Republic of the Philippines
HOUSE OF REPRESENTATIVES
Quezon City, Metro Manila

TWENTIETH CONGRESS
First Regular Session

HOUSE BILL No. _233

Introduced by Rep. Robert Nazal

AN ACT ESTABLISHING A COMPREHENSIVE LEGAL AND INSTITUTIONAL
FRAMEWORK FOR SECURING EVERY FILIPINO’S RIGHT TO ADEQUATE
FOOD, APPROPRIATING FUNDS THEREFOR, AND FOR OTHER PURPOSES

EXPLANATORY NOTE

The Constitution “recognizes the vital role of the youth in nation-building and
shall promote their physical, moral, spiritual, intellectual, and social well-being” while,
at the same time, mandating the State to “promote social justice in all phases of
national development” and to “raise the standard of living and improve the quality of
life for all.” The right of every person to adequate food is therefore a constitutional
imperative—an obligation inextricably linked to life, dignity, and equal opportunity.

|. MAGNITUDE OF THE PROBLEM

1, Persistent Hunger and Food Insecurity. The Social Weather Stations (SWS)
found that the annual average proportion of Filipino households that
experienced involuntary hunger nearly doubled to 20.2 percent in 2024, up from
10.7 percent in 2023. In its most recent March 2025 poll, hunger among poor
families spiked further to 35.6 percent—the sharpest month-on-month increase
in two decades.

2. Subsistence (Food-Poor) Incidence. Official data of the Philippine Statistics
Authority (PSA) show that in 2023 some 4.3 percent of Filipinos—about
4.8 million individuals—could not even afford the minimum cost of a basic food
basket, despite modest gains in overall poverty reduction

3. Household Food Insecurity. The 2021 Expanded National Nutrition Survey
(ENNS) of the Food and Nutrition Research Institute (FNRI-DOST) revealed
that one in three households (= 33 percent) experienced moderate to severe
food insecurity, with rural families disproportionately affected (34.5 percent).


4. Child Malnutrition. The same ENNS reported that 26.7 percent—or roughly 1 in
4—Filipino children under five were stunted, indicating chronic under-nutrition;
wasting affected 5-6percent, while micronutrient deficiencies remain
widespread.

5. Economic Cost. According to the National Economic and Development
Authority (NEDA), the Philippines loses an estimated 220 billion annually in
future productivity due to childhood stunting alone. Every percentage-point
reduction in stunting yields significant lifetime earnings gains, underscoring the
high economic return of nutrition-focused policies.

il EXISTING GAPS

« Fragmented Mandates. At least fifteen national agencies run food, nutrition, or
social protection programmes, but coordination is weak and data systems are
not interoperable.

* Short-Term Responses. Many interventions (e.g. relief packs, feeding days)
treat hunger as an episodic emergency rather than a structural rights issue.
Limited Accountability. No single body tracks compliance with the State's
human-rights obligations on food nor evaluates the impact of major policies—

such as land conversion or trade rules—on household food access.

lll, PURPOSE OF THE MEASURE

The proposed Right to Adequate Food Framework Act of 2025 seeks to transform
disparate, ad-hoc efforts into a coherent, rights-based strategy grounded in clear,
time-bound targets and backed by strong institutional and budgetary commitments.

\V. SALIENT FEATURES

1. Commission on the Right to Adequate Food. An independent collegial body
attached to the Office of the President will spearhead policy formulation,
inter-agency coordination, and public accountability.

2. National Hunger-Reduction Targets. Mandatory milestones—25 percent
reduction in three years; 50 percent in five; 75 percent in eight; and Zero Hunger
within ten—anchored on PSA and SWS metrics.

3. Minimum Food Entitlement. Guarantees a daily diet for food-poor households
through calibrated cash, voucher, or in-kind transfers, integrated with existing
social safety nets.

4. Nutrition-Sensitive Agriculture & Local Procurement. Directs the Department of
Agriculture and LGUs to prioritise climate-resilient, diversified food production
and to source at least 30 percent of school-feeding supplies from small farmers
and fisherfoik.

5. Justiciability and Remedies. Affirms that freedom from hunger is immediately
enforceable; provides civil, administrative, and criminal sanctions for wilful
obstruction of food access.

6. Right-to-Food Impact Statement. Requires all major laws, trade agreements,
and infrastructure projects to undergo ex-ante assessment of their implications
‘on household food security.

V. BENEFITS


1. Human Capital. Reducing stunting by half could boost future workforce
productivity by at least 110 billion per cohort and raise average adult earnings
by 10 percent.

2. Resilience and Social Stability. Rights-based food policies lower the likelihood
of civil unrest and mitigate the social costs of disasters by ensuring rapid,
standard-compliant emergency feeding.

3. Inclusive Rural Growth. Local procurement mandates generate stable demand
for smallholder produce, increasing farm incomes and revitalising provincial
economies.

VI. CONCLUSION

Hunger is neither inevitable nor acceptable in a country abundant in natural and
human resources. By enshrining the right to adequate food in a robust legal and
institutional framework—supported by reliable data, clear targets, and enforceable
duties—this measure converts moral urgency into actionable State obligation.
Immediate passage of the Right to Adequate Food Framework Act will place the
Philippines squarely on the path to Zero Hunger, boost economic competitiveness,
and uphold the dignity of every Filipino.

In view of the foregoing, the passage of this bill is eamestly sought.

ROBERT NAZAL.
Representative


Republic of the Philippines
HOUSE OF REPRESENTATIVES
Quezon City, Metro Manila

TWENTIETH CONGRESS
First Regular Session

239

HOUSE BILL NO.

Introduced by Rep. Robert Nazal

AN ACT ESTABLISHING A COMPREHENSIVE LEGAL AND INSTITUTIONAL
FRAMEWORK FOR SECURING EVERY FILIPINO’S RIGHT TO ADEQUATE
FOOD, APPROPRIATING FUNDS THEREFOR, AND FOR OTHER PURPOSES.

Be it enacted by the Senate and the House of Representatives of the Philippines in
Congress assembled

SECTION 1. Short Title. — This Act shall be cited as the “Right to Adequate
Food Framework Act of 2025.”

SEC. 2. Policy Declaration. — The State recognises food as a basic human
right, essential for life and dignity. Consistent with Article 1, Section 15 of the
Constitution and the International Covenant on Economic, Social and Cultural Rights,
the State commits to end hunger and malnutrition through laws, budgets and
programmes that guarantee regular, safe, nutritious and culturally acceptable food for
all persons in the Philippines. Addressing hunger is a duty of government, not an act
of charity.

SEC. 3. Purposes. — This Act aims to:
1. Spell out the content of the right to adequate food in clear, actionable terms;
2. Set time-bound national targets for reducing and ultimately eliminating hunger;
3. Create the Commission on the Right to Adequate Food as the lead institution
that will coordinate, monitor and report on government action; and
4, Provide remedies when the right is violated and penalties for wilful obstruction
of food access.


SEC. 4. Definitions. — For the purposes of this Act:

1. Adequate food means food that is available in sufficient quantities, accessible
Physically and economically, acceptable culturally, safe for human
consumption, and nutritious in line with dietary standards set by the Department
of Health (DOH).

2. Hunger refers to a condition where a person or group consistently fails to meet
the minimum dietary energy requirement and experiences food deprivation.

3. Severe hunger indicates a situation where a person's lack of food poses an
immediate danger to life or health.

4. Vulnerable groups include, but are not limited to, children, pregnant and
lactating women, senior citizens, persons with disabilities, indigenous cultural
communities, displaced families and disaster-stricken households.

5. Food systems cover the entire chain of activities—production, processing,
distribution, marketing and waste management—through which food moves
from farm to table.

6. Commission refers to the Commission on the Right to Adequate Food created
under Section 11 of this Act.

SEC. 5. Elements of the Right. — The right to adequate food embraces four
core elements:

(a) Availability — There must be enough food for everyone, produced by either
local agriculture, fishing and livestock, or imported when local supply is insufficient.

(b) Accessibility — People must be able to obtain food without discrimination or
unreasonable distance, and without sacrificing other basic needs such as housing,
health and education.

(c) Adequacy and Acceptability — Food must satisfy nutritional requirements
for physical and mental development, respect cultural values, and be free from harmful
substances.

(d) Sustainability — Food systems must be managed so that future generations
also enjoy adequate food.

SEC. 6. Freedom from Hunger. — The freedom from hunger is an immediate
and non-derogable obligation. No public or private entity may hinder any individual's
access to food essential for survival. Government must act without delay when people
face severe hunger.

SEC. 7. Human-Rights Principles. — Implementation shall observe: (a)
participation of stakeholders; (b) accountability of duty-bearers; (c) non-discrimination;
(d) transparency; (e) respect for human dignity; (f} empowerment; and (g) adherence
to rule of law.


SEC. 8. Non-Discrimination. — Public programmes and private initiatives that

deliver food must treat all persons equally, paying special attention to vulnerable
groups. Any form of discriminatory pricing, exclusion, or inferior treatment is prohibited.

SEC. 9. Obligations of Government. — Government must:
Respect existing access to adequate food by refraining from actions, such as
unwarranted land conversion, that undermine food sources;

. Protect people's access from third-party interference, including unfair trade

practices and unsafe food products; and

. Fulfil the right by facilitating employment, social protection and direct food

assistance for persons who cannot secure food on their own

SEC. 10. National Hunger-Reduction Targets. — Government shall pursue the

following national goals based on the Social Weather Stations (SWS) self-rated
hunger survey and official nutrition surveys:

1.

»

Year 3: Reduce hunger prevalence by at least 25 percent from the baseline
year;
Year 5: Achieve a 50 percent reduction;

. Year 8: Reach a 75 percent reduction; and
. Year 10: Achieve Zero Hunger nationwide. The Commission shall release an

annual scorecard to track progress.

SEC. 11. Creation of the Commission on the Right to Adequate Food. — An

independent, collegial body called the Commission on the Right to Adequate Food is
hereby created and attached to the Office of the President.

SEC. 12. Composition and Tenure. — The Commission shall consist of a

Chairperson and two (2) Commissioners with recognised expertise in nutrition,
agriculture, economics or human rights. They shall serve a single, non-renewable term

of:

1.
2.

3.

2

Chairperson — ten (10) years;

First Commissioner — seven (7) years; and

Second Commissioner — five (5) years. Appointments shall observe gender
balance where practicable.

SEC. 13. Powers and Functions of the Commission. — The Commission shall:

. Draft and periodically update a National Food Policy supported by measurable

indicators;

. Align agency budgets and local development plans with hunger-reduction

targets;

Collect and analyse data on food production, prices and nutrition;

Conduct human-rights impact assessments of proposed laws, trade deals and
major infrastructure projects that may affect food security;


5. Receive complaints, investigate violations and recommend administrative or
criminal action to the proper authorities;

6. Facilitate dialogue among farmers, fishers, private sector, civil society and
government;

7. Publish an Annual State of Food Security Report no later than 30 June each
year; and

8. Represent the Philippines in regional and international meetings on the right to
food

SEC. 14. Inter-Agency Council. — An Inter-Agency Council on the Right to
‘Adequate Food shall be convened quarterly and chaired by the Commission. it shall
include cabinet-level representatives from, among others, the Departments of
Agriculture, Agrarian Reform, Social Welfare, Health, Education, Trade, Environment,
Labor, Interior and Local Government, the Philippine Statistics Authority (PSA) and
the National Economic and Development Authority (NEDA). The Council shall
harmonise plans, resolve policy gaps and mobilise resources.

SEC. 15. Local Government Units. — Provincial, city, municipal and barangay
governments shall integrate hunger-reduction indicators into their development plans
and allocate funds for community kitchens, school-based feeding, urban gardening
and disaster food stockpiles, subject to guidelines of the Department of the Interior
and Local Government (DILG).

SEC. 16. Minimum Food Entitlement. — The Department of Social Welfare and
Development (DSWD) shall operate or contract programmes, such as cash transfers,
food stamps or digital vouchers, to guarantee a minimum daily diet for individuals and
families who are food-poor, identified through a transparent and verifiable registry.

SEC. 17. School and Community Feeding. — The Department of Education
(DepEd) and local government units shall expand school feeding to cover all
kindergarten and elementary learners in public schools, sourcing at least 30 percent
of food items from local small farmers and fisherfolk cooperatives.

SEC. 18. Nutrition-Sensitive Agriculture. — The Department of Agriculture (DA)
shall promote diversified farming, climate-resilient crops and post-harvest facilities,
prioritising provinces with high hunger and malnutrition rates.

SEC. 19. Emergency Food Response. — During calamities, the National
Disaster Risk Reduction and Management Council (NDRRMC) shall deploy
pre-positioned food packs within 24 hours, guided by Sphere standards on nutrition
and food safety. The Commission shall evaluate compliance after each disaster.


SEC. 20. Review of Proposed Policies. — No major policy, programme or
project that may significantly affect food systems shall proceed without a Right-to-Food
impact Statement reviewed by the Commission.

SEC. 21. Justiciability. — Any person or group that suffers a violation of the
right to adequate food may file a petition before the appropriate court or pursue
administrative action under existing rules. Courts shall give such cases priority.

SEC. 22. Penal Provisions. — Any public official or private individual who
intentionally blocks, diverts, spoils or adulterates food, or unlawfully destroys crops or
fishing grounds, thereby causing severe hunger, shall be punished by prision
correccional and a fine of not less than 100,000 nor more than 2,000,000, without
prejudice to the penalties under other laws.

SEC. 23. Civil and Administrative Liability. — Apart from criminal liability,
violators shall be liable for damages and may face dismissal from service, cancellation
of business permits or other administrative sanctions as provided by law.

SEC. 24. Appropriations. — The amount needed for the first year of
implementation shall be charged against the current budgets of concerned agencies.
Thereafter, annual requirements shall be included in the General Appropriations Act.
The Commission may receive donations, grants and endowments, subject to existing
fiscal rules.

SEC. 25. Implementing Rules and Regulations (IRR). — Within sixty (60) days
from the effectivity of this Act, the Commission shall, in consultation with government
agencies, LGUs, civil society and the private sector, draft and publish the IRR.

SEC. 26. Oversight. — A Joint Congressional Oversight Committee on the
Right to Adequate Food, composed of five (5) members each from the Senate and the

House, shall review implementation every two years and recommend amendments.

SEC. 27. Repealing Clause. — All laws, executive orders, rules and regulations
inconsistent with this Act are hereby amended or repealed accordingly

SEC. 28. Separability Clause. — if any section or part of this Act is declared
unconstitutional or invalid, the remaining provisions shall remain in force.

SEC. 29. Effectivity. — This Act shall take effect fifteen (15) days after
publication in the Official Gazette or in a newspaper of general circulation.

Approved.