G.R. No. L-24663. March 31, 1971
SPOUSES RAMON A. GONZALES AND LILIA YUSAY, PLAINTIFFS-APPELLANTS, VS. PROVINCE OF ILOILO, DEFENDANT APPELLEE.
TEEHANKEE, J.:
Direct appeal on pure questions of law from an order of the Court
of First Instance of Iloilo dismissing for lack of jurisdiction
plaintiffs-appellants’ complaint questioning the legality of the increased
assessment on their real estate and seeking the refund of the 100% increase in
real estate taxes paid by them under protest.
The background facts are thus narrated in the lower court’s
dismissal order: “Plaintiffs,
spouses Ramon A. Gonzales and Lilia Yusay filed a
complaint against the Province of Iloilo asking for a refund of taxes on real
property they paid under protest for Lots Nos. 5733, 5886, 5666, 5913, 5669,
5735 of Pototan Cadastre located in the Municipality
of Pototan, Province of Iloilo, and Lot No. 708,
Dingle, Province of Iloilo, corresponding to the years 1963 and 1964. The refund of said taxes is based on the
ground that the revised assessment on the property in the Municipalities of Pototan
and Dingle, was null and void for it violates ‘the constitutional injunction of
equality and uniformity of taxes and equal protection of the law because, while
the twenty-one (21) municipalities of Iloilo Province including the Municipalities
of Pototan and Dingle, where the plaintiffs’ property
is located, were reassessed, twenty-two (22) other municipalities of the same
province were not reassessed.
“That with reference to Lot No. 708 located at Dingle, which
the plaintiffs acquired through a contract of conditional sale executed on
April 28, 1961, from the Development Bank of the Philippines payable in ten
(10) years, the plaintiffs are not liable for the taxes of said lot which they
paid under protest for the years 1962 and 1963 inclusive, because under the law
creating the Development Bank of the Philippines, said DBP is exempted from
realty taxes and as such, the plaintiffs are not liable to pay land taxes due
the government while the said property is owned by the DBP.
“The refund prayed for by the plaintiffs represent the excess
of taxes paid or the differential in the 1963-1964 taxes from the taxes of said
property in 1962 as the revision and reassessment of said property took effect
on Jan. 1, 1963. For the lots in Pototan,
plaintiffs asked for a refund of P637.80 while for the lot in Dingle,
plaintiffs asked a refund of the whole taxes for 1962-1963, in the amount of
P988.09 and the differential for 1964 tax of P299.50 or a total of P1,289.59
for the Dingle property alone or a grand total of P1,925.39 for the total of
the seven lots in Pototan and Dingle plus the legal
rate of interest from the filing of this complaint and costs of action.
“To plaintiffs’ complaint, defendant filed a corresponding
answer upholding the validity of the reassessment on the two municipalities of
Pototan and Dingle and as such the plaintiffs are not
entitled to the refund prayed for in their complaint; and with regards to real
property tax paid by the plaintiffs for the years 1962-1963 of the property in
Dingle which the plaintiffs acquired from the DBP in 1961, the plaintiffs are
not entitled to the refund of said taxes because the payment of said tax is
part of the consideration of the sale executed by and between the plaintiffs
and the Development Bank of the Philippines, x x x
“Defendant further alleges that this Court has no jurisdiction
to the plaintiffs’ complaint as the refund prayed for by the plaintiffs would
involve a declaration of the legality of the assessment which can only be
passed upon the Court of Tax Appeals pursuant to Sec. 7 of Republic Act No.
1125. This is aside from the fact that
from the pleadings we find that the
plaintiffs have already filed an appeal to the Court of Tax Appeal involving
the legality of the assessment involved in the present case.”
Since the issue of the lower court’s lack of jurisdiction over
the case as a court of first instance as against the exclusive appellate
jurisdiction on the part of the court of tax appeals to review the challenged
assessment had been squarely joined in connection with plaintiffs’ motion for summary
judgment, the lower court issued its order of March 1, 1965, dismissing the
complaint before it and ruling
that the court of tax appeals, before whom plaintiffs had a pending appeal
likewise challenging the legality and validity of the assessment in question,
had exclusive appellate jurisdiction over the question, as follows: “To our way of thinking, though the action is for
refund of taxes, yet the main question is the legality or illegality of the assessment
involved. Paragraph 3 of Sec. 7 of Rep. Act
1125 above-cited speaks clearly the intention of Congress to give to the Court
of Tax Appeals the exclusive appellate jurisdiction to determine the legality
of any assessment on real property arising under Assessment Law, otherwise known
as Commonwealth Act No. 470 as amended before whose Court the validity of said
assessment is at the present pending appeal as admitted by the plaintiffs. The plaintiff is now riding, figuratively
speaking, on two horses, this Court and the Court of Tax Appeals. The two laws, the Judiciary Act pursuant to Sec. 44 (b)[1] and Republic Act 1125, Sec. 7(3),[2] both give jurisdiction to both the Courts
of First
Instance and the Court of Tax Appeals to decide on cases involving the
legality of any tax or assessment involved.
But while the Judiciary Act gives jurisdiction to Courts of First
Instance to decide on the legality of any tax or assessment involved in a
general way, Rep. Act 1125 which is a later Act than the Judiciary Act of 1948,
provides for the specific kind of tax or assessment the Court of Tax Appeals
can pass upon and among those specific taxes or assessment, is the assessment
or taxation of real property or other matters arising under the Assessment Law,
like the case at bar.”
The lower court, citing the cases of Ollada
vs. Court of Tax Appeals[3] and City of Cabanatuan
vs. Hon. Magno L. Gatmaitan,[4]
went onto “hold that the action involving the legality of the assessment
which is now before this Court and the Court of Tax Appeals should be decided
by that Court, though the question of refund over which the Court of Tax
Appeals has no jurisdiction, can be subsequently brought to the court having
jurisdiction over the amount involved which in this case would fall under the
Municipal Court of the municipality where payments were made.”
Plaintiffs therefore filed this appeal, contending quite
plausibly on the strength of the ruling Cabanatuan
that since they were constrained to pay the increased real estate taxes under
protest, their action for refund had properly been instituted in the lower court,
notwithstanding the pendency of their appeal to the
tax court challenging the validity of the increased assessment, since the tax
court had been held in Cabanatuan to have no
jurisdiction over the refund of a real estate tax in appeals from an assessment
appeals board ‘for the jurisdiction of that body. It is not extended to requiring the refund of
the tax.”
The ruling in Cabanatuan,
however, is actually in conflict with prior and subsequent decisions of this
Court in Bislig Bay Lumber Co., Inc. vs. Prov. Gov’t. of Surigao,[5]
Prov. Treasurer of Negros
Occ. vs. Azcona[6], Francisco vs. City of Davao,[7]
and Victorias Milling Co Inc. vs. Court of
Tax Appeals[8]
to the effect that disputed assessments over real estate of the provincial or
city assessor must under the Assessment Law (Commonwealth Act 470) be appealed
within the statutory period, infra, to the corresponding provincial or
city Board of Assessment Appeals and the tax court has exclusive appellate
jurisdiction to review the decisions of such boards and to order the refund
of the real estate taxes paid if it upholds the appeal, subject only to this Court’s power of review
by certiorari.[9] The tax court’s
authority to order the refund of real estate taxes paid under a disputed
assessment was implicitly upheld in these four cases decided by the
Court during the period from 1956 to 1968, but the explicit
pronouncement to the contrary in the 1963 case of Cabanatuan cast a cloud of
uncertainty over the matter.
The case at bar,
therefore, affords the Court with an opportunity to clarify definitely, in
line with Bislig, Azcona,
Francisco and Victorias that actions
for refund of real estate taxes paid under a disputed assessment pertain to the
exclusive appellate jurisdiction of the court of tax appeals and are beyond
the jurisdiction of the courts of first instance.
1. A brief review of the existing laws and procedures concerning
the assessment and taxation of real property will readily show the primacy
of the tax court’s special jurisdiction over actions for refund of real estate
taxes paid under a disputed assessment;
Under the Assessment Law, the assessment of all real property
within the province or city, i.e. the listing and valuation of real property
for purposes of taxation, is made by the provincial or city assessor.
When a valuation is placed on property newly declared or when a
value greater than that stated in the declaration required of the owner (under
section 1 of Commonwealth Act 530), or where an existing assessment is
increased to an amount in excess of that so stated, the assessor must
immediately give written notice of such assessment or increased assessment to
the owner.[10]
A property owner not satisfied with the assessment must within
sixty days from receipt of the written notice of assessment in the case of
provinces and within the period for appeals stated in the charters in the case
of cities, appeal to the corresponding board of assessment appeals, by filing a petition stating the grounds of
his appeal.[11]
If no appeal to the Board of Assessment Appeals is made by the
property owner within the statutory period, the assessment becomes final and unappealable.
The owner cannot go to court to question any error in the assessment and
to seek refund of the realty taxes paid, since as held in Victorias
Milling Co., Inc. vs. Court of Tax Appeals,[12]
“(B)y the doctrine of the primacy of administrative remedy, the
Provincial Board of Assessment Appeals had jurisdiction over the dispute to the exclusion of the Court of First Instance;” and the party’s resort to the court
of first instance instead of appealing to the Board of Assessment Appeals was
held fatal to its claim for refund.
If
the property owner has, however, timely appealed to the Board of Assessment
Appeals and is not satisfied with its decision, he may within thirty days from
receipt of the decision file an appeal[13] to the Court of
Tax Appeals, which under section 7 (3) of Republic Act 1125, is vested with exclusive appellate
jurisdiction to review “decisions of provincial or city Boards of Assessment Appeals in cases
involving the assessment and taxation of real property or other
matters arising under the Assessment Law, including rules and regulations
relative thereto.” The tax court’s decision is reviewable
only upon certiorari by this Court, upon petition filed at the instance
of either party.[14]
2. This special and exclusive appellate jurisdiction of the tax
court prevails to the exclusion of the courts of first instance whenever any
real estate assessment is disputed, regardless of whether or not the
corresponding real estate tax has been paid and a refund thereof is sought by
the taxpayer.
In Ollada,[15]
decided by the Court after the creation of the Court of Tax Appeals upon the
enactment on July 16, 1954 of Republic Act 1125, the Court noted that “the
primordial purpose behind the approval of said Act by Congress is to give to the
Court of Tax Appeals exclusive appellate jurisdiction ‘over all tax, customs
and real estate assessment cases throughout the Philippines and to hear and decide them
as soon as possible.'” We stressed therein that the case must involve an
“assessment or refund of any tax, fee or penalty” in order to
pertain to the tax court’s special jurisdiction.[16]
In Bislig,[17]
involving a disputed land tax assessment of P595.92 on the public road built
within Bislig’s concession, paid by it under protest
and refund of which was sought by it in the court of first instance, the
Court held that the case came under the tax court’s exclusive and special
jurisdiction, but nevertheless deemed it “more expedition” to resolve
it on the merits on appeal (instead of ordering its remand to the tax court) and to
affirm the judgment ordering refund, since the tax imposed on the public road
built by Bislig was clearly improper, as decided by
the court of first instance. This early
1956 case was an action for refund of real estate tax paid under a
disputed assessment already filed and pending with the court of first instance
at the time of the enactment on June 16, 1954 of Republic Act 1125 creating the
tax court, and the Court held that it should have been properly certified and remanded
to the tax court “for final disposition thereof” as ordained
by Section 22 of said Act, thus:
‘It is true that under section 22 of said Act the only cases that
are required to be certified and remanded to the Court of Tax Appeals which
upon its approval are pending determination before a court of first instance
are apparently confined to those involving disputed assessment of internal
revenue taxes or custom duties, and the present case admittedly refers to an
assessment of land tax, but it does not mean that because of the apparent omission
or oversight the instant case should not be remanded to the Court of Tax
Appeals, for in interpreting the context of the section above adverted to we
should not ignore section 7 of the same act which defines the extent and scope
of the jurisdiction of said court. As
we have held in a recent case, ‘section 22 of Republic Act No. 1125 should be
interpreted in such a manner as to make it harmonize with section 7 of the
same Act and that the primordial purpose behind the approval of said Act by
Congress is to give to the Court of Tax Appeals exclusive appellate
jurisdiction ‘over all tax, customs, and real estate assessment cases
throughout the Philippines and to hear and decide them as soon as possible”
(Ollada vs. The Court of Tax Appeals, 99 Phil.,
604). Considering this interpretation of
the law, it logically follows that the lower court did not act properly in
denying the motion to remand the instant case to the Court of Tax
Appeals.”
In Francisco[18]
a 1964 case decided after Cabanatuan,
involved an action for refund of a protested land tax under a disputed
assessment filed by the taxpayer with the court of first instance in May, 1955
(when the tax court was already functioning), while her appeal from the
disputed assessment was still
pending with the appeals assessment board.
The Court, through the now Chief Justice, similarly upheld the court of first
instance’s judgment of refund of the excessive land tax assessed, to serve “the ends of justice” since the case
had already lasted nine years and “the assessment complained of is manifestly violative
of the clear and express provisions of the law,”[19] but specifically
pointed out that the taxpayer’s claim for refund pertained to the tax
court’s exclusive and special jurisdiction:
“We have not overlooked the fact that, it would have been
better had plaintiffs pursued their claim pursuant to Republic Act No. 1125, by
waiting for the decision of the City Board of Assessment Appeals, and/or taking
up the matter with the Court of Tax Appeals, to seek, thereafter, if necessary,
the intervention of this Court, instead of instituting this case in the Court
of First Instance of Davao. We note, however, that the defendants had advanced
this view in a motion to dismiss by them filed with the lower court (pp. 7-8 Record on Appeal), and that
the same denied the motion (pp. 18-21,
Record on Appeal), and, consequently decided the case on the merits (pp. 25-29, Record on Appeal). The ends of justice would not be served,
if we now dismiss the case — over nine (9) years after it had been initiated -and
bade the plaintiffs to start all over again, following the procedure that the
defendants had asked the lower court, but which the latter refused, to require. At any rate, since the legal question raised
in the pleadings has reached this Court, and the assessment complained of is
manifestly violative of the clear and express
provision of the law, it is best that we decide said question, instead of
further deferring its resolution.” (emphasis furnished)
In the 1962 case of Azcona,[20]
precursor case of Victorias,[21]
the Court took a firm stand in the absence of the special consideration that
moved it in Bislig and Francisco, and voided
on certiorari proceedings the refund judgment of the court of first
instance and stopped the sheriff from enforcing the writ issued by the
court of first instance for execution of its final judgment for refund
of realty taxes paid by Victorias Milling Co., Inc. to
the province of Negros Occidental. We declared that the denial by said Court of
the motion challenging its jurisdiction and its “open disregard” of
its duty to certify and remand, under section 22 of Republic Act 1125, the pending
case before it involving disputed assessments of real property taxes and
refund thereof, to the then newly created Court of Tax Appeals, “rendered null and
void” its decision, handed down eighteen months after the creation of the
tax court. The tax case for refund
was thereupon ordered remanded to the tax court for proper proceedings and
decision.
In
the sequel case of Victorias, decided in 1968,
the tax court, acting upon the refund case as thus remanded to it, had
found that the disputed assessments on Victorias
Milling’s machineries were erroneously based on the ‘fixed percentage of
diminishing book value method” instead of the “straight-line
method” as directed in the finance secretary’s circular issued under the
Assessment Law and which was more favorable to the property owner, but ordered
the dismissal of the case for failure of the taxpayer to prosecute its appeal
administratively first in the Provincial Board of Assessment Appeals before
resorting to judicial action. The
Court affirmed the tax court’s dismissal of the refund claim, and held
that the assessment, erroneous though it may have been, had become final and unappealable by virtue of the taxpayer’s failure to timely
question on appeal the assessment before the Appeals Assessment Board, thereby
forfeiting its right of recourse to the tax court.[22]
3. The Court, therefore, holds that the proper criterion for
determining whether an action for refund of real estate taxes paid should be
pursued before the tax court or the competent court of first instance as the court
of proper jurisdiction is whether the action for refund is based and dependent
on the outcome of a disputed assessment.
Where the right to a refund is necessarily dependent upon and a mere
incident of the action contesting the decision upholding the real estate
tax assessment, the case falls within the exclusive and special jurisdiction of
the tax court, as in the case at bar.
Here, plaintiffs concededly questioned the legality and validity
of the increased assessment against the real properties on the ground that it
violated the uniformity of taxation and equal protection clauses of the
Constitution and with respect to a certain lot at Dingle, which they had merely
conditionally purchased from the Development Bank of the Philippines, that the
institution’s exemption from realty taxes inured to their benefit, and
therefore filed their appeal before the tax court, after being turned down by
the appeals assessment board. The mere
fact that they paid the realty taxes under protest during the pendency of their appeal before the tax court did not
entitle them to file a separate and independent action for refund before the
court a quo nor did it confer upon said court jurisdiction to act
upon their complaint for refund.
It is self-evident that their action in the lower court for
refund of the realty taxes cannot be divorced from the action contesting the
real estate tax assessment. In both
actions, the essential and ultimate question for resolution is whether or not
the assessment is erroneous or unlawful, as contended by them. The power and authority to determine such
question falls within the exclusive and special jurisdiction of the tax court,
and the resolution of this question would necessarily determine the merits of
the action in the lower court for refund itself. Their separate action for refund of the
realty taxes is necessarily dependent upon and merely incidental to the outcome
of their pending appeal in the tax court.
The special jurisdiction of the tax court over the correctness and
validity of the assessment would unavoidably include with it all incidental
matters connected thereto, more specifically, the refund of the taxes paid
by them, if they were to be upheld in their appeal.
The court has consistently held that a contrary rule, which would
uphold plaintiffs-appellants’ stand “would result in a
‘split-jurisdiction’, which is not favored, and in multiplicity of suits, a
situation obnoxious to the orderly administration of justice.”[23]
A confused situation that would permit two courts of coordinate ranks, –
whether they be of equal jurisdiction, much less when one is of general
jurisdiction and the other is a collegiate court of special jurisdiction – to
take cognizance separately of the same question of legality of an assessment
and right to refund of the realty taxes paid and to hand down possibly two
conflicting and irreconcilable decisions, has never been favored by the Court,
for being inimical to the orderly
processes of justice.[24]
Again, for the same reason that the resolution of the claim for
refund would depend entirely upon the determination of the basic question of
correctness and validity of the assessment, and jurisdiction to decide this
question is lodged exclusively within the special jurisdiction of the tax
court, any resolution by the lower court of the question of refund – which
would necessarily call for and involve a resolution of the basic question of
correctness and validity of the assessment itself – would tend to encroach
upon, and render futile, the jurisdiction of the tax court conferred by section
7-(3) of Republic Act 1125. Thus in the
analogous case of Pacis vs. Averia,[25]
the Court held that courts of first instance have no jurisdiction to issue writs
of replevin for personal property which is the
subject of forfeiture proceedings in the Bureau of Customs, since the exercise of such general
jurisdiction “tends to encroach upon and to render futile the jurisdiction
of the Collector of Customs in seizure and forfeiture proceedings” as well
as the exclusive appellate jurisdiction of the tax court to review in due
course the Commissioner’s decision on the collector’s action.
Plaintiffs-appellants in their reply brief have informed the
Court that their pending case in the tax court[26]
was dismissed by the tax court in its resolution of October 22, 1965 for nonappearance
and failure to prosecute on their part, and now contend that there is no more
basis for the lower court’s ruling that the main question of legality of the
reassessment or increased assessment pertains to the exclusive jurisdiction of
the tax court in said case, implying that the lower court may now alone rule on
their claim for refund. Contrary to plaintiffs’
impression, however, the dismissal of their case disputing the assessment
before the tax court as the court of exclusive jurisdiction has now made the
assessment final and conclusive, and bars them from seeking the refund of the
taxes paid.[27]
4. After reexamination and thorough analysis and consideration
of the law and precedents on the question, the Court therefore states, for the
guidance of bench and bar, that the Court of Tax Appeals, to the exclusion of
the courts of first instance, has special and exclusive appellate jurisdiction
over all cases where a real estate assessment is disputed as unjust, erroneous and
improper, illegal or void, or excessive or unreasonable,[28] after recourse to
the corresponding board of assessment appeals has failed, and even though the
disputed real estate tax has been paid.
This restatement of doctrine overrules the holding in Cabanatuan that a taxpayer who is pressed for payment of a real estate tax under a disputed assessment
upon pain of forfeiture of its properties and pays the tax under protest, may
forego the administrative remedy of appeal to the assessment appeals board and
eventual appeal to the tax court, and instead directly bring an action for
refund in the court of first instance on the premise – which the Court now
expressly rejects – that “if the real estate tax has already been paid it
is futile for a taxpayer to take the matter to the City Board of Assessment
Appeals for the jurisdiction of that body is merely confined to the
determination of the reasonableness of the assessment or taxation of the
property and is not extended to the authority of requiring the refund of the tax unlike cases involving assessment
of internal revenue taxes.”[29]
In
upholding the contrary precedents of Azcona,[30] Victorias and the other precedents above discussed,
the Court, aside from the considerations discussed in the preceding paragraph,
has been guided by the considerations that to require a piece-meal resort to
the tax court for a resolution of the issue only of the correctness and
validity or legality of the disputed assessment and another piecemeal resort
to the court of first instance for an award of the resulting refund,
predicated upon the same issue, would sanction a procedure gravely detrimental
to the orderly administration of justice with unnecessary waste and duplication
of time, effort and expense, as well as render nugatory the primordial purpose
of the creation and grant of exclusive and special jurisdiction to the tax
court of providing a vehicle for “the expeditious determination of disputed
tax assessments” both in the interest of “prompt collection of
taxes” as well as of “the taxpayer and businessman (who) is as much
interested as the Collector in the early and final determination of his
assessment.”[31]
5. The tentative test for determining the proper court of
jurisdiction essayed in Victorias
must be accordingly modified. The test
therein stated was that “where an assessment is illegal and void, the
remedy of a taxpayer, who has already paid the realty tax under protest, is to
sue for refund in the competent court of first instance. On the other hand, where the assessment is
merely erroneous, his recourse is to file an appeal in the Provincial Board of
Assessment Appeals within 60 days from receipt of the assessment,” adding
the distinction that “(A)n assessment is illegal and void when the
assessor has no power to act at all. It
is erroneous when the assessor has the power but errs in the exercise of that
power.” It is difficult to find adequate support for this tentative test
between illegality and error of the assessment in Section 7 of Republic Act
1125 which confers exclusive appellate jurisdiction upon the tax court to
review, without distinction, “decisions of provincial or city boards of
assessment appeals in cases involving the assessment and taxation of real
property or other matters arising under the Assessment Law, including rules
and regulations relative thereto.” Furthermore, this test could not be
applied with practicality, since the property owner, in choosing the forum, would
have to anticipate as to what would ultimately be ruled by the courts as to
whether the assessment is illegal and void for lack of power on the part of the
assessor or whether the assessor merely erred in exercising his power, besides
the fact that an assessment is disputed many times for being both “illegal
and void” as well as “erroneous,” as in the case at bar.
6. The Court has therefore adopted the more simple test that where
an assessment is disputed for whatever ground or reason, be it that the assessment
is unjust, erroneous or improper, illegal or void, or excessive or unreasonable,
the action challenging the assessment, after first exhausting the
administrative remedy of appeal to the assessment appeals board, and regardless
of whether the corresponding real estate tax has been paid and a refund sought,
pertains to the exclusive and special jurisdiction of the tax court to the
exclusion of the courts of first instance.
Thus, in the recently decided case of Board of Assessment Appeals of Zamboanga del Sur vs. Samar Mining Co. and Court of Tax Appeals,[32]
the Court upheld the jurisdiction of the tax court to rule upon the legality
and validity of the disputed real estate assessment, rejecting the contention therein that the property owner
should first pay the questioned realty tax before lodging an appeal from the
assessment appeals board’s adverse decision to the tax court.
Where the realty assessment alone is disputed, since the tax has
not yet been paid, the tax court in its decision would rule upon the
correctness and validity of the assessment.
Where the tax has in addition already been paid and a refund thereof is
sought, the tax court, if it rules against the correctness and validity
of the assessment, would in addition order the refund of the tax paid by the
property owner.[33]
ACCORDINGLY, the order of dismissal appealed from is
hereby affirmed for the considerations and reasons above stated. Without pronouncement as to costs.
Concepcion, C.J., Reyes, Dizon, Makalintal, Zaldivar, Ruiz Castro, Fernando, Barredo,
Villamor, and Makasiar, JJ., concur.
[1] “SEC. 44. Original jurisdiction. – Courts of First Instance shall have original jurisdiction:
x x
x x
(b) In all civil actions which involve the title to or
possession of real property, or any interest therein, or the legality of any
tax, impost or assessment, except actions of forcible entry into and detainer or lands or
buildings, original jurisdiction of which is conferred by this Act upon city
and municipal courts;” (Republic Act 296 as amended).
[2] “SEC. 7.
Jurisdiction. – The Court of Tax
Appeals shall exercise exclusive jurisdiction to review by appeal, as herein
provided:
‘x x x x
‘3. Decisions of provincial or City Board of Assessment Appeals in cases involving the
assessment and taxation of real property or other matters arising under the
Assessments Law, including rules and regulations relative thereto.'” (Republic Act 1125).
[3] 99 Phil. 604
(1956).
[4]
7 SCRA 426 (Feb.
28, 1963).
[5]
100 Phil. 303 (Nov.
13, 1956).
[6]
5 SCRA 634 (July
30, 1962).
[7]
12 SCRA 628 (Dec. 24, 1964).
[8]
22 SCRA 1008 (Mar. 13, 1968).
[9]
Section 19,
Rep. Act 1125.
[10]
Assessment
Law (Com. Act 470), sec. 16.
[11]
Idem, sec.
17.
[12]
22 SCRA 1008
(March 13, 1968).
[13]
Appeal may likewise be taken by the city of municipality adversely affected by
the Board’s decision. City of Manila
vs. Board of Assessment Appeals, 10 SCRA 767 (April 30, 1964).
[14]
Rep. Act 1125, sec. 19.
[15]
See fn. 3.
[16]
See Ledesma vs. CTA, 102 Phil.
931 (Jan. 29, 1958).
[17]
See fn. 5.
[18]
See fn. 7.
[19]
Sec. 115 of
Com. Act 141 fixing real estate taxes on public lands granted by the State
“on the basis of the value fixed in the contract” granting the land.
[20]
See fn. 6.
[21]
See fn. 12.
[22]
Failure likewise to timely appeal to the tax court from decisions on disputed
assessments of the tax and customs commissioners make the decisions final and executory, and the taxpayer is barred from suing under sec.
306 of the tax code for refund of the taxes paid and questioning anew the
final assessments, under the principle of res judicata. See
Commissioner of Int. Rev. vs. Concepcion, 22
SCRA 1058 (March 15, 1968); Republic vs. Ledesma,
19 SCRA 455 (Feb. 28, 1967); Filipinas Investment & Finance Corp. vs.
Commissioner of Int. Rev., 20 SCRA 50 (May 16, 1967) and Auyong
Hian vs. Commissioner of Int. Rev., 21 SCRA
749 (Oct. 31, 1967); Auyong Hian
vs. CTA, 19 SCRA 10 (1967); Com. of Customs vs. Cloribel, 19 SCRA 234 (1967); Acting Collector of Customs vs.
Caluag, 20 SCRA 208 (1967).
[23]
Republic vs. Central Surety
& Ins. Co., 25 SCRA, 641 (Oct. 26, 1968). See Talisay-Silay
Milling Co. vs. CIR, 18 SCRA 894 (Nov. 29, 1966) and Rheem of the Philippines, Inc. vs. Ferrer, 19 SCRA 130 (Jan.
27, 1967).
[24]
See De Leon vs. Salvador and Bernabe vs. Cruz, 36 SCRA 567 (Dec. 28, 1970) and
cases cited.
[25]
18 SCRA 907 (Nov.
29, 1966). See also Com. of Customs vs. Cloribel, 19 SCRA 234 (Jan. 31, 1967).
[26]
CTA Case No. 1525, entitled
“Gonzales vs. Board of Assessment Appeals.”
[27]
Victorias, cited in paragraphs 1 and 2, supra.
[28]
Sec. 19 of Com. Act 470, as amended, provides:
“The Board of Assessment Appeals shall have the power to review, on
its own motion, assessments found to be unjust, erroneous or unlawful or
not in accordance with the provisions of section 4 of this Act,
(referring to valuation and assessment of realty at its “true and full
value) and any reassessment then made shall be appealable
to the Court of Tax Appeals as provided in the preceding section.”
(Emphasis and notes in parenthesis supplied).
[29]
7 SCRA 426,
430.
[30]
5 SCRA 634. In this case the Court
rejected the contention that an original action for refund under a disputed
assessment “should not be remanded to the Court of Tax Appeals because
it does not involve an appeal from the decision of a Board of Assessment
Appeals upon the theory that said Court is merely given appellate jurisdiction to
review by appeal, while the present case is an original action instituted to
test the legality of an assessment on the strength of our ruling in the case of
Roxas v. Rafferty, 37 Phil. 957, the reason therefor being that the oft-repeated Section 22 refers to all
cases involving disputed assessments
without distinction.“
[31]
Ledesma vs. CTA, 102 Phil. 931, 935-936.
[32]
L-28034, Feb. 27, 1971. The
dictum in this case citing Cabanatuan‘s ruling that the tax court’s jurisdiction is confined to the
“reasonableness or legality” of the disputed assessment is of course
modified and clarified by the present decision.
[33]
With the criterion and test of jurisdiction given in this decision, the writer
of the opinion believes that there would be hardly any case for refund of realty taxes that may hereafter be filed with the courts of first
instance as ordinary actions for recovery of a sum of money due to the
property owner, since such refund cases invariably are essentially linked to a
disputed assessment or are brought to avoid and defeat the assessment itself
and would therefore pertain to the tax court’s exclusive and special jurisdiction
after proper recourse to the assessment appeals board. It would be quaere
if a case such as NWSA vs. Quezon City, 23
SCRA 286 (1968) where NWSA filed an action in the court of first instance for recovery of
realty taxes totalling P984,494.51 from 1951 to 1962
“innocently paid (by it) despite its exemption, believing it was not
exempt” and was awarded a judgment of P55,160.15 representing the recovery
of only the 1961 realty tax duly paid under protest, (those paid for the other
years having been held to have prescribed after six years or to be
non-recoverable for lack of protest) would proper now. The action was filed after it had been held
in an earlier case properly instituted with the tax court, Board of
Assessment Appeals of Laguna vs. CTA and NWSA, 8 SCRA 225 (1963)
that NWSA properties were exempt by law from realty taxes, and hence, the
refund action was treated as a simple suit in the court of first instance for
recovery of sums of money representing the realty taxes ‘innocently paid”
on exempt properties and
apparently involving no disputed assessment.
On the other hand, the questions of NWSA’s
failure to appeal the assessment to the appeals assessment board within the statutory
period and consequent forfeiture of any right to claim refund, under Victorias, and as to whether the court of first
instance as against the tax court had jurisdiction to take cognizance of the
case, were not raised at all therein.