EIGHTEENTH CONGRESS OF THE 
)
REPUBLIC OF THE PHILIPPINES 
)
Second Regular Session 
)
SENATE 
S. No. 2184
&
DA TG
T»ME
Introduced by SENATOR RAMON BONG REVILLA, JR.
AN ACT
INSTITUTIONALIZING THE PHILIPPINE ECOSYSTEM AND NATURAL 
CAPITAL ACCOUNTING SYSTEM (PENCAS), APPROPRIATING FUNDS 
THEREFOR AND FOR OTHER PURPOSES
EXPLANATORY NOTE
This bill seeks to institutionalize a Philippine Ecosystem and Natural Capital 
Accounting System (PENCAS) to reflect environmental inputs and outputs in the 
determination of national income accounts.
The nationai income accounts are important indicators for determining the level 
of development of a country. Conventional national income accounting systems 
measure economic performance by determining the value of goods and services 
produced in a country and aggregating them to come up with indicators of economic 
deveiopment such as the Gross National Product (GNP) and Gross Domestic Product 
(GDP). The goods and services that are included in this accounting system are those 
that are "marketed", the prices of which are the basis’ for estimating the value that 
are then included in computing economic indicators. This methodology thus reflects 
the goods and services produced, sold, and bought in the economy.
However, the conventional methodology for computing national income 
accounts has its shortcomings. In the process of producing marketed goods and 
services, the natural environment generates goods and services that are utilized but 
are not vaiuated in the process of producing goods and services. Consumption 
benefits of amenities provided by the natural environment, waste disposal services.


and pollution are part of producing marketed commodities but are not valuated 
(positively or negatively) and reflected in national income accounting.
Indicators and standards generated by the national income accounting system 
are considered vital information for economic management and poiicy-making. They 
serve as basis for socio-economic planning, formulation of development programs, 
and policy analysis in aid of legislation, among others. Thus, it is important that the 
nationai income accounts reflect a more accurate state of development and economic 
performance of the country. It should incorporate both environmental and non- 
environmental economic inputs and outputs for policymakers to make responsive, 
relevant and effective laws, plans and programs necessary for national development.
This is a counterpart measure of House Bill No. 9181 fiied by Representative 
Loren B. Legarda.
In view of the foregoing, the immediate passage of this bill is highly 
recommended.
RAMON KONG REVILLA, JR


EIGHTEENTH CONGRESS OF THE 
)
REPUBLIC OF THE PHILIPPINES 
)
Second Regular Session 
)
SENATE 
S. No. 2184
DATt:
TIME
Introduced by SENATOR RAMON BONG REVILLA, JR.
AN ACT
INSTITUTIONALIZING THE PHILIPPINE ECOSYSTEM AND NATURAL 
CAPITAL ACCOUNTING SYSTEM (PENCAS), APPROPRIATING FUNDS 
THEREFOR AND FOR OTHER PURPOSES
Be it enacted by the Senate and House of Representative of the Philippines in Congress 
assembled:
1 
Section 1. Short Title. - This Act shall be known as the "Philippine Ecosystem
2 
and Natural Capital Accounting System (PENCAS) Law of2021".
3 
Sec. 2. Declaration of Policy. — It is hereby declared the policy of the State to:
4 
(a) Promote the common good, conserve and develop our patrimony, as
5 
provided in the Preambie of the Constitution, natural capital being the
6 
bedrock of the nationai patrimony;
7 
(b) Develop a comprehensive information system and accounting framework
8 
that will take into consideration the role of our natural capital, consisting
9 
of both environmental and natural resources, and its impact on the
10 
country's economy;
11 
(c) Include and institutionalize natural capital accounting as part of the
12 
national income accounting system, strengthening and building on
13 
Republic Act No. 10625, otherwise known as the "Philippine Statistical
14 
Act of 2013", on environmental accounts and statistics;
15 
(d) Provide indicators that will facilitate the integration of environmental and
16 
natural resource concerns in national development planning and policy


1 
making, in ailocation of budgets, and in designating statistics that will
2 
be produced regularly for an identified period of analysis;
3 
(e) Establish and improve inter-agency coordination for the purpose of
4 
linking economic with environmental and natural resource information
5 
and efficient data management among concerned government agencies
6 
and their partner institutions, and to establish an office to guide such
7 
coordination; and,
8 
(f) Include nature's pricelessness, its intrinsic value, and its
9 
interdependencies In the implementation of the foregoing policies to
10 
consider that nature and ecosystems have Intrinsic rights to exist, with
11 
an end in view of recognizing legal rights that serve to protect
12 
endangered ecosystems and applying the precautionary principle,
13 
especially when economic values cannot be estimated.
14 
Sec. 3. Definition of Terms. - For purposes of this Act, the following terms are
15 
hereby defined as follows:
16 
(a) An ecosystem is a complex community of living organisms, their physical
17 
environment, and all their Interrelationships In a particular unit of space,
18 
and these biotic and abiotic components are linked together through
19 
nutrient cycles and energy flows;
20 
(b) Capital\s a stock concept, which yields a periodic Income, which is a flow
21 
concept;
22 
(c) Natural capita! is the concept of nature as a stock that provides a flow
23 
of benefits to people and the economy. Natural capital consists of stocks
24 
of natural assets - both biotic and abiotic. It Includes air, water, soil,
25 
minerals, forests, coral reefs, seagrass beds, and all living things. It is
26 
from this natural capital that humans derive a wide range of goods and
27 
services, which make human life possible. The goods and services that
28 
natural capital provides, such as food, water, energy or climate
29 
regulations, are called ecosystem services. These provide people
30 
everywhere with the means for healthy lives and underpin all economic
31 
activity.


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(d) Ecosystem services are the flows of benefits, which people gain from
2 
natural ecosystems, while natural capital consists of the stock of natural
3 
ecosystems or stock of renewable and non-renewable natural resources
4 
from which these benefits flow.
5 
(e)The United Nations System of Environmental-Economic Accounting
6 
(SEEA) Is a framework that integrates both economic and environmental
7 
data to provide, a more comprehensive and multipurpose view of the
8 
interrelationships between the economy, the environment and
9 
ecosystems, and the stocks and changes in stocks of natural assets, as
10 
they bring benefits to humanity.
11 
Sec. 4. Philippine Environmental and Natural Capital Accounting System
12 
(PENCAS). - A System of Environmental-Economic Accounting is hereby
13 
institutionalized within the government bureaucracy. The Philippine Environmental
14 
and Natural Capital Accounting System (PENCAS) shall be based on the existing
15 
environmental accounting frameworks that are covered by the UN SEEA and are
16 
theoretically correct and accepted as evaluated based on International standards.
17 
Among others, the PENCAS framework shall include a list of the officially designated
18 
statistics on the depreciation of natural capital, environmental protection expenditures,
19 
pollution and quality of land, air and sea, environmental damages, and genuine
20 
savings. It shall conform to and expound, expand and localize the UN SEEA. A
21 
roadmap and manual for further development of these indicators for each of the
22 
terrestrial (land and freshwater) and blue (marine) economies shall be formulated.
23 
The draft roadmap and International manuals shall be customized to the ecosystems
24 
in the Philippine archipelago that support the terrestrial and blue economies. All these
25 
data shall constitute the Philippines' natural capital, the conservation of which shall be
26 
paramount.
27 
Sec. 5. Objectives of the PENCAS. — The PENCAS shall supplement the current
28 
System of National Accounts and shall have the following major functions:
29 
(a) To support economic-environmental policy development and declsion-
30 
making;
31 
(b)To generate the Philippine version of the UN SEEA satellite accounts
32 
covering both the Central Framework and the Ecosystem Accounts;


1 
(c)To serve as a comprehensive data framework in the generation of
2 
PENCAS statistics; and,
3 
(d)To ensure that ecosystems and habitats, especially the ones in critical
4 
danger of irreparable damage, are conserved and restored. In line with
5 
the objectives and timelines of key Multilateral Environmental
6 
Agreements, Including the United Nations Decade of Ecological
7 
Restoration and the 2030 Agenda for Sustainable Development.
8 
Sec. 6. Involvement of Government Agencies. — The following government
9 
agencies and the concerned offices under or attached to them shall be involved In the
10 
establishment and institutionalization of the PENCAS:
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(a) Department of Environment and Natural Resources (DENR);
12 
(b) Department of Agriculture (DA);
13 
(c) Philippine Statistics Authority (PSA);
14 
(d) National Economic and Development Authority (NEDA);
15 
(e) Department of Energy (DOE);
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(f) Department of Tourism (DOT);
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(g) Department of Transportation (DOTr);
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(h) Department of Public Works and Highways (DPWH);
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(i) Department of Health (DOH);
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(j) Department of the Interior and Local Government (DILG);
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(k) Department of Science and Technology (DOST);
22 
(I) Department of Human Settlements and Urban Development (DHSUD);
23 
(m) National Water Regulatory Board (NWRB); and,
24 
(n) Other agencies as necessary.
25 
Sec. 7. Duties of Specific Bureaus within the Agencies. - The following Bureaus
26 
shall have special mandates for natural capital accounting herein based on their
27 
primary functions:
28 
(a) Bureau of Fisheries and Aquatic Resources;
29 
(b) Bureau of Soils and Water Management;
30 
(c) All Bureaus of the DENR, Including the National Mapping and Resource
31 
Information Authority (NAMRIA), and National Water Resources Board
32 
(NWRB);


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(d) National Renewable Energy Board (NREB);
2 
(e) Research and Development Institutes and Science and Technology
3 
Services of the DOST;
4 
(f) Philippine Coconut Authority (PCA);
5 
(g) Philippine Rice Research Institute (PhilRice);
6 
(h) National Irrigation Administration (NIA);
7 
(i) Philippine Atmospheric Geophysical and Astronomical Sciences
8 
Administration (PAGASA); and,
9 
(j) Philippine Institute of Volcanology and Seismology (PHILVOLCS)
10 
Sec. 8. Creation of the Natural Capital Units. - Natural Capital units shall be
11 
created within the organizational structure of the DENR, DA, PSA, NEDA, DOE, DOT,
12 
DOTr, DPWH, DTI, DOH, DILG, DOST, DHSUD, and other agencies as necessary.
13 
The head of the Natural Capital Units in the foregoing government agencies
14 
should be at a Division Chief or higher level. The Department Head shall designate
15 
existing personnel within the Departrnent or hire new ones within its budget to operate
16 
its Natural Capital Unit.
17 
Sec. 9. Natural Capital Units at National Agencies. — The Natural Capital Units
18 
at the DENR, DA, NEDA, DILG, DOE, DOT, DOTr, DPWH, DTI, DOH, DILG, DOST, and
19 
DHSUD shall:-
20 
(a) Develop and apply, with its various offices, attached agencies, GOCCs
21 
and beneficiaries, the data collection, development and compilation of
22 
resource or natural asset and ecosystem service accounts,
23 
environmental and emission accounts and ocean accounts, relevant to
24 
each agency's mandates, and formulate viable data development
25 
approaches and methodologies in coordination with PSA;
26 
(b) Collaborate with the science community In conducting studies and
27 
research in support of policy development related to PENCAS;
28 
(c) Ensure that sustainable development principles, especially regenerative
29 
resource use / resource conservation and climate, environmental and
30 
indigenous biodiversity considerations, are integrated in all its bureaus
31 
and offices and in their policy, national and project planning and
32 
implementation based on PENCAS results; and strengthen its statistical


1 
capabilities, especially regulatory monitoring to provide environmental
2 
and natural resources data and accounts to Other national government
3 
agencies, local government units, private sector, civil society, and other
4 
data users; .
5 
(d) Prioritize the data generation for the PENCAS accounts for the blue
6 
economy, particularly for areas of national patrimony most in danger of
7 
exploitation and appropriation, such as the West Philippine Sea and the
8 
Philippine Rise;
9 
(e) Institutionalize open data for the studies and research in support of
10 
policy development related to PENCAS;
11 
The DILG shall assist the local governments in building capacity and performing
12 
the above functions as far as they are able in order to build their own PENCAS
13 
accounts. It shall also consolidate local government data and statistics and compare
14 
these with the national accounts as generated by the other agencies.
15 
Sec. 10. Staffing Pattern for Natural Capital Units. — The agencies concerned
16 
shall, as much as practicable, utilize existing qualified employees for staffing the
17 
Natural Capital Units. In case, however, of the lack of qualified employees who have
18 
the skills and capabilities required of the functions of the Units, the concerned agency
19 
shall be allowed to include new plantilla items in accordance with the prescribed
20 
procedures therefor.
21 
Sec. 11. Functions of the Philippine Statistics Authority (PSA). - The Natural
22 
Capital Unit at the PSA shall have a pivotal role in the implementation of the PENCAS:
23 
(a) Compile and collate PENCAS Accounts, and study and formulate viable
24 
approaches and methodologies for the PENCAS;
25 
(b) Formulate templates, guidelines and digital aids to ensure that all units,
26 
especially local government, generating PENCAS data do so in a manner
27 
that can be efficiently consolidated, compared and analyzed, and ensure
28 
public accessibility for these tools;
29 
(c) B<plore ways and means to modify and improve current environmental
30 
and economic statistics, in coordination with the concerned data
31 
producers and users, including those in the academe, private sector, and
32 
non-govemmental organizations;


1 
(d) Include natural resource and environment-related questions In the PSA's
2 
census and surveys, such as, but not limited to. Census of
t
3 
Establishments, Annual Survey of Philippine Business and Industry,
4 
Family Income and Expenditure Survey, Labor Force Survey, Survey on
5 
Tourism Establishments, Surveys of Household and Establishment
6 
Energy Consumption, Fisheries and Aquaculture Surveys, Agriculture,
7 
Livestock and Poultry surveys, CommunItyOBased Monitoring System,
8 
and any surveys these may change into or added to them;
9 
(e) Collect data up to the fourth-digit level of the Philippine Standard for
10 
Industrial Classification particularly for data needed in the ocean
11 
accounts, and update the Input-Output and Supply and Use tables
12 
regularly;
13 
(f) Develop a satellite account for the oceans, including ocean-based and
14 
ocean-related economic activities or sectors, coastal and marine
15 
ecosystems (e.g. mangroves, seagrass, coral reefs, tidal flats, etc.)/ and
16 
marine water quality;
17 
(g) Enhance the water accounts to include both water resources (quantity),
18 
water quality for surface water and groundwater (water asset account),
19 
and water supply and use account, including water supply in relation to
20 
climate trends of extreme climatic events in coordination with DENR and
21 
its Environmental Management Bureau and National Water Resources
22 
Board, and DPWH and its Bureau of Research and Standards;
23 
(h) Update the Input-Output table regularly, incorporating the PENCAS
24 
accounts; and,
25 
(i) Serve as a repository of all PENCAS-related data and materials through
26 
the National Statistical Information Center and make the PENCAS data
27 
avaiiable on the PSA website.
28 
Sec. 12. Functions of the National Economic Development Authority and die
29 
NEDA Board. - The National Capital Unit at the NEDA shall:
30 
(a) Coordinate the conduct of consuitations, orientations and training
31 
seminars on the PENCAS and its implementation for the national
32 
government agencies, local government units and other concerned


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institutions as weii as on request by the private sectors and civii society 
organizations, upon their request;
(b) Coordinate the conduct of studies and research in support of poiicy 
development related to PENCAS and provide training for non­
governmental entities on generating natural capital data and statistics;
(c) Establish a mechanism for integration of environmental and regenerative 
resource conservation considerations In national, regional, local and 
sectoral planning, policy, project development and implementation 
based on PENCAS results, particularly assuring that legally extracted 
resources and energy are sufficient for the plans for their sustainable 
use;
(d) Formulate and update Indicators on the economy-environment 
interactions and regenerative and sustainable development Indices;
(e) Provide technical services to the (i) Presidential Commission on Natural 
Capital; (ii) Development Budget Coordination Committee (DBCC) for the 
Integration of environment, ecosystems, natural capital, and climate 
change in macroeconomic planning and allocation of expenditures and 
capital outlays; (iii) Investments Coordinating Committee that would 
review completeness of project-evaluation and ensure that it is Inclusive 
of economic benefits and costs, sources of proposed natural resources, 
risks and uncertainty due to climate change, natural capital, 
environmental, biodiversity and social safeguards, justification of use of 
non-renewable resource, and matching of natural capital supply and 
demand; and, (Iv) any Task Forces or deputized or contracted entities, 
which the Presidential Commission on Natural Capital may create or 
partner with for the coordinated functioning of the data-gathering 
agencies and quality decision-making; and,
(f) The NEDA Board and its instrumentalities shall ensure that PENCAS is 
considered in all its policy decisions and project evaluation systems. In 
order to ensure this, the composition of the NEDA Board shall always 
include the departments that generate the most crucial data on PENCAS 
accounts, such as the DENR and DA.


1 
Sec. 13. Role of the Local Government Units. - In the planning and local
2 
legislation duties, local governments shall endeavor to create and populate PENCAS
3 
accounts, in compliance with templates and guidelines from the PSA and DILG, and in
4 
addition, employ other innovative measures and methods of resource valuation,
5 
damage estimation, ecosystem services and natural capital accounting to highlight
6 
their ecological competitive edge.
7 
Sec. 14. Creation of the Presidential Commission on Natural Capital Accounting.
8 - A commission is hereby created to ensure the fulfillment of the objectives of this
9 
law and coordinate the performance of the functions of the agencies enumerated. It
10 
shall have the following composition:
11 
1) The President, or his appointee to the Commission, as Chair;
12 
2) An economic statistician;
13 
3) An environment and natural resources economist;
14 
4) A terrestrial ecologist who shall also cover freshwater ecosystems;
15 
5) A marine ecologist who shall cover coastal and marine ecosystems;
16 
6) An environmental lawyer,
17 
All commissioners shall be appointed by the President from nominations by the
18 
agencies or civil society conglomerations.
19 
Sec. 15. Functions of die Commission. - The Commission shall provide
20 
directions for the coordinated functioning and implementation of the Natural Capital
21 
Units. It shall create ad-hoc or permanent Inter-agency committees and task forces
22 
that will support the data and technical requirements of the departments and their
23 
Natural Capital Units. It shall ensure that the officials as well as the other
24 
instrumentalities of the government have access to PENCAS data and endeavor to
25 
ensure that such data are used in policy and decision-making, taking care, however
26 
that security measures to prevent poaching or foreign intrusion that could impact on
27 
our utilization and enjoyment of our natural resources. Designated Undersecretary
28 
level officials in charge of policy and planning in their agencies shall represent the
29 
member agencies for DENR, DA, DOE, DOT, DOTr, DPWH, DOST, DTI, DILG, DOH,
30 
DHSUD, NEDA and PSA in all technical working groups consisted by the Commission.
31 
The Commission shall compile existing surveys and data generation activities of all
32 
government agencies to ensure that the information needed for generating the


1 
accounts are efficiently captured, including but not limited to existing physical
2 
accounts and monetary accounts, data from Community-Based Monitoring System,
3 
DENR's Biodiversity Assessment and Monitoring System and Socio-Economic
4 
Assessment and Monitoring System, and monitoring data from projects, such as the
5 
Wealth Accounting and Valuation of Ecosystem Services (WAVES), Environment
6 
Natural Resource Accounting Project (ENRAP) and the National Greening Program, the
7 
DA'S Ocean accounts, data submitted by license, permit and certification applicants,
8 
and the like.
9 
Sec. 16. Data and Research Support. - The PSA, in coordination with the
10 
involved agencies, shall designate the required environment and economic statistics
11 
in the agencies and bureaus that shall be responsible for generating such data. The
12 
Department of Budget and Management (DBM) shall ensure that such research and
13 
data management are supported so as to prevent government spending that would
14 
unduly compromise PENCAS accounts and ecosystem services or the deterioration of
15 
the national patrimony.
16 
Sec. 17. Government Planning Mechanisms and the Environmental Impact
17 
Assessment System. - In all government planning, considerations of PENCAS shall be
18 
included. In the Environmental Impact Assessment System, the DENR shall ensure
19 
that the natural environment, ecosystem services and natural capital are framed as
20 
opportunities, benefits or assets as opposed to being merely a constraint or backdrop
21 
to absorb impacts. The Commission shall ensure a wide availability of tools, methods
22 
and skills that can support the consideration of ecosystem services as part of the
23 
Environmental Impact Assessment and ensure the inclusion of such in the
24 
development of the Implementing Rules and Regulations (IRR), further including in
25 
such rules accounting for activities that may degrade the natural capital considerably
26 
despite not being under the coverage of the Philippine EIS System.
27 
Sec. 18. PENCAS in the Educational System. - The Department of Education
28 
(DepEd) shall cause the crafting of modules both in all levels of the formal as well as
29 
the non-formal education spheres to ensure that all citizens, and especially the
30 
academe, are able to help change the definition of economic success towards defining
31 
wealth inclusively, to generate, analyze and use the PENCAS to its maximum effect
32 
and assess the systemic extent of nature-related financial risk. The Commission on
10


1 
Higher Education (CHED) shaii inciude PENCAS in aii curricula and ensure that PENCT^
2 
is incorporated in current courses on these subjects with the objective of generating
3 
credibie, decision-grade data, which government, businesses and financial institutions
4 
and civil society can use to fully integrate nature-related considerations into their
5 
decision-making, and assess and disclose their use of, and impact on, nature. The
6 
Professional Regulation Commission (PRC) shall ensure that PENCAS Is included in all
7 
professional examinations.
8 
Sec. 19. Participatory Mechanisms and Citizen Remedies. - Each Natural
9 
Capital Unit shall institute consultative mechanisms, mass collaboration measures and
10 
digital comment and recommendation solicitations to effectively popularize PENCAS
11 
and ensure wide comprehensibility and usage of the accounts. Any citizen shall have
12 
the right to information on any accounts generated under this Act, have the standing
13 
to compel the performance of any of the mandates under this Act, and seek
14 
justification from any government agency who may have ignored or neglected PENCAS
15 
data in their policy or decision-making. Major PENCAS accounts, results on nature's
16 
wealth and the economic value of ecosystem services shall be released along with all
17 
releases of national economic data, such as GNP, GDP and other often-released
18 
measures of the state of the country's economic health, and highlight the contribution
19 
of resources and ecosystems to the economy, income, and employrhent.
20 
Sec. 20. Rights of Nature. - Nothing in this Act shall be construed to mean
21 
that nature has no intrinsic value separate and distinct from Its economic value, or
22 
that it loses interdependencies and pricelessness by such valuation. Whenever data
23 
or accounts tend to show that valuation of ecosystems or discrete and identified life-
24 
support mechanisms will commodify and/or degrade them, any citizen is authorized
25 
to submit a registration to the Commission for the latter's recognition of such intrinsic
26 
value and the right of such ecosystem or mechanism to exist and maintain its integrity,
27 
which registration the Commission is required to accept. The generated data and
28 
accounts can still be used but only for the purpose of the recognition of such rights
29 
rather than for commodification or ecologically unacceptable trade-offs.
30 
Sec. 21. Funding. -‘The creation and initial funding of the Commission shall
31 
be Two hundred million pesos (Php200,000,000.00) to be sourced from excesses in
32 
funds, such as, the funds under Republic Act No. 9147 otherwise known as the
11


1 
"Wildlife Resources Conservation and Protection Act", Republic Act No. 8749 otherwise
2 
known as the "Philippine Clear Air Act", and similar special accounts, especially the
3 
ones that have remained dormant. Two billion pesos (Php2,000,000,000.00) shall be
4 
apportioned by the DBM for the performance of agency functions required herein for
5 
the generation of data through expeditions and scientific investigations In the
6 
terrestrial / freshwater and marine disciplines. Eight hundred million pesos
7 
(Php800,000,000.00) shall be apportioned to the agencies for the creation and
8 
improvement of their Natural Capital Units. The apportionment and allocations shall
9 
be based on the plan and priorities decided by the Commission in coordination with
10 
the agencies performing the functions. These shall be included in the budget
11 
preparation of each agency to be incorporated in the annual General Appropriations
12 
Act under separate fund items.
13 
Sec. 22. Implementing Rules and Regulations. - The Commission shall
14 
constitute an inter-agency working group to craft the Implementing Rules and
15 
Regulations (IRR) of this Act, and Is hereby given the authority to adopt such IRR
16 
which shall constitute its inclusion as part of the administrative rules and regulations
17 
of all members of the Committee.
18 
Sec. 23. Separability Clause. - If any provision or part hereof is held invalid or
19 
unconstitutional, the remainder of the law or the provision or part not otherwise
20 
affected shall remain valid and subsisting.
21 
Sec. 24. Repealing Clause. - Any law, presidential decree or issuance,
22 
executive order, letter of instruction, administrative order, rule, or regulation contrary
23 
to or Inconsistent with the provisions of this Act are hereby repealed, modified, or
24 
amended accordingly.
25 
Sec. 25. Effectivity. — This Act shall take effect fifteen (15) days after its
26 
publication in the Official Gazette or In a newspaper of general circulation.
27 
Approved.
12