Republic of the Philippines 
HOUSE OF REPRESENTATIVES 
Batasan Hills, Quezon City 
TWENTIETH CONGRESS 
First Regular Session 
HOUSE BILL NO. 1923 
Introduced by  
HON. ATTY. GERVILLE “JINKY BITRICS” R. LUISTRO 
AN ACT 
ENHANCING THE NATIONAL SHELTER PROGRAM, REVITALIZING AND 
STRENGTHENING THE HOUSING FINANCE ECOSYSTEM, APPROPRIATING 
FUNDS THEREFOR  
EXPLANATORY NOTE 
Housing is a basic human right recognized by the 1987 Constitution, yet for millions of 
Filipinos, especially the urban poor and those in vulnerable sectors, this right remains elusive. The 
Philippines faces a massive housing backlog, estimated at around 6.5 million units as of 2022, with 
projections by the Department of Human Settlements and Urban Development (DHSUD) showing 
that it may reach 10 million by 2030 if not urgently addressed. These figures are not merely 
statistics—they reflect families living in informal settlements, in danger zones, or under precarious 
living conditions. The COVID-19 pandemic further exposed the gravity of housing insecurity, as 
cramped living quarters and unstable tenancy arrangements left many susceptible to both health 
and economic crises. 
Recognizing this urgent need, the current administration, through President Ferdinand 
Marcos Jr.’s flagship Pambansang Pabahay Para sa Pilipino (4PH) Program, committed to building 
one million housing units annually from 2023 to 2028, aiming to construct six million housing 
units within the President’s term. This ambitious goal signifies a paradigm shift—positioning 
housing as a central pillar of socioeconomic development. As of May 2024, over 1.2 million 
housing units have already been rolled out across different regions under the 4PH initiative. The 
DHSUD reported that more than 200 housing projects were launched in partnership with local 
government units (LGUs), signaling broad support for the program across provinces and cities 
This bill, therefore, seeks to institutionalize and strengthen the national housing framework 
through the Enhanced National Shelter Program. It not only gives legislative permanence to the 
4PH Program but also restructures the housing finance ecosystem to ensure sustainability. The 
measure mandates the DHSUD to lead an integrated and unified housing effort, harmonizing the 
July 15, 2025
4:45 pm


mandates of all Key Shelter Agencies (KSAs) and enhancing their operational capacities. It 
introduces reforms such as credit counseling, estate management, a housing guarantee system, 
securitization, and expanded capitalization for the National Home Mortgage Finance Corporation 
(NHMFC). 
In view of the foregoing, the passage of this bill is earnestly sought. 
 HON. ATTY. GERVILLE “JINKY BITRICS” R. LUISTRO 


Republic of the Philippines 
HOUSE OF REPRESENTATIVES 
Quezon City, Metro Manila 
TWENTIETH Congress 
First Regular Session 
House Bill No. 1923 
Introduced by  
HON. ATTY. GERVILLE “JINKY BITRICS” R. LUISTRO 
AN ACT 
ENHANCING THE NATIONAL SHELTER PROGRAM, REVITALIZING AND 
STRENGTHENING THE HOUSING FINANCE ECOSYSTEM, APPROPRIATING 
FUNDS THEREFOR 
Be it enacted by the Senate and House of Representatives of the Philippines in Congress assembled: 
SECTION 1. Short Title. – This Act shall be known as the “Enhanced National Shelter 
Program Act.” 
SECTION 2. Declaration of Policy. – The State hereby recognizes that access to adequate, 
safe and affordable housing enhances quality of life and contributes to the wellbeing of the 
community. It is hereby declared a policy of the State to create an enabling environment for the 
public and private sectors, to, jointly or separately, increase and accelerate housing production to 
address the housing needs of Filipino families. Accordingly, the State hereby adopts the following 
policies: 
(a) Develop a diverse range of housing products and tenure options according to the specific
needs and financial means of targeted market segments;
(b) Implement system integration of housing programs to enhance efficiency and optimize
resource allocation;
(c) Encourage and enhance private sector participation in capital investment in public housing;
(d) Promote and support a robust housing finance market;


 
 
(e) Enhance the stability of the housing finance market by implementing comprehensive 
financial risk management strategies to mitigate risk and reduce borrowing cost; 
 
(f) Integrate principles of social inclusion, sustainability, and climate resilience in the design 
of public housing; and 
 
(g) Implement a whole of government approach in human settlements and urban development.  
 
 
SECTION 3. Enhanced National Shelter Program. –The Department of Human 
Settlements and Urban Development (DHSUD) is hereby mandated to implement a comprehensive 
program to provide targeted housing assistance, either direct or indirect, to low-income and 
middle-income families, hereinafter referred to as the Enhanced National Shelter Program. The 
DHSUD shall adopt an integrated and unified approach in implementing the Enhanced National 
Shelter Program. The Enhanced National Shelter Program shall include the following components: 
 
(a) Pambansang Pabahay Para sa Pilipino (4PH) Program. – The 4PH, as administered by the 
DHSUD, is hereby institutionalized and declared as the centerpiece program of the 
Enhanced National Shelter Program. The 4PH shall provide direct housing assistance to 
low-income and middle-income families. The DHSUD and its attached agencies shall 
partner with local government units (LGUs) to undertake the construction of socialized 
housing in LGU-owned lands and the allocation thereof to qualified beneficiaries. LGUs 
may obtain development loans from the Home Development Mutual Fund (HDMF) and 
other Government Financial Institutions (GFIs), or enter into a joint venture with a property 
developer to co-finance the construction of housing units, in accordance with applicable 
laws, rules and regulations. LGUs and National Government Agencies (NGA) may also 
opt to enter into contracts with a private entity through a Public-Private Partnership for the 
development of LGU-owned or NGA-owned lands for housing. 
 
Additionally, private developers or contractors may also participate in the 4PH program 
thru the development of private lands in collaboration with LGUs and NGAs, subject to 
applicable rules and regulations. HDMF shall provide mortgage financing to qualified 
beneficiaries, who shall be eligible for amortization support and interest credit. Other 
financial institutions may also provide mortgage financing to qualified beneficiaries, who 
shall be eligible for amortization support and interest credit; 
 
(b) Housing Programs. - The National Housing Authority (NHA) shall develop and implement 
comprehensive shelter and human settlements programs for underserved families: (1) 
upgrading of informal settlements program to improve blighted urban areas including 
existing resettlement sites; (2) production and disposition of shelter for underprivileged 
and homeless including the provision of housing grants and socialized housing programs 
pursuant to Republic Act No. 7279 or Urban Development and Housing Act of 1992; and 
(3) resettlement of informal settler families affected by government infrastructure and 
disasters; 
 
(c) Community-led Financing - The Social Housing Finance Corporation (SHFC) is hereby 
mandated to develop a modified Community Mortgage Program (CMP) to promote 
community-led housing program wherein organized community associations shall obtain 


 
 
mortgage financing from SHFC for land acquisition, site development, and construction of 
residential units which shall be awarded to member-beneficiaries of the community for 
long-term lease with option to purchase. SHFC shall continue to implement existing CMP 
modalities, high-density housing program, and Abot-Kaya Pabahay Fund under Republic 
Act No. 6846; 
 
(d) Credit Counseling and Financial Literacy Program. – The DHSUD and Key Shelter 
Agencies (KSAs) shall implement a housing-related financial literacy program to improve 
creditworthiness of beneficiaries; Provided, That the credit information of beneficiaries 
shall be protected under Republic Act No. 9510, otherwise known as “Credit Information 
System Act”; 
 
(e) Estate Management. – An Estate Management and Welfare Council (EMWC) shall be 
created to ensure the sustainability of every government housing program. The EMWC 
shall serve as an oversight body providing policy recommendations concerning property 
management, operation and maintenance of structures, communal spaces, and other 
facilities; 
 
(f) Securitization Program. – The National Home Mortgage Finance Corporation (NHMFC) 
is hereby mandated as the government’s secondary mortgage institution to expand its 
operations for the purchase and securitization of housing loans and such other assets with 
predictable cash flow from public or private originators, financial institutions, and KSAs, 
to support the growth and stability of the housing finance market. The NHMFC will 
implement strategic measures to expeditiously dispose of its non-performing assets to 
enhance the performance of its asset portfolio; 
 
(g) Guarantee System. – There is hereby established a Housing Guarantee System wherein 
bonds originated by the NHMFC and LGUs, and Asset-backed Securities (ABS) originated 
by the NHMFC and issued through a Special Purpose Entity (SPE), may be covered by the 
Philippine Guarantee Corporation (PHILGUARANTEE), in accordance with coverage 
limits and eligibility criteria established by PHILGUARANTEE in collaboration with the 
Department of Finance (DOF), and under such special preferential guarantee rates and 
conditions, simplified requirements, and expedited processes, agreed upon with NHMFC, 
as provided under Sections 3 (f) and 13 (h) of Republic Act No. 8763, enjoining the active 
participation of LGUs in socialized housing programs through adequate measures for 
housing development in their respective areas; and 
 
(h) Housing Bonds. -  KSAs and LGUs are hereby authorized to issue bonds to finance their 
housing programs, subject to existing laws, rules, and regulations. 
 
 
SECTION 4. Targeting System. – The DHSUD and National Economic and Development 
Authority (NEDA) shall establish eligibility requirements and a standardized targeting system, 
utilizing income data of the Family Income and Expenditure Survey (FIES), as basis for 
prioritizing of beneficiaries of programs in the preceding Section to ensure that housing assistance 
is directed towards families with the greatest need.  
 


 
 
 
SECTION 5. Price Ceiling. – The DHSUD and NEDA shall jointly determine the price 
ceiling for socialized, low cost or economic and middle-income housing, in accordance with 
Section 23 of Republic Act No. 11201, by calculating land and construction costs through price 
inflation analysis, using the previously approved price ceiling as a baseline, and incorporating 
imputed rent based on FIES and affordability as well as other methodologies that may be 
applicable. 
 
 
SECTION 6. Housing Support. – The DHSUD shall, directly or through its attached 
KSAs, provide amortization support payable to the end-user finance providers for the account of 
the buyer-beneficiaries' units, using funds that will be made available through the General 
Appropriations Act (GAA), and other identified funding sources. LGUs are also encouraged to 
provide monthly amortization support to buyer-beneficiaries of the units, if needed to enable the 
latter to meet their monthly amortization obligations. 
 
The interest subsidy per beneficiary shall not exceed 5%, and the remainder shall be paid by the 
beneficiaries, provided that at no time shall the beneficiaries pay interest amortization of less than 
1%. For beneficiaries belonging to the bottom 30% income decile, the following additional 
financial assistance/subsidy may be applied: 
 
(a) Mortgage redemption insurance, fire insurance, and other property related insurance; 
 
(b) Real Estate Management Subsidy; 
 
(c) Time-limited rental subsidies for the families provided that the households availing the 
rental subsidy meet the following criteria:  
 
i. 
They are in need of temporary accommodations while awaiting their 
relocation/resettlement to the 4PH housing units; and 
ii. 
They do not have access to any similar rental assistance program of the government.  
 
SECTION 7. Additional Capitalization of NHMFC. – The authorized capital stock of the 
NHMFC is hereby increased from P5,500,000,000.00 to P50,000,000,000.00 to expand its 
leveraging capacity based on the volume of mortgage loans and other financial receivables being 
serviced to improve its profitability by reducing the average cost of its fund made available for its 
programs.  
 
The capital of the NHMFC shall be Fifty billion pesos (P50,000,000,000.00), to be fully subscribed 
by the Government of the Republic of the Philippines, hereafter referred to as the Government. 
Provided, That the increase in capitalization shall be funded from a continuing annual 
appropriation under the GAA, as well as, from all the declared dividends and tax payments of the 
NHMFC in favor of the National Government and such other advances, funding, or appropriations 
from the National Government as may be agreed upon between the NHMFC and the DOF, until 
the above-mentioned amount of capitalization is reached. For this purpose, any and all declared 
dividends and tax payments of the NHMFC in favor of the National Government shall be deposited 
in a special account in the General Fund, and earmarked for the payment of NHMFC’s increase in 
capitalization.  


 
 
 
 
SECTION 8. Exemption from Tax and Regulatory Fees. – To promote the policy of 
improving housing affordability, projects under the 4PH Program, in cooperation with LGUs, other 
socialized housing projects of SHFC and NHA, and private sector participating in the housing 
programs shall also enjoy exemptions from fees, charges, and taxes enumerated including but not 
limited to the following: income tax, creditable withholding tax, real property tax, capital gains 
tax, value added tax, donor’s tax, and other similar taxes; and building permit fee, fire inspection 
permit fee, Environmental Compliance Certificate fees, and other regulatory fees. Similarly, lands 
for development under the 4PH Program shall be exempt from the payment of documentary stamp 
tax, transfer tax, registration fees, including other fees required for the issuance of transfer 
certificates of titles.  
 
Additionally, the investors’ yield or income from any socialized housing or economic housing-
related bond or ABS originated by the NHMFC issued through a Special Purpose Entity under the 
Securitization Act of 2004 shall be exempt from income tax. All NHMFC issuances, transactions, 
and documents shall enjoy tax, regulatory fees and other exemptions, incentives, and benefits 
granted under the Securitization Act of 2004. 
 
For this purpose, the DOF shall issue the appropriate revenue regulations, exempting projects 
under the Enhanced National Shelter Program of DHSUD, SHFC, NHA, and NHMFC within 
ninety (90) days of the approval of this Act.  
 
 
SECTION 9. Identification of Lands for Housing and Human Settlement. – The 
DHSUD shall, pursuant to applicable laws and executive issuances, identify national and local 
government lands that are suitable for housing development, particularly for housing production 
programs enumerated in Section 4 of this Act, and including new townships and estates 
development, in coordination with concerned NGAs and LGUs, and undertake the required 
activities to develop the same in an efficient manner.  
 
The DHSUD shall likewise identify available public lands and shall exercise exclusive jurisdiction 
on the management and disposition of all lands of the public domain suitable for human 
settlements. DHSUD shall be responsible for the classification, sub-classification, surveying and 
titling of lands in consultation with appropriate agencies, and recommend to the President, the 
issuance of proclamations declaring said public land as alienable and disposable, and reserving the 
same for housing and human settlement purposes, subject to existing laws, rules and regulations.  
 
For purposes of site selection, DHSUD shall ensure that protected lands under special laws such 
as Republic Act No. 8371, Republic Act No. 8435, Republic Act No. 6657, and other agrarian 
reform laws, shall be preserved for equally important land uses. 
 
 
SECTION 10. Mandatory Submission of Land Inventory by NGAs and LGUs. – The 
National Government departments, agencies, and instrumentalities, including Government 
Owned- and Controlled Corporations (GOCCs) and their subsidiaries, as well as LGUs, shall 
conduct an inventory of the lands that they own and administer, and submit the complete list to the 
DHSUD within ninety (90) calendar days from the enactment of this Act and to be updated every 
three (3) years thereafter.  


 
 
 
The inventory of lands shall include government-owned idle lands or lands that have not been used 
for the purpose for which they have been originally reserved or set aside for at least ten (10) years, 
and on which no improvements have been made by the owner as certified by the concerned LGU, 
except lands owned by GOCCs and government financial institutions engaged in shelter financing 
as part of its fiduciary obligation to its members and/or are taken possession of in their ordinary 
conduct of business, pursuant to Section 8 of Republic Act (RA) No. 7279, as amended, and 
Sections 5 and 24 of RA No. 11201. 
 
The Land Registration Authority (LRA) shall assist these agencies in the preparation of their 
respective inventories by providing a list of titles and the corresponding certified true copies 
thereof that are registered in the name of said agencies. 
 
 
SECTION 11. Acquisition and Development of Identified Lands. – Lands identified and 
designated for Housing and Urban and Rural Development, pursuant to Section 24 of Republic 
Act No. 11201, shall be assessed by the Department for program or project feasibility. Should the 
site evaluation be in the affirmative, said lots shall forthwith be transferred to DHSUD for 
administration. 
 
DHSUD shall acquire ownership and/or administration of the identified lands of concerned 
agencies, for housing and human settlement purposes, and shall carry out the immediate 
development of the aforementioned lands. 
 
The LRA shall cancel the titles of identified lands registered in the name of concerned agencies, 
and re-issue new titles in the name of the DHSUD, subject to relevant provisions of Presidential 
Decree No. 1529 or the “Property Registration Decree.”  
 
Lands identified and acquired by the DHSUD under the 4PH program shall be automatically 
converted or reclassified, in order to facilitate its immediate development.  
 
 
SECTION 12. Green Lanes for Housing-Related Permits, Clearances, and Licenses. – 
The concerned NGAs, including their regional and provincial offices when applicable, and LGUs 
shall establish or designate, whichever is applicable, a Green Lane within their offices in charge 
of expediting and streamlining the processes and requirements for the issuance of housing-related 
permits, clearances, and licenses, including but not limited to: Environmental Compliance 
Certificate (ECC) or Certificate of Non-coverage (CNC) duly issued by the Department of 
Environment and Natural Resources, whichever is applicable; Certified true copy of Department 
of Agrarian Reform conversion order (if applicable); Permit to drill from NWRB; and, Approved 
Technical Plans. The said Green Lanes shall be integrated and not be duplicative of the Housing 
One-Stop Processing Centers (HOPCs) established under Republic Act No. 11201.  
 
For this purpose, the above agencies or offices shall designate an account officer for the Green 
Lane who shall be responsible for coordinating with the relevant government offices or agencies 
in streamlining and simplifying permitting and licensing processes, and recommending 
modifications or amendments to existing procedures that are outdated, redundant, and adds undue 


 
 
regulatory burden and cost to the transacting public, in coordination with the Anti-Red Tape 
Authority (ARTA). 
ARTA, together with the appropriate agencies, shall issue the implementing rules and regulations 
for this provision not later than ninety (90) days from the approval of this Act.   
 
Permits, licenses, and clearances not acted upon within seven (7) days upon submission shall 
complete requirements shall be deemed approved. 
 
SECTION 13. Simplification and Streamlining of NHMFC’s Securitization. – The 
NHMFC and all regulatory or oversight agencies involved in or affecting the expeditious 
accomplishment of the NHMFC’s securitization and related mandates and functions shall, in 
coordination with the ARTA, agree upon and jointly establish and implement simplified and 
streamlined requirements and processes, to facilitate and expedite the NHMFC’s securitization and 
provision of liquidity to the housing sector.    
 
 
SECTION 14. System Evaluation. – The DHSUD shall be the lead agency responsible for 
monitoring and evaluating the performance of the component programs of the Enhanced National 
Shelter Program. In relation to this mandate, the DHSUD shall monitor and analyze conditions in 
the housing ecosystem that impact supply and affordability, including demographic change, 
economic conditions, credit market conditions, taxation, macro-prudential regulation, zoning 
regulation, and climate change impacts, and, based on this analysis, shall recommend 
enhancements or modifications to housing programs.  
 
 
SECTION 15. Implementing Rules and Regulations. – The DHSUD, in coordination 
with other concerned agencies, shall prepare and issue the Implementing Rules and Regulations 
(IRR) within ninety (90) days upon the effectivity of this Act, in addition to the other IRRs to be 
issued by Bureau of Internal Revenue and ARTA in accordance with this Act.   
 
 
SECTION 16. Appropriations. – The funds necessary for the implementation of this Act 
shall be charged against current and available appropriations of concerned agencies, subject to 
pertinent budgeting, accounting, and auditing laws, rules and regulations. Thereafter, the funding 
requirements for succeeding years shall be included in the annual GAA, subject to the usual budget 
preparation process.  
 
 
SECTION 17. Oversight Committee. – There is hereby created a Joint Congressional 
Committee to oversee the implementation of this Act. The Committee shall be composed of the 
Chairperson of the Senate Committee on Urban Planning, Housing and Resettlement and four (4) 
members thereof appointed by the Senate President and the Chairperson of the House Committee 
on Housing and Urban Development and four (4) members thereof to be appointed by the Speaker 
of the House of Representatives. The minority groups in the Senate and the House of 
Representatives shall each have one seat in the Joint Congressional Committee. The DHSUD shall 
submit annually to the Joint Congressional Committee a detailed report on the implementation of 
this Act. 
 


 
 
 
SECTION 18. Separability Clause. – Any portion or provision of this Act that is declared 
unconstitutional shall not have the effect of nullifying other portions or provisions hereof as long 
as such remaining portions can still subsist and be given effect in their entirety. 
 
SECTION 19. Repealing Clause. – Sections 3, 4, 5 and 8 of Presidential Decree No. 1267, 
(NHMFC) all laws, executive orders, proclamations, rules, regulations, and other issuances or parts 
thereof which are inconsistent with the provisions of this Act are hereby amended or modified 
accordingly.  
 
SECTION 20. Effectivity. – This Act shall take effect fifteen (15) days after its publication 
in the Official Gazette or in any newspaper of general circulation. 
 
Approved,