NINETEENTH CONGRESS OF THE 
REPUBLIC OF THE PHILIPPINES
First Regular Session
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SENATE 
S. B. NO. 562
Introduced by SENATOR JOEL VILLANUEVA
AN ACT
ESTABLISHING THE PAGKAIN PARA SA LAHAT PROGRAM, 
AND FOR OTHER PURPOSES
EXPLANATORY NOTE
In a Social Weather Stations (SWS) Survey conducted from April 9 to 
27 of this year, it was reported that 12.2% or an estimated 3.1 million families 
experienced hunger during the first quarter of 2022.1 In the 2021 Global Hunger 
Index, the Philippines ranked 68th among 116 countries.2 To make matters 
worse, the Philippine Chamber of Agriculture and Food Inc. (PCAFI) is 
predicting a possible food shortage in the Philippines this year as a result of 
the Ukraine-Russia conflict.3 In spite of all these statistics, the Food and 
Nutrition Research Institute of the Department of Science and Technology 
(DOST-FNRI) reported that 1,717 metric tons of food is wasted each day.4
This tells 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 food produced does not go to the tables 
of the people who need it the most and simply ends up in the landfill.
1 lnquirer.net, 3.1 million Filipino families experienced hunger in Q1 of 2022, June 7, 2022, accessible at 
https://newsinfo.inquirer.net/1607293/3-1m-filipinos-experienced-hunqer-in-q1-of-2022-sws-survev-
shows {last accessed July 11,2022).
2 
Global 
Hunger 
Index 
2021; 
Philippines, 
accessible 
at
https://www.qlobalhunqerindex.orq/pdf/en/2021/Philippines.pdf {last accessed July 11,2022).
3 CNN Philippines, Agri groups appeal for more support for local farmers amid looming food crisis, 
accessible at https://www.cnnphilippines.com/news/2022/5/29/Aqri-qroups-appeal-for-more-support-for- 
local-farmers-amid-loominq-food-crisis.html {last accessed July 11,2022).
4 lnquirer.net. The malady of food waste; Millions starve as trash bins fill with leftovers, accessible at 
https://newsinfo.inquirer.net/1505252/the-maladv-of-food-waste-millions-starve-as-trash-bins-fill-with-
leftovers {last accessed July 11,2022).


Indeed, the stark contrast between those who have access to food and 
those who have not is an inescapable reality which needs to be remedied 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 store and 
utilize the food surplus for distribution and/or preparation to citizens who need 
food the most.
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.
The immediate passage of this bill is earnestly sought.
SENATOR jaEL VILLANUEVA


NINETEENTH CONGRESS OF THE 
REPUBLIC OF THE PHILIPPINES
First Regular Session
SENATE
s. B. NO. 562
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72 JL 14 WO 24
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Introduced by SENATOR JOEL 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 Philippines in 
Congress assembled:
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SECTION 1. Short Title.
Lahat Act."
This Act shall be known as the "Pagkain Para sa
SEC. 2. Declaration of Policy. - It is hereby declared the policy of the State 
to safeguard food security, end hunger, and promote the efficient distribution of 
the country's food resources. Towards this end, the State shall adopt a system 
to promote, facilitate, and ensure that food surplus produced by establishments 
and food manufacturers are distributed to food banks and soup kitchens.
SEC. 3. Definition of Terms.
mean:
As used in this Act, the following terms shall
a) 
Food banks refer to either public, private, non-profit, charitable or other 
social mission-driven organizations that store food surplus and distribute 
it to soup kitchens or other establishments or sell it to consumers;
b) 
Food surplus refers to food inventory from food-related businesses which 
have been left unsold during the ordinary course of business, but still fit 
for consumption based on standards set by relevant laws, rules, and 
regulations;
c) 
Food-related businesses refer to public and private businesses involved 
in the manufacturing and processing of food products, private businesses 
involved in the wholesaling and retailing of food products, and private 
businesses involved in serving food products, which may include, but are


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not limited to, farms, factories, supermarkets, groceries, wholesalers, 
convenient stores, restaurants, fast food chains, cafeterias, and hotels;
d) 
Logistics service providers refer to persons or entities engaged in the 
transport or delivery of goods;
e) 
National Nutrition Council (Council) is the agency in-charge of 
developing an integrated national nutrition program and supervises, 
coordinates, and integrates the implementation of policies concerning 
nutrition.
f) 
Soup Kitchens refer to either public, private, non-profit, charitable or 
other social mission-driven organizations that prepare and serve food 
given by food banks or other donors.
SEC. 4. Establishment of Pagkain Para sa Lahat Program; Role of DSWD.
- There shall be created a Pagkain Para sa Lahat Program which shall ensure 
that food surplus of all food-related businesses shall be channeled and 
distributed to food banks and soup kitchens established and/or accredited in 
accordance with this Act.
The Department of Social Welfare and Development (DSWD) shall be the lead 
and coordinating agency for the proper implementation of the Program. In the 
performance of this function, the DSWD shall:
a) 
Provide the framework, guidelines and standards for the collection, 
storage and distribution of food surplus donated to food banks and/or soup 
kitchens.
b) 
Coordinate with local government units on the establishment of local food 
banks and/or soup kitchens;
c) 
Promote linkages between food-related businesses, food banks, and soup 
kitchens to create a community-based food distribution system; and
d) 
Coordinate with food-manufacturers, food-related businesses, food 
banks, and other government agencies for the development of programs 
to bolster food distribution to beneficiaries.
SEC. 5. Accreditation and Establishment of Food Banks and Soup 
Kitchens. - The DSWD shall establish a system of accreditation of private food 
banks and soup kitchens. It shall also ensure that at least one (1) food bank 
and soup kitchen is available in every city or municipality. In the absence 
thereof, the DSWD shall immediately inform and coordinate with the LGU 
concerned, for the establishment of a food bank and soup kitchen in such 
locality.
To ensure that all food surplus is consumed properly and in a timely fashion, a 
food bank shall, as far as practicable, have a partner soup kitchen. All food


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banks and soup kitchens established and/or accredited in accordance with this 
Act shall offer their products to the public without any qualification.
SEC. 6. Duties of Food-related Businesses.
this Act, all food-related businesses shall:
To achieve the objectives of
a) 
Determine the amount, type, and quantity of surplus food that can be 
delivered for consumption of beneficiaries of food banks and/or soup 
kitchens;
b) 
Enter into contracts or agreements with food banks and soup kitchens to 
redistribute food surplus to beneficiaries of food banks and/or soup 
kitchens;
c) 
Shoulder the costs, on its own or in partnership with a logistics service 
provider, of transporting food surplus from the business or storage site to 
the food bank or soup kitchen, or to their respective warehouse or 
distribution center; and
d) 
Ensure that the food surplus is unadulterated, fit for human consumption, 
and in good condition upon arrival at the food bank's distribution center. 
For this purpose, prior to the delivery of the food surplus to food banks 
and soup kitchens, all food-related businesses shall be tested by the 
National Nutrition Council to ensure that food surplus is fit for human 
consumption.
SEC. 7. Duties of Food Banks. - To ensure that ail food surplus given or
donated to food banks benefit all citizens, all food banks shall:
a) 
Submit periodic reports to the DSWD and the concerned LGU on the type 
of food donated, quantity donated, and other pertinent information on the 
distribution of food surplus in their establishments;
b) 
Ensure that all food surplus given or donated to it is fit for human 
consumption, and shall require as proof a certification from the National 
Nutrition Council for this purpose;
c) 
Establish linkages with soup kitchens;
d) 
Store food surplus for distribution to beneficiaries and partner-soup 
kitchens; and
e) 
Ensure that their facilities follow best practices and procedures on food 
storage.
SEC. 8. Duties of Soup Kitchens. - To ensure that all food ingredients used
by soup kitchens are fit for human consumption, soup kitchens shall:


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a) 
Ensure that all food surplus given or donated to it is fit for human 
consumption, and shall require as proof a certification from the National 
Nutrition Council for this purpose; and
b) 
Prepare food surplus to cooked or processed form fit for consumption, and 
such is free from contamination.
SEC. 9. Duties of the Local Government Units. - LGUs are hereby required 
to:
a) 
As far as practicable and in the absence of a food bank and/or soup 
kitchen located in their respective localities, establish local food banks and 
soup kitchens in their area;
b) 
Utilize food banks and/or soup kitchens and, if possible, merge the latter 
with its community development programs;
c) 
Provide technical, financial, and logistical support for food bank and/or 
soup kitchen operations within its territorial jurisdiction; and
d) 
Regularly inspect the establishments of food-related businesses, food 
banks and soup kitchens to ensure that the same is compliant with ail 
sanitation and other related laws.
SEC. 10. Incentives for Participation. - All donations of surplus food or 
service donated by food-related businesses or logistics service providers, 
respectively, shall be exempt from donor’s tax. In addition, the full amount of 
such surplus food and service shall be claimed as a deduction from the gross 
income of a food-related business or logistics service provider, as the case may 
be.
The DSWD, in coordination with the Department of Interior and Local 
Government (DILG) and the LGUs, shall also establish a system of incentives 
to participants of the Program to recognize their best practices with regard to 
achieving the objectives of this Act, such as training packages, technical 
guidance, awards and other similar incentives.
SEC. 11. Liability. - The certification issued by the National Nutrition Council 
shall serve as sufficient proof that the surplus food donated or distributed are fit 
for human consumption; Provided, That the distribution or preparation of food 
surplus, processed or otherwise, was done in good faith and in compliance with 
good food handling processes.
SEC. 12. Implementing Rules andRegi//af/o/?s. - Within sixty (60) days from 
the effectivity of this Act, the DSWD, in coordination with the DILG, Department 
of Health (DOH), the Bureau of Internal Revenue (BIR) and other relevant 
government agencies and stakeholders, shall promulgate the necessary rules 
and regulations for the effective implementation of this Act.
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SEC. 13. Annual Report. - The DSWD, in coordination with the DILG, DOH 
and other relevant agencies, shall submit an annual report on the 
implementation of this Act to the President of the Philippines and both Houses 
of Congress on or before April 30 of each year.
SEC. 14. Appropriations. - The funds needed to implement the provisions of 
this Act shall be included in the annual General Appropriations Act.
SEC. 15. Separability Clause. - Should any provision herein be declared 
unconstitutional or invalid, the same shall not affect the validity of the other 
provisions of this Act.
SEC. 16. Repealing Clause. - AW laws, decrees, orders, rules, and regulations 
or other issuances or parts inconsistent with the provisions of this Act are 
hereby repealed or modified accordingly.
SEC. 17. Effectivity. - This Act shall take effect fifteen (15) days after its 
publication in the Official Gazette or in any two (2) newspapers of general 
circulation in the Philippines.
Approved,