EIGHTEENTH CONGRESS OF THE 
REPUBLIC OF THE PHILIPPINES
First Regular Session
SENATE
s. B. NO. 
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T9 JULll All 27
RECEIVED l:
Introduced by SENATOR JOEL VILLANUEVA
AN ACT
ESTABLISHING THE PAGKAIN PARA SA LAHAT PROGRAM, 
AND FOR OTHER PURPOSES
EXPLANATORY NOTE
According to the Global Hunger Index, 20% of the Philippine population 
is underweight and 32% has stunted growth, even while there has been an 
exponential growth in the number of food establishments operating in the 
country. In 2018 alone, it is reported that more than 2,000 food 
establishments have opened up. 
In Bonifacio Global City alone, there are 
already 889 operating food establishments.
Unfortunately, the growing number of restaurants also contributed to 
the amount of food wasted in the country. According to a report by the Asia 
Pacific Economic Cooperation or APEC, about 33% of food produced in the 
country goes to waste.
These figures tell us of the disturbing irony in the food market. On the 
one hand, the country is facing a crisis in malnourishment and hunger, but on 
the other, there is a boom in the culinary market. This picture is even made 
more appalling by the fact that a significant number of food produced does not 
go to the tables of the people who need it the most and simply ends up in the 
landfill.
Indeed, the stark contrast between those who have access to food and 
those who have not is an inescapable reality which needs to be remedied in 
the soonest possible time.
To address this gap in food production and hunger and food waste in 
the country, this bill seeks to establish a Pagkain Para sa Lahat Program,


which ensures that food surplus of all food-related businesses is channeled 
and distributed to food banks and soup kitchens established and/or accredited 
in accordance with this Act. In turn, the food banks and soup kitchens store 
and utilize the food surplus for distribution and/or preparation to citizens who 
need food the most.
This bill also empowers local government units to establish their own 
food bank and/or soup kitchens to ensure that all Filipinos in every LGU have 
access to quality food.
All food-related businesses and other partners who participate in the 
Program can claim the full amount of their donation as a deduction to their 
gross income. All donations made are also not subject to donor’s tax. In 
addition, the Department of Social Welfare and Development must establish 
an incentive system to recognize the best practices of all partners in the 
implementation of the Program.
The immediate passage of this bill is earnestly sought.
SENATOR J/OEL VILLANUEVA


EIGHTEENTH CONGRESS OF THE 
REPUBLIC OF THE PHILIPPINES
First Regular Session
SENATE
S. B. NO. 344
i.Oifirr pt l i : c i r ;  r. w
T9 
JULll AH 27
RECt
Introduced by SENATOR JOEL VILLANUEVA
AN ACT
ESTABLISHING THE PAGKAIN PARA SA LAHAT PROGRAM, 
AND FOR OTHER PURPOSES
Be it enacted by the Senate and House of Representatives of the Philippines in 
Congress assembled:
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SECTION 1. Short Title. -  This Act shall be known as the "Pagkain Para sa 
Lahat Act."
SEC. 2. Declaration of Policy. -  It is hereby declared the policy of the State 
to safeguard food security, end hunger, and promote the efficient use of the 
country's food resources. Towards this end, the State shall adopt a system to 
promote, facilitate, and ensure that food surplus in establishments and food 
manufacturers are distributed to food banks and soup kitchens.
SEC. 3. Definition of Terms. -  As used in this Act, the following terms shall 
mean:
a) 
Food banks refer to either public, private, non-profit, charitable or other 
social mission-driven organizations that store food surplus and distribute 
it to soup kitchens or other establishments or sell it to consumers;
b) 
Food surplus refers to food inventory from food-related businesses 
which have been left unsold during the ordinary course of business, but 
still fit for consumption based on standards set by relevant laws, rules, 
and regulations;
c) 
Food-related businesses refer to public and private businesses 
involved in the manufacturing and processing of food products, private 
businesses involved in the wholesaling and retailing of food products, 
and private businesses involved in serving food products, which may


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include, but are not limited to, farms, factories, supermarkets, 
restaurants, cafeterias, and hotels;
d) 
Logistics service providers refer to persons or entities engaged in the 
transport or delivery of goods;
e) 
National Nutrition Council (Council) is the agency in-charge of 
developing an integrated national nutrition program and supervises, 
coordinates, and integrates the implementation of policies concerning 
nutrition.
f) 
Soup Kitchens refer to either public, private, non-profit, charitable or 
other social mission-driven organizations that prepare and serve food 
given by food banks or other donors.
SEC. 4. Establishment of Pagkain Para sa Lahat Program; Role of 
DSWD. -  There shall be created a Pagkain Para sa Lahat Program which 
shall ensure that food surplus of all food-related businesses shall be 
channeled and distributed to food banks and soup kitchens established and/or 
accredited in accordance with this Act.
The Department of Social Welfare and Development (DSWD) shall be the 
lead and coordinating agency for the proper implementation of the Program. 
In the performance of this function, the DSWD shall;
a) 
Provide the framework, guidelines and standards for the collection, 
storage and distribution of food surplus donated to food banks and/or 
soup kitchens.
b) 
Coordinate with local government units on the establishment of local 
food banks and/or soup kitchens;
c) 
Promote linkages between food-related businesses, food banks, and 
soup kitchens to create a community-based food distribution system; 
and
d) 
Coordinate with food-manufacturers, food banks, and other government 
agencies for the development of programs to bolster food distribution to 
beneficiaries.
SEC. 5. Accreditation and Establishment of Food Banks and Soup 
Kitchens. -  The DSWD shall establish a system of accreditation of private 
food banks and soup kitchens. The DSWD shall also ensure that at least one 
(1) food bank and soup kitchen is available in every city or municipality. In the 
absence thereof, the DSWD shall immediately inform and coordinate with the 
LGU concerned, for the establishment of a food bank and soup kitchen in 
such locality.


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To ensure that all food surplus is consumed properly and in a timely fashion, a 
food bank shall, as far as practicable, have a partner a soup kitchen. All food 
banks and soup kitchens established and/or accredited in accordance with 
this Act shall offer their products to the public without any qualification.
SEC. 6. Duties of Food-related Businesses. -  To achieve the objectives of 
this Act, all food-related businesses shall:
a) 
Determine the amount, type, and quantity of surplus food that can be 
delivered for consumption of beneficiaries of food banks and/or soup 
kitchens;
b) 
Enter into contracts or agreements with food banks and soup kitchens to 
redistribute food surplus to beneficiaries of food banks and/or soup 
kitchens;
c) 
Shoulder the costs, on its own or in partnership with a logistics service 
provider, of transporting food surplus from the business or storage site to 
the food bank or soup kitchen, or to their respective warehouse or 
distribution center; and
d) 
Ensure that the food surplus is unadulterated, fit for human consumption, 
and in good condition upon arrival at the food bank's distribution center. 
For this purpose, prior to the delivery of the food surplus to food banks 
and soup kitchens, all food-related businesses shall be tested by the 
National Nutrition Council to ensure that food surplus is fit for human 
consumption.
SEC. 7. Duties of Food Banks. -  To ensure that all food surplus given or 
donated to food banks benefit all citizens, ail food banks shall:
a) 
Submit periodic reports to the DSWD and the concerned LGU on the 
type of food donated, quantity donated, and other pertinent information 
on the distribution of food surplus in their establishments;
b) 
Ensure that all food surplus given or donated to it is fit for human 
consumption, and shall require as proof a certification from the National 
Nutrition Council for this purpose;
c) 
Establish linkages with soup kitchens;
d) 
Store food surplus for distribution to beneficiaries and partner-soup 
kitchens; and
e) 
Ensure that their facilities follow best practices and procedures on food 
storage.


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SEC. 8. Duties of Soup Kitchens. -  To ensure that all food ingredients used
by soup kitchens are fit for human consumption, soup kitchens shall:
a) 
Ensure that all food surplus given or donated to it is fit for human 
consumption, and shall require as proof a certification from the National 
Nutrition Council for this purpose; and
b) 
Prepare food surplus to cooked or processed form fit for consumption, 
and such is free from contamination.
SEC. 9. Duties of the Local Government Units. -LGUs are hereby required
to:
a) 
As far as practicable and in the absence of a food bank and/or soup 
kitchen located in their respective localities, establish local food banks 
and soup kitchens in their area;
b) 
Utilize food banks and/or soup kitchens and, if possible, merge the latter 
with its community development programs;
c) 
Provide technical, financial, and logistical support for food bank and/or 
soup kitchen operation within its territorial jurisdiction; and
d) 
Regularly inspect the establishments of food-related businesses, food 
banks and soup kitchens to ensure that the same is compliant with all 
sanitation and other related laws.
SEC. 10. Incentives for Participation. -  All donations of surplus food or 
service donated by food-related businesses or logistics service providers, 
respectively, shall be exempt from donor’s tax. In addition, the full amount of 
such surplus food and service shall be claimed as a deduction from the gross 
income of a food-related business or logistics service provider, as the case 
may be.
The DSWD, in coordination with the Department of Interior and Local 
Government and the LGUs, shall also establish a system of incentives to 
participants of the Program to recognize their best practices with regard to 
achieving the objectives of this Act, such as training packages, technical 
guidance, awards and other similar incentives.
SEC. 11. Liability. -  The certification issued by the National Nutrition Council 
shall serve as sufficient proof that the surplus food donated or distributed are 
fit for human consumption; Provided, That the distribution or preparation of 
food surplus, processed or othenwise, was done in good faith and in 
compliance with good food handling processes.
SEC. 12. Implementing Rules and Regulations. -  Within sixty (60) days 
from the effectivity of this Act, the DSWD, in coordination with the DILG, 
Department of Health (DOH), the Bureau of Internal Revenue (BIR) and other


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relevant government agencies, shall promulgate the necessary rules and 
regulations for the effective implementation of this Act.
SEC. 13. Annual Report. -  The DSWD, in coordination with the DILG, DOH 
and other relevant agencies, shall submit an annual report on the 
implementation of this Act to the President of the Philippines and both Houses 
of Congress on or before April 30 of each year.
SEC. 14. Appropriations. -  The funds needed to implement the provisions of 
this Act shall be included in the annual General Appropriations Act.
SEC. 15. Separability Clause. -  Should any provision herein be declared 
unconstitutional or invalid, the same shall not affect the validity of the other 
provisions of this Act.
SEC. 16. Repealing Clause. -  All laws, decrees, orders, rules, and 
regulations or other issuances or parts inconsistent with the provisions of this 
Act are hereby repealed or modified accordingly.
SEC. 17. Effectivity. -  This Act shall take effect fifteen (15) days after its 
publication in the Official Gazette or in any two (2) newspapers of general 
circulation in the Philippines.
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Approved,