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Republic of the Philippines 
HOUSE OF REPRESENTATIVES 
Quezon City 
NINETEENTH CONGRESS 
First Regular Session 
HOUSE BILL NO. ____ 
Introduced by HON. LUIS RAYMUND “LRAY” F. VILLAFUERTE, JR.,  
HON. MIGUEL LUIS R. VILLAFUERTE, HON. TSUYOSHI ANTHONY G. 
HORIBATA AND HON. NICOLAS ENCISO VIII 
EXPLANATORY NOTE 
"Sustainable development is development that meets the needs of the 
present without compromising the ability of future generations to meet 
their own needs." —Brundtland Commission, United Nations, 1987 
Sustainability is the key to the lasting alleviation of poverty and national 
development. Natural resources provide the basic necessities for human existence, 
as well as the inputs for economic development. Therefore, it is in our best interest to 
develop and use these resources while maintaining their physical integrity and 
capacity to regenerate the economic and ecologic values that are withdrawn for human 
consumption.  
The Bicol River is the eighth largest river in the country, with a total catchment 
area of 3,770 square kilometers. It encompasses the provinces of Camarines Sur, 
Camarines Norte, and Albay, as well as thirty-three (33) municipalities and three (3) 
cities. The river spans ninety-four (94) kilometers beginning at Lake Bato and flowing 
downstream to San Miguel Bay. The Bicol River System is composed of multiple 
tributaries and three major lakes. However, its area of influence is much larger, 
stretching about 10,058 square kilometers. The river basin is a vast wetland 
ecosystem that is responsible for the main water supply in the region. Moreover, the 
river system supports a rich biodiversity and supplies a bounty of materials for 
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economic use. About two million Filipinos live in the area covered by the Bicol River 
Basin.1   
 
At present, the river system is faced with numerous challenges that threaten 
the agricultural and fisheries industries, biodiversity, and more crucially, the livelihood 
of thousands of households living along the river basin. This directly impacts food 
security in the Bicol region at the most fundamental level. The river basin also provides 
ecosystem services such as water purification, waste treatment, flood and drought 
mitigation, soil fertility, coastal salinity maintenance, nutrient delivery, and biodiversity 
conservation. Moreover, the continued decline in the river’s condition also impedes 
potential economic and tourism development.  
 
The Department of Environment and Natural Resources (DENR) identified the 
Bicol River Basin as one of the eighteen (18) priority river basins in the country for 
which comprehensive management and development master plans are to be 
formulated.  In the 2015 Formulation of an Integrated Bicol River Basin Management 
and Development Master Plan prepared by Orient Integrated Development 
Consultants, Inc., it was estimated that, over a 15-year planning period, the total 
investment required to implement the Bicol River Basin master plan is about 
PhP31.332 billion. The first five years of implementation will require PhP8.46 billion 
while year 6 to year 10 would need PhP13.95 billion. 
 
One of the critical elements in the implementation of this strategy is the 
formation of the Sustainable Bicol River Development Authority (SBRDA). The 
rationale for the creation of the SBRDA springs from the need to take an integrated 
approach to the practical issues that beset the Bicol River System today. There is a 
wide range of problems that affect the river system. Climate change, soil erosion, 
waterway congestion leading to floods, solid and liquid waste contamination, siltation, 
and deforestation, are some of its issues.  
 
                                                 
1 Orient Integrated Development Consultants, Inc. (2015), Formulation of an Integrated Bicol River 
Basin Management and Development Master Plan.  


 
 
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At present, these problems are addressed separately by the various 
government agencies according to their functions. For example, flooding is addressed 
by the Department of Public Works and Highways (DPWH), irrigation is addressed by 
the National Irrigation Administration (NIA), and environmental degradation is 
addressed by the Department of Environment and Natural Resources (DENR).  In 
reality, the causes and solutions to these are mostly interrelated. Arriving at integrated 
and comprehensive solutions to the river system’s issues, requires the creation of an 
organization with goals that cut across departmental functions and focus on the 
ecological condition, socio-economic development, and sustainability of the Bicol 
River. 
 
  
The SBRDA aims to implement the vision of a clean, sustainable river 
development that supports life by balancing ecological, economic, aesthetic, and 
cultural benefits. The SBRDA will be guided by the three pillars of Sustainability: 
 
(1) Planet/Environmental Stewardship – referring to the ecological well-being 
of the entire Bicol River Basin, rehabilitating and maintaining healthy 
ecosystem and habitats, implementing greening and aesthetic projects, and 
ensuring ample water supply for household and economic use. 
 
(2) Profit/Economic Development – referring to economic development in the 
river basin area and in Bicol Region, such as developing sustainable tourism 
opportunities. 
 
(3) People/Social Equity – referring to improving health and sanitation 
conditions and poverty alleviation, creating sustainable communities and 
livelihood, and setting up measures for climate change adaptation and 
reducing disaster risks. 
 
 
This measure is designed to fully realize the great potential offered by the 
various resources within the Bicol River for the livelihood of the large segment of the 
population in the area and increased income for the government, both local and 
national. 
 


 
 
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Thus, this Bill is proposed to form the Sustainable Bicol River Development 
Authority, with institutional powers to implement programs and projects to achieve the 
goals of the SBRD strategy. The Bill also outlines the Authority’s functions and duties, 
in accordance with the principles of sustainable development, and the SBRD strategy.  
 
The immediate approval of this bill is earnestly sought. 
 
 
 
LUIS RAYMUND “LRAY” F. VILLAFUERTE, JR.             MIGUEL LUIS R. VILLAFUERTE   
 
 
 
 
TSUYOSHI ANTHONY G. HORIBATA  
 
 
NICOLAS ENCISO VIII 
 
 
 
 


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Republic of the Philippines 
HOUSE OF REPRESENTATIVES 
Quezon City 
NINETEENTH CONGRESS 
First Regular Session 
HOUSE BILL NO. ____ 
Introduced by HON. LUIS RAYMUND “LRAY” F. VILLAFUERTE, JR.,  
HON. MIGUEL LUIS R. VILLAFUERTE, HON. TSUYOSHI ANTHONY G. 
HORIBATA AND HON. NICOLAS ENCISO VIII 
AN ACT  
CREATING THE SUSTAINABLE BICOL RIVER DEVELOPMENT AUTHORITY, 
PRESCRIBING ITS POWERS, FUNCTIONS AND DUTIES, PROVIDING FUNDS 
THEREFOR, AND FOR OTHER PURPOSES. 
Be it enacted by the Senate and House of Representatives of the Philippines in 
Congress assembled: 
Section 1. Declaration of Policy. – It is hereby declared to be the policy of the State 
to promote, and accelerate the sustainable development and balanced growth of the 
Bicol River area and the surrounding municipalities, towns and barangays (Region), 
within the context of the national and regional plans and policies for social and 
economic development and to carry out the development of the Bicol River Region 
with due regard and adequate provisions for environmental management and control, 
preservation of the quality of human life and ecological systems, and the prevention 
of undue ecological disturbances, deterioration and pollution. 
Section 2. Creation. – There is hereby created a body corporate to be known as the 
Sustainable Bicol River Development Authority (SBRDA), which shall be organized 
within one hundred twenty (120) days after the approval of this Act. The SBRDA shall 
execute the powers and functions herein vested and conferred upon it in such a 
manner as will, in its judgment, aid to the fullest possible extent in carrying out the 
aims and purposes set forth below. 
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Section 3. Headquarters and Main Office. – The Authority may establish its 
headquarters at the Camarines Sur Provincial Capitol Complex and may establish 
satellite offices within the region wherever it is necessary in the conduct of its business. 
 
Section 4. Special Powers and Functions. – The SBRDA shall exercise and perform 
the following powers and functions: 
(a) To make a comprehensive survey of the physical and natural resources and 
potentialities of the Region particularly its socio and economic conditions, 
hydrologic characteristics, power potential, scenic and tourist spots, 
regional problems, and on the basis thereof, to draft a comprehensive and 
detailed plan designed to conserve and utilize optimally the resources within 
the Region particularly the Bicol River to promote the Region's rapid social, 
environmental and economic development: Provided, That implementation 
of all fisheries plans and programs of the SBRDA shall require prior 
consensus of the Bureau of Fisheries and Aquatic Resources to ensure that 
such plans and programs are consistent with national fisheries plan and 
programs. For the purpose of the said survey, public agencies shall submit 
and private entities shall provide necessary data except such data, which 
under existing laws are deemed inviolable. 
 
(b) To make recommendation to the proper agencies on financing, technical 
support, physical assistance and, generally, the level of priority to be 
accorded agricultural, industrial and commercial projects, soliciting or 
requiring direct help from the national government and its instrumentalities, 
private organizations, non-government organizations, and other such 
entities that may be tapped for assistance.  
 
(c) To pass upon and approve or disapprove all plans, programs, and projects 
proposed by local government offices/agencies within the Region, public 
corporations, and private persons or enterprises where such plans, 
programs and/or projects are related to those of the SBRDA for the 
development of the region as envisioned in this Act. The SBRDA shall issue 
the necessary clearance for all approved proposed plans, programs, and 


 
 
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projects within thirty (30) days from submission thereof unless the proposals 
are not in consonance with those of the SBRDA or that those will contribute 
to the unmanageable pollution of the Bicol River waters or will bring about 
the ecological imbalance of the Region: Provided, That the Authority is 
hereby empowered to institute necessary legal proceeding against any 
person who shall commence to implement or continue implementation of 
any project, plan or program within the Bicol River region without previous 
clearance from the Authority. Reasonable processing fees as may be fixed 
by the SBRDA's Board of Directors shall be collected by the SBRDA for the 
processing of such plans, programs and/or projects: Provided, further, That 
expansion plans shall be considered as new plans subject to review of the 
SBRDA and to payment of the processing fees. 
The SBRDA and national and local government offices, agencies and 
public corporations shall coordinate their plans, programs, projects and 
licensing procedures with respect to the Bicol River for the purpose of 
drawing up a Bicol River Sustainable Development Plan which shall be 
binding upon all parties concerned. 
 
(d) To engage in agriculture, industry, commerce, or other activities within the 
Region which may be necessary or directly contributory to the social, 
environmental, and economic development of the Region, and, for this 
purpose, whether by itself or in cooperation with private persons or entities, 
to organize, finance, invest in, subsidiary corporations: Provided, That the 
SBRDA shall engage only, unless public interest requires otherwise, in 
those activities as are in the nature of new ventures or are clearly beyond 
the scope, capacity, or interest of private enterprises due to consideration 
or geography, technical or capital requirements, returns on investment, and 
risk.  
 
(e) To plan, program, finance and/or undertake infrastructure projects such as 
river, flood and tidal control works, waste water and sewerage works, water 
supply, roads, port works, irrigation, housing and related works, when so 
required within the context of its development plans and programs including 
the readjustment, relocation, or settlement by population within the Region 


 
 
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as may be deemed necessary and beneficial by the SBRDA: Provided, That 
should any project be financed wholly or in part by the SBRDA, it is hereby 
authorized to collect reasonable fees and tolls as may be fixed by its Board 
of Directors from users and/or beneficiaries thereof to recover costs of 
construction, operation and maintenance of the projects: Provided, further, 
That if the SBRDA should find it necessary to undertake such infrastructure 
projects which are classified, as social overhead capital projects, the 
SBRDA shall be authorized to receive financial assistance from the 
government in such amount as may be necessary to carry out the said 
projects subject to such terms and conditions that may be imposed by the 
government: Provided, finally, that such amount as may be necessary for 
the purpose is hereby authorized to be appropriated out of the funds of the 
National Treasury not otherwise appropriated.  
 
(f) To make an annual report regarding the operation of the SBRDA, more 
particularly a statement of its financial conditions, activities undertaken, 
progress of projects and programs and plans of actions for the incoming 
years: Provided, however, that a majority of the stockholders may require 
the SBRDA to submit report or reports other than the annual report herein 
required, which report must be submitted within a period of sixty (60) days 
from notice thereof. 
 
(g) To enforce easements involving the Bicol River in accordance with the New 
Civil Code, Water Code, Forestry Reform Code and other existing 
applicable laws, without prejudice to amendments and/or future laws 
pertaining to easements that may be applicable in the future.  
 
(h) To reclaim or cause to be reclaimed portions of the Bicol River or undertake 
reclamation projects and/or acquire such bodies of land from the lake which 
may be necessary to accomplish the aims and purposes of the SBRDA: 
Provided, That the land so reclaimed shall be the property of the SBRDA 
and the title thereto shall be vested in the SBRDA. 
 


 
 
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(i) The provisions of existing laws to the contrary notwithstanding, to engage 
in fish production and other aqua-culture projects in the Bicol River and 
other bodies of water within its jurisdiction and in pursuance thereof, to 
conduct studies and make experiments, whenever necessary, in 
coordination with the Bureau of Fisheries and Aquatic Resources, with the 
end in view of improving present techniques and practice: Provided, That 
until modified, altered or amended by the procedure provided in the 
following sub-paragraph, the present laws, rules and permits or 
authorizations remain in force.  
 
(j) For the purpose of effectively regulating and monitoring activities in the Bicol 
River, the SBRDA shall have exclusive jurisdiction to issue new permit for 
the use of the river waters for any projects or activities in or affecting the 
said river including navigation, construction, and operation of fishpens, fish 
enclosures, fish corrals and the like, and to impose necessary safeguards 
for river quality control and management and to collect necessary fees for 
said activities and projects: Provided, That the fees collected for fisheries 
may be shared between the SBRDA and other government agencies and 
political sub-divisions in such proportion as may be determined by the 
SBRDA's Board: Provided, further, That the SBRDA's Board may determine 
new areas of fishery development activities in coordination the Bureau of 
Fisheries and Aquatic Resources taking into account the overall 
development plans and programs for the Bicol River and related bodies of 
water. Provided, finally, that the SBRDA shall promulgate such rules and 
regulations which shall govern fisheries development activities in the Bicol 
River taking into consideration among others the following: bonafide 
resident fishermen whether individually or collectively in the form of 
cooperatives, riverside town development, a master plan for fishpen 
construction and operation, communal fishing ground for riverside town 
residents, and preference to riverside town residents in hiring laborers for 
fishery projects. 
 
(k) To recommend to the province, cities or municipalities embraced within the 
Region to pass appropriate zoning ordinances and other regulatory 


 
 
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measures necessary to carry out the objectives of the SBRDA and enforce 
the same with the assistance of the SBRDA.  
 
(l) To extend the necessary planning, management and technical assistance 
to prospective and existing investors in the Region. 
 
(m)The provision of existing laws to the contrary notwithstanding, to exercise 
water rights over public waters within the Region whenever necessary to 
carry out the SBRDA's projects.  
 
(n)  To act in coordination with existing government agencies in establishing 
water quality standards for industrial, agricultural and municipal/city waste 
discharges into the river and to cooperate with said existing agencies of the 
government of the Philippines in enforcing such standards, or to separately 
pursue enforcement. 
 
(o) To develop water supply and harness water resources, in coordination with 
the National Water Resources Board or its successors in interests, and to 
enter into agreements with municipalities, governmental agencies and 
corporations and the private sector to supply, distribute and market such 
water or water resource. 
 
(p) To engage in, develop and implement activities and programs for the 
production of conventional, alternative and renewable sources of energy 
that may be available in the Bicol River, and for the recovery and reuse of 
energy that would otherwise be wasted. 
 
(q) To undertake studies on the improvement and maintenance of the water 
quality of Bicol River, and in pursuance thereof, prepare a water quality 
management program on a continuing basis, which the SBRDA shall carry 
out with the assistance and support of national and local government units 
involved in water quality management.  
 


 
 
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(r) To formulate and implement policies, standards, programs and projects for 
proper waste management affecting the Bicol River.  
 
(s) To formulate and implement policies, rules and regulations, standards, 
programs and projects for the promotion and safeguarding of the health and 
sanitation of the Bicol River and for the enhancement of ecological balance 
and the prevention, control and abatement of environmental pollution. 
 
(t) To promote public safety which includes the formulation and implementation 
of programs and policies and procedures to achieve public safety, especially 
preparedness for preventive or rescue operations during times of calamities 
and disasters such as conflagrations, earthquakes, flood and tidal waves, 
and coordination and mobilization of resources and the implementation of 
contingency plans for the rehabilitation and relief operations in coordination 
with national agencies concerned. 
 
(u) To conduct activities, initiatives and programs that will create, boost and 
promote tourism, culture and sports within the Bicol River. 
 
(v) To create and implement programs geared towards the promotion, 
preservation and conservation of Bicol River’s history and culture. 
 
(w) To enter into Public-Private Partnership (PPP) programs, projects and 
contracts.  
 
(x) To plan, manage and conduct such other activities, initiatives and programs 
consistent with the Sustainable Bicol River Development Plan. 
 
Section 5. The Powers of the SBRDA. – The SBRDA shall have the following powers 
and functions: 
A. To succeed on its corporate name;  
 
B. To sue and be sued in such corporate name;  
 


 
 
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C. To adopt, alter and use a corporate seal;  
 
D. To adopt, amend, and repeal its by-laws;  
 
E. To enter into contracts of any kind and description, to enable it to carry out 
its purposes and functions under this Act;  
 
F. To acquire, buy, purchase, hold or lease, such personal and real property as 
it deems necessary or convenient in the transaction of its business and/ or in 
relation with carrying out its purposes under this Act, and to lease, mortgage, 
sell, alienate, or otherwise encumber, utilize, exploit or dispose and such 
personal and real property held by it, subject to prior or existing individual or 
communal right of private parties or of the government or any agency or 
enterprise thereof; 
 
G. To exercise the right of eminent domain whenever the Authority deems it 
necessary for the attainment of the objectives of the Authority under this Act;  
H. To borrow funds from any local or foreign financial institutions independent 
of the bonds it may issue or may continue to issue, to carry out the purposes of 
this Authority under this Act; 
 
I. For carrying on its business, or for the purpose of attaining or furthering any 
of its objectives, to perform any and all acts which a corporation, co-partnership, 
or natural person is authorized to perform under the laws now existing or which 
may be enacted hereafter; 
 
J. To issue such rules and regulations as may be necessary to effectively carry 
out the powers and purposes herein; provided including the plans, programs 
and projects of the Authority, to take effect thirty (30) days after publication 
thereof, in a newspaper of general circulation. 
 
Section 6. Capitalization and Financing. – The Authority shall have a capital of One 
Billion Pesos (PhP1,000,000,000.00), which shall be entirely funded by the national 
government.  


 
 
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Section 7. Operating Expenses. – For the operating expenses of the SBRDA, the 
sum of One Hundred Million Pesos (PhP100,000,000.00) is hereby appropriated 
annually for five (5) years from the general fund of the National Government not 
otherwise appropriated from the date of approval of this Decree. The Board of 
Directors may appropriate out of the funds of the SBRDA such as may be needed or 
necessary for its operating expenses. 
 
Section 8. Exemption from Tax. – The SBRDA shall be exempt from all taxes, 
licenses, fees, and duties, incidental to its operations. All notes, bonds, debentures 
and other obligations issued by the SBRDA shall be exempt from all taxes both as to 
principal and interest, except inheritance and gift taxes. 
 
Section 9. Guarantee by the Government. – The Republic of the Philippines hereby 
guarantees the payment by the SBRDA of both the principal and the interest of the 
bonds, debentures, collaterals, notes or such other obligations issued by the SBRDA 
by virtue of this Act, and shall pay such principal and interest in the event at the SBRDA 
fails to do so. In case the SBRDA shall be unable to pay the said principal and interest, 
the Secretary of Finance, shall pay the amount thereof which is hereby appropriated 
out of any funds in the National Treasury not otherwise appropriated, and thereupon, 
to the extent of the amounts so paid, the Government of the Republic of the Philippines 
shall succeed to all the rights o the holders of which bonds, debentures, collaterals, 
notes or other obligations, unless the sum so aid by the Republic of the Philippines 
shall be refunded by the SBRDA within a reasonable time. 
 
Section 10. Composition of the Board of Directors. – The corporate powers shall 
be vested in and exercised by a Board of Directors (Board), which shall be composed 
of thirteen (13) members, to wit: the Provincial Governor of Camarines Sur, the 
Provincial Governor of Camarines Norte, the Provincial Governor of Albay, the 
Regional Director of the Department of Public Works and Highways, the Regional 
Director of the Department of Tourism, the Regional Director of the Department of 
Environment and Natural Resources, the Regional Director of the National Irrigation 
Administration, the Regional Director of the Department of Agriculture, the Regional 
Director of the National Economic and Development Authority, a General Manager of 


 
 
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the SBRDA to be appointed by the President of the Philippines, and three additional 
representatives from the private sector, the academe and Non-Government 
Organization (NGO) to be appointed by the first ten (10) members once they convene. 
 
The Board of Directors shall elect annually from among their members a 
Chairman and a Vice-Chairman. There shall be a Corporate Secretary who shall be 
appointed by the Board. The officials next in rank to the above-mentioned members 
shall serve as permanent alternate members and shall attend meetings of the Board 
in the absence of their principals.  
 
Section 11. Acting Chairman. – In case of vacancy in the position of Chairman, or in 
the absence of or temporary incapacity of the Chairman, the Vice-Chairman shall act 
as such until a new Chairman is duly elected by the Board.  
 
Section 12. Effect of Vacancies and Quorum. – Vacancies in the Board as long as 
there shall be seven (7) members in office, shall not impair the powers of the Board to 
execute the functions of the SBRDA. The affirmative vote of seven (7) members of the 
Board shall be necessary at all times to pass or approve any act or resolution. 
 
Section 13. Prohibition against “Conflict of Interest". – No member of the Board 
shall be financially interested, directly or indirectly, in any contract entered into by the 
SBRDA or in any special privileges granted by the SBRDA during its term of office. All 
contracts entered into in violation of this provision shall automatically be null and void.  
 
Section 14. Removal of a Board Member. – Any member of the Board found violating 
this Act or the Code of Conduct and Ethical Standards for Public Officials and 
Employees, by two-thirds (2/3) vote of the Board, shall be disqualified from serving his 
un-expired term, and shall furthermore be perpetually disqualified for membership in 
the said Board. 
 
Section 15. Board Meetings. – The Board shall meet at least once a month. The 
Board shall be convened by the Chairman or upon written request signed by a majority 
of the members. 
 


 
 
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Section 16. Powers and Functions of the Board of Directors. – 
(a) To formulate, prescribe, amend and repeal rules and regulations to govern 
the conduct of business of the SBRDA; 
 
(b) To appoint and fix the compensation of all officials from division heads and 
above, and others of comparable rank upon the recommendation of the 
General Manager;  
 
(c) By a majority vote of all members of the Board, to suspend, remove or 
otherwise discipline for just cause all officials appointed by the Board other 
than the three (3) additional appointed members of the Board; 
 
(d) To approve the annual and/or supplemental budgets of the SBRDA; and 
 
(e) To do such other acts and perform such other functions as may be 
necessary to carry out the provisions of this Charter. 
 
Section 17. Powers and Functions of the General Manager. – The General 
Manager shall be the chief executive of the SBRDA. As such, he shall have the 
following powers and duties: 
(a) Submit for consideration of the Board the policies and measures which he 
believes to be necessary to carry out the purposes and provisions of this 
Act; 
 
(b) Execute and administer the policies, plans, programs and projects approved 
by the Board; 
 
(c) Direct and supervise the operation and internal administration of the 
SBRDA. The General Manager may delegate certain of his administrative 
responsibilities to other officers of the SBRDA subject to the approval of the 
Board; 
 


 
 
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(d) Recommend and appoint officials and employees below the rank of division 
heads to positions in the approved budget upon the approval of the majority 
of the members of the Board of Directors; 
 
(e) Submit quarterly reports to the Board on personal selection, placement and 
training; and 
 
(f) Perform such other functions as may be provided by law. 
 
Section 18. Separability Clause. – The provisions of this Act are hereby declared to 
be separable, and in the event any one or more of such provisions are held 
unconstitutional, they shall not affect the validity of other provisions. 
 
Section 19. Repealing Clause. – All acts, charters, executive orders, administrative 
orders, proclamations, rules and regulations, or parts thereof in conflict with this Act 
are hereby repealed or modified accordingly. 
 
Section 20. Effectivity. – This act shall take effect upon its approval. 
 
Approved,