THIRTEENTH CONGRESS OF THE REPUBLIC 
First Regular Session 
OF THE PHILIPPINES 
E 
T E  
1 
S. No. 
-~ 
-~ 
Introduced by Senator Edgardo J. Angara 
EXPLANATORY NOTE 
The government is in a continuing quest to search for fast-approaches to 
solve problems of bureaucratic procedures. Red tape has been the focus of 
complaints of many who queue in government offices. It is not surprising 
therefore, that a number of treatises on public administration validated the 
impressions imprinted in the minds of common civilians anent the inefficiency 
plaguing the governmental workforce as well as the leadership itself, 
The problem accounts as a primary reason for the failure of bringing 
governmental effort closer to the people. And just like us, other countries are on 
the look out to experiment on innovative approaches to solve red tape. But the 
experiences of such countries as Germany, Japan, Indonesia, South Africa and 
Malaysia provide examples in addressing the said bureaucratic system through 
the ID System. In these countries, government transactions are easily facilitated 
and immediately responded to with the use of ID. 
This bill seeks to establish an effective system to curb the perennial 
problems of red tape in the bureaucracy and to simplify the process relative to 
public and private transactions of citizens. It is also aimed at preserving national 
security by institutionalizing an effective system of monitoring the movement 
and activities of citizens so that investigation and prosecution of criminal acts as 
well as civil liabilities could be more easily facilitated. 
Early approval of this bill is earnestly requested. 
ED~ARDO-J. 
ANGARA 


THIRTEENTH CONGRESS OF THE REPUBLIC 
OF THE PHILIPPINES 
First Regular Session 
~~~~~~~~~ 
Introduced by Senator Edgardo J. Angara 
AN ACT 
ESTABLISHING A NATIONAL IDENTIFICATION SYSTEM IN THE 
PHILIPPINES, CONSTITUTING FOR THE PURPOSE THE NATIONAL 
REGISTRATION 
COORDINATING 
COUNCIL, 
AND 
FOR 
OTHER 
PURPOSES 
Be it enacted by the Senate and the House of Representatives of the Philippines in Congress assembled: 
SECTION 1. Title. - This Act shall be known as "The National 
Multi-Purpose ID Card Act of2004." 
SEC. 2. Declaration of Policy. - It is hereby declared a policy of the State 
to improve and uplift public service in the country, by promoting and facilitatiqg 
legitimate transactions with Government offices as well as with private and 
business entities. For this purpose, there is a need to establish an effective 
system to curb the perennial problem of red tape in the bureaucracy and to 
simplify the processes relative to public and private transactions. 
It is likewise an imperative policy to strengthen citizenship, immigration 
and national security laws. 
The implementation of a National Identification System in this regard, 
with full protection accorded to the right to privacy of the individuals covered 
thereby, and with the full cooperation and active participation of various basic 
services and social security- providing agencies and other Government 
instrumentalities, will contribute to the attainment of the foregoing declaration of 
policy. 


efinition of Terms. - The following terms as used in this Act 
shall mean: 
a. "ID Card" - The national identification card issued by a participating 
agency in the implementation of the National Identification System, 
the features and uses of which are as indicated in this Act and as to be 
determined by the Council; provided, that the ID Card shall be used 
only by the Owner in order to avail of the services defined in this Act; 
provided, further, that the ID Card shall not be used to store data on 
the Owner more than is necessary and material as required in this Act; 
b. "ID Number" - The Primary Reference Number determined by the 
National Statistics Office and issued to every citizen of the Philippines; 
or the number issued by the Bureau of Immigration to every foreign 
national who applies for an Alien Certificate of Registration pursuant 
to Republic Act No. 562 (1950), as amended; 
c. "Council" - The National Registration Coordinating Council 
constituted under this Act; 
d. "NSO" - The National Statistics Office created pursuant to 
Commonwealth Act No. 591 (1940), as amended; 
e. "System" - The National Identification System established and 
authorized for implementation pursuant to this Act; 
"Owner" - The only authorized holder, possessor and user of the ID 
Card; 
g. "Data'/ - The personal and other circumstances of the person to whom 
was issued a National Identification Card, all of which are encoded in 
f. 
said ID Card, and kept in the records of the participating agencies; 
h. "UseN - The authorized functional use of the ID Card pursuant to this 
Act and as may be hereafter prescribed by the Council; 


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i. "Participating 
Agency" - A branch, 
agency, 
subdivision or 
instrumentality of the Government of the Republic of the Philippines, 
accredited by the Council to implement the National Identification 
System. 
SEC. 4. The National Identification System. - A National Identification 
System is hereby established and instituted, to provide official identification of 
all citizens of the Republic of the Philippines, and all foreign nationals 
permanently residing in the Philippines, through the issuance of a National 
Identification Card with ID Number of a permanent character, to convert and 
consolidate all existing Government-initiated identification systems intended for 
various purposes into one, integrated and multi-purpose system. 
SEC, 5, Issuance of Primary ID Number. - All citizens of the Republic of 
the Philippines, upon registration of birth or upon their acquisition of Philippine 
citizenship, shall be issued by the NSO a Primary Reference Number, which shall 
serve as the identification number. The Primary Reference Number shall reflect 
only the basic data on the Owner of the ID. Card Such Primary Reference 
Number issued to a citizen shall not be transferable to another, and shall remain 
his/her number regardless of any change in his/her status, residence or other 
personal circumstances. For this purpose, the NSO shall, in the determination of 
the Primary Reference Number, devise a system of issuing such numbers with 
due regard to the immutability of such number in relation to the person to whom 
it was issued. 
All such citizens born before the effectivity of this Act, or who acquired 
Philippine citizenship before the effectivity of this Act, shall secure their Primary 
Reference Number from the NSO. 
SEC. 6. 
Issuance of Subsidiary I 
Numbers. - The participating 
agencies in the System may issue subsidiary numbers to the Primary ID Number 


5 
issued under Section 5 hereof, with due regard to the requirements of such 
agencies and under such conditions as the Council shall prescribe. 
SEC. 6. 
Citizens of Other Countries. - Citizens of other countries 
permanently residing in the Philippines shall likewise be assigned an ID Number 
and issued an ID Card at reasonable cost in the manner prescribed by the Bureau 
of Immigration; provided, that the assignment of an ID Number and issuance of 
the corresponding ID Card shall be done not later than the date of issuance of the 
Alien Certificate of Registration issued pursuant to Republic Act No. 562 (1950), 
as amended. 
An accredited official of a recognized international organization, or of a 
foreign government with whom the Republic of the Philippines has established 
diplomatic relations, and members of his/her family and official staff, who are 
not citizens of the Philippines, shall not be required to secure an ID Number or 
the ID Card contemplated under this Act. 
SEC. 7. Issuance of the ID Card. - AI1 persons qualified under Section 5 
and Section 6, respectively, hereof shall be issued by any of the participating 
agencies a National Identification Card not earlier than at the age of sixteen (16) 
years, free of charge and in the manner prescribed by the Council; provided, that 
in case a participating agency requires the issuance of an ID Card for those 
transacting business with it who may be younger than sixteen (16) years old, 
such agency shall do so under such conditions as the Council shall prescribe. 
SEC. 8. Features of the ID Card. - The National Identification Card shall 
be made of a tamper-proof security material. It shall have on its face the ID 
Number, the imprinted photograph, name, birth date, date of issue, signature of 
the Owner, and such other material and necessary data as may be required by 
the Council and the participating agencies. 


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The Council shall likewise establish the standards in the use of biometric 
technology and in computer application designs of the System. 
SEC. 9. Validity ~f the ID Card. - The ID Card shall be valid effective 
upon its issuance by the participating agency, and for as long as the material of 
which it is made permits its usage, unless sooner cancelled upon the death of the 
Owner, or surrendered by the Owner, or revoked, cancelled or recalled by the 
participating agency for good cause shown. 
The ID Card may be replaced during its validity period, upon written 
application by the owner of the ID Card, to reflect the changed circumstances of 
the Owner. 
SEC. 10. Issuance of Replacement Card. - A new ID Card which replaces 
a lost, worn-out or destroyed card, or upon written application by the Owner, 
shall be issued by a participating agency in the manner to be prescribed by the 
Council. 
SEC. 11. Safeguards. - The Council and the participating agencies shall 
take appropriate and necessary measures to ensure that the privacy, 
confidentiality, integrity and accuracy of an individuaI's personal data are 
protected from unwarranted and unauthorized access. Such safeguards shall, as 
a minimum, include the following: 
a. 
The Council and the participating agencies shall limit the number 
of persons who can have access to the data on the ID Card; 
The ID Card will be protected by advanced security features and 
cryptographic technology; 
The Council shall ensure that only minimal, material and necessary 
data to the Owner and to the participating agency issuing the ID 
Card shall be recorded and stored in the ID Card; 
b. 
c. 


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d. 
There will be a stringent system of access control, including 
passwords or personal identification numbers; different levels of 
access; and, audit trails; 
The Owner of the ID Card shall be provided with the means to 
access, print and interpret the data on his/her card and the 
e. 
application of such data; 
Any correction of relevant data stored in the ID Card shall be 
effected only upon a written request by the Owner of the ID Card, 
f. 
under such conditions as the participating agency issuing the ID 
Card shall prescribe; and 
All data included in the database shall be kept and treated as 
strictly confidential, and shall not be accessed or disclosed except 
g. 
upon written authorization of the Owner and in accordance with 
the requirements of Section 22 and Section 23, respectively, of this 
Act. 
SEC. 12. Non-transferability. - The ID number issued pursuant to this Act 
is unique to the Owner of the ID Card. Both the ID Number and the ID Card are 
non-transferable, and shall not be assigned to any other individual even after the 
death of its owner. For this purpose, the participating agency shall devise a 
system of retiring ID numbers no longer in use on account of death of the owners 
or for other reasons. 
SEC. 13. Limitation on Data to be Stored. - The right to privacy of the 
Owner of the ID Card is paramount, and shall be respected by the Council and 
the participating agencies in the implementation of the System. For this purpose, 
only such data personal to the Owner of the ID Card and which are material and 
necessary to carry out the functional uses of the ID Card as enumerated in 
Section 14 hereof shall be stored in the ID Card. 


SEC. 
Card shall s 
issued, and 
shall include 
a. 
b. 
C. 
d. 
e. 
f. 
€7 
h. 
i. 
j. 
k. 
1. 
m. 
n. 
0. 
P. 
8 
4, Functional Uses of the 
ard. - The National Identification 
rve as the only official identification of the person to whom it is 
iall be valid and accepted for all legal intents and purposes, which 
but shall not be limited to, the following: 
Availment of SSS and GSIS benefits; 
Application for driver’s license, passport, marriage license, and 
business permits; 
Issuance of death certificate; 
Application for clearances, licenses and permits from investigative 
and police agencies; 
Availment of services in health and medical institutions; 
Application for employment; 
Availment of benefits under Republic Act No. 7432 (“The Senior 
Citizens Law”); 
Pre-requisite for registration as a voter, and for the exercise of the 
right to vote; 
Payment of taxes, fees and other charges; 
Opening of bank accounts; 
Encashment of checks; 
Applications for loans, credit cards, and utilities; 
Purchase of stocks; 
Insurance claims; 
Receipts of payments, checks, valuables, etcetera; and 
Claiming mail matters. 
Other functional uses of the ID Card shall be determined by the Council. 
SEC. 15. Absence of ID Card. - Failure of any person to present his/her 
ID Card when transacting business with the Government or with private entities 


9 
requiring the use and presentation of the ID Card shall not be a ground to deny 
or limit him/her of the basic Government and private services as long as he/she 
is qualified under existing laws. 
, 
SEC. 16. National Registration Coordinating ouncil. - The National 
Registration Coordinating Council is hereby constituted, which shall be a 
collegial body, consisting of permanent representatives of various government 
agencies with direct involvement in the development and implementation of the 
System, to be appointed by their respective heads, including, but not limited to 
the Commission on Elections, the Department of Foreign Affairs, the Department 
of Interior and Local Government, the Department of National Defense, the 
Bureau of Immigration, the National Statistics Office, the Land Transportation 
Office, the Bureau of Internal Revenue, the Social Security System, the 
Government Service Insurance System, and the Philippine Health Insurance 
Corporation. 
The Council shall be assisted by a Secretariat, headed by an officer in the 
NSO not lower in rank than a Director 111, and with all the participating agencies 
in the System represented therein. 
The Administrator of the NSO shall serve as permanent chairman of the 
Council. 
SEC, 17. Powers and Functions of the Council. - The Council shall 
exercise the following powers and functions: 
a. 
To issue, adopt and prescribe implementing rules and regulations 
for the effective implementation of this Act; 
To design the ID Card to be issued by the participating agencies, 
incorporating therein the basic feahrres of the ID Card and the 
safeguards for its issuance and uses as indicated in this Act; 
b. 


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c. 
To adopt all measures to maintain the privacy and security of all 
personal information maintained or kept by the participating 
agencies and all private entities or institutions with existing 
databases or registries of individuals, to prevent their unauthorized 
disclosure and ensure the confidentiality and proper management 
of these personal data; 
To adopt rules and regulations for the registration of persons, 
entities or institutions handling registries or databases of personal 
data of individuals, and determine which personal information 
being obtained, kept or maintained should be deemed confidential; 
Without prejudice to Section 19 hereof, to entertain, initiate, motu 
proprio or at the instance of the Owner of the ID Card, and endorse 
to the Department of Justice any complaint for the criminal 
prosecution of persons for any violation of the provisions of this 
Act; 
To adopt all measures to ensure the security, integrity and 
authenticity of all ID Cards issued under the System; 
To conduct or hold extensive public information campaign on the 
System in coordination with the Philippine Information Agency; 
To submit to Congress a written report of its operations and 
activities within sixty (60) days after the opening of every regular 
session; and 
To perform such other functions necessary to effectively implement 
the provisions of this Act. 
d. 
e. 
f. 
g. 
h. 
i. 
SEC. 18. Assistance. - The Council shall call upon all branches, agencies, 
subdivisions and instrumentalities of Government to assist and cooperate with 
the Council in the effective implementation of the provisions of this Act. 


I 
11 
1 
Enforcement by the articipating Agencies. - All participating 
ave the power and authority to effectively enforce the provisions 
n to their powers under their respective charters and under the 
Code of 1987 (Executive Order No. 292), the participating 
ve the power to issue cease and desist orders to prevent fraud or 
injury to indiv’duals whose rights to privacy may be violated with the collection 
and use of 
~ ersonal data or information about him/her pursuant to the 
Acts; Penalties. - The penalty of imprisonment from 
) day to six (6) years shall be imposed upon any 
offender found guilty of the following acts or omissions: 
he willful submission, or causing to be submitted, of a fictitious 
ame and other false data in the application form for a National 
I 1 
a. 
i 
Ihentification Card; 
1 he unauthorized printing, preparation or issuance of a National 
I entification Card; 
he falsification, mutilation, alteration of, or tampering with, the 
t 
b. 
~ 
C. 
National Identification Card; 
The unauthorized use of a National Identification Card by any 
person other than the one to whom the card was issued; and 
The possession of a fake, falsified or altered National Identification 
Card. 
I 
d. 
e, 
SEC. 21. 
Refusal to Accept. - Any person who shall willfully and 
unjustifiably refuse to accept, acknowledge and/ or recognize the National 
Identification Card as the only official identification of the Owner thereof shall be 
liable to a penalty of a fine of not more than Twenty Thousand Pesos 


12 
(Php20,000.00), at the discretion of the Court, for the first offense. 
Any 
subsequent violation shall be punishable by a fine of not less than Fifty 
Thousand Pesos (Php50,000.00) but not more than One Hundred Thousand 
Pesos (Phpl00,000.00), at the discretion of the Court. 
SEC. 22. 
Confidentiality. - Without prejudice under existing laws 
applicable to the participating agencies, the records, reports and documents duly 
accomplished and submitted to a participating agency by the Owner of the ID 
Card, and any such records, reports and documents encoded in the database of 
the participating agency and/or reflected in the ID Card, shall be kept and 
treated as strictly confidential. They shall not be divulged without the written 
consent of the Owner or pursuant to a lawful Court order upon a prior 
endorsement by the participating agency, and shall be presumed correct as to the 
data and other matters stated therein, unless the necessary corrections to such 
records, reports and documents have been properly made upon written 
authorization by the Owner. 
SEC. 23. Disclosure. - Any person who shall willfully use or disclose data 
or information furnished by the Owner of the ID Card, without written 
authorization from the latter, or except by a lawful Court order upon a prior 
endorsement by the participating agency, or as may be authorized by law, shall 
be liable to a penalty of a fine of not more than Fifty Thousand Pesos 
(Php50,OOO.OO) or imprisonment for not more than six (6) months, or both, at the 
discretion of the Court. 
SEC. 24. Congressional Oversight Committee. - There is hereby created 
for purposes of the implementation of this Act a congressional oversight 
committee composed of five (5) members from the Senate designated by the 
Senate President and five (5) members from the House of Representatives 
designated by the Speaker of the House of Representatives; Provided, That of the 


13 
five (5) members to be designated by each house of Congress, three (3) of them 
shall come from the majority and the remaining two (2) from the minority. 
SEC. 25. 
Appropriation. - The amount of Twenty Million Pesos 
(Php20,000,000.00) is hereby appropriated out of funds of the National Treasury 
not otherwise appropriated, as operating funds of 
the Council and for it to 
undertake the information campaign required under this Act. Thereafter, such 
funds sufficient to fully carry out the purposes of this Act shall be appropriated 
for the Council and every participating agency every fiscal year in the General 
Appropriations Act. 
SEC. 26. Transitory Provisions. - Within three (3) months from its full 
constitution and activation, the Council shall adopt a staggered program of 
implementation of the System as to coverage, with due regard to the existing 
identification projects of participating agencies, to realize economies of scale. 
The Council shall, within the same period, coordinate with other 
Government agencies that issue similar identification numbers for varied 
purposes, in order to integrate all such systems in the National Identification 
System. 
SEC. 27. Information Campaign. - Within six (6) months from the 
effectivity of this Act, the Council shall undertake an extensive campaign 
program to explain the implementation of the National Identification System to 
all citizens and resident aliens in the country. 
SEC. 28. Implementing Rules. - The Council shall, not later than sixty 
(60) days from its full constitution, promulgate the Implementing Rules of this 
Act. Such Rules shall be effective fifteen (15) days from their publication in a 
newspaper of general circulation. 


14 
epealing Clause. - All laws, presidential decrees, orders, rules 
or regulations or parts thereof which are inconsistent with this Act are hereby 
repealed and/or modified accordingly. 
SEC. 30. Effectivity Clause. - This Act shall take effect fifteen (15) days 
after its complete publication in two (2) newspapers of general circulation. 
Approved,