Right of way

Can a road-right-of-way on government land — or more precisely a public road — that is part of land acquired by a property developer be closed down and the area used as site for buildings?
This was a question I threw at a municipal trial court judge and two lawyers I regularly meet for bottles of beer the other night.
Their outright answer: “NO!”
Indeed, from my own layman’s understanding. a ROW should be left open even if it was part of a bigger property that was bought by a private company.
This is particularly true when the ROW was a public road for which public funds were spent to pave the same with concrete.
I am wondering what the Housing, Land and Urban Regulatory Board (HLURB) will have to say about this.
Will it mean the developer will have to demolish the structures built on the ROW?