to
Comment on the validity of the BSP charter by the Court,
this alone does not comply with the requisites for judicial
review, which were clearly set forth in a recent case:

„When questions of constitutional significance are raised, the

Court can exercise its power of judicial review only if the following
requisites are present: (1) the existence of an actual and
appropriate case; (2) the existence of personal and
substantial interest on the part of the party raising the
constitutional question; (3) recourse to judicial review is
made at the earliest opportunity; and (4) the constitutional
question is the lis mota of the case.‰61 (Emphasis added.)

Thus, when it comes to the exercise of the power of

judicial review, the constitutional issue should be the very
lis mota, or threshold issue, of the case, and that it should
be raised by either of the parties. These requirements
would be ignored under the dissentÊs rather overreaching
view of how this case should have been decided. True, it
was the Court that asked the parties to comment, but the
Court cannot be the one to raise a constitutional issue.
Thus, the Court chooses to once

_______________

61 Hon. Luis Mario M. General v. Hon. Alejandro S. Urro, G.R. No.

191560, March 29, 2011, citing Integrated Bar of the Philippines v.
Zamora, 392 Phil. 618, 632; 338 SCRA 81, 99 (2000).

187

VOL. 651, JUNE 7, 2011 187

Boy Scouts of the Philippines vs. Commission on Audit

more exhibit restraint in the exercise of its power to pass

upon the validity of a law.
Re: the COAÊs Jurisdiction
Regarding the COAÊs jurisdiction over the BSP, Section 8
of its amended charter allows the BSP to receive
contributions or donations from the government. Section 8
reads:

„Section 8. Any donation or contribution which from

time to time may be made to the Boy Scouts of the
Philippines by the Government or any of its subdivisions,
branches, offices, agencies or instrumentalities shall be
expended by the Executive Board in pursuance of this Act.‰

The sources of funds to maintain the BSP were

identified before the House Committee on Government
Enterprises while the bill was being deliberated, and the
pertinent portion of the discussion is quoted below:

„MR. ESCUDERO. Yes, Mr. Chairman. The question is the

sources of funds of the organization. First, Mr. Chairman, the Boy
Scouts of the Philippines do not receive annual allotment from the
government. The organization has to raise its own funds through
fund drives and fund campaigns or fund raising activities. Aside
from this, we have some revenue producing projects in the
organization that gives us funds to support the operation. x x x
From time to time, Mr. Chairman, when we have special activities
we request for assistance or financial assistance from government
agencies, from private business and corporations, but this is only
during special activities that the Boy Scouts of the Philippines
would conduct during the year. Otherwise, we have to raise our own
funds to support the organization.‰62

The nature of the funds of the BSP and the COAÊs audit
jurisdiction were likewise brought up in said congressional
deliberations, to wit:

_______________

62 Committee on Government Enterprises, February 13, 1991, p. 16.

188

188 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

HON. AQUINO: x x x Insofar as this organization being a

government created organization, in fact, a government corporation
classified as such, are your funds or your finances subjected to the
COA audit?
MR. ESCUDERO: Mr. Chairman, we are not. Our funds is not
subjected. We donÊt fall under the jurisdiction of the COA.
HON. AQUINO: All right, but before were you?
MR. ESCUDERO: No, Mr. Chairman.
MR. JESUS: May I? As historical backgrounder, Commonwealth
Act 111 was written by then Secretary Jorge Vargas and before and
up to the middle of the Martial Law years, the BSP was receiving a
subsidy in the form of an annual⁄ a one draw from the
Sweepstakes. And, this was the case also with the Girl Scouts at the
Anti-TB, but then this was⁄ and the Boy Scouts then because
of this funding partly from government was being subjected
to audit in the contributions being made in the part of the
Sweepstakes. But this was removed later during the Martial Law
years with the creation of the Human Settlements Commission. So
the situation right now is that the Boy Scouts does not receive any
funding from government, but then in the case of the local councils
and this legislative charter, so to speak, enables the local councils
even the national headquarters in view of the provisions in the
existing law to receive donations from the government or any of its
instrumentalities, which would be difficult if the Boy Scouts is
registered as a private corporation with the Securities and
Exchange Commission. Government bodies would be estopped from
making donations to the Boy Scouts, which at present is not the
case because there is the Boy Scouts charter, this Commonwealth
Act 111 as amended by PD 463.
xxxx
HON. AMATONG: Mr. Chairman, in connection with that.
THE CHAIRMAN: Yeah, Gentleman from Zamboanga.
HON. AMATONG: There is no auditing being made because
thereÊs no money put in the organization, but how about donated
funds to this organization? What are the remedies of the donors of
how will they know how their money are being spent?
MR. ESCUDERO: May I answer, Mr. Chairman?

189

VOL. 651, JUNE 7, 2011 189

Boy Scouts of the Philippines vs. Commission on Audit

THE CHAIRMAN: Yes, gentleman.

MR. ESCUDERO: The Boy Scouts of the Philippines has an
external auditor and by the charter we are required to submit a
financial report at the end of each year to the National Executive
Board. So all the funds donated or otherwise is accounted for at the
end of the year by our external auditor. In this case the SGV.63

Historically, therefore, the BSP had been subjected to

government audit in so far as public funds had been
infused thereto. However, this practice should not preclude
the exercise of the audit jurisdiction of COA, clearly set
forth under the Constitution, which pertinently provides:
 „Section 2. (1) The Commission on Audit shall have the
power, authority, and duty to examine, audit, and settle all
accounts pertaining to the revenue and receipts of, and
expenditures or uses of funds and property, owned or held
in trust by, or pertaining to, the Government, or any of its
subdivisions, agencies, or instrumentalities, including
government-owned and controlled corporations with
original charters, and on a post-audit basis: (a) constitutional
bodies, commissions and offices that have been granted fiscal
autonomy under this Constitution; (b) autonomous state colleges
and universities; (c) other government-owned or controlled
corporations with original charters and their subsidiaries; and (d)
such non-governmental entities receiving subsidy or equity, directly
or indirectly, from or through the Government, which are required
by law of the granting institution to submit to such audit as a
condition of subsidy or equity. x x x.‰64

Since the BSP, under its amended charter, continues to

be a public corporation or a government instrumentality,
we come to the inevitable conclusion that it is subject to the
exercise by the COA of its audit jurisdiction in the manner
consistent with the provisions of the BSP Charter.

_______________

63 Id., at pp. 37-39.

64 1987 Constitution, Article IX (D).

190

190 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

WHEREFORE, premises considered, the instant petition

for prohibition is DISMISSED.
SO ORDERED.

Corona (C.J.), Velasco, Jr., Nachura, Brion, Peralta,

Bersamin, Del Castillo, Abad, Villarama, Jr. and Mendoza,
JJ., concur.
Carpio, J., See Dissenting Opinion.
Carpio-Morales, J., I join J. CarpioÊs dissent.
Perez and Sereno, JJ., Join the Dissent of J. Carpio.

DISSENTING OPINION

CARPIO, J.:
I dissent.
The Boy Scouts of the Philippines (BSP) is neither a
government-owned or controlled corporation nor a
government instrumentality subject to the Commission on
AuditÊs (COA) jurisdiction. The BSP is a private, non-stock,
and non-profit corporation beyond the COAÊs audit
jurisdiction.

I.
COAÊs Audit Jurisdiction

Section 2(1), Article IX-D of the Constitution provides

for COAÊs audit jurisdiction, as follows:

„SECTION 2. (1) The Commission on Audit shall have the power,

authority and duty to examine, audit, and settle all accounts
pertaining to the revenue and receipts of, and expenditures or uses
of funds and property, owned or held in trust by, or pertaining to,
the Government, or any of its subdivisions, agencies, or
instrumentalities, including government-owned and controlled
corporations with original charters, and on a post-audit basis: (a)
constitutional bodies, commissions and offices that have been
granted fiscal autonomy under this Constitution; (b) autonomous
state colleges and universi-

191
 VOL. 651, JUNE 7, 2011 191
Boy Scouts of the Philippines vs. Commission on Audit

ties; (c) other government-owned or controlled corporations and

their subsidiaries; and (d) such non-governmental entities receiving
subsidy or equity, directly or indirectly, from or through the
government, which are required by law or the granting institution
to submit to such audit as a condition of subsidy or equity. However,
where the internal control system of the audited agencies is
inadequate, the Commission may adopt such measures, including
temporary or special pre-audit, as are necessary and appropriate to
correct the deficiencies. It shall keep the general accounts of the
Government and, for such period as may be provided by law,
preserve the vouchers and other supporting papers pertaining
thereto.‰

Based on this Constitutional provision, the COA

exercises jurisdiction on a pre-audit basis over the (1)
Government, (2) any of its subdivisions, (3) agencies, (4)
instrumentalities, and (5) GOCCs with original charters.
The COA also has jurisdiction on a post-audit basis over
(1) constitutional bodies, commissions and offices that have
been granted fiscal autonomy under the Constitution; (2)
autonomous state colleges and universities; (3) other
GOCCs1 and their subsidiaries; and (4) non-governmental
entities receiving subsidy or equity, directly or indirectly,
from or through the government, which are required by law
or the granting institution to submit to such audit as a
condition of subsidy or equity.
Hence, if an entity is properly identified and categorized
as among those enumerated in Section 2(1), Article IX-D of
the Constitution, then the COA can indisputably „examine,
audit, and settle all accounts pertaining to the revenue and
receipts of, and expenditures or uses of funds and property‰
of that particular entity.

_______________

1 These are GOCCs without original charters which refer to

corporations created under the Corporation Code but are owned or
controlled by the government. (Feliciano v. Commission on Audit, 464
Phil. 439; 419 SCRA 363 [2004])

192

192 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

II.
History of the BSP

The Boy Scouts of the Philippines began in 1923 with

the establishment of the Philippine Council of the Boy
Scouts of America, when the Philippines was an American
possession at the time.2
On 31 October 1936, the Philippine National Assembly
enacted Commonwealth Act No. 111, or An Act to Create a
Public Corporation to be Known as the Boy Scouts of the
Philippines, and to Define its Powers and Purposes, the
pertinent provisions of which read:

„Section 1. J. E. H. Stevenot, A. N. Luz, C. P. Romulo, Vicente

Lim, Manuel Camus, Jorge B. Vargas, and G. A. Daza; all of
Manila, Philippines, their associates and successors, are hereby
created a body corporate and politic in deed and in law, by the
name, style and title of „Boy Scouts of the Philippines‰ (hereinafter
called the corporation). x x x
Section 3. The purpose of this corporation shall be to promote,
through organization, and cooperation with other agencies, the
ability of boys to do things for themselves and others, to train them
in scoutcraft, and to teach them patriotism, courage, self-reliance,
and kindred virtues, using the methods which are now in common
use by boy scouts.
Section 4. Until such time as the corporation shall have acquired
by purchase, gift or other equitable arrangement from and with the
Boy Scouts of America all of the existing assets and properties of
the aforesaid Boy Scouts of America in the Philippines, it shall
carry on its operations in accordance with such arrangements as it
may make with said Boy Scouts of America; and the corporation
created by this Act shall defray and provide for any debts or
liabilities to the discharge of which said assets of the Boy Scouts of
America shall be applicable, but said corporation shall have no
power to issue certifi-

_______________

2 See http://www.mbcenter.org/pub/pdf/notes_history101.pdf (accessed 7

June 2011). See also http://scouts.org.ph/about-scouting/birth-of-bsp/ (accessed
7 June 2011).

193

VOL. 651, JUNE 7, 2011 193

Boy Scouts of the Philippines vs. Commission on Audit

cates of stock or to declare or pay dividends, its objects and

purposes being solely of a benevolent character and not for
pecuniary profit by its members.
Section 5. The governing body of the said corporation shall consist
of an executive board composed of residents of the Philippines. The
number, qualifications, and terms of office of members of the
executive board shall be prescribed by the by-laws. x x x‰

On 17 May 1974, then President Ferdinand E. Marcos

issued Presidential Decree No. 460, Amending Certain
Provisions of Commonwealth Act No. 111, Otherwise Known
as the National Charter of the Boy Scouts of the
Philippines. One of its Whereas clauses reads:

„WHEREAS, recent events have shown that it has become

necessary to effect reforms in the organizationÊs structure in order
to revitalize and strengthen its operational capabilities, enhance its
effectiveness as an instrument to promote the youth development
program of the nation, and insure the full and active cooperation,
involvement and support of all sectors of the community, public and
private; x x x‰

One of the amendments introduced by PD 460 pertained

to the composition of the BSPÊs governing body. PD 460
reorganized and restructured3 the BSPÊs executive board,
thus:

_______________

3 Section V. The same Act is further amended by adding the

following section immediately after Section 10:
„Until such time as the reorganization and restructuring of the
Executive Board, in accordance with Section 5 as amended is effected,
the Honorable Carlos P. Romulo, Chairman of the Golden Jubilee Board
and one of the founders of the Organization and a charter member
thereof, is hereby appointed Interim Chairman of the Board and
President of the Organization and authorized to organize an interim
body to conduct the affairs of the Boy Scouts of the Philippines and to
take the necessary steps to effect such reorganization within six (6)
months from date of this decree.‰

194

194 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

Section II. Section 5 of the said Act is also amended to read as

follows:
„The governing body of the said corporation shall consist of a
National Executive Board composed of (a) the President of the
Philippines or his representative; (b) the charter and life members
of the Boy Scouts of the Philippines; (c) the Chairman of the Board
of Trustees of the Philippine Scouting Foundation; (d) the Regional
Chairman of the Scout Regions of the Philippines; (e) the Secretary
of Education and Culture, the Secretary of Social Welfare, the
Secretary of Labor, the Secretary of Finance, the Secretary of Youth
and Sports, and the Secretary of Local Government and Community
Development; (f) an equal number of individuals from the private
sector; (g) the National President of the Girl Scouts of the
Philippines; (h) one Scout of Senior age from each Scout Region to
represent the boy membership; and (i) three representatives of the
cultural minorities. Except for the Regional Chairman who
shall be elected by the Regional Scout Councils during their
annual meetings, and the Scouts of their respective regions,
all members of the National Executive Board shall be either
by appointment or cooption, subject to ratification and
confirmation by the Chief Scout, who shall be the Head of
the State. Vacancies in the Executive Board shall be filled by
a majority vote of the remaining members, subject to
ratification and confirmation by the Chief Scout. The by-laws
may prescribe the number of members of the National Executive
Board necessary to constitute a quorum of the board, which number
may be less than a majority of the whole number of the board. The
National Executive Board shall have power to make and to amend
the by-laws, and, by a two-thirds vote of the whole board at a
meeting called for this purpose, may authorize and cause to be
executed mortgages and liens upon the property of the corporation.
x x x x‰ (Emphasis supplied)

On 6 December 1991, then President Corazon C. Aquino,

pursuant to her delegated legislative authority under
Section 22 of Proclamation No. 50, issued Executive Order
No. 495 converting the BSP, together with the Philippine
ShippersÊ Council and the Girl Scouts of the Philippines,
into a private corporation. However, on 4 March 1992,
President Aquino issued Executive Order No. 509 revoking
the dissolution and

195

VOL. 651, JUNE 7, 2011 195

Boy Scouts of the Philippines vs. Commission on Audit

conversion of the BSP into a private corporation, and

restored Commonwealth Act No. 111 and PD 460 prior to
their repeal under EO 495.
On 24 March 1992, Republic Act No. 7278, further
amending Commonwealth Act No. 111, as amended by PD
460, was enacted. Aimed at strengthening the volunteer
and democratic character of the BSP, RA 7278 amended the
composition of BSPÊs governing body by drastically
reducing the number of Cabinet secretaries in the National
Executive Board, to wit:

„SEC. 3. Sections 5, 6, 7 and 8 of Commonwealth Act No. 111, as

amended, are hereby amended to read as follows:
„SEC. 5. The governing body of the said corporation shall
consist of a National Executive Board, the members of which shall
be Filipino citizens of good moral character. The Board shall be
composed of the following:
„(a) One (1) charter member of the Boy Scouts of the
Philippines who shall be elected by the members of the National
Council at its meeting called for this purpose;
„(b) The regional chairmen of the scouts regions who shall be
elected by the representatives of all the local scouts councils of the
region during its meeting called for this purpose: Provided, That a
candidate for regional chairman need not be the chairman of a local
scout council;
„(c) The Secretary of Education, Culture and Sports;
„(d) The National President of the Girl Scouts of the
Philippines;
„(e) One (1) senior scout, each from Luzon, Visayas and
Mindanao areas, to be elected by the senior scout delegates of the
local scout councils to the scout youth forums in their respective
areas, in its meeting called for this purpose, to represent the boy
scout membership;
„(f) Twelve (12) regular members to be elected by the members
of the National Council in its meeting called for this purpose;
„(g) At least ten (10) but not more than fifteen (15) additional
members from the private sector who shall be elected by the
members of the National Executive Board referred to in the
immediately

196

196 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

preceding paragraphs (a), (b), (c), (d), (e) and (f) at the
organizational meeting of the newly reconstituted National
Executive Board which shall be held immediately after the meeting
of the National Council wherein the twelve (12) regular members
and the one (1) charter member were elected.
x x x x‰

III.
The ruling in BSP v. NLRC

The COA relies on the CourtÊs ruling in Boy Scouts of the

Philippines v. National Labor Relations Commission,4
promulgated on 22 April 1991, declaring the BSP both a
GOCC and a government instrumentality5 within the
meaning of Section 2(1) of Article IX-B of the Constitution6
based on the following criteria:

„Firstly, BSPÊs functions as set out in its statutory charter do

have a public aspect. BSPÊs functions do relate to the fostering of
the public virtues of citizenship and patriotism and the general
improvement of the moral spirit and fiber of our youth.
xxxx
The second aspect that the Court must take into account relates
to the governance of the BSP. The composition of the National
Executive Board of the BSP includes x x x seven (7) Secretaries of
Executive Departments. x x x We must note at the same time that

_______________

4 G.R. No. 80767, 22 April 1991, 196 SCRA 176.

5 Section 2(10) of the Administrative Code of 1987 defines an
instrumentality as „any agency of the National Government, not integrated
within the department framework vested within special functions or
jurisdiction by law, endowed with some if not all corporate powers,
administering special funds, and enjoying operational autonomy, usually
through a charter. This term includes regulatory agencies, chartered
institutions and government-owned or controlled corporations.‰
6 Sec. 2(1). The civil service embraces all branches, subdivisions,
instrumentalities, and agencies of the Government, including government-
owned or controlled corporations with original charters.

197

VOL. 651, JUNE 7, 2011 197

Boy Scouts of the Philippines vs. Commission on Audit

the appointments of members of the National Executive Board,

except only the appointments of the Regional Chairman and Scouts
of Senior age from the various Scout Regions, are subject to
ratification and confirmation by the Chief Scout, who is the
President of the Philippines. x x x It does appear therefore that
there is substantial governmental (i.e., Presidential)
participation or intervention in the choice of the majority of
the members of the National Executive Board of the BSP.
The third aspect relates to the character of the assets and funds
of the BSP. The original assets of the BSP were acquired by
purchase or gift or other equitable arrangement with the Boy
Scouts of America, of which the BSP was part before the
establishment of the Commonwealth of the Philippines. x x x In
this respect, the BSP appears similar to private non-stock,
non-profit corporations, although its charter expressly
envisages donations and contributions to it from the
Government and any of its agencies and instrumentalities.‰7
(Emphasis supplied)

IV.
Republic Act No. 7278 reduced the number of
Cabinet secretaries in the BSP governing body.

When PD 460, amending Commonwealth Act No. 111,

was issued by then President Marcos, the President of the
Philippines and six Cabinet Secretaries were among the
members of the BSPÊs National Executive Board. The
President even had the final say on the private sector
representation in the BSPÊs governing body.8 The
leadership of the BSP was virtually under the Office of the
President.
With the enactment of RA 7278, only one Cabinet
Secretary, that is, the Secretary of Education, remains a
member of the BSPÊs National Executive Board. The BSP
relies on this drastic change in the composition of its
governing body for its claim that the BSP is not a GOCC
subject to COAÊs audit

_______________

7 Supra at pp. 184-186.

8 http://www.mbcenter.org/history/p9_martiallaw.php (accessed 7 June
2011).

198

198 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

jurisdiction. According to the BSP, „RA 7278 took out the

element of government control, which is akin to
privatization. It follows then that the finding in BSP
v. NLRC that the BSP is a GOCC with original
charter no longer holds water.‰ RA 7278 was enacted
after BSP v. NLRC.

V.
The BSP is not a GOCC.

 Control test
1. 
In Feliciano v. Commission on Audit,9 the Court
declared that the determining factor of COAÊs audit
jurisdiction is government ownership or control of the
corporation. Citing Philippine Veterans Bank Employees
Union-NUBE v. Philippine Veterans Bank,10 the Court held
in Feliciano that the criterion of ownership and
control is more important than the issue of original
charter, thus:

„This point is important because the Constitution provides in its

Article IX-B, Section 2(1) that „the Civil Service embraces all
branches, subdivisions, instrumentalities, and agencies of the
Government, including government-owned or controlled
corporations with original charters.‰ As the Bank is not owned
or controlled by the Government although it does have an
original charter in the form of R.A. No. 3518, it clearly does
not fall under the Civil Service and should be regarded as
an ordinary commercial corporation. Section 28 of the said law
so provides. The consequence is that the relations of the Bank with
its employees should be governed by the labor laws, under which in
fact they have already been paid some of their claims.‰11 (Emphasis
supplied)

Employing the test laid down in Feliciano in

determining COAÊs jurisdiction, we find that the BSP is not
a GOCC.
_______________

9 464 Phil. 439; 419 SCRA 363 (2004).

10 G.R. Nos. 67125 and 82337, 24 August 1990, 189 SCRA 14, 30.
11 Feliciano v. Commission on Audit, supra at p. 462; p. 376.

199

VOL. 651, JUNE 7, 2011 199

Boy Scouts of the Philippines vs. Commission on Audit

A.  The government does not own the BSP.

Under Section 2(13) of the Revised Administrative
Code,12 a GOCC refers to any agency organized as a stock
or non-stock corporation, vested with functions relating to
public needs whether governmental or proprietary in
nature, and owned by the Government directly or through
its instrumentalities either wholly, or, where applicable as
in the case of stock corporations, to the extent of at least
fifty-one (51) per cent of its capital stock.
Under the above definition, a GOCC must be owned or
controlled by the government, and in the case of a stock
corporation, at least a majority of its capital stock must be
owned by the government. In the case of a non-stock
corporation, by analogy, at least a majority of the members
must be government officials holding such membership by
appointment or designation by the government.13
In this case, the BSP is a non-stock and non-profit
organization composed almost entirely of members
coming from the private sector, more particularly boys
ranging from ages four (known as KID Scouts) to seventeen
(known as SENIOR Scouts). The BSP is one of the largest
Scout organizations in the world today (after Gerakan
Pramuka of Indonesia and the Boy Scouts of America, first
and second, respectively) and is one of the worldÊs National
Scout Associations having the highest penetration rate
(Scout density), with one Scout out of two boys of Scouting
age enrolled in the Scouting program.14 Since the BSP is
composed almost entirely of members and officers from the
private sector, the BSP is clearly not owned by the
government.

_______________

12 Executive Order No. 292. Effective on 25 July 1987.

13 Liban v. Gordon, G.R. No. 175352, 15 July 2009, 593 SCRA 68, 88.
14 See http://scouts.org.ph/about-scouting/bsps-pride/?replytocom=31
(accessed 7 June 2011).

200

200 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

B.  The government does not control the BSP.

Prior to RA 7278, the President of the Philippines and
six Cabinet Secretaries were among the members of the
National Executive Board. According to Senator Jose A.
Lina during the Senate deliberations on RA 7278, „the
[voluntary] character and the nongovernmental character
of the Boy Scouts of the Philippines was altered‰ by the old
law, thus necessitating its amendment. More
importantly, prior to RA 7278, the appointment of
„all other members of the governing board, except
the elected regional chairmen and senior scout
representatives, were made subject to the
ratification and confirmation of the President of the
Philippines.‰15 There is therefore no doubt that prior to
RA 7278, the government had effective control of the
structure and membership of the National Executive
Board. However, as clearly intended in RA 7278, the
government lost control over the BSP to the private sector
upon the effectivity of RA 7278.
In Feliciano,16 we found that local water districts
(LWDs) were GOCCs considering that, among other factors,
„the government controls LWDs because under PD 198 the
municipal or city mayor, or the provincial governor,
appoints all the board directors of an LWD for a fixed term
of six years. x x x LWDs have no private stockholders or
members. The board of directors and other personnel of
LWDs are government employees subject to civil service
laws and anti-graft laws.‰ In other words, where the
government appoints at least a majority of the members of
the board of directors of an entity, such entity is
undoubtedly under the control of the government.
Likewise, if the government has the power to fill up at least
a

_______________

15 Id.
16 Supra note 9.

201

VOL. 651, JUNE 7, 2011 201

Boy Scouts of the Philippines vs. Commission on Audit

majority of the vacancies in the governing body of an entity,

then such an entity is definitely government controlled.17
The foregoing circumstances manifesting government
control over an entity are wanting in BSPÊs case under RA
7278.
As pointed out by the BSP, under RA 7278 only one
Cabinet Secretary remains a member of the National
Executive Board, as opposed to the previous
composition where the President of the Philippines
and six cabinet secretaries were members of the
same board. To repeat, the National Executive Board is
presently composed of (1) a charter member of the BSP; (2)
the regional chairmen of the scouts regions; (3) the
Secretary of Education, Culture and Sports; (4) National
President of the Girl Scouts of the Philippines; (5) a senior
scout, one each from Luzon, Visayas and Mindanao; (6)
twelve regular members to be elected by the members of
the National Council; (7) at least ten but not more than
fifteen additional members from the private sector.
Significantly, the lone cabinet member, who is the
Education Secretary, merely serves as an ex-officio
member.18 Meanwhile, the President of the Philippines is
no longer a member of the National Executive Board and
simply acts as the Chief Scout of the BSP. Except for the
Education Secretary, none of the other members of
the National Executive Board is a government
official or holds such position or membership
through appointment or designation by the
government. Moreover, the government lacks the power
to fill up vacancies in the National Executive Board of the
BSP or remove any of its

_______________

17 See City of Baltimore Development Corp. v. Carmel Realty

Associates, 395 Md. 299, 910 A.2d 406 Md., 2006.
18 As stated by Senator Jose Lina during the Senate deliberations
before the passage of RA 7278, „the ex-officio members are the Secretary
of the Department of Education, Culture and Sports and the President of
the Girl Scouts of the Philippines.‰ (Record of the Senate, Vol. II, No. 44,
p. 1532).

202

202 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit
members. In fact, „vacancies in the National Executive
Board shall be filled by a majority vote of the remaining
members.‰19 This structural set-up and membership of
BSPÊs governing body under RA 7278, where all
except one come from the private sector, glaringly
negate any form of government control over the BSP.
Moreover, if the BSP is a GOCC, as what the COA
insists, then it must be under the PresidentÊs power of
control. In Rufino v. Endriga,20 which involved „the battle
for Cultural Center of the PhilippinesÊ (CCP) leadership
between the Rufino and Endriga groups,‰ the Court
explained exhaustively the PresidentÊs power of control,
thus:

„Under our system of government, all Executive departments,

bureaus, and offices are under the control of the President of the
Philippines. Section 17, Article VII of the 1987 Constitution
provides:
The President shall have control of all the executive
departments, bureaus, and offices. He shall ensure that
the laws be faithfully executed. (Emphasis supplied)
The presidential power of control over the Executive branch of
government extends to all executive employees from the
Department Secretary to the lowliest clerk. This constitutional
power of the President is self-executing and does not require any
implementing law. Congress cannot limit or curtail the PresidentÊs
power of control over the Executive branch.
xxx
The PresidentÊs power of control applies to the acts or decisions
of all officers in the Executive branch. This is true whether such
officers are appointed by the President or by heads of departments,
agencies, commissions, or boards. The power of control means the
power to revise or reverse the acts or decisions of a subordinate
officer involving the exercise of discretion.

_______________

19 Section 5, RA 7278.
20 G.R. No. 139554, 21 July 2006, 496 SCRA 13.

203

VOL. 651, JUNE 7, 2011 203

Boy Scouts of the Philippines vs. Commission on Audit

In short, the President sits at the apex of the Executive branch,

and exercises „control of all the executive departments, bureaus,
and offices.‰ There can be no instance under the Constitution where
an officer of the Executive branch is outside the control of the
President. The Executive branch is unitary since there is only one
President vested with executive power exercising control over the
entire Executive branch. Any office in the Executive branch that is
not under the control of the President is a lost command whose
existence is without any legal or constitutional basis.‰21

However, in this case, unlike in CCPÊs case,22 there is

absolutely nothing which demonstrates that the President
of the Philippines exercises control over the acts or
decisions of the BSPÊs National Executive Board or any of
its members.23 The President does not have the power to
alter or modify or nullify or set aside what the BSPÊs
National Executive Board does in the performance of its
duties and to substitute the judgment of the former for that
of the latter.24 The title „Chief Scout‰ does not confer on the
President any power of control over the affairs and
management of the BSP. This absence of any form of
presidential control reinforces the fact that the government

_______________

21 Id., at pp. 62-63, 64-65.

22 CCP is under the supervision of the National Commission for
Culture and the Arts, and it is attached to the Office of the President.
(http://en.wikipilipinas.org/index.php? title=Cultural_Center_of_the
Philippines#Arts_Resident_Companies_of_CCP)
23 See Carpio v. Executive Secretary, G.R. No. 96409, 14 February
1992, 206 SCRA 290.
24 Mondano v. Silvosa, 97 Phil. 143, 147-148 (1955), where the Court
stated: „In administrative law supervision means overseeing or the
power or authority of an officer to see that subordinate officers perform
their duties. If the latter fail or neglect to fulfill them the former may
take such action or step as prescribed by law to make them perform their
duties. Control, on the other hand, means the power of an officer to alter
or modify or nullify or set aside what a subordinate officer had done in
the performance of his duties and to substitute the judgment of the
former for that of the latter.‰

204

204 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

does not control the BSP. In short, the President, while

holding the title of „Chief Scout,‰ does not control the BSP.
C.  The funds of the BSP are private in nature.
The Court noted in BSP v. NLRC that the original
assets of the BSP were acquired by purchase or gift or
other equitable arrangement with the Boy Scouts of
America, of which the BSP was part before the
establishment of the Commonwealth of the Philippines.
The BSP charter, however, does not indicate that such
assets were public or statal in character or had originated
from the government. No public capital was invested in the
BSP.25 According to the BSP, its operating funds used
for carrying out its purposes and programs are
derived principally from membership dues paid by
the Boy Scouts themselves and from property
rentals. The BSP does not have government assets
and does not receive any appropriation from
Congress. This was revealed during the deliberations in
the House of Representatives on RA 7278, thus:

„MR. ESCUDERO. Yes, Mr. Chairman. The question is the

sources of funds of the organization. First, Mr. Chairman, the
Boy Scouts of the Philippines do not receive annual
allotment from the government. The organization has to
raise its own funds through fund drives and fund campaigns
or fund rais-

_______________

25 In Feliciano, supra note 9, where the Court held that the Local Water
Districts are government-owned or controlled corporations, the seed capital
assets of the Local Water Districts, such as waterworks and sewerage facilities,
were public property which were managed, operated by or under the control of
the city, municipality or province before the assets were transferred to the
Local Water Districts. The Local Water Districts also receive subsidies and
loans from the Local Water Utilities Administration. There is no private
capital invested in the Local Water Districts. The capital assets and
operating funds of the Local Water Districts all come from the government,
either through transfer of assets, loans, subsidies or the income from such
assets or funds.

205

VOL. 651, JUNE 7, 2011 205

Boy Scouts of the Philippines vs. Commission on Audit

ing activities. Aside from this, we have some revenue producing

projects in the organization that gives us funds to support the
operation. x x x‰26

Further, BSPÊs properties are being managed and

operated by the BSP itself, not by the government or any of
its agencies. Therefore, it is crystal-clear that the funds of
the BSP come from private sources. As such, the BSP funds
are necessarily beyond the jurisdiction of the COA, which
exclusively audits public funds and assets.
D. Public purpose of BSP is not determinative of
status.
Indeed, the BSP performs functions which may be
classified as public in character, in the sense that it
promotes „virtues of citizenship and patriotism and the
general improvement of the moral spirit and fiber of our
youth.‰ However, this fact alone does not automatically
make the BSP a GOCC. Significantly, the Court declared in
Philippine Society for the Prevention of Cruelty to Animals
v. Commission on Audit,27 „the fact that a certain
juridical entity is impressed with public interest
does not, by that circumstance alone, make the
entity a public corporation, inasmuch as a
corporation may be private although its charter
contains provisions of a public character,
incorporated solely for the public good.‰28 The Court
further held:

„Authorities are of the view that the purpose alone of the

corporation cannot be taken as a safe guide, for the fact is
that almost all corporations are nowadays created to
promote the interest, good, or convenience of the public. A
bank, for example, is a private corporation; yet, it is created for a
public

_______________

26 Quoted in Majority Opinion (Committee on Government Enterprises, 13

February 1991, p. 16).
27 G.R. No. 169752, 25 September 2007, 534 SCRA 112.
28 Id., at p. 131.

206

206 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

benefit. Private schools and universities are likewise private

corporations; and yet, they are rendering public service. Private
hospitals and wards are charged with heavy social responsibilities.
More so with all common carriers. On the other hand, there may
exist a public corporation even if it is endowed with gifts or
donations from private individuals.
The true criterion, therefore, to determine whether a
corporation is public or private is found in the totality of the
relation of the corporation to the State. If the corporation is
created by the State as the latterÊs own agency or
instrumentality to help it in carrying out its governmental
functions, then that corporation is considered public;
otherwise, it is private. Applying the above test, provinces,
chartered cities, and barangays can best exemplify public
corporations. They are created by the State as its own device and
agency for the accomplishment of parts of its own public works.‰29
(Emphasis supplied)

 Economic viability test

2. 
The Constitution recognizes only two classes of
corporations.30 The first refers to private corporations
created under a general law.31 The second refers to
government-owned or controlled corporations created by
special charters.32 Section 16, Article XII of the
Constitution provides:

„Sec. 16. The Congress shall not, except by general law, provide

for the formation, organization, or regulation of private
corporations. Government-owned or controlled corporations
may be created or established by special charters in the interest of
the common good and subject to the test of economic viability.‰
(Emphasis supplied)

Contrary to this constitutional provision, the majority

introduces a totally different species of corporation, which
is

_______________

29 Id., at p. 132.
30 Feliciano v. Commission on Audit, supra note 9.
31 Id.
32 Id.

207

VOL. 651, JUNE 7, 2011 207

Boy Scouts of the Philippines vs. Commission on Audit

neither a private corporation nor a government owned or

controlled corporation. The majority gravely misses the fact
that the BSP, which was created as a non-stock, non-profit
corporation, can only be either a private corporation or a
government owned or controlled corporation. The
LegislatureÊs usage in Commonwealth Act No. 111 of the
term „public corporation‰33 to designate the BSP must
never be construed as creating an entirely new type of
corporation, neither private nor government owned or
controlled. Otherwise, such an interpretation will
unjustifiably and unlawfully expand the classes of
corporations expressly recognized by the Constitution in
Section 16, Article XII, putting the new class of corporation
outside the coverage of Section 16. In short, such new class
of public corporation created by special charter will not
be subject to the „test of economic viability,‰ a blatant
circumvention of the Constitution.
In Manila International Airport Authority (MIAA) v. Court
of Appeals,34 where the Court ruled that MIAA is a
government instrumentality, the Court explained the
importance of the „test of economic viability,‰ in this wise:

„The Constitution expressly authorizes the legislature to

create „government-owned or controlled corporations‰
through special charters only if these entities are required
to meet the twin conditions of common good and economic
viability. In other words, Congress has no power to create
government-owned or controlled corporations with special
charters unless they are made to comply with the two
conditions of common good and economic viability. The test
of economic viability applies only to government-owned or
controlled corporations that perform economic or commercial
activities and need to compete in the market place. Being
essentially economic vehicles of the State for the common good·
meaning for economic development

_______________

33 Must not be confused with „public corporations‰ such as barangay,

municipality, city and province, which are also known as political subdivisions.
34 G.R. No. 155650, 20 July 2006, 495 SCRA 591.

208

208 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

purposes·these government-owned or controlled corporations with

special charters are usually organized as stock corporations just
like ordinary private corporations.
x x x The intent of the Constitution is to prevent the creation
of government-owned or controlled corporations that
cannot survive on their own in the market place and thus
merely drain the public coffers.
Commissioner Blas F. Ople, proponent of the test of economic
viability, explained to the Constitutional Commission the purpose of
this test, as follows:
MR. OPLE: Madam President, the reason for this concern is
really that when the government creates a corporation, there
 is a sense in which this corporation becomes exempt from the
test of economic performance. We know what happened in the
past. If a government corporation loses, then it makes its
claim upon the taxpayersÊ money through new equity
infusions from the government and what is always invoked is
the common good. That is the reason why this year, out of a
budget of P115 billion for the entire government, about P28
billion of this will go into equity infusions to support a few
government financial institutions. And this is all taxpayersÊ
money which could have been relocated to agrarian reform, to
social services like health and education, to augment the
salaries of grossly underpaid public employees. And yet this
is all going down the drain.
Therefore, when we insert the phrase „ECONOMIC
VIABILITY‰ together with the „common good,‰ this becomes a
restraint on future enthusiasts for state capitalism to excuse
themselves from the responsibility of meeting the market test
so that they become viable. And so, Madam President, I
reiterate, for the committeeÊs consideration and I am glad
that I am joined in this proposal by Commissioner Foz, the
insertion of the standard of „ECONOMIC VIABILITY OR
THE ECONOMIC TEST,‰ together with the common good.
Father Joaquin G. Bernas, a leading member of the Constitutional
Commission, explains in his textbook The 1987 Constitution of the
Republic of the Philippines: A Commentary:
The second sentence was added by the 1986 Constitutional
Commission. The significant addition, however, is the phrase

209

VOL. 651, JUNE 7, 2011 209

Boy Scouts of the Philippines vs. Commission on Audit

„in the interest of the common good and subject to the test of
economic viability.‰ The addition includes the ideas that they
must show capacity to function efficiently in business and
that they should not go into activities which the private
sector can do better. Moreover, economic viability is more
than financial viability but also includes capability to make
profit and generate benefits not quantifiable in financial
terms.‰35 (Emphasis supplied)

Indisputably, a government owned or controlled

corporation created by special charter must necessarily
meet the test of economic viability. Otherwise, the creation
by Congress of a government owned or controlled
corporation not satisfying the test of economic viability
clearly runs counter to the express mandate of Section 16,
Article XII of the Constitution. Congress has no power
to create government-owned or controlled
corporations with special charters unless they are
made to comply with the two conditions of common
good and economic viability. To repeat, „government-
owned or controlled corporations may be created or
established by special charters x x x subject to the test of
economic viability.‰ Therefore, there can be no „public
corporation‰ or government owned or controlled corporation
that cannot be subject to the test of economic viability. In
short, the majorityÊs view that BSP is a „public corporation‰
which does not fall under either of the classifications of
corporation recognized under Section 16, Article XII of the
Constitution, and consequently not subject to the test of
economic viability, is patently erroneous and baseless.
The term „public corporation‰ refers to a government
owned or controlled corporation as referred to in Section
16, Article XII of the Constitution. However, in this case,
the usage of the term „public corporation‰ in
Commonwealth Act No. 111 to designate BSP is no longer
controlling in determining the real nature of the BSP. As
amended by RA 7278,

_______________
 35 Id., at pp. 639-641.

210

210 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

Commonwealth Act No. 111 now refers to a corporation

owned, managed and controlled by the private sector
although the purpose of the corporation remains public.
The majority theorizes that public corporations are
„treated by law as agencies or instrumentalities of the
government which are not subject to the tests of ownership
or control and economic viability but to different criteria
relating to their public purposes/interests or constitutional
policies and objectives and their administrative
relationship to the government or any of its Departments
or Offices.‰
This theory finds no basis in law. As the Court
emphatically stated in Philippine Society for the Prevention
of Cruelty to Animals, „the fact that a certain juridical
entity is impressed with public interest does not, by
that circumstance alone, make the entity a public
corporation, inasmuch as a corporation may be
private although its charter contains provisions of a
public character, incorporated solely for the public
good.‰36 Neither does „administrative relationship to the
government‰ indicate that an entity is an instrumentality
within the purview of the COAÊs audit jurisdiction. Only
corporations controlled and owned by the government,
which are subject to the test of economic viability, and
government instrumentalities, as defined by the
Administrative Code, fall under COAÊs audit jurisdiction.
The BSP is neither; hence, it is beyond the COAÊs audit
jurisdiction.

VI.
Neither is the BSP a government instrumentality.

A government instrumentality is defined by the Revised

Administrative Code as „any agency of the National
Government, not integrated within the department
framework vested with special functions or jurisdiction by
law, endowed

_______________

36 Supra note 27 at p. 131.

211

VOL. 651, JUNE 7, 2011 211

Boy Scouts of the Philippines vs. Commission on Audit

with some if not all corporate powers, administering special

funds, and enjoying operational autonomy, usually through
a charter.‰ In other words, to be considered a government
instrumentality, an entity must be (1) an agency of the
National Government; (2) outside the department
framework of the National Government; (3) vested with
special functions or jurisdiction by law; (4) endowed
with some, if not all, corporate powers; (5) administering
special funds; and (6) enjoying operational autonomy.
The BSP is not an agency of the National
Government because the BSP is not a unit of the
National Government, like a „department, bureau, office,
instrumentality or government owned or controlled
corporation, or a local government or a distinct unit
therein.‰37 There is also no dispute that the BSP does
not administer special funds of the government.
While the BSP may receive donations or contributions from
the government just like other non-government
organizations, the same cannot be characterized as special
funds. Moreover, the BSP is not vested with special
functions or jurisdiction by law. Hence, the BSP is
not a government instrumentality.
If the BSP is a government instrumentality, the
following consequences are inevitable: (1) pursuant to
Section 2(1), Article IX-D of the Constitution38 it will be
subject to COAÊs

_______________

37 Section 1(3) of the Administrative Code of 1987.

38 Section 2, Article X of the Constitution pertinently provides:
Section  2. 
 (1) The Commission on Audit shall have the power,
authority, and duty to examine, audit, and settle all accounts
pertaining to the revenue and receipts of, and expenditures or
uses of funds and property, owned or held in trust by, or
pertaining to, the Government, or any of its subdivisions, agencies, or
instrumentalities, including government-owned or controlled
corporations with original charters, and on a post-audit basis: (a)
constitutional bodies, commissions and offices that have been granted
fiscal autonomy under this Constitution; (b) autonomous state colleges
and universities; (c) other government-owned or

212

212 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

pre-audit, and not post-audit; (2) it will be subject to the

Government Procurement Reform Act or Republic Act No.
9184; and (3) the BSPÊs officers and employees will be
considered government personnel who are (a) subject to
Civil Service laws;39 (b) covered by the Government Service
Insurance System;40 (c) subject to the Salary
Standardization Law;41 (d) required to file Statements of
Assets, Liabilities and Networth;42 (e) under the
jurisdiction of the Ombudsman;43 and (f) subject to the
control of the President.

_______________

controlled corporations and their subsidiaries; and (d) such non-

governmental entities receiving subsidy or equity, directly or indirectly,
from or through the Government, which are required by law or the
granting institution to submit to such audit as a condition of subsidy or
equity. x x x (Emphasis supplied)

39 Republic Act No. 6713, otherwise known as the „Code of Conduct

and Ethical Standards for Public Officials and Employees.‰ Section 3(a)
thereof provides:
Section 3. Definition of Terms.·As used in this Act, the term:
(a)  „Government‰ includes the National Government, the local
governments, and all other instrumentalities, agencies or branches of the
Republic of the Philippines including government-owned or controlled
corporations, and their subsidiaries.
40 Section 2 of this law provides:
SEC. 2. Definition of terms.·Unless the context otherwise indicates,
the following terms shall mean:
xxxx
(c) Employer·The national government, its political subdivisions,
branches, agencies or instrumentalities, including government-owned or
controlled corporations, and financial institutions with original charters,
the constitutional commissions and the judiciary;
41 Republic Act No. 6758 entitled „An Act Prescribing A Revised
Compensation and Position Classification System in the Govenment and
for Other Puposes.‰
42 Section 34 of Executive Order No. 292 or the Administrative Code
of 1987 provides:
Sec. 34. Declaration of Assets, Liabilities and Net Worth.·A
public officer or employee shall upon assumption of

213
 VOL. 651, JUNE 7, 2011 213
Boy Scouts of the Philippines vs. Commission on Audit

Under the Administrative Code of 1987, the BSP is an

attached agency of the Department of Education for
purposes of policy and program coordination. However, this
was changed with the enactment of RA 7278 which
removed government control over the BSP. To repeat, the
determining factor of COAÊs audit jurisdiction is
government ownership or control. Conversely, without such
ownership or control, the BSP is beyond the COAÊs audit
jurisdiction. Surprisingly, the majority states that the BSP
„is not under government control‰ although it is an
„attached agency‰ to the Department of Education.
Needless to say, the Department of Education and any
agency or unit attached to it is under the control of the
President pursuant to Section 17, Article VII of the
Constitution, which mandates that „the President shall
have control of all the executive departments,
bureaus, and offices.‰ If a government office, unit, or
instrumentality is subject to the control of the President,
then it is obviously under government control.

VII.
The BSP is a private, non-stock and non-profit
corporation performing public functions.

_______________

office and as often thereafter as may be required by law, submit a

declaration under oath of his assets, liabilities, and net worth.
43 Section 13 of RA 6770 provides:
Section 13. Mandate.·The Ombudsman and his Deputies, as
protectors of the people, shall act promptly on complaints filed in any
form or manner against officers or employees of the Government, or of
any subdivision, agency or instrumentality thereof, including
government-owned or controlled corporations, and enforce their
administrative, civil and criminal liability in every case where the
evidence warrants in order to promote efficient service by the
Government to the people.

214

214 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

Scouting is a non-partisan, non-governmental

worldwide youth movement geared towards the
„development of young people in achieving their full
physical, mental, social, intellectual and spiritual
potentials as individuals, as responsible citizens and as
members of their local, national and international
communities.‰44 Scouting complements the school and the
family, filling the needs not met by either.45 „It belongs to
the category of non-formal education since, while it takes
place outside the formal educational system, it is an
organized institution with an educational aim and is
addressed to a specific clientele.‰46
In Boy Scouts of America v. Dale,47 which involved a suit
for reinstatement and damages filed by an Assistant
scoutmaster, who was expelled after he publicly declared he
was homosexual, against Boy Scouts of America (BSA), the
Supreme Court of the United States stated that „the Boy
Scouts is a private, not-for-profit organization
engaged in instilling its system of values in young
people.‰
The fact that the BSP, like the BSA, is a private, non-
stock, non-profit corporation is consistent with the clear
intent of the Legislature in enacting RA 7278. The
following exchanges during the deliberations in the Senate
on RA 7278 reveal the intent of the Legislature to
restore the non-govern​mental and private character
of the BSP, thus:

_______________

44 http://scout.org/en/about_scouting/educational_methods/an_
educational_movement_for_young_pe ople (accessed 7 June 2011)
45 See http://scout.org/en/about_scouting/facts_figures/fact_sheets
[Fact sheet - Scouting Is.pdf] (accessed 7 June 2011).
46 http://scout.org/en/about_scouting/educational_methods/an_
educational_movement_for_young_people (accessed 7 June 2011) See also
Boy Scouts of the Phil. v. Araos, 102 Phil. 1080 (1958).
47 530 U.S. 640, 120 S.Ct. 2446, U.S.N.J., 2000.

215

VOL. 651, JUNE 7, 2011 215

Boy Scouts of the Philippines vs. Commission on Audit

SPONSORSHIP SPEECH OF SENATOR LINA

Senator Lina. Thank you, Mr. President.
The measure before us this evening, Senate Bill No. 132,
seeks to strengthen the nature of Scouting, restore the
democratic and nongovernmental process to the movement,
and provide a framework of leadership which shall give direction
and purpose to the two million boys and young men, ages seven to
17. Representatives of the vital group of our youth were here this
afternoon, waiting that this bill be sponsored today.48
xxxx
Senator Lina. Before I answer that question, Mr. President,
originally, the boy scouting movement in this country is
intrinsically democratic and its strength derives from the
efforts of the nongovernmental sector. The Constitution of
the movement declares that it is independent, voluntary,
nonpolitical, nonsectarian, and nongovernmental. The local
and national leadership of the Boys Scout Movement, from its
inception up to 1974, when it was amended by Presidential Decree
No. 460, came from elected members of local councils, volunteers
who have worked for many years of their lives for the development
of young boys so that they will learn and heed the scout oath and
law.
However, Mr. President, in May 1974, this character of the local
boy scouting movement was altered because the old dispensation
issued a Presidential Decree which included in the membership of
the governing board the President of the Philippines and seven
Members of the Cabinet. That was the major change in
Commonwealth Act No. 111.
So, the President of the Philippines and seven Cabinet Members
were included and institutionalized as members of the governing
body of the Boy Scouts of the Philippines. So, the nonvoluntary [sic]
character and the nongovernmental character of the Boy Scouts of
the Philippines was altered. Not only that.
All other members of the governing board, except the elected
regional chairmen and senior scout representatives were made
subject to the ratification and confirmation of the President of the
Phil-

_______________

48 Record of the Senate, Vol. II, No. 43, p. 1502.

216

216 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

ippines. So, iyon po ang naging major amendment na inistrodyus ng

PD No. 460. And as a result of this, marami po ang na-discourage
sa boy scouting movement, sapagkat dati-rati talagang democratic
iyan, walang so much imposition from government and its officials.
Also, as a result of PD No. 460, the voluntary character of the boy
scouting movement was changed. Halos naging gobyerno, and
imagine, the dictatorial character of that previous Government was
transferred to the Boy Scouts of the Philippines, kasi the members
of the governing board have to be subjected to confirmation by the
President. So, napulitika rin po iyong boy scouting the movement.
Ngayon, ang ginagawa po natin, basically, is to remove this
undemocratic feature of the law creating the Boy Scouts, and also to
remove from the Constitution of the present Boy Scouts of the
Philippines the other features that make the boy scouting
movement now undemocractic.
Senator Guingona. The intent of this bill is to make more
democratic the membership in the Boy Scouts of the Philippines.
Senator Lina. Well, to lessen government direct
interference.49
============
Senator Lina. x x x
Noong araw ay mas aktibo ang boy scouting movement. Pero
noong 1974, when Presidential Decree was issued by the then
President amending Commonwealth Act No. 111, iyon pong
National Executive Board, the governing body, ay napasukan ng
halos pitong Cabinet Members. Dari-rati po, wala iyon. Iyon po
lamang Department of Education, Culture and Sports and kasama
sa Boy Scouts of the Philippines. Kung sino ang Secretary, iyon ang
nagiging ex officio or institutionalized member. Pero, nang
madagdagan ito ng miyembro mula sa Department of National
Defense, from the other departments, pati DSWD, naging
government halos ang character nito. Nawala na iyong spirit of
voluntarism. Since the Cabinet Members are busy doing other
things, hindi po ito nabigyan ng gaanong pansin kung kaya nag-
deteriorate nang malaki ang scouting movement of the Philippines.
Ngayon lamang po ito nare-revive, because Secretary Carino is the
President. Right now he is very much in-

_______________

49 Record of the Senate, Vol. II, No. 44, pp. 1529-1530.

217

VOL. 651, JUNE 7, 2011 217

Boy Scouts of the Philippines vs. Commission on Audit

volved. He as president before he became the Secretary of

Education, Culture and Sports. Under his leadership, things are
shaping up. There is greater recruitment and more activities.
Senator Romulo. Kaya po, mahalaga ang bill na ito,
sapagkat ibinabalik natin ito sa private sector at nang sa
ganoon, gaya noong nakaraan, this is more conducive to
voluntarism and therefore, to the growth of the Boy Scout
movement.
Senator Lina. Opo.50 (Emphasis supplied)

There is no question that RA 7278 was enacted

precisely to remove government control and return
the BSP to the private sector and to its non-
governmental status. In other words, the government
lost control over the BSP to the private sector upon the
effectivity of RA 7278. The absence of government control
or ownership, coupled with the private nature of BSP
funds, makes the BSP a private corporation beyond the
audit jurisdiction of the COA. Clearly, the attributes of
BSPÊs relationship with the State that point to its being a
private non-stock corporation are overwhelming and
irrefutable.51

VIII.
Constitutionality of BSP charter, as amended

Since the BSP is not a GOCC, can Congress create,

organize and regulate the BSP by enacting its charter, or
Commonwealth Act No. 111, as amended by PD 460 and
further amended by RA 7278?
The answer is in the negative.
Section 7, Article XIV of the 1935 Constitution, as
amended, was in force when the BSP was created by
special charter on 31 October 1936. Section 7, Article XIV
of the 1935 Constitution, as amended, reads:

_______________

50 Record of the Senate, Vol. II, No. 46, p. 1592.

51 See Napata v. University of Maryland Medical System Corp., 417
Md. 724, 12 A.3d 144 Md., 2011.

218

218 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

„SEC. 7. The Congress shall not, except by general law, provide

for the formation, organization, or regulation of private
corporations, unless such corporations are owned or controlled by
the Government or any subdivision or instrumentality thereof.‰

The subsequent 1973 and 1987 Constitutions contain

similar provisions. Thus, Section 4, Article XIV of the 1973
Constitution provides:

„SEC. 4. The National Assembly shall not, except by general law,

provide for the formation, organization, or regulation of private
corporations, unless such corporations are owned or controlled by
the Government or any subdivision or instrumentality thereof.‰

The 1987 Constitution substantially reiterated the above

provision in Section 16, Article XII, to wit:

„SEC. 16. The Congress shall not, except by general law, provide

for the formation, organization, or regulation of private
corporations. Government-owned or controlled corporations may be
created or established by special charters in the interest of the
common good and subject to the test of economic viability.‰

In Feliciano,52 the Court discussed the significance of

the above Constitutional provision in this wise:

„The Constitution emphatically prohibits the creation of private

corporations except by a general law applicable to all citizens. The
purpose of this constitutional provision is to ban private
corporations created by special charters, which historically
gave certain individuals, families or groups special
privileges denied to other citizens.
In short, Congress cannot enact a law creating a private
corporation with a special charter. Such legislation would
be unconstitutional. Private corporations may exist only
under a general law. If the corporation is private, it must
necessarily exist under a general law. Stated differently, only
corporations created under a general law can qualify as private
corpora-

_______________

52 Supra note 9 at pp. 454-455; pp. 369-370.

219

VOL. 651, JUNE 7, 2011 219

Boy Scouts of the Philippines vs. Commission on Audit

tions. Under existing laws, that general law is the Corporation

Code, except that the Cooperative Code governs the incorporation of
cooperatives.
The Constitution authorizes Congress to create government-
owned or controlled corporations through special charters. Since
private corporations cannot have special charters, it follows that
Congress can create corporations with special charters only if such
corporations are government-owned or controlled.‰ (Emphasis
supplied)

While both BSP and COA submit that Commonwealth

Act No. 111 and its amendatory laws do not violate Section
16, Article XII of the Constitution, the Court should reject
such contention. Considering that the BSP is not a GOCC,
it follows that the law creating and regulating the BSP
clearly violates Section 16, Article XII of the Constitution
which specifically states that „Congress shall not, except by
general law, provide for the formation, organization, or
regulation of private corporations,‰ unless such
corporations are owned or controlled by the Government or
any of its subdivision or instrumentality.
In this case, the Court directed the parties to comment
on the issue of the constitutionality of Commonwealth Act
No. 111, as amended. This is precisely because the
constitutionality of Commonwealth Act No. 111, as
amended, is inextricably linked to the issue of whether the
BSP is subject to COAÊs audit jurisdiction, which in turn
depends on whether the BSP is a private or a government
owned or controlled corporation. Hence, this issue was
properly addressed and exhaustively argued upon by the
parties.
That the parties did not specifically raise the issue on
the constitutionality of Commonwealth Act No. 111, as
amended, does not preclude this Court from resolving such
issue since it is absolutely indispensable for the complete
disposition of this case. In fact, in exceptional cases, such
as this, it is within the CourtÊs discretion when a
constitutional issue may be ruled upon. It is likewise the
duty of this Court to pass upon the

220

220 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

constitutionality of Commonwealth Act No. 111, as

amended, since it clearly appears that a determination of
the constitutional question is necessary to decide
this case. In People v. Vera,53 the Court held:

„It is true that, as a general rule, the question of constitutionality

must be raised at the earliest opportunity, so that if not raised by
the pleadings, ordinarily it may not be raised at the trial, and if not
raised in the trial court, it will not considered on appeal. But we
must state that the general rule admits of exceptions. Courts, in
the exercise of sounds discretion, may determine the time
when a question affecting the constitutionality of a statute
should be presented. Thus, in criminal cases, although there is a
very sharp conflict of authorities, it is said that the question may be
raised for the first time at any stage of the proceedings, either in
the trial court or on appeal. Even in civil cases, it has been held
that it is the duty of a court to pass on the constitutional
question, though raised for the first time on appeal, if it
appears that a determination of the question is necessary to
a decision of the case.
Unless, therefore, the constitutional question is thus timely
raised and presented, it will be considered waived, except in
extraordinary cases noted in People and Hongkong & Shanghai
Banking Corporation vs. Vera and Cu Unjieng, supra, or in
exceptional cases where, the opinion of this court, the
question may be said to be fairly involved upon the face of
the undisputed record.‰ (Emphasis supplied; citations omitted)

In Robb v. People,54 the Court reiterated:

„Unless, therefore, the constitutional question is thus timely

raised and presented, it will be considered waived, except in
extraordinary cases noted in People and Hongkong & Shanghai
Banking Corporation vs. Vera and Cu Unjieng, supra, or in
exceptional cases where, the opinion of this court, the
question may be said to be fairly involved upon the face of
the undisputed record.‰ (Emphasis supplied)

_______________
 53 65 Phil. 56, 88 (1935).
54 68 Phil. 320, 326 (1939).

221

VOL. 651, JUNE 7, 2011 221

Boy Scouts of the Philippines vs. Commission on Audit

In Moldex Realty, Inc. v. Housing and Land Use

Regulatory Board,55 this Court held that constitutional
challenge can be made anytime:

„That the question of constitutionality has not been raised

before is not a valid reason for refusing to allow it to be
raised later. A contrary rule would mean that a law, otherwise
unconstitutional, would lapse into constitutionality by the mere
failure of the proper party to promptly file a case to challenge the
same.‰ (Emphasis supplied)

The Constitution prohibits the creation of a private

corporation through a special law. The Constitutional pro​-
hibition under Section 16, Article XII is clear, categorical,
absolute, and admits of no exception. Since the BSP is a
private corporation and not a government owned or
controlled corporation, Sections 1,56 2,57

_______________

55 G.R. No. 149719, 21 June 2007, 525 SCRA 198, 204.

56 Section 1. J. E. H. Stevenot, A. N. Luz, C. P. Romulo, Vicente
Lim, Manuel Camus, Jorge B. Vargas, and G. A. Daza; all of Manila,
Philippines, their associates and successors, are hereby created a body
corporate and politic in deed and in law, by the name, style and title of
„Boy Scouts of the Philippines‰ (hereinafter called the corporation). The
principal office of the corporation shall be in Metropolitan Manila,
Philippines.
57 Section 2. The said corporation shall have the powers of
perpetual succession, to sue and be sued; to enter into contracts; to
acquire, own, lease, convey and dispose of such real and personal estate,
land grants, rights and choses in action as shall be necessary for
corporate purposes, and to accept and receive funds, real and personal
property by gift, devise, bequest or other means, to conduct fund-raising
activities; to adopt and use a seal, and the same to alter and destroy; to
have offices and conduct its business and affairs in Metropolitan Manila
and in the regions, provinces, cities, municipalities, and barangays of the
Philippines, to make and adopt by-laws, rules and regulations not
inconsistent with this Act and the laws of the Philippines, and generally
to do all such acts and things, including the establishment of regulations
for the election of associates and successors, as may be necessary to carry
into effect the provisions of this Act and promote the purpose of said
corporation: Provided, That said corporation shall have no power to issue
certificates of stock or to declare or pay dividends, its objectives and
purposes being solely of benevolent character and not for pecuniary profit
of its members.

222

222 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

3,58 5,59

_______________

58 Section 3. The purpose of this corporation shall be to promote

through organization and cooperation with other agencies, the ability of
boys to do useful things for themselves and others, to train them in
scoutcraft, and to inculcate in them patriotism, civic consciousness and
responsibility, courage, self-reliance, discipline and kindred virtues, and
moral values, using the method which are in common use by boy scouts.
59 Section 5. The governing body of the said corporation shall
consist of a National Executive Board, the members of which shall be
Filipino citizens of good moral character. The Board shall be composed of
the following:
(a) One (1) charter member of the Boy Scouts of the Philippines who
shall be elected by the members of the National Council at its meeting
called for this purpose;
(b)  The regional chairmen of the scouts regions who shall be elected
by the representatives of all the local scout councils of the region during
its meeting called for this purpose: Provided, That a candidate for
regional chairman need not be the chairman of a local scout council;
(c) The Secretary of Education, Culture and Sports;
(d) The National President of the Girl Scouts of the Philippines;
(e)  One (1) senior scout, each from Luzon, Visayas and Mindanao
areas, to be elected by the senior scout delegates of the local scout
councils to the scout youth forums in their respective areas, in its
meeting called for this purpose, to represent the boy scout membership;
(f) Twelve (12) regular members to be elected by the members of the
National Council in its meeting called for this purpose;
(g)  At least ten (10) but not more than fifteen (15) additional
members from the private sector who shall be elected by the members of
the National Executive Board referred to in the immediately preceding
paragraphs (a), (b), (c), (d), (e) and (f) at the organizational meeting of the
newly reconstituted National Executive Board which shall be held
immediately after the meeting of the National Council wherein the
twelve (12) regular members and the one (1) charter member were
elected.
Thereafter, the National Executive Board as herein fully constituted
shall elect from among themselves the following officers of the
corporation:
(a) President;
(b) Senior Vice-President;
(c) One (1) Vice-President each from Luzon, Visayas and Mindanao
areas; and
(d) Such other officers as the Board may deem necessary.
The numerical composition of the National Executive Board shall be
provided for in the by-laws of the Boy Scouts of the Philippines:
Provided, That said numerical composition shall be at least thirty (30)
and not more than forty-five (45) for all elected, life and ex officio
members.

223

VOL. 651, JUNE 7, 2011 223

Boy Scouts of the Philippines vs. Commission on Audit

6,60

_______________

The term of office of the members of the National Executive Board

shall be one (1) year, except for the regular members to be elected by the
National Council whose term of office shall be three (3) years: Provided,
That for the first twelve (12) regular members to be elected by the
National Council, the term of office shall be as follows: the members
garnering the first four (4) highest number of votes shall serve for a term
of three (3) years; the member garnering the second four (4) highest
number of votes shall serve for a term of two (2) years; and the members
garnering the last four (4) number of votes shall serve for a term of one
(1) year.
Vacancies in the National Executive Board shall be filled by a majority
vote of the remaining members and a member thus elected shall serve
only for the unexpired term.
The by-laws may prescribe the number of members of the National
Executive Board necessary to constitute a quorum of the Board, which
number shall not be less than the majority of the entire membership of
the Board.
The National Executive Board shall exercise the following powers and
functions:
(a)  To make and to amend the by-laws subject to the ratification by a
majority vote of the members present at a meeting of the National
Council or at a special meeting called for this purpose;
(b)  To authorize and caused to be executed mortgages and liens upon
the property of the corporation by a two-thirds (2/3) vote of the whole
Board at a meeting called for this purpose;
(c)  To designate five (5) or more their number to constitute an
executive or governing committee, of which a majority shall constitute a
quorum, through a resolution passed by majority of the whole Board.
Such Committee, to the extent provided in said resolution or in the by-
laws of the corporation, shall have and exercise the powers of the
National Executive Board in the management of the business affairs of
the corporation, and may have the power to authorize the seal of the
corporation to be affixed to all papers which may require it;
(d)  To create standing committees and appoint the chairman and
members thereof from among themselves by the affirmative vote of a
majority of the whole Board. Such standing committees shall exercise
such powers as may be authorized by the by-laws;
(e)  To dispose in any manner a part or the whole property of the
corporation with the consent in writing and pursuant to an affirmative
vote of two-thirds (2/3) of the members of the National Council; and
(f)  To hold regular meetings at least once every two (2) months at a
time and place to be designated in the by-laws. Special meetings of the
Board may be called upon such notice as may be prescribed in the by-
laws.
60 Section 6. The National Council shall be composed of the
following members:

224

224 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

7,61

_______________

(a) The members of the National Executive Board;

(b) The charter members;
(c) The regional commissioners;
(d) The chairmen and commissioners of all local scout councils; and
(e) Other duly accredited delegates of local scout councils as may be
provided in the by-laws.
The qualifications, terms of office, and the manner of electing the
abovementioned members of the National Council shall be prescribed in
the by-laws of the corporation.
The numerical composition of the National Council shall be provided
for in the by-laws of the Boy Scouts of the Philippines: Provided, That all
regions and all local councils shall be duly represented therein by at least
two (2) duly accredited delegates, in addition to those who are members
of the National Executive Board as provided for under Section 5 of this
Act.
The annual meeting of the National Council shall be held at such time
and place as shall be prescribed in the by-laws, at which meeting the
annual reports of the officers of the National Executive Board shall be
presented and the election of members to the National Executive Board.
Special meetings of the National Council may be called upon such
notice as may be prescribed in the by-laws. One-third (1/3) of the
members of the National Council shall constitute a quorum to do
business at any annual or special meeting. The National Council and the
National Executive Board shall have the power to hold their meetings
and keep the seal, books, documents, and papers of the corporation
within or without the Metropolitan Manila.
The National President of the corporation shall preside over the
meetings of the National Council.
Each local scout council represented in the annual or special meeting
of the National Council shall be entitled to four (4) votes plus one (1) vote
for every ten thousand (10,000) of their scout membership. The members
of the National Executive Board and the life members shall each be
entitled to one (1) vote.
61 Section 7. The corporation created by this Act shall adopt and
shall have the sole and exclusive right to use distinctive titles,

225

VOL. 651, JUNE 7, 2011 225

Boy Scouts of the Philippines vs. Commission on Audit
9,62 and 1163 of Commonwealth Act No. 111, as amended,
are unconstitutional, and hence void, for contravening the
Constitutional proscription against the creation,
organization, and regulation of private corporations by
Congress.
The rest of the provisions, namely, Sections 4,64 8,65

_______________

emblems, descriptive or designing marks, words and phrases, badges,

uniforms and insignia for the Boy Scouts of the Philippines in carrying
out its program in accordance with the purposes of this Act, and which
shall be published in the Official Gazette or in any newspaper of general
circulation in the Philippines.

62 Section 9. On or before the first of April of each year, the said

corporation shall make and transmit to the President of the Philippines a
report of its proceedings for the year ending December thirty-first
preceding, including a full, complete, and itemized report of receipts and
expenditures of whatever kind.
63 Section 11. Until such time as the reorganization and
restructuring of the Boy Scouts of the Philippines in accordance with this
Act is effected, the incumbent officers and members of the National
Executive Board and the present and past national presidents of the Boy
Scouts of the Philippines shall continue to conduct the affairs of the Boy
Scouts of the Philippines and to take the necessary steps to effect such
reorganization until a new National Executive Board and a new set of
national officers shall have been elected within six (6) months from the
effectivity of this Act.
64 Section 4. The President of the Philippines shall be the Chief
Scout of the Boy Scouts of the Philippines.
65 Section 8. Any donation or contribution which from time to time
may be made to the Boy Scouts of the Philippines by the Government or
any of its subdivisions, branches, offices, agencies or instrumentalities or
by a foreign government or by private entities and individuals shall be
expended by the National Executive Board in pursuance of this Act.
The corporation shall be entitled to the following tax and duty
privileges:
(a) Exemption from income tax pursuant to Section 26(e), (g) and (h)
of the National Internal Revenue Code, as amended;
(b) Exemption from donorÊs tax pursuant to Section 94(a) (3) of the
National Internal Revenue Code, as amended;

226

226 SUPREME COURT REPORTS ANNOTATED

Boy Scouts of the Philippines vs. Commission on Audit

and 1066 of Commonwealth Act No. 111, as amended,

remain valid as these do not refer to BSPÊs creation as a
corporation

_______________

(c) Full deductibility of donations from the donorÊs gross income for

purposes of computing taxable income; and
(d)  Tax and/or duty exemption of donations from foreign countries as
provided under the relevant laws such as, but not limited to, Section 105
of the Tariff and Customs Code of the Philippines, as amended, Section
103 of the National Internal Revenue Code, as amended.
Any other provisions of law to the contrary notwithstanding, there
shall be no discrimination in tax treatment of the Boy and Girl Scouts of
the Philippines.
66 Section 10. From and after the passage of this Act, it shall be
unlawful for any person within the jurisdiction of the Philippines to
falsely and fraudulently call himself as, or represent himself to be, a
member of, or an agent for, the Boy Scouts of the Philippines; and any
person who violates any of the provisions of this Act shall be punished by
prision correccional in its minimum period or a fine not exceeding Five
thousand pesos (P5,000.00) or both, at the discretion of the court.
It shall be unlawful for any person to manufacture, sell or distribute
or cause to be manufactured, sold or distributed fraudulently or without
 the official knowledge and written consent or permission of the National
Executive Board of the Boy Scouts of the Philippines badges, uniforms,
insignia, or any other boy scout paraphernalia; or to use, apply, feature
or portray said badges, uniforms, insignia or scouting paraphernalia or
the photos or visuals of a boy scout or boy scouts in uniform, or the logo,
seal, or corporate name of the Boy Scouts of the Philippines, in any print
ad, radio or television commercial, billboard, collateral material or any
form of advertisement; or to use the name of the Boy Scouts of the
Philippines for any illegal purpose or personal gain. Any violation of any
of the provisions of Section 7 and of this section shall be punished by
prision correccional in its medium period to prision mayor in its
minimum period or a fine of not less than Ten thousand pesos
(P10,000.00) nor more than One hundred thousand pesos (P100,000.00),
or both, at the discretion of the court: Provided, That, in case of
corporations, partnerships, associations, societies or companies, the
manager, administra-

227

VOL. 651, JUNE 7, 2011 227

Boy Scouts of the Philippines vs. Commission on Audit

and thus, do not violate the prohibition under Section 16,

Article XII of the Constitution. Moreover, Section 5 of RA
7278, amending Commonwealth Act No. 111, provides for a
separability clause.67
In sum, the BSP is a private corporation beyond the
audit jurisdiction of the COA. Accordingly, the specific
provisions in the BSP charter creating the BSP as a private
corporation are void. Considering the Constitutional
infirmity of its creation, BSPÊs recourse is either to
incorporate under the Corporation Code of the Philippines
or to exist as an unincorporated association.
ACCORDINGLY, I vote to GRANT the petition. The Boy
Scouts of the Philippines is a private corporation beyond
the audit jurisdiction of the Commission on Audit. Sections
1, 2, 3, 5, 6, 7, 9, and 11 of Commonwealth Act No. 111, as
amended by Presidential Decree No. 460 and Republic Act
No. 7278, are void for being violative of the prohibition in
Section 16, Article XII of the Constitution.

Petition dismissed.

Note.·The Commission on Audit (COA) is endowed

with enough latitude to determine, prevent and disallow
irregular, unnecessary, excessive, extravagant or
unconscionable expenditures of government funds.
(Sanchez vs. Commission on Audit, 552 SCRA 471 [2008])
··o0o··

_______________

tor or the person in charge of the management or administration of the

business shall be criminally responsible for any such violation. These
penalties shall be without prejudice to the proper civil action for recovery
of civil damages, which may be instituted together with or independently
of the criminal prosecution.

67 Section 5. If any section or provision of this Act is held invalid, all

the other provisions not affected thereby shall remain valid.

© Copyright 2020 Central Book Supply, Inc. All rights reserved.