TWENTIETH CONGRESS OF THE ) 
REPUBLIC OF THE PHILIPPINES ) 
First Regular Session 
)
25 JUL-7 PI :27
SENATE
S. No. 219
Introduced by Senator FRANCIS N. PANGILINAN
AN ACT
ESTABLISHING A FREE BREAKFAST PROGRAM FOR STUDENTS IN PUBLIC 
SCHOOLS FROM KINDER TO GRADE 12 AND DAYCARE CENTERS, 
MANDATING DIRECT PROCUREMENT OF PRODUCE FROM LOCAL FARMERS 
AND FISHERFOLK PURSUANT TO REPUBLIC ACT NO. 11321, OTHERWISE 
KNOWN AS THE ^SAGIP SAKA ACT," TO ENHANCE CHILD HEALTH, 
NUTRITION, AND FOOD SECURITY, AND FOR OTHER PURPOSES
EXPLANATORY NOTE
The future of the Philippines hinges on the health and education of its 
children. Regrettably, the current state presents a critical challenge that demands 
urgent legislative intervention. The World Food Programme (WFP) highlights that the 
Philippines is grappling with the "triple burden of malnutrition" - undernutrition, 
overnutrition, and micronutrient deficiency - a pervasive issue severely hindering 
children's ability to learn and thrive. This alarming reality directly contributes to a 
severe learning crisis where a staggering 9 out of 10 children cannot read and 
understand age-appropriate texts. At 91%, the national learning poverty rate is 
significantly higher than the East Asia and Pacific regional average of 35%.1
Further compounding this crisis, the 2022 Programme for International 
Students Assessment (PISA) revealed that Filipino students rank among the lowest 
in reading, mathematics, and science across 81 countries, indicating a development
1 World Food Programme. School Meals Programme in the Philippines. Bringing Hot, Nutritious Meals to Children.
1


lag of five to six years behind the average learner. The dismal academic 
performance is inextricably linked to the widespread problem of malnutrition,2
Recent 2023 data from the United Nations Children's Fund (UNICEF) paints an 
even more sobering picture, reporting that malnutrition tragically claims the lives of 
95 Filipino children daily, with 27 out of 1,000 children not surviving past their fifth 
birthday.3 The World Health Organization (WHO) further classified the Philippines' 
stunting prevalence in 2021 as of "very high public health significance", with one in 
four children under five years old being stunted.4 Without decisive action, the 
Philippines risks failing its 2030 Sustainable Development Goal (SDG) for nutrition, 
building on its shortfall from the 2015 Millenium Development Goal (MDG).5
Recognizing that proper nutrition is fundamental to a child's ability to learn, 
develop, and reach their full potential, and leveraging research from the World Food 
Programme (WFP) that demonstrates school meal programs significantly boost 
enrolment and attendance,6 this bill proposes a two-pronged approach to address 
these interconnected challenges.
First, the bill seeks to establish a comprehensive free breakfast program for 
all daycare to Grade 12 public school students. A dedicated nutritionist will be part of 
this program, tasked with educating students, parents, and communities on healthy 
eating practices, proper nutrition, and ensuring the consistent serving of fortified 
meals.
Second, and crucially, this initiative will foster a direct and impactful link with 
local farmers and fisherfolk. This bill mandates the direct procurement of not less
2 Hungry Children do not make good students. (Kenneth Harigan-Go, Angel Faye Castillo, et al.). Rappler. Published on January
28, 2024. Available at https://www.Dids.Qov.ph/details/news/in-the-news/hunqry-children-dp-not~m9ke-good-studQr1.ts:
nninion-Diece-hv-kenneth-hartiaan-ao-anael-fave-castillo. (Accessed on 20 June 2025).
3 Ibid.
5 Philippine Institute for Development Studies (Valerie Gilbert T. Ulep, et al.). The Determinants of the Socioeconomic 
Inequality and Trajectory of Stunting in the Philippines. Published on February 15, 2023. Available at
httng-//wwwnids.aov.nh/nuhlication/discussion-Dapers/the-determinants-of-the-socioeconQm-ic-inequality-and-the-traiectory:
of-rhild-stuntino-in-the-DhiliDPines. (Accessed on 19 June 2025) 
. j ^ , c . 
. .
6 Almost half of school children get free meals, report shows but most vulnerable still miss out amid global food crisis, world 
Food Programme. Published on March 21, 2023. Available at httDs://www.wfp.orq/news/almost-half-$chool-children-get-free: 
meals-report-shows-most-vulnerable-still-miss-out-amid. (Accessed on 19 June 2025)


than 50% of their produce, in line with the Sagip Saka Act. This integrated approach 
aims not only to combat stunting and malnutrition and significantly improve 
academic outcomes for Filipino youth but also to provide stable market access and 
enhanced incomes for local farmers and fisherfolk. By doing so, this Act 
simultaneously strengthens food security, promotes sustainable agriculture, and 
champions the holistic well-being of the Filipino youth.
The immediate passage of this vital measure is earnestly sought.
FRANCIS N^^NGILINAN
Senator


TWENTIETH CONGRESS OF THE ) 
REPUBLIC OF THE PHILIPPINES ) 
First Regular Session 
)
2b JUL -7 P1 '■21
SENATE
S. No. 219
Introduced by Senator FRANCIS N. PANGILINAN
AN ACT
ESTABLISHING A FREE BREAKFAST PROGRAM FOR STUDENTS IN PUBLIC 
SCHOOLS FROM KINDER TO GRADE 12 AND DAYCARE CENTERS, 
MANDATING DIRECT PROCUREMENT OF PRODUCE FROM LOCAL FARMERS 
AND FISHERFOLK PURSUANT TO REPUBLIC ACT NO. 11321, OTHERWISE 
KNOWN AS THE "SAGIP SAKA ACT," TO ENHANCE CHILD HEALTH, 
NUTRITION, AND FOOD SECURITY, AND FOR OTHER PURPOSES
Be enacted by the Senate and House of Representatives of the Philippines in 
Congress assembled:
1 
Section 1. Title- This Act shail be known as the "Free Breakfast Program and
2 
Sustainable Agriculture Act."
3 
Sec. 2. Declaration of Policy- It is hereby declared the policy of the State to:
4 
(a) Prioritize the health and nutritional well-being of all public school children,
5 
recognizing that proper nutrition is proper for their cognitive development,
6 
academic performance, and overall growth;
7 
(b) Address the pervasive issue of malnutrition, stunting, and learning poverty
8 
among Filipino children;
9 
(c) Strengthen the agricultural and fisheries sectors by providing stable and
10 
direct market access for local farmers and fisherfolk, thereby boosting their
11 
incomes, improving their quality of life, and contributing to national food
12 
security;
13 
(d) Promote a holistic and integrated approach to food systems, linking local
14 
production directly to consumption within communities.
15 
Sec. 3.Definition of Terms.- As used in this Act:


1 
(a) Accredited Farmers' and Fisherfolk's Cooperatives and Associations refer to
2 
organizations of farmers and fisherfolk duly registered with the Cooperative
3 
Development Authority (CDA) or other relevant government agencies, and
4 
recognized by the Department of Agriculture (DA) and the Department o
5 
Education (DepEd) for the purpose of this Act.
6 
(b) Direct Procurement refers to the direct purchase of agricultural and fishery
7 
products by the implementing agencies from accredited farmers' and
8 
fisherfolk's cooperatives 
and 
associations, bypassing intermediaries,
9 
consistent with the principles of Republic Act No. 11321, otherwise known
10 
as the "Sagip Saka Act."
11 
(c) Fortified Meais refer to meals that have been enhanced with essential
12 
vitamins and minerals to address micronutrient deficiencies, in accordance
13 
with national nutritional guidelines.
14 
(d) Locai Farmers and Fisherfolk refer to individual farmers, fisherfolk, or their
15 
duly authorized cooperatives and associations whose farms or fishing
16 
grounds are located within or in close proximity to the public schools or
17 
their respective localities.
18 
(e) Nutritionist refers to a licensed nutritionist-dietitian who is qualified to
19 
provide expertise in health and nutrition education and planning.
20 
(0 Public school children refer to all enrolled students in public daycare
21 
centers, kindergarten, elementary, junior high school, and senior high
22 
school levels, including Alternative Learning System (ALS) learners within
23 
the jurisdiction of the Department of Education (DepEd) and the
24 
Department of Social Welfare and Development (DSWD).
25 
(g) School Feeding Program or Program refers to the Free Breakfast Program
26 
established under this Act.
27 
(h) Sagip Saka /let refers to Republic Act No. 11321, which aims to promote the
28 
welfare of farmers and fisherfolk by developing their enterprises and
29 
providing direct market access.
30 
Sec. 4. Establishment of the Free Breakfast Program- There is hereby
31 
established a Free Breakfast Program for all Public School Children from Daycare to
32 
Grade 12 in all public schools nationwide. The Department of Education (DepEd), in


1 
coordination with the Department of Social Welfare and Development (DSWD) for
2 
daycare centers, shall be the primary implementing agency of this Program.
3 
Sec. 5. Program Components- The School Feeding Program shall include, but
4 
shall not be limited to the following components;
5 
(a) Provision of Nutritious and Fortified Breakfasts. - Daily nutritious and
6 
fortified breakfast meals shall be provided to all Public School Children,
7 
adhering to national dietary and nutritional guidelines set by the
8 
Department of Health (DOH) and the National Nutrition Council (NNC). The
9 
meals shall be culturally appropriate and responsive to local food
10 
preferences.
11 
(b) Direct Procurement from Local Farmers and Fisherfolk. - To ensure fresh,
\2 
quality products, support iocal economies, and implement the spirit of the
13 
Sagip Saka Act, a substantial portion, not less than fifty percent (50%) of
-[4 
the produce required for the School Feeding Program shall be directly
15 
procured from accredited Local Farmers and Fisherfolk, or their
16 
cooperatives and associations. The procurement process shall be
17 
streamlined, transparent, and shali prioritize their fair farmgate and
48 
fisherfolk prices, consistent with the provisions and intent of Republic Act
19 
No. 11321, otherwise known as the "Sagip Saka Act.";
20 
(c) Integrated Nutrition Education, Behavioral Transformation, and Social
21 
Mobilization. - The Program shall be complemented by a public health,
22 
nutrition, and values campaign. A nutritionist shall be an integral part of
23 
this complement, tasked with educating students, parents, and
24 
communities on healthy eating habits, proper nutrition, the benefits of
25 
fortified meals, and sustainable food consumption. Orientation-training on
26 
the objectives and mechanics of the Program shall be conducted among
27 
personnel of concerned National Government Agencies (NGAs) and Local
28 
Government Units (LGUs), parent volunteers and parent-teacher
29 
associations (PTAs) to generate broad support. Concerned NGAs shall also
30 
endeavor to mobilize community organizations to continue nutrition
31 
education outside of the school.


1 
(d) Monitoring and Evaluation. - A robust monitoring and evaluation system
2 
shall be established to assess the Program's impact on children's nutritional
3 
status, academic performance, school attendance, and the economic
4 
benefits of farmers and fisherfolk.
5 
(e) Capacity Building. - Capacity building programs shall be provided to
6 
accredited farmers' and fisherfolk's cooperatives and associations to ensure
7 
consistent supply of quality produce, adherence to food safety standards,
8 
and improved enterprise management.
9 
Sec. 6. Funding-The funds necessary for the implementation of this Act shall
10 
be included in the annual General Appropriations Act (GAA) under the respective
11 
budgets of the Department of Education (DepEd), Department of Social Work and
12 
Development (DSWD), and Department of Agriculture (DA). The implementing
13 
agencies are authorized to seek and receive grants, donations, and other forms of
14 
assistance from local and international sources, subject to existing government
15 
accounting and auditing rules and regulations..
16 
Sec. 7. Implementing Rules and Regulations. - Within ninety (90) days from
17 
the effectivity of this Act, the Department of Education (DepEd), in coordination with
18 
the Department of Social Welfare and Development (DSWD), Department of
19 
Agriculture (DA), Department of Interior and Local Government (DILG), the
20 
Department of Health (DOH), the National Nutrition Council (NNC), and other
21 
relevant agencies, shall jointly promulgate the necessary rules and regulations for
22 
the effective implementation of this Act.
23 
Sec. 8. Separability Clause. - If any provision of this Act is declared
24 
unconstitutional, the same shall not affect the validity and effectivity of the other
25 
provisions hereof.
26 
Sec. 9. Repealing Clause.- All laws, decrees, executive orders, proclamations, 
17 rules and regulations or parts thereof inconsistent with the provisions of this Act are
28 
hereby repeaied or modified accordingly.
29 
Sec. 10. Effectivity Clause.- This Act shall take effect fifteen (15) days after its
30 
complete publication in the Officiai Gazette or in two (2) newspapers of generai
31 
circuiation in the Philippines.
Approved,