NINETEENTH CONGRESS OF THE ) 
REPUBLIC OF THE PHILIPPINES ) 
First Regular Session 
)
SENATE
s. No. 523
/»
REC IVE
DATE
BILLS
Introduced by SENATOR CYNTHIA A. VILLAR
AN ACT
TO CONSERVE, PROTECT AND SUSTAINABLY MANAGE PEATLANDS AND 
ITS RESOURCES, AND FOR OTHER PURPOSES
EXPLANATORY NOTE
Peatlands are wetland ecosystems that are characterized by the accumulation 
of organic matter called peat which derives from dead and decaying plant material 
under high water saturation conditions (CC-GAP, 2005). They are one of the unique 
and most significant ecosystems which have key values for biodiversity conservation, 
water and climate regulation, and support for human welfare. They are the world's 
significant carbon sink but once drained and degraded, peatlands become 
susceptible to fire and become carbon source.
Sometime in 1997, a continuing forest fire in Indonesia made headlines 
around the world as the haze caused by this fire spread to its neighboring countries 
including the Philippines. Aside from the ecological and economic damages it caused, 
it also affected the health of millions of people. The forest fire happened in 
Indonesia is not just an ordinary forest fire, but peat fire that is difficult to 
extinguish, highly unpredictable and uncontrollable.
Peatlands cover an estimated area of 400 million hectares, or equivalent to 
3% of the Earth's land surface (Joosten and Clarke 2002). In Southeast Asia, total 
peatland area is approximately 24.7 million hectares in which 20.7 million hectares 
are in Indonesia (Page et al., 2011). Peatlands in the Philippines is roughly estimated 
to be 20,000 hectares, which are relatively small compared to other countries in 
Southeast Asia. However, regardless how small these peatlands are, they play a


globally significant role in the storage and sequestration of carbon if kept wet and 
intact.
Unlike any other wetland types, peatlands in the country were only 
documented starting in 2005. There is a fundamental lack of awareness on 
peatlands, its characteristics and appropriate management strategies for peatlands 
in all sectors, from local people to non-government organizations (NGOs) and 
government agencies. They have been a common target for agricultural 
development and oil palm plantations that drain and damage the features that make 
them globally-important carbon sinks. Since peatlands and their significance are 
poorly known, many of them were drained and converted to agriculture, and then 
lay abandoned after finding out too late that peatlands are unsuitable for planting 
rice. Peatland degradation did not just result to decline in biodiversity; many areas 
that were drained suffered from land subsidence and became fire prone.
To date, there is no single national policy that deals directly on peatlands, 
specifically on their conservation and sustainable use. Of the nine (9) peatlands 
recorded In the 2016 Atlas of Philippine Inland Wetlands and Classified Caves, only 
the Caimpugan Peat Swamp Forest in Agusan Marsh Wildlife Sanctuary is protected 
under the National Integrated Protected under the National Integrated Protected 
Area System (NIPAS) Act, as amended by Republic Act 11038 Expanded National 
Integrated Protected Areas System (ENIPAS) Act of 2018. As of 2019, a total of 24 
possible peatlands areas all over the country had been reported, with 15 new 
records of peatlands added and facing threats of degradation.
The ASEAN Members States signed the ASEAN Agreement on Transboundary 
Haze Pollution (AATHP) on 10 June 2002, which aims to prevent, monitor, and 
mitigate land and forest fires to control transboundary haze pollution through 
concerted national efforts, regional and international cooperation. This Agreement 
was ratified by the Philippines on February 1, 2010. One of the concrete and 
collective actions under the AATHP Roadmap is specifically on the sustainable 
management of peatlands for peatland fire prevention. In addition, under the 
ASEAN Peatland Management Strategy 2006-2020, the ASEAN Member States are


committed to develop or strengthen policies and legislation to protect peatlands and 
reduce occurrence of peatland fires.
The Philippines, is also a signatory to the Convention on Wetlands, also 
known as the Ramsar Convention, which entered into force in the Philippines on 
November 8, 1994. As a Contracting Party, we are committed to work towards the 
adoption and legislation of a national policy that will protect wetlands, including 
peatlands. Recognizing the importance of peatlands, the Ramsar Convention also 
provides Contracting Parties with several guidance on global actions for peatland 
restoration, conservation and as criteria for identification of international significance 
through inclusion to the Ramsar Sites network.
The attached legislative measure seeks to guide all concerned national 
government agencies and local government units in adjusting their sectoral or local 
policies, plans and programs to be consistent with protection and conservation of 
peatlands. This will also greatly enhance current efforts to raise awareness on the 
importance of peatlands particularly in terms of climate change mitigation.
The bill seeks to support the country in achieving our commitments to various 
international agreements, particularly to the Convention on Wetlands, Convention on 
Biological Diversity, Convention on Migratory Species, and to the Sustainable 
Development Goals, Sendai Framework for Disaster Risk Reduction 2015-2030, and 
UN Framework Convention on Climate Change, among others.
The approval of this bill will ensure the protection, conservation, and wise use 
of all peatlands and its resources in the Philippines, eventually contributing to the 
well-being of the present and future generations of Filipinos.
Hence, I recommend the early approval of this bill.
CYNTHIA A. VILLAR


NINETEENTH CONGRESS OF THE ) 
REPUBLIC OF THE PHILIPPINES ) 
First Regular Session 
)
SENATE
S. No. 523
2ds
TI;ViL
BILLS
INDEX
Introduced by SENATOR CYNTHIA A. VILLAR
AN ACT
TO CONSERVE, PROTECT AND SUSTAINABLY MANAGE PEATLANDS AND 
ITS RESOURCES, AND FOR OTHER PURPOSES
Be it enacted by the Senate and House of Representatives of the Phiiippines in 
Congress assembied:
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Section 1. Short Tide. - This Act shall be known as the "National Peatland and
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Peatland Resources Act of 2022".
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Sec. 2. Deciaration of Poiicy. - It is the policy of the State to promote the 
conservation and sustainable development of peatland and peatland resources 
consistent with the principles of sustainable development, inclusive economic 
development, poverty reduction, biodiversity conservation, climate change 
adaptation and mitigation, and disaster risk reduction and management; while 
advancing the right to a balanced and healthful ecology in accordance with the 
harmony and rhythm of nature.
Sec. 3. Coverage. - This Act shall apply to all peatland and peatland 
resources nationwide within public and private lands.
Sec. 4. Definition of Terms. - The following terms shall be construed to mean
as:


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a) 
High Conservation Value refers to the biological, ecological, social or 
cultural values of outstanding significance at the national, regional or 
global level or of critical importance at the local level;
b) 
Land use planning refers to the rational and judicious approach of 
allocating available land resources to different land - using activities, 
(e.g. agricultural, residential, industrial) and for different functions 
consistent with the overall development vision/goal of a particular 
locality;
c) 
Peat refers to dead and partially decomposed plant material that have 
accumulated under high water saturation or waterlogged conditions. 
Peat soil is defined using the definition of histosol (organic soil) which 
are soils with cumulative organic layer(s) comprising more than half of 
the upper 80cm of the soil surface containing 35% or more organic 
matter (35% or more loss on ignition) or 18% or more organic carbon;
d) 
Peat swamp forest refers to a type of peatland that has forest cover 
and can be found in certain areas in the tropical regions of the world 
including the Philippines;
e) 
Peatiands refers to wetland ecosystems characterized by the 
accumulation of peat at the surface. Major characteristics of peatiands 
are the presence of peat, and permanent water logging. Peatiands may 
have vegetation in the form of trees, shrubs, grasses, and mosses;
f) 
Protected Area refers to identified portions of land and/or water set 
aside by reason of their unique physical and biological significance, 
managed to enhance biological diversity and protected against 
destructive human exploitation;
g) 
Riparian area or zone refers to land that occurs along watercourses 
and water bodies and are composed of moist to saturated soils, water- 
loving plant species and their associated ecosystems. This may be 
found surrounding lakes, estuaries, streams and rivers;


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h) 
Subsidence refers to the lowering or collapse of the ground level that
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results from draining water from peatlands and or due to fire
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incidence;
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i) 
Wetlands refer to a wide variety of areas such as natural pools/ponds,
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springs, freshwater swamps/marshes, peatlands, floodplains, rivers and
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lakes, and coastal areas such as estuaries, saltmarshes, mangroves,
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lagoons, intertidal flats and seagrass beds, and also coral reefs and
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other marine areas no deeper than six meters at low tide, as well as
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human-made wetlands such as dams, reservoirs, rice paddies, fish
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ponds, saltpans, and wastewater treatment ponds;
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j) 
Wise use refers to the maintenance of the ecological character of
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peatlands, achieved through the implementation of ecosystem
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approaches, within the context of sustainable development.
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Sec. 5. Implementing and Monitoring Agencies. - The Department of
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Environment and Natural Resources (DENR) through the Biodiversity Management
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Bureau, shall be the lead agency in monitoring of overall implementation and
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compliance with this Act. The Department of the Interior and Local Government
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(DILG) through the Bureau of Local Government Supervision shall support in the
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implementation of this Act, in coordination with Department of Agriculture - Bureau
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of Soils and Water Management, Philippine Atmospheric, Geophysical and
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Astronomical Services Administration, Department of Agrarian Reform, Bureau of
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Fire Protection - DILG, Bureau of Local Government Development - DILG,
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Department of Public Works and Highway, National Water Resources Board, National
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Museum, concerned DENR Offices, academe, and concerned Local Government Units
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for specific peatland areas, and concerned non-government organizations.
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The DENR with the coordinating agencies shall exercise the following powers
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and functions within their mandates: formulate, implement and monitor policies,
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rules, ordinances regulations, plans and programs; enter into partnership and
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engagements with interested partners; develop best practices on the wise use of
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peatland areas; communication education public awareness; and convene regular


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meetings to update and share technical progress report to be shared among the
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coordinating agencies.
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Sec. 6. Role of Local Government Units. - The municipal, city, or provincial
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Local Government having territorial jurisdiction over the peatland and its resources
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shall prioritize peatland for protection under the National Integrated Protected Area
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System (NIPAS), as amended by RA 11038, or declared as critical habitat under the
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Wildlife Act, or as local conservation area or other effective area-based conservation
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measures through the ordinances of LGUs. They shall also include the protection and
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conservation of peatland and its resources to their respective Comprehensive Land
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Use Plans (CLUPs) and other plans in consultation with concerned agencies. They
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shall coordinate with the DENR and DILG in monitoring of peatland and its resources
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within their jurisdiction and in compliance of this Act.
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Sec. 7. Integration and Mainstreaming of Peatland Protection and Sustainable
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Use. - All government agencies and offices, and local government units (LGUs) shall
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integrate and mainstream peatland protection and sustainable use into their plans,
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policies, ordinances and rules and regulations, programs, projects, and development
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planning process. They shall also directly consult with the DENR and affected
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communities in the development and implementation of their plans, programs and
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projects within, or having impact, on peatlands.
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Sec. 8. Development of National Peatland Conservation Program. - A National
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Peatland Conservation Program shall be developed by the DENR, in coordination
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with other concerned agencies, sectors, and stakeholders, within one year from the
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effectivity of this Act to provide direction, support and guidance to the local
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government units (LGU) and stakeholders in the development and implementation of
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their local peatland conservation programs. The National Peatland Conservation
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Program shall define national targets for the conservation of peatlands and the
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development of its national coordinating mechanism.
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The Program shall include, but not limited to the following strategies:


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1) 
Inventory, mapping, delineation, assessment and monitoring of 
peatlands. All peatlands in the country shall be inventoried and 
assessed. Peatland assessment including bio-capacity, carrying 
capacity, carbon storage and ecosystem services assessment and 
valuation of peatland ecosystems shall be conducted to measure the 
full extent of its value and guide agencies on its conservation and 
sustainable use;
2) 
Restoration and Rehabilitation of degraded peatlands;
3) 
Regulation against peatland drainage, conversion and reclamation,
peat extraction and deliberate setting of fire within the peatland or 
Immediately adjacent areas that may affect the peatland;
4) 
Enforcement of legal easement zones, dangers zones and other land 
use setbacks. All concerned government agencies and LGUs shall 
strictly implement land use setback provisions imposed by law;
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Peat fire early warning systems, prevention, control and monitoring;
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Research and Development;
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Assessment of vulnerability to climate change and 
disaster risk
management;
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Peatland carbon stock assessment, accounting, verification and 
crediting;
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Assessment and monitoring of greenhouse gas flux;
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Knowledge management and peatland information system;
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Implementation of soil and water conservation technologies;
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Measures to address invasive alien species;
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Establishment and promotion of peatland best management practices 
(including Public-Private Partnership);
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Communication, education, participation, capacity-building and 
awareness program;


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Collaboration with Indigenous and local communities in the
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management and wise use of the peatlands;
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16) Integration of local and traditional ecological knowledge and practices
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with science-based knowledge systems;
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Requiring environmental impact assessments for any development
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activity proposed within the peatland of adjacent areas or the
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catchment of the peatland which may potentially have a negative
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impact on the peatland.
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Sec. 9. Land Classification of Peatland. - All areas which have been classified
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and released as agricultural land but that are currently or formerly may have been
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identified as peatland even if they have been subsequently degraded shall be
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reverted to either forest land or national park. The appropriate implementing agency
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shall immediately initiate the expropriation proceedings before the proper court
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under the existing law.
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Sec. 10. Prohibited acts. - In addition to acts or omissions already penalized
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by existing laws, the following offenses shall be punishable under this Act:
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1) 
Drainage of peatlands for the following purposes:
a) 
Conventional agriculture development;
b) 
Illegal logging; or
c) 
Transport and infrastructure, and other land use.
2) 
Forest clearance and degradation, such as:
a) 
Peatland conversion to agriculture, mining, residential, or any 
other kind of conversion;
b) 
Logging; or
c) 
Fire.
3) 
Petland deforestation and fires for the following purposes:
a) 
Land clearance;
b) 
Land claims and conflicts;
c) 
Resource extraction; or
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d) Accidental.
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Sec. 11. Pena! provision. - Violation under this Act or any rule or regulation
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pursuant to this Act, shall upon conviction, be punished with a fine not less than
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Two Hundred Thousand pesos (P200,000.00) or imprisonment of not less than six
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(6) months, or both, shall be Imposed at the discretion of the court.
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Sec. 12. Appropriations. - The amounts necessary to implement this Act
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during the first year of implementation shall be sourced from the DENR.
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Thereafter, such amounts necessary to effectively carry out the provisions of this Act
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shall be included In the General Appropriations Act.
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Sec. 13. Impiementing Ruies and Reguiations (IRR). - Within six (6) months
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from the date of this Act, the DENR, In close coordination with concerned agencies,
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shall prepare the IRR of this Act.
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Sec. 14. Reporting on the Impiementation of this Act - The Biodiversity
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Management Bureau in coordination with concerned agencies shall submit a report
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every three years to the President of the Philippines through the DENR Secretary on
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the implementation of this Act.
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Sec. 15. Separabiiity Cause. - If any provision of this Act is declared
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unconstitutional or invalid, any part or provisions hereof not affected thereby shall
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continue to be in full force and effect.
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Sec. 16. Repeating Cause. - All laws, decrees, executive orders, rules and
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regulations or parts thereof which are contrary or inconsistent with this Act are
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hereby repealed or modified accordingly.
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Sec. 17. Effectivity. -This Act shall take effect fifteen (15) days following its
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publication in the Official Gazette or in at least two (2) newspapers of general
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circulation.
Approved,