TWENTIETH CONGRESS OF THE 
)
REPUBLIC OF THE PHILIPPINES 
)
First Regular Session 
)
SENATE
Senate Bill No. ^^5
LD
JUL-8 ?5:08
Introduced by Senator JOEL VILLANUEVA
AN ACT
ESTABLISHING THE PAGKAIN PARA SA LAHA T PROGRAM AND 
FOR OTHER PURPOSES
EXPLANATORY NOTE
Despite being a major food producer, the Philippines faces significant food 
insecurity, with millions of Filipinos experiencing involuntary hunger. A Social Weather 
Stations survey reports that 20% of Filipino families experienced involuntary hunger 
in April 2025.1 The State of Food Security and Nutrition in the World 2024 report by 
the Food and Agriculture Organization reveals that around 51 million people in the 
Philippines faced moderate or severe food insecurity from 2021 to 2023, accounting 
for 44.1% of the country's total population.2
Despite this persistent problem, it has been estimated that Filipinos waste up to 
308,000 tons of rice annually. In Metro Manila alone, an estimated 2,175 tons of food 
scraps are discarded daily.3 This underscores the need for efficient systems to 
redistribute excess food to those in need.
One such solution seen to be effective in addressing these issues is the 
establishment of food banks. In South Korea, community-based food banks have 
successfully partnered with restaurants, groceries, and convenience stores to collect 
and distribute surplus food to vulnerable populations.4 These initiatives not only
1 
SWS. Hunger at 20.0% by end of April 2025. Available at 
https://www.sws.org.ph/swsmain/artcldisppage/?artcsyscode=ART-20250627174857 (Accessed on 04 July 
2025).
2 
FAO. State of Food Security and Nutrition In the World 2024. Available at https://doi.org/10.4060/cdl254en 
(Accessed on 04 July 2025).
3 
WWF Philippines. Sustainable consumption and production. Available at https://archive.wwf.org.ph/what-we- 
do/food/thesustainablediner/ (Accessed on 18 May 2025).
4 
Korea Foodbank. Who Are We. Available at https://www.foodbankl377.org/koreafoodbank/intro.do (Accessed 
on 19 May 2025).


alleviate hunger but also promote social cohesion and self-reliance through skills 
training programs.5 Similarly, in Singapore, the Food Bank Singapore collects excess 
food from various donors and redistributes it to organizations serving the needy, 
operating as a registered charity and Institution of a Public Character.67
In the Philippines, existing initiatives like the Good Food Grocer in Taguig8 and 
the Cebu Food Bank9 are already demonstrating the viability of food banks. These 
organizations collaborate with private companies, local government units, and food 
establishments to collect surplus food, which is then distributed to communities in 
need. Such models highlight the potential for scaling up food bank operations 
nationwide.
Considering the foregoing, this bill seeks to establish the Pagkain Para Sa Lahat 
Program which shall ensure that food surplus of all food-related businesses is 
channeled and distributed to food banks and soup kitchens established and/or 
accredited in accordance with this measure. In turn, the food banks and soup kitchens 
store and utilize the food surplus for preparation and distribution to citizens who need 
food the most.
This bill also empowers local government units to establish their own food banks 
and/or soup kitchens to ensure that all Filipinos in every LGU have access to quality 
food.
All donations and services donated by food-related businesses or logistics service 
providers, respectively, shall be exempt from donor's tax and shall be considered as 
an allowable deduction from their gross income. In addition, the Department of Social 
Welfare and Development shall establish an incentive system to recognize the best 
practices of all partners in the implementation of the Program.
In view of the foregoing, the passage of this bill is earnestly sought.
JOEI^ILLANUEVA^
Rappler. Lesson from South Korea's food banks. 16 January 2014. Available at 
https://www.rappler.com/moveph/48031-lessons-south-korea-food-banks/ (Accessed on 19 May 2025).
Food Bank Singapore. Who We Sen/e. Available at https://foodbank.sg/about/who-we-serve/ (Accessed on 19 
May 2025).
Food Bank Singapore. The Food Bank Singapore Achieves IPC Status. Available at https://foodbank.sg/the- 
food-bank-singapore-achieves-ipc-status/ (Accessed on 19 May 2025).
Rappler. FAST FACTS: How Phiiippines' first food bank works. 19 July 2018. Available at 
https://www.rappler.com/newsbreak/iq/207684-things-to-know-good-food-grocer-first-food-bank-phlllpplnes/ 
(Accessed on 19 May 2025).
Cebu Food Bank. What We Do. Available at https://wvwv.cebufoodbank.com/about-us/ (Accessed on 19 May 
2025).


TWENTIETH CONGRESS OF THE 
)
REPUBLIC OF THE PHILIPPINES 
)
First Regular Session 
)
SENATE
Senate Bill No. 245
25 J'dL "8 ■:>5 -C8
Introduced by Senator JOEL VILLANUEVA
AN ACT
ESTABLISHING THE PAGKAJN PARA SA LAHAT PROGRAM AND 
FOR OTHER PURPOSES
Be it enacted by the Senate and House of Representatives of the Philippines in 
Congress assembled:
1 
SECTION 1. Short Title. - This Act shall be known as the "Pagkain Para Sa
2 
LahatAct"
3 
SEC. 2. Declaration of Policy. - It is hereby declared the policy of the
4 
State to safeguard food security, end hunger, and promote the efficient distribution
5 
of the country's food resources. Towards this end, the State shall adopt a system
6 
to promote, facilitate, and ensure that food surplus produced by establishments
7 
and food manufacturers are distributed to food banks and soup kitchens.
8 
SEC. 3. Definition of Terms. - As used in this Act, the following terms shall
9 
mean;
10 
a) Food banks to either public, private, non-profit, charitable, or other
11 
social mission-driven organizations that store food surplus and distribute it to
12 
soup kitchens or other establishments, or sell it to consumers;
13 
b) Food-related businesses refer to public and private businesses involved in
14 
the manufacturing and processing of food products, private businesses
15 
involved in the wholesaling and retailing of food products, and private
16 
businesses involved in serving food products, which may include, but are not


1 
limited to, farms, factories, supermarkets, groceries, wholesalers, convenient
2 
stores, restaurants, fast food chains, cafeterias, and hotels;
3 
c) Food surplus refers to food inventory from food-related businesses which
4 
have been left unsold during the ordinary course of business, but is still fit
5 
for consumption based on standards set by relevant laws, rules, and
6 
regulations;
7 
d) Logistics service providers refer to persons or entities engaged in the
8 
transport or delivery of goods; and
9 
e) Soup kitchens refer to either public, private, non-profit, charitable, or other
10 
social mission-driven organizations that prepare and serve food given by food
11 
banks or other donors.
12 
SEC, 4. Establishment of the Pagkain Para Sa Lahat Program; Role
13 
ofDSWD. - There shall be created a Pagkain Para Sa Lahat Program which shall
14 
ensure that food surplus of all food-related businesses shall be channeled and
15 
distributed to food banks and soup kitchens established and/or accredited in
16 
accordance with this Act.
17 
The Department of Social Welfare and Development (DSWD) shall be the
18 
lead and coordinating agency for the proper implementation of the Program. In
19 
the performance of this function, the DSWD shall:
20 
a) 
Provide the framework, guidelines, and standards for the collection, storage,
21 
and distribution of food surplus donated to food banks and/or soup kitchens;
22 
b) 
Coordinate with local government units (LGUs) on the establishment of local
23 
food banks and/or soup kitchens;
24 
c) 
Promote linkages between food-related businesses, food banks, and soup
25 
kitchens to create a community-based food distribution system; and
26 
d) 
Coordinate with food manufacturers, food-related businesses, food banks,
27 
and other government agencies for the development of programs to bolster
28 
food distribution to beneficiaries.
29 
SEC. 5. Accreditation and Establishment of Food Banks and Soup
30 
Kitchens. - The DSWD shall establish a system of accreditation of private food
31 
banks and soup kitchens. It shall also ensure that at least one (1) food bank and
32 
soup kitchen is available in every city or municipality. In the absence thereof, the


1 
DSWD shall immediately inform and coordinate with the LGU concerned, for the
2 
establishment of a food bank and soup kitchen in such locality.
3 
To ensure that all food surplus is consumed properly and in a timely manner,
4 
a food bank shall, as far as practicable, have a partner soup kitchen. All food banks
5 
and soup kitchens established and/or accredited in accordance with this Act shall
6 
offer their products to the public without any qualification.
7 
SEC. 6. Duties of Food-related Businesses. - To achieve the objectives
8 
of this Act, all food-related businesses shall:
9 
a) 
Determine the amount, type, and quantity of food surplus that can be
10 
delivered for consumption of beneficiaries of food banks and/or soup
11 
kitchens;
12 
b) 
Enter into contracts or agreements with food banks and soup kitchens to
13 
redistribute food surplus to beneficiaries of food banks and/or soup kitchens;
14 
c) 
Shoulder the costs, on its own or in partnership with a logistics service
15 
provider, of transporting food surplus from the business or storage site to the
16 
food bank or soup kitchen, or to their respective warehouse or distribution
17 
center; and
18 
d) 
Ensure that the food surplus is unadulterated, fit for human consumption,
19 
and in good condition upon arrival at the food bank's distribution center. For
20 
this purpose, a system for evaluating food surplus shall be created by the
21 
National Nutrition Council (NNC) to ensure that food surplus is fit for human
22 
consumption.
23 
SEC. 7. Duties of Food Banks - To ensure that all food surplus given or
24 
donated to food banks benefit all citizens, all food banks shall:
25 
a) 
Submit periodic reports to the DSWD and the concerned LGU on the type of
26 
food donated, quantity donated, and other pertinent information on the
27 
distribution of food surplus in their establishments;
28 
b) 
Ensure that all food surplus given or donated to it is fit for human
29 
consumption, and require as proof a certification from the NNC for this
30 
purpose;
31 
c) Establish linkages with soup kitchens;


1 
d) Store food surplus for distribution to beneficiaries and partner-soup kitchens;
2 
and
3 
e) Ensure that their facilities follow best practices and procedures on food
4 
storage.
5 
SEC. 8. Duties of Soup Kitchens. - To ensure that all food ingredients
6 
used by soup kitchens are fit for human consumption, soup kitchens shall:
7 
a) Ensure that all food surplus given or donated to it is fit for human
8 
consumption, and require as proof a certification from the NNC for this
9 
purpose; and
10 
b) Prepare food surplus to cooked or processed form fit for consumption, and
11 
ensure such is free from contamination.
12 
SEC. 9. Duties of Locai Government Units. - LGUs are hereby required
13 
to:
14 
a) As far as practicable and in the absence of a food bank and/or soup kitchen
15 
located in their respective localities, establish local food banks and soup
16 
kitchens in their area;
17 
b) Utilize food banks and/or soup kitchens and, if possible, merge the latter with
18 
its community development programs;
19 
c) Provide technical, financial, and logistical support to food bank and/or soup
20 
kitchen operations within its territorial jurisdiction; and
21 
d) Regularly inspect the establishments of food-related businesses, food banks,
22 
and soup kitchens to ensure that they are compliant with all sanitation and
23 
other related laws.
24 
SEC. 10. Incentives for Participation. - All donations of food surplus or
25 
service donated by food-related businesses or logistics service providers,
26 
respectively, shall be exempt from donor's tax. In addition, the same shall be
27 
considered as an allowable deduction from their gross income, in accordance with
28 
the provisions of the National Internal Revenue Code, as amended.
29 
The DSWD, in coordination with the Department of the Interior and Local
30 
Government (DILG) and LGUs, shall also establish a system of incentives to
31 
participants of the Program to recognize their best practices with regard to


1 
achieving the objectives of this Act, such as training packages, technical guidance,
2 
awards, and other similar incentives.
3 
SEC. 11. Liability. - The certification issued by the NNC shall serve as
4 
sufficient proof that the food surplus donated or distributed is fit for human
5 
consumption: Provided, That the distribution or preparation of food surplus,
6 
processed or otherwise, was done in good faith and in compliance with good food
7 
handling processes.
8 
SEC. 12. Implementing Rules and Regulations. - Within sixty (60) days
9 
from the effectivity of this Act, the DSWD shall, in coordination with the DILG,
10 
Department of Health (DOH), NNC, Bureau of Internal Revenue (BIR), and other
11 
relevant government agencies and stakeholders, promulgate the necessary rules
12 
and regulations for the effective implementation of this Act.
13 
Failure of the relevant government agencies to promulgate the IRR within
14 
the specified period shall subject the heads of these government agencies to
15 
administrative penalties under applicable civil service laws.
16 
Should the IRR contain provisions that are contrary to this Act, the heads of
17 
the government agencies responsible for such provision, when done in bad faith
18 
or with gross negligence, shall be held administratively liable.
19 
SEC. 13. Annual Report. -The DSWD shall, in coordination with the DILG,
20 
DOH, and other relevant agencies, submit an annual report on the implementation
21 
of this Act to the President of the Philippines and both Houses of Congress on or
22 
before April 30 of each year.
23 
SEC. 14. Appropriations. -The funds needed to implement the provisions
24 
of this Act shall be included in the annual General Appropriations Act.
25 
SEC. 15. Separability Clause. - If any portion or provision of this Act is
26 
declared unconstitutional, the remainder hereof or any provisions not affected
27 
thereby shall remain in force and effect.
28 
SEC. 16. Repealing Clause. - Any law, presidential decree or issuance,
29 
executive order, letter of instruction, rule, or regulation inconsistent with the
30 
provisions of this Act is hereby repealed or modified accordingly.


1 
SEC. 17. Effectivity. - This Act shall take effect fifteen (15) days after its
2 
complete publication in the Official Gazette or in a newspaper of general
3 
circulation.
Approved,