Republic of the Philippines
HOUSE OF REPRESENTATIVES
Quezon City, Metro Manila

TWENTIETH CONGRESS
First Regular Session

HOUSE BILL No. 946

Introduced by Representative Crispin Diego “Ping” D. Remulla

AN ACT
ESTABLISHING A LEGAL SCHOLARSHIP AND RETURN SERVICE PROGRAM
FOR DESERVING STUDENTS, AND APPROPRIATING FUNDS THEREFOR

EXPLANATORY NOTE

Article III, Section 1 of the 1987 Constitution provides that, “No person shall be
deprived of life, liberty, or property without due process of law, nor shall any person be denied
the equal protection of the laws.” In addition, Article III, Section 11 affirms that, “Free access
to the courts and quasi-judicial bodies and adequate legal assistance shall not be denied to any
person by reason of poverty.” These provisions underscore the State’s obligation to ensure that
all Filipinos, regardless of their economic status, have access to justice and experience full

protection under the law.

However, this fundamental right remains out of reach for many, especially those in
marginalized and underserved communities who lack access to legal services. While the Public
Attorney’s Office (PAO) continues to serve as the primary legal aid provider for indigent
clients, the increasing volume of cases has strained its resources. In 2021, PAO handled
787,124 cases and assisted 849,914 clients. This continued further in 2022, with 850,753 cases
and 900,079 clients, clearly illustrating the growing demand for free legal representation across
the country.


In response to this need, the Department of Budget and Management (DBM) approved
the creation of 178 additional plantilla positions within PAO in July 2024. The Supreme Court
likewise recognized the urgency of strengthening the legal workforce and adjusted the passing
threshold for the 2024 Bar Examinations to 74%, resulting in 3,962 new lawyers and increasing
the passing rate to 37.84% from the previous year’s 30%. While these measures are
commendable, they are not sufficient to address the systemic shortage of lawyers in public

service.

This proposed legislation aims to establish a Legal Scholarship and Retum Service
Program, providing financial assistance to deserving students who wish to pursue a legal
education, subject to the condition that they will serve in government after passing the Bar.
This program is designed to expand access to legal education for underprivileged yet capable
individuals, while ensuring a steady supply of dedicated lawyers who will help fulfill the

State’s constitutional mandate to make justice accessible to all.

In view of the foregoing, the approval of this measure is earnestly sought.

CRISPIN DIEGO “PING” D. REMULLA


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Republic of the Philippines
HOUSE OF REPRESENTATIVES
Quezon City, Metro Manila

TWENTIETH CONGRESS
First Regular Session

HOUSE BILL NO. _946

Introduced by Representative Crispin Diego “Ping” D. Remulla

AN ACT
ESTABLISHING A LEGAL SCHOLARSHIP AND RETURN SERVICE PROGRAM
FOR DESERVING STUDENTS, AND APPROPRIATING FUNDS THEREFOR

Be it enacted by the Senate and the House of Representatives of the Philippines in Congress
assembled:

SECTION 1. Short Title. - This Act shall be known as the “Abogado Para sa Bayan
Act.”

SEC. 2. Declaration of Policy. — It is hereby declared the policy of the State to uphold
the right to free access to the courts and quasi-judicial bodies and ensure that adequate legal
assistance shall not be denied to any person by reason of poverty. Towards this end, and in
cognizance of the constitutional directive to provide for preventive measures and legal aid
services to the underprivileged whose human rights have been violated or need protection, the
State shall establish a legal scholarship and return service program to assist deserving students
pursue legal education who shall eventually render legal services in government offices.

SEC. 3. Legal Scholarship and Return Service Program. - There shall be established
a Legal Scholarship and Retum Service (LSRS) Program for deserving students who intend to
pursue a Juris Doctor or Bachelor of Laws degree in state universities and colleges (SUCs) or
in partner private higher education institutions (HEIs) in regions where there are no SUC
offering Juris Doctor or Bachelor of Laws degree. The LSRS Program shall provide the
following benefits to qualified legal education students:

a) Free tuition and other school fees, including but not limited to: student registration

fees, library fees, and publication fees;


1 b) Allowance for prescribed books and supplies;
2 ©) Allowance for review fees for government-mandated bar exams; and
3 d) Allowance for licensure fees.
4 SEC. 4. Qualifications and Requirements, — In order to qualify for the grant of
5 scholarship under the LSRS Program, a prospective or current legal education student must
6 satisfy the following requirements:
7 a) Must be a Filipino citizen residing in the Philippines;
8 b) Must not have completed a Bachelor of Laws or Juris Doctor degree from any HEI
9 offering legal education;
10 c) Must be a graduating student or a graduate of an undergraduate degree program;
11 and
12 d) Must have passed the entrance examination and complied with other requirements
23 for admission into the Juris Doctor or Bachelor of Laws degree program offered by
14 the SUC or private HEI where the student intends to enroll.
15 SEC. 5. Conditions for the Grant of Legal Scholarship. — Qualified students accepted
16 _ into the LSRS Program shall be subject to the following conditions:
7 a) Must sign an agreement stating that the terms and conditions of the scholarship
18 which shall be prescribed by the Legal Education Board (LEB);
19 b) Must carry the full load of subjects prescribed per semester by the SUC or private
20 HEI concerned, and shall not, under any circumstance, drop a course which would
21 result in underloading;
2 c) Must finish the Juris Doctor or Bachelor of Laws degree program within the
23 prescribed time frame of the SUC or private HEI where the scholar is enrolled in,
24 subject to the retention policies of the SUC or private HEI concerned: Provided,
25 That a scholar who is already enrolled, may be allowed, for valid and justifiable
26 reasons, to file a leave of absence;
27 d) Must take the bar examination within a maximum period of one (1) year after
28 completion of the Juris Doctor or Bachelor of Laws degree;
29 €) Must render return service as provided under Section 7 of this Act.
30 SEC. 6. Disqualifications. — The scholarship grant shall terminate, and the recipient of

31 legal scholarship shall repay the full cost of scholarship and related benefits received, including
32 all the expenses incurred during the participation in the LSRS program, in case of the following

33 circumstances:


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a) If the scholar fails to meet the academic requirements or to complete the course
within the prescribed period without valid cause as may be determined by the SUC
or private HEI concerned;

b) If the scholar commits gross misconduct in a manner that would bring significant
damage to the SUC or private HEI concerned or to the community as a whole.

SEC. 7. Mandatory Return Service. — Within three (3) years from admission to the
practice of law, a scholar shall render mandatory return service for four (4) years in government
agencies, including but not limited to: the Public Attorney’s Office, National Prosecution
Service, Department of Education, Department of Environment and Natural Resources,
Department of the Interior and Local Government, Department of Health, Department of
Justice, Department of National Defense, Department of Social Welfare and Development, the
Courts, or in government agencies and instrumentalities that provide legal services to (i) poor
and marginalized individuals and communities; and (ii) public school teachers, public health
workers and military and uniformed personnel involved in cases arising from or in connection
with the performance of their duties and functions: Provided, That the mandatory return service
shall be separate and distinct from the Clinical Legal Education Program as provided under
Rule 138-A of the Rules of Court: Provided, further, That beneficiaries of LSRS program
appointed to plantilla positions shall receive the appropriate salaries, benefits and other
emoluments for services rendered under the mandatory return service; Provided, furthermore,
That beneficiaries of LSRS Program who, after three (3) years from admission to the practice
of law, fails to secure appointment in government shall have the option to: (i) pay the full cost
of scholarship and related benefits received, including all the expenses incurred during the
participation in the LSRS Program; or (ii) undertake alternative compliance program to be
formulated by the LEB pursuant to the provisions of this Act and Republic Act No. 9999,
otherwise known as the Free Legal Assistance Act of 2010: Provided, finally, That in the
application of Republic Act No. 9999, the allowable deduction from the gross income shall be
the amount that could have been collected from the actual free legal services rendered or up to
twenty percent (20%) of the gross income derived from the actual performance of the legal
profession, whichever is lower.

SEC. 8. Number and Allocation of Students to be Admitted in the Program. ~ Prior
to the implementation of this Act and every five (5) years thereafter, the LEB shall, in
consultation with the Philippine Association of Law Schools and participating HEIs and upon
the assessment of the shortage of legal practitioners in the public sector, determine the
appropriate number and geographic allocation of scholars to be admitted in the LSRS Program.


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SEC. 9. Harmonization with the Clinical Legal Education Program. — Pursuant to
Article VIII, Section 5, subsection 5 of the Constitution, the Legal Education Board shall adopt
the policy on the Revised Law Student Practice Rule, ensure that law students participate in
the clinical legal education programs in all legal education institutions, define the scope of
service to be rendered by law students in the said program, contribute to access to justice of the
marginalized sectors, enhance learning opportunities of law students, instill among them social
responsibility and awareness, and prepare them for the practice of law.

SEC. 10. Sanctions. ~ Any lawyer who has availed of the benefits under the LSRS
Program but fails or refuses to comply with the mandatory return service as provided under
this Act shall be required to pay twice the amount of scholarship, including other benefits
received by reason of participation in the LSRS program: Provided, That the penalty imposed
herein shall not apply to lawyers who fail to comply with the required return service by reason
of force majeure or not due to their fault or negligence.

SEC. 11. Appropriations. — The amount necessary for the implementation of this Act
shall be included in the annual General Appropriations Act.

SEC. 12. Implementing Rules and Regulations. ~ Within sixty (60) days from the
effectivity of this Act, the LEB shall, in consultation with the Philippine Association of Law

Schools, Philippine Association of State Universities and Colleges, and Commission on Higher
Education, promulgate the rules and regulations to effectively implement the provisions of this
Act.

SEC. 13. Separability Clause. — If any provision or part hereof is held invalid or
unconstitutional, the remainder of this Act or any provision not affected thereby shall remain
in full force and effect.

SEC. 14. Repealing Clause. — All laws, decrees, executive orders, rules and regulations
and other issuances or parts thereof which are contrary to or inconsistent with this Act are
hereby repealed, amended or modified accordingly.

SEC. 15. Effectivity. — This Act shall take effect immediately following its publication

in the Official Gazette or in a newspaper of general circulation.

Approved,