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Republic of the Philippines 
HOUSE OF REPRESENTATIVES 
Quezon City 
NINETEENTH CONGRESS 
First Regular Session 
House Bill No. ____ 
Introduced by CIBAC Party-List Representative 
HON. EDUARDO “BRO. EDDIE” C. VILLANUEVA 
AN ACT  
ESTABLISHING THE PAGKAIN PARA SA LAHAT PROGRAM, 
AND FOR OTHER PURPOSES 
EXPLANATORY NOTE 
According to the Global Hunger Index, 20% of the Philippine 
population is underweight and 32% has stunted growth, even while there 
has been an exponential growth in the number of food establishments 
operating in the country. In 2018 alone, it was reported that more than 
2,000 food establishments have opened.  In Bonifacio Global City alone, 
there are already 889 operating food establishments.  
Unfortunately, the growing number of restaurants also contributed 
to the amount of food wasted in the country. According to a report by the 
Asia Pacific Economic Cooperation or APEC, about 33% of food produced 
in the country goes to waste. 
These figures tell us of the disturbing irony in the food market. On 
the one hand, the country is facing a crisis in malnourishment and hunger, 
but on the other, there is a boom in the culinary market. This picture is 
even made more appalling by the fact that a significant number of foods 
produced does not go to the tables of the people who need it the most and 
simply ends up in the landfill. 
October 17, 2022
8:30 am
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Indeed, the stark contrast between those who have access to food 
and those who have nothing is an inescapable reality which needs to be 
remedied in the soonest possible time. 
 
To address this gap in food production and hunger and food waste 
in the country, this bill seeks to establish a “Pagkain Para sa Lahat 
Program”, which ensures 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 Act. In turn, the food banks and 
soup kitchens will store and utilize the food surplus for distribution and/or 
preparation to citizens who are in dire need of it. 
 
This bill also empowers local government units to establish their own 
food bank and/or soup kitchens to ensure that all Filipinos in every LGU 
have access to quality food.   
 
All food-related businesses and other partners who participate in the 
Program can claim the full amount of their donation as a deduction to their 
gross income. All donations made are also not subject to donor’s tax. In 
addition, the Department of Social Welfare and Development must 
establish an incentive system to recognize the best practices of all 
partners in the implementation of the Program. 
 
Hence, the immediate passage of this bill is earnestly sought. 
 
 
 
HON. EDUARDO “BRO. EDDIE” C. VILLANUEVA 
 
 
 
 
 
 
 


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Republic of the Philippines 
HOUSE OF REPRESENTATIVES 
Quezon City 
NINETEENTH CONGRESS 
First Regular Session 
House Bill No. _____ 
Introduced by CIBAC Party-List Representative 
HON. EDUARDO “BRO. EDDIE” C. VILLANUEVA 
AN ACT  
ESTABLISHING THE PAGKAIN PARA SA LAHAT PROGRAM, 
AND FOR OTHER PURPOSES 
Be it enacted by the Senate and House of Representatives of the 
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Philippines in Congress assembled: 
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SECTION 1. Short Title. – This Act shall be known as the “Pagkain 
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Para sa Lahat Act”. 
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SEC. 2. Declaration of Policy. – It is hereby declared the policy of 
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the State to safeguard food security, end hunger, and promote the efficient 
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use of the country's food resources. Towards this end, the State shall 
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adopt a system to promote, facilitate, and ensure that food surplus in 
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establishments and food manufacturers are distributed to food banks and 
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soup kitchens.  
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SEC. 3. Definition of Terms. – As used in this Act, the following 
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terms shall mean: 
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a)
Food banks refer to either public, private, non-profit, charitable or
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other social mission-driven organizations that store food surplus and
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distribute it to soup kitchens or other establishments or sell it to
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consumers;
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b) 
Food surplus refers to food inventory from food-related businesses 
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which have been left unsold during the ordinary course of business, 
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but still fit for consumption based on standards set by relevant laws, 
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rules, and regulations;  
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c) 
Food-related businesses refer to public and private businesses 
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involved in the manufacturing and processing of food products, 
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private businesses involved in the wholesaling and retailing of food 
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products, and private businesses involved in serving food products, 
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which may include, but are not limited to, farms, factories, 
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supermarkets, restaurants, cafeterias, and hotels; 
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d) 
Logistics service providers refer to persons or entities engaged in 
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the transport or delivery of goods;  
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e) 
National Nutrition Council (Council) is the agency in-charge of 
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developing an integrated national nutrition program and supervises, 
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coordinates, and integrates the implementation of policies concerning 
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nutrition. 
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f) 
Soup Kitchens refer to either public, private, non-profit, charitable or 
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other social mission-driven organizations that prepare and serve food 
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given by food banks or other donors. 
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SEC. 4. Establishment of Pagkain Para sa Lahat Program; Role 
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of DSWD. – There shall be created a Pagkain Para sa Lahat Program 
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which shall ensure that food surplus of all food-related businesses shall 
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be channeled and distributed to food banks and soup kitchens established 
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and/or accredited in accordance with this Act.  
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The Department of Social Welfare and Development (DSWD) shall 
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be the lead and coordinating agency for the proper implementation of the 
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Program. In the performance of this function, the DSWD shall:  
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a) 
Provide the framework, guidelines and standards for the collection, 
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storage and distribution of food surplus donated to food banks and/or 
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soup kitchens.  
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b) 
Coordinate with local government units on the establishment of local 
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food banks and/or soup kitchens;  
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c) 
Promote linkages between food-related businesses, food banks, and 
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soup kitchens to create a community-based food distribution system; 
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and 
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d) 
Coordinate with food-manufacturers, food banks, and other 
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government agencies for the development of programs to bolster 
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food distribution to beneficiaries. 
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SEC. 5. Accreditation and Establishment of Food Banks and 
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Soup Kitchens. – The DSWD shall establish a system of accreditation of 
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private food banks and soup kitchens.  The DSWD shall also ensure that 
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at least one (1) food bank and soup kitchen is available in every city or 
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municipality.  In the absence thereof, the DSWD shall immediately inform 
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and coordinate with the LGU concerned, for the establishment of a food 
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bank and soup kitchen in such locality.   
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To ensure that all food surplus is consumed properly and in a timely 
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fashion, a food bank shall, as far as practicable, have a partner a soup 
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kitchen. All food banks and soup kitchens established and/or accredited 
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in accordance with this Act shall offer their products to the public without 
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any qualification.   
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SEC. 6. Duties of Food-related Businesses. – To achieve the 
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objectives of this Act, all food-related businesses shall:  
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a) 
Determine the amount, type, and quantity of surplus food that can be 
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delivered for consumption of beneficiaries of food banks and/or soup 
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kitchens;  
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b) 
Enter into contracts or agreements with food banks and soup 
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kitchens to redistribute food surplus to beneficiaries of food banks 
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and/or soup kitchens;  
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c) 
Shoulder the costs, on its own or in partnership with a logistics service 
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provider, of transporting food surplus from the business or storage 
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site to the food bank or soup kitchen, or to their respective warehouse 
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or distribution center; and 
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d) 
Ensure that the food surplus is unadulterated, fit for human 
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consumption, and in good condition upon arrival at the food bank's 
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distribution center.  For this purpose, prior to the delivery of the food 
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surplus to food banks and soup kitchens, all food-related businesses 
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shall be tested by the National Nutrition Council to ensure that food 
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surplus is fit for human consumption. 
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SEC. 7. Duties of Food Banks. – To ensure that all food surplus 
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given or donated to food banks benefit all citizens, all food banks shall: 
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a) 
Submit periodic reports to the DSWD and the concerned LGU on the 
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type of food donated, quantity donated, and other pertinent 
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information on the distribution of food surplus in their establishments; 
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b) 
Ensure that all food surplus given or donated to it is fit for human 
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consumption, and shall require as proof a certification from the 
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National Nutrition Council for this purpose;  
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c) 
Establish linkages with soup kitchens;  
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d) 
Store food surplus for distribution to beneficiaries and partner-soup 
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kitchens; and 
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e) 
Ensure that their facilities follow best practices and procedures on 
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food storage. 
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SEC. 8. Duties of Soup Kitchens. – To ensure that all food 
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ingredients used by soup kitchens are fit for human consumption, soup 
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kitchens shall:  
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a) 
Ensure that all food surplus given or donated to it is fit for human 
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consumption, and shall require as proof a certification from the 
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National Nutrition Council for this purpose; and 
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b) 
Prepare food surplus to cooked or processed form fit for 
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consumption, and such is free from contamination. 
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SEC. 9. Duties of the Local Government Units. – LGUs are hereby 
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required to: 
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a) 
As far as practicable and in the absence of a food bank and/or soup 
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kitchen located in their respective localities, establish local food 
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banks and soup kitchens in their area;  
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b) 
Utilize food banks and/or soup kitchens and, if possible, merge the 
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latter with its community development programs;  
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c) 
Provide technical, financial, and logistical support for food bank 
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and/or soup kitchen operation within its territorial jurisdiction; and 
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d) 
Regularly inspect the establishments of food-related businesses, 
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food banks and soup kitchens to ensure that the same is compliant 
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with all sanitation and other related laws.  
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SEC. 10. Incentives for Participation. – All donations of surplus 
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food or service donated by food-related businesses or logistics service 
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providers, respectively, shall be exempt from donor’s tax. In addition, the 
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full amount of such surplus food and service shall be claimed as a 
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deduction from the gross income of a food-related business or logistics 
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service provider, as the case may be.  
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The DSWD, in coordination with the Department of Interior and Local 
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Government and the LGUs, shall also establish a system of incentives to 
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participants of the Program to recognize their best practices with regard 
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to achieving the objectives of this Act, such as training packages, 
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technical guidance, awards and other similar incentives.  
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SEC. 11. Liability. – The certification issued by the National Nutrition 
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Council shall serve as sufficient proof that the surplus food donated or 
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distributed are fit for human consumption; Provided, That the distribution 
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or preparation of food surplus, processed or otherwise, was done in good 
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faith and in compliance with good food handling processes.  
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SEC. 12. Implementing Rules and Regulations. – Within sixty (60) 
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days from the effectivity of this Act, the DSWD, in coordination with the 
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DILG, Department of Health (DOH), the Bureau of Internal Revenue (BIR) 
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and other relevant government agencies, shall promulgate the necessary 
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rules and regulations for the effective implementation of this Act. 
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SEC. 13. Annual Report. – The DSWD, in coordination with the 
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DILG, DOH and other relevant agencies, shall submit an annual report on 
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the implementation of this Act to the President of the Philippines and both 
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Houses of Congress on or before April 30 of each year.  
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SEC. 14. Appropriations. – The funds needed to implement the 
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provisions of this Act shall be included in the annual General 
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Appropriations Act. 
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SEC. 15. Separability Clause. – Should any provision herein be 
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declared unconstitutional or invalid, the same shall not affect the validity 
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of the other provisions of this Act. 
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SEC. 16. Repealing Clause. – All laws, decrees, orders, rules, and 
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regulations or other issuances or parts inconsistent with the provisions of 
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this Act are hereby repealed or modified accordingly. 
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SEC. 17. Effectivity. – This Act shall take effect fifteen (15) days after 
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its publication in the Official Gazette or in any two (2) newspapers of 
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general circulation in the Philippines. 
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Approved, 
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