TWENTIETH CONGRESS OF THE 
REPUBLIC OF THE PHILIPPINES 
First Regular Session
)
)
SENATE
202
25 JIJL -7 AH :55
S. No.
Introduced by Senator Ronald "Bato" Dela Rosa
AN ACT
INSTITUTIONALIZING THE WHOLE-OF-NATION APPROACH IN ATTAINING 
INCLUSIVE AND SUSTAINABLE PEACE, CREATING THE NATIONAL COUNCIL 
TO END LOCAL COMMUNIST ARMED CONFLICT, AND FOR OTHER PURPOSES
EXPLANATORY NOTE
We have heard it said time and again: our pursuit of peace is not simpiy a 
military issue, or even simply a security issue. It is a complex challenge that requires 
a complex, nuanced solution.
Peace requires an inclusive, development-oriented, and people-centered 
strategy that engages all sectors of society. In 2018, the issuance of Executive Order 
No. 70 by former President Rodrigo Roa Duterte laid down the groundwork for such a 
strategy through the Whole-of-Nation Approach to end local communist armed 
conflict.
The creation of the National Task Force to End Local Communist Armed Conflict 
(NTF-ELCAC) under EO 70 marked a significant shift from isolated and fragmented 
responses to armed conflict, toward a synchronized, muiti-agency convergence 
strategy. It brought together national government agencies, iocal government units, 
civil society, and the private sector to work in unison in delivering basic services, 
promoting good governance, addressing root causes of insurgency, and facilitating 
peaceful reintegration.
The results of the NTF-ELCAC—such as the implementation of the Barangay 
Development Program (BDP)—have led to a grassroots-model of development. From


2021 (which was the beginning of the BDP) to 2024, a total of 4,051 barangays have 
been declared insurgency-free.1 In the process, these barangays experience for 
themselves the transformative impact of this approach. Roads, water systems, school 
buildings, health stations, and livelihood programs now reach areas once neglected 
due to armed threats.
However, the long-term success of the Whole-of-Nation Approach depends on 
the establishment of a permanent institutional framework. This bill therefore seeks to 
codify the strategy by creating a National Council to End Local Communist Armed 
Conflict, tasked with harmonizing peace efforts and implementing a national peace 
framework. It ensures continuity beyond political administrations and shields the 
program from arbitrary budgetary or policy reversals.
In a time when fragmentation, disinformation, and historical grievances persist, 
this measure stands for unified governance and inclusive development. Peace must 
not be episodic—it must be embedded in the structures of the State.
Hence, the swift passage of this bill is earnestly sought.
RONALD ”B,
DELA ROSA
Retrieved from: https://www.ntfelcac.eov.ph/bdp. retrieved on: 24 June 2025.


TWENTIETH CONGRESS OF THE 
REPUBLIC OF THE PHILIPPINES 
First Regular Session
)
)
SENATE 
S. No.
25 JUL -7 A11 55
■(I1 ■
Introduced by Senator Ronald "Bato" Dela Rosa
AN ACT
INSTITUTIONALIZING THE WHOLE-OF-NATION APPROACH IN ATTAINING 
INCLUSIVE AND SUSTAINABLE PEACE, CREATING THE NATIONAL COUNCIL 
TO END LOCAL COMMUNIST ARMED CONFLICT, AND FOR OTHER PURPOSES
Be it enacted by the Senate and the House of Representatives of the Philippines in 
Congress assembled:
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Section 1. Short Title. -This Act shall be known as the "ELCAC Act".
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Sec. 2. Declaration of Policy. - It is the policy of the State to promote a just and
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dynamic social order that will ensure the prosperity and independence of the nation.
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The State recognizes that internal socio-political stability rests upon ending all armed
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threats in the country and healing the rifts that divide the nation by promoting
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participatory governance, synergy of government development efforts, and enhancing
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the participation and responsibilities of local government units. The State shall pursue
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the attainment of inclusive and sustainable peace through intensified development
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and other peace-building initiatives in conflict-affected and vulnerable communities.
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Towards this end, the State shall implement an efficient mechanism and
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structure for the implementation of the Whole-of-Nation approach to aid in the
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realization of the collective aspiration of the Filipino people.
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Sec. 3. Institutionalizing the Whoie-of-Nation Approach. - The Whole-of-Nation
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approach is hereby institutionalized as a government policy for the attainment of
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inclusive and sustainable peace. The government shall prioritize and harmonize the
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delivery of basic services and social development packages in conflict-affected areas


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and vulnerable communities, facilitate societal inclusivity, and ensure active 
participation of all sectors of society in the pursuit of the country's peace agenda.
Sec. 4. Creation of the National Council to End Local Communist Armed Conflict 
- There is hereby created a National Council to End Local Communist Armed Conflict, 
hereinafter referred to as the Councii, which shall be the chief implementor of this Act. 
The Council shall be headed by the President or his designated representative, and 
the following as members:
a. Department of the Interior and Local Government Secretary;
b. Department of Justice Secretary;
c. Department of Public Works and Highways Secretary;
d. Department of Budget and Management Secretary;
e. Department of Finance Secretary;
f. Department of Agrarian Reform Secretary;
g. Department of Social Welfare and Development Secretary;
h. Department of Education Secretary;
i. National Economic and Development Authority Director General;
j. National Intelligence Coordinating Agency Director General;
k. Technical Education and Skills Development Authority Director General;
l. Presidential Adviser on the Peace, Reconciliation and Unity,
m. Chief of Staff, Armed Forces of the Philippines;
n. Director General, Philippine Nationai Police;
0. Chairperson, National Commission on Indigenous Peoples;
p. Secretary, Presidential Communications Operations Office; and
q. Two (2) Representatives from the private sector.
Except for the private sector representatives, the members may designate an 
alternate, with a rank not lower than an Assistant Secretary, to represent them.
The Private Sector Representatives, with a term one (1) year each, shall be 
appointed by the President upon the recommendation of the National Council.
Sec. 5. Powers and Functions. - The National Council shall have the following
powers and functions:


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a. Formulate and implement in coordination with reievant nationai government 
agencies, LGUs, the civil society and other stakehoiders, a Whole-of-Nation 
approach-driven National Peace Framework (Framework);
b. Ensure inter-agency convergence in the implementation of the Framework in 
conflict-affected and vulnerable communities;
c. Enlist the assistance of any department, bureau, office, agency, or 
instrumentality of the government. Including LGUs, government-owned or 
controlied corporation (GOCCs), and state universities and coileges (SUCs), in 
accordance with their respective mandates, in the impiementation of the 
Framework;
d. Evaiuate, define, modify or integrate poiicies, programs and activities in the 
contained in the Framework;
e. Organize inter-agency and muiti-sectorai clusters, councils, committees and 
groups in nationai, regional and local levels, or modify existing ones, whenever 
necessary, to fuiflil its mandates;
f. Develop strategic communication, advocacy, and peace constituency plains in 
case of ceasefire, as weil capacity-building measures, to enable local chief 
executives and locai peace bodies to engage and facilitate locai peace 
engagements or negotiations and interventions;
g. Review the mandates and functions of offices undertaking peace efforts to 
avoid duplication of functions and programs, and submit its recommendations 
to the President for approvai;
h. As may be necessary, issue supplementai guidelines, protocois or policies in 
furtherance of this Order;
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Recommend to the Office of the Presidentiai Adviser on the Peace Process 
projects and conflict-affected areas where the PAyapa at MAsaganang 
PamayaNAn (PAMANA) Program may be impiemented, subject to the provisions 
of the General Appropriations Act;
j. Perform such other duties and functions as the President may direct.
Sec. 6. The National Peace Framework. - The Nationai Peace Framework, 
herein referred to as Framework, shali contain principles, policies, pians, and programs 
that wiil bring inciusive and sustainable peace, and address the root causes of


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insurgency, internal unrest and tension, as well as other armed conflicts and threats
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in identified areas. The Framework shall be responsive to local needs and sensitive to
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realities on the ground. To this end, the Framework shall include a mechanism for
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localized peace engagements or negotiations and interventions that are totally
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orchestrated, directed and supervised, while being locally implemented.
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Sec. 7. Convergence. - All departments, bureaus, offices, agencies or
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instrumentalities of the government, including GOCCs and SUCs, are hereby directed
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to render the necessary support to the National Council.
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The private sector, non-government organizations and other stakeholders are
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encouraged to participate in all peace-building programs, plans and activities, in the
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implementation of the Framework.
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Sec. 8. Secretariat - The National Council shall be assisted by a Secretariat,
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headed by an Executive Director, who shall be appointed by the President with the
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rank of an Undersecretary. The Executive Director shall submit an organizational and
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staffing pattern of the Council Secretariat to the DBM, within two (2) months from
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his/her appointment. Pending the approval of the organizational and staffing pattern,
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the Executive Director shall be assisted by personnel from the member-agencies of
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the Council under secondment, detail or other appropriate arrangement.
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Sec. 9. Functions of the Secretariat- The Secretariat shall have the following
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functions:
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a. Provide technical and effective administrative support and assistance to the
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National Council In the performance of its tasks, coordinate with relevant
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agencies on the status; of its plans and programs, and provide update to the
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National Council on the implementation of the Framework;
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b. Ensure that all policies, directives, plans and programs, formulated by the
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National Council are faithfully carried out; and
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c. Perform such other functions as may be directed by the National Council.
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Sec. 10. Funding. - The initial funding requirements for the implementation of
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this Act shall be charged against existing appropriations of the member-agencies of
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the National Council and such other appropriate funding sources as the DBM may
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identify, and when necessary, the Contingent Fund, subject to relevant laws, rules and


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regulations. Thereafter, such sums as may be necessary for the continued
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implementation of this Act shali be inciuded in the Generai Appropriations Act.
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Sec. 11. Implementing Rules and Regulations. - The National Task Force to
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End Local Armed Conflict Council shall within sixty (60) days from the effectivity of
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this Act, promulgate the implementing ruies and regulations to effectively implement
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the provisions of this Act.
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Sec. 12. Sunset Clause. - The Council shall be rendered functus officio upon
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the accomplishment of the purposes for which it was created or unless sooner
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dissolved by the President.
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Sec. 13. Separability Clause. - If any portion or provision of this Act is declared
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unconstitutional, the remainder of this Act or any provisions not affected thereby shall
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remain in force and effect.
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Sec. 14. Repealing Clause. - Ali iaws, decrees, orders, rules, and regulations
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and executive orders contrary to or inconsistent with this Act are hereby repealed or
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modified accordingiy.
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Sec. 15. Effectivity. - This Act shail take effect fifteen (15) days after its
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pubiication in the Official Gazette or in a newspaper of generai circulation.
Approved,