HPO42- is considered a base. This is because it can accept a proton (H+) to form H2PO4–, which is its conjugate acid.
In the context of the Brønsted-Lowry acid-base theory, an acid is defined as a proton donor and a base as a proton acceptor. Since HPO42- can accept a proton, it fits the definition of a base. When it reacts with an acid (such as HCl), it can take up a proton to yield H2PO4–:
HPO42- + H+ → H2PO4–
Thus, HPO42- is classified as a base, and its conjugate acid is H2PO4–.