Republic of the Phil ippinesHOUSE OF REPRESENTATIVES

Quezon City, Metro Manila

SIXTEENTH CONGRESSFirst Regular Session

HoUsE erLL No34.3?

Introduced byHon. Kaka J. Bag-ao, Hon. Teddy Brawner Baguilat, Jr., Hon. Maria Leonor

Gerona-Robredo, Hon. Sharon S. Garin, Hon. Mercedes K. Alvares, andHon. Jorge "Bolet" Banal. Jr.

EXPLANATORY NOTE

Equality underscores the human rights principles that are embedded in the laws ofthe country, The legal framework with which we protect and promote human rights, fromthe 1987 Constitution and several special laws to various international human rights thatthe Phil ippines is a signatory of, affirms the equal application of human rights andfreedoms.

The denial of basic fairness, however, is an everyday reality for many Filipinos.Indigenous peoples are denied access to basic services because of prejudices against theirethnolinguistic background or cultural expressions. Biases against one's sexual orientationor gender identity result in the denial of one's right to education or work. HlV-relatedstigma limits opportunities not just for persons living with HIV (PLHIV), but also forcommunities that are vulnerable or affected by it. Persons with disability (PWDs) are stilltreated as second-class citizens in the country because of prejudices against theircondition.

This demonstrates that the realities on the ground do not meet the standards andguarantees provided by universally recognized human rights. Cases of human rightsviolations against vulnerable Fil ipino communities, some of which are considerably grave,present a serious challenge to the State and the society in general: as the country strivesto improve the l ives of Fil ipinos, there are individuals and groups that are left behind.

The fundamental law also declares that the State values the dignity of every humanperson and guarantees full respect for human rights (Section 11, Article II, 1987Constitution). It also imposes on the State the duty to ensure the fundamental equalitybefore the law of women and men (Sec. 14, Id.).

Fufthermore, the equal protection clause in the Bill of Rights, which according theeminent constitutionalist Fr. Joaquin Bernas "is a specific constitutional guarantee of theEquality of a person'i provides a remedy for those who suffer from discrimination. In l.M.

. 'nci'ttA-S4)

Tuason and Co. vs. The Land Tenure Administration, the Supreme Court ruled that thisclause requires that "laws operate equally and uniformly on all persons under similarcircumstances or that a// persons must be treated in the same manner, the conditions notbeing different, both in the privileges conferred and the liabilities imposed."

This proposed measure provides protection against various forms of discriminatorypractices. It recognises the intersectionalities and layers of human rights abuses, whichrequires a more comprehensive framework. The bill does not accord additional entitlementsto any communities; instead, it ensures that violations or threats to human rights areaddressed.

The bill is also not simply punitive. It also recognises that preventive measures areof equal importance. It responds to stigma, or the dehumanisation of vulnerable individualsor communities, and ensures that respect for diversity is promoted. It thus supports theinclusion of various vulnerable communities in the government's social protectionprograms, and that within the private and public spheres, 'diversity programs' areestablished and implemented.

As the country moves towards the fulfillment of the guarantees provided by theConstitution and by various human rights instruments, discrimination needs to beaddressed and eliminated. No Fil ipino should be left behind,

The approval of this bil l is urgently sought.

Brawner Baguilat, Jr.

. Mercedes K. Alvares "Bolet" Banal. Jr.

123456789

10L 7t213t415!6

Republ ic o f the Phi l ipp inesHOUSE OF REPRESENTATIVES

Quezon Ci ty , Metro Mani la

SIXTEENTH CONGRESSFirst Regular Session

HousE BrLL n". 3432

!71819202 722

Introduced byHon. Kaka J. Bag-ao, Hon. Teddy Brawner Bagui lat , Jr. , Hon. Maria Leonor

Gerona-Robredo, Hon. Sharon S. Garin, Hon. Mercedes K. Alvares, andHon. Jorge "Bolet" Banal. Jr.

2324 AN ACT PROHIBITING DISCRIMINATION ON THE BASIS OF ETHNICITY, RACE, RELIGION OR2s BEL|EF, SEX, GENDER, SEXUAL OR|ENTAT|ON, GENDER tDENT|TY AND EXPRESSTONS,26 LANGUAGE, DtSABtLtW, HtV STATUS, AND OTHER STATUS, AND PROVIDING PENAITIES27 THEREFOR282 9

30 Be it enacted by the Senote ond the House of Representatives of the Congress ossembled:

31 Section l. Short Tille - This bill shall be known as the Anti-Discrimination Act of 2013.

3233 Section 2. Decloration of policies. - lt is the policy of the state to work actively for the34 el iminat ion of al l forms of discr iminat ion that of fends the equal protect ion clause of the Bi l l of35 R igh ts and the Sta te ob l iga t ions under human r igh ts ins t ruments acceded to by the Repub l ic o f35 the Ph i l ipp ines , par t i cu la r ly those d isc r im ina tory p rac t ices based on sex or sexua l o r ien ta t ion .37 Towards this end, discr iminatory pract ices as def ined herein shal l be proscr ibed and penal ized

38 Section 3. Definition of Terms - For the purposes of this Act, the following terms shall39 be def ined as fol lows:404t a . "D isab i l i t y " sha l l mean 1) a phys ica l o r menta l impa i rment tha t subs tan t ia l l y42 l im i ts one or more psycho log ica l , phys io log ica l o r anatomica l func t ion o f an43 ind iv idua l o r ac t i v i t ies o f such ind iv idua l ; 2 ) a record o f such an impa i rment ; o r 3 )44 be ing regarded as hav ing such an impa i rment

723455789

10r.!213L415l_o

771819202t2223242526272829303 13233343536373839404t4243444546

b . "Discr iminat ion" const i tutes any dist inct ion, exclusion, restr ict ion or preference

or other di f ferent ial t reatment that is direct ly or indirect ly based on ethnici ty,

race, rel ig ion or bel ief , sex, gender, sexual or ientat ion, gender ident i ty, gender

expression, disabi l i ty, HIV status, or other status, which has the intent ion or

effect of nul l i fy ing or impair ing the recognit ion, enjoyment or exercise, on an

equal foot ing, of pol i t ical , c iv i l , economic, social , and cultural r ights.

D iscr im ina t ion , wh ich a lso inc ludes inc i tement to d isc r im ina te and harassment ,is a result or a product of st igma.

"Educat ion and Tra in ing" re fe rs to a l l t ypes and leve ls o f educat ion , t ra in ing , and

other avenues fo r learn ing and inc ludes access there to , the s tandard and qua l i t y

thereo f , and the cond i t ions under wh ich the same is g iven ,

"Ethn ic Or ig in" inc ludes race , na t iona l o r ig in , and e thno- l ingu is t i c o r ig in .

"Employment" refers to al l terms, condit ions, and pr iv i leges relat ing to work inpub l ic and pr iva te ins t i tu t ions , inc lud ing recru i tment po l i c ies , app l i ca t ionprocedures, t raining, incent ives, compensat ion, determinat ion of benef i ts or

al lowances, promotion, advancement opportunit ies, t ransfer, and dismissal.

This def ini t ion shal l apply to regular, probat ionary, casual, contractual, f ixed-

term, and seasonal workers. In legi t imate contract ing arrangements, the

contractor/subcontractor shal l be deemed the employer of the contractual

employee.

"Gender ldent i ty" refers to the personal sense of ident i ty or expression as

character ized, among others, by manners of c lothing, incl inat ions, and behavior

in re la t ion to mascu l ine or femin ine convent ions . A person may have a male or

female ident i ty with the physiological character ist ics of the opposite sex.

"Gender Expression" refers to the outward manifestat ions of the cul tural t rai ts

that enable a person to ident i fy as male or female according to patterns that, at

a part icular moment in history, a given society def ines as gender appropriate.

"HlV Status" pertains to the presence or absence of the human

immunodef ic iency v i rus (H lV) in the body o f an ind iv idua l .

" lnd igenous Peop les" inc lude Peop les who are regarded as ind igenous on

account of their descent from the populat ions which inhabited the country, at

the t ime o f conquest o r co lon iza t ion , o r a t the t ime o f in roads o f non ind igenous

re l ig ions and cu l tu res , o r the es tab l i shment o f p resent s ta te boundar ies , who

re ta in some or a l l o f the i r own soc ia l , economic , cu l tu ra l and po l i t i ca l

ins t i tu t ions , bu t who may have been d isp laced f rom the i r t rad i t iona l domains or

who may have rese t t led ou ts ide the i r ances t ra l domains ;

c.

d .

e .

f .

6 '

h .

t .

7 " lndigenous Peoples" also refers to a group of people or homogenous societ ies

2 ident i f ied by sel f ascr ipt ion and ascr ipt ion by others, who have cont inuously

3 l i ved as organ ized communi ty on communal ly bounded and de f ined te r r i to ry ,

4 and who have, under c la ims o f ownersh ip s ince t ime immemor ia l , occup ied ,

5 possessed and ut i l ized such terr i tor ies, sharing common bonds of language,

6 customs, tradi t ions and other dist inct ive cul tural t rai ts, or who have, through

7 resistance to pol i t ical , social and cultural inroads of colonizat ion, nonindigenous

8 rel igions and cultures, became histor ical ly di f ferent iated from the major i ty of

I F i l ip inos ;101 172 j . "Pro f i l i ng" means re ly ing on the proh ib i ted grounds o f d isc r im ina t ion in13 subject ing a person or group of persons to invest igatory act iv i t ies, which include

74 unnecessary , un jus t i f ied , i l l ega l , and degrad ing searches , ques t ion ing or o ther15 inves t iga tory ac t iv i t ies , in de termin ing whether an ind iv idua l i s engaged in an

16 ac t iv i t y p resumed to be un lawfu l , immora l , o r soc ia l l y unacceptab le .7718 k. "Rel igious Bel ief" covers the profession or non-profession of rel ig ion or bel ief of19 one's choice that may be publ ic ly or pr ivately manifested in worship,20 observance, pract ice and teaching.2 722 l . "sexual Orientat ion" refers to the direct ion of emotional sexual at tract ion or

23 conduct. This can be towards people of the same sex (homosexual or ientat ion),24 towards people of both sexes (bisexual or ientat ion), towards neithers, or25 towards people of the opposite sex (heterosexual or ientat ion) or towards

26 everyone.2728 m. "St igma" refers to the dynamic process of devaluat ion that s igni f icant ly

29 d isc red i ts an ind iv idua l in the eyes o f o thers . When s t igma is ac ted upon, the

30 resu l t i s d isc r im ina t ion .3 132 n. "Vulnerable communit ies" refers to communit ies or sectors that encounter33 s t igma and d isc r im ina t ion based on the grounds enumera ted in Sec t ion 4 .

3435 Section 4. Prohibited grounds for discriminotion. - For the purposes of this Act,

36 discr iminat ion that is indirect ly or direct ly based on the actual or perceived ethnici ty,

37 race, rel ig ion or bel ief , sex, gender, sexual or ientat ion, gender ident i ty, gender

38 expression, c iv i lstatus, disabi l i ty, HIV status, or other status is prohibi ted.

3940 Section 5. Discriminatory Acts. - The following acts shall be prohibited:

4t42 A. Inf l ict ing st igma - i t shal l be unlawful for any person to commit any acts that43 promote and encourage st igma based on the grounds referred to in Sect ion 4.

44 Content in the media, in educat ional textbooks, or in other medium that aims to45 inf l ict st igma is l ikewise prohibi ted.

46

123456789

10L 7t213L4L5L6L71819202 72223242526272829303132333435363738394041.4243444546

Den ia l o f po l i t i ca l , c iv i l , and cu l tu ra l r igh ts - i t sha l l be un lawfu l to deny a person

enjoyment of pol i t ical , c iv i l and cultural r ights based on the grounds referred to

Sect ion 4.

C. Denial of r ight to educat ion - l t is unlawful for any person to:

1 . Refuse admission or expel a person from any educat ional or t raining

inst i tut ion on the basis of the grounds def ined in Sect ion 4, withoutprejudice to the r ight of educat ional or t raining inst i tut ions to determine

the academic qua l i f i ca t ions o f the i r s tudents o r t ra inees ;lmpose discipl inary sanct ions, penalt ies harsher than customary, or

s imi la r pun ishments , requ i rements , res t r i c t ions , o r p roh ib i t ions tha tinfr inge on the r ights of the students on the basis of the grounds

ident i f ied in Sec t ion 4 ; and

This prohibi t ion extends to acts committed against a student or t rainee to

d isc r im ina te h is o r her paren ts o r lega l guard ians based on grounds re fe r red to in

Sect ion 4.

D. Denial of r ight to work - i t is unlawful for any person to:

Use the grounds in Sec t ion 4 o r requ i re the d isc losure thereo f in the

select ion, promotion, and terminat ion of workers, and in the

determinat ion of compensat ion, t raining, incent ives, pr iv i leges, benef i ts

or al lowances, as wel l as other terms and condit ions of employment;Deny employment in government ins t i tu t ions , inc lud ing po l i ce and

mil i tary service, based direct ly or indirect ly on the grounds referred to in

Sect ion 4;Refuse to enter into contract or agreement with persons or group ofpersons based solely or part ly on the grounds provided in Sect ion 4; and

deny an appl icat ion for or revoke a professional l icense issued by thegovernment direct ly or indirect ly due to the grounds included in Sect ion4.

E. Denial of access to goods and services - i t is unlawful for any person to:

Deny a person, solely or part ly on the basis of the grounds in Sect ion 4, ofgoods and services avai lable to the general publ ic, such as but not l imited

to p r iva te and pub l ic insurance, hous ing and o ther fo rms o f

accommodat ion , med ica l and c l in ica l serv ices ;Refuse entry to or evict a person from any establ ishment, faci l i t ies or

u t i l i t i es tha t a re open to the genera l pub l i c , such as bu t no t l im i ted to

restaurants, bars, hotels, shopping mal ls, solely or part ly on the basis of

the grounds l isted in Sect ion 4;Cause undue and unjust deferral of services or provision of infer ior

services to persons due to the grounds in Sect ion 4; and

2 .

1 .

2 .

3 .

4.

3 .

72 There is discr iminat ion i f the acts above are committed against organizat ions or

3 groups of persons based on the grounds ident i f ied in Sect ion 4.

45 F. Denial of r ight to organize - l t shal l be unlawful to prohibi t , prevent, or revoke

6 the accreditat ion, formal recognit ion, andf or registrat ion of any organizat ion,7 group, pol i t ical party, inst i tut ion or establ ishment, in educat ional inst i tut ions,

8 workplaces, communit ies, and other sett ings, based part ly or solely on the9 grounds provided for in Sect ion 4.

10t I D iscr im ina t ion is a lso commi t ted when add i t iona l requ i rements beyond the

!2 cus tomary are imposed d i rec t l y o r ind i rec t l y due to the grounds s t ipu la ted in13 Sect ion 4.L415 G. In f l i c t ing harm on hea l th and we l l -be ing - i t sha l l be un lawfu l to sub jec t any

16 person, w i thout consent , to any unnecessary med ica l o r phys ica l examinat ion ,17 psychological t reatment, fai th-based pract ices, and other simi lar procedures

18 based solely or part ly on any of the grounds referred to in Sect ion 4 that aim to

19 change ident i ty or physical at tr ibutes or impose behavior or expressions.2027 H. Engag ing in p ro f i l i ng- l t sha l l be i l l ega l fo r any person, inc lud ing members o f the

22 mil i tary and law enforcement agencies, to engage in prof i l ing based solely or23 par t l y on the grounds inc luded in Sec t ion 4 .2425 L Abuses by state and non-state actors - l t shal l be unlawful for any government

26 agenc ies , inc lud ing loca l government un i ts , po l i ce , mi l i ta ry , and immigra t ion , to

27 harass verbal ly or physical ly, to curtai l f reedom of movement, or to extort f rom a28 person or a group of persons on the basis of the grounds st ipulated in Sect ion 4,29 This prohibi t ion appl ies to simi lar abuses committed by non-state actors.

3031 J . Deten t ion and conf inement - l t sha l l be un lawfu l to de ta in and conf ine a person

32 or groups of persons based direct ly or indirect ly on the grounds under Sect ion 4.3334 K. Other analogous circumstances - Any analogous acts which have the effect or

35 purpose of impair ing or nul l i fy ing the recognit ion, enjoyment, or exercise of the

36 person 's human r igh ts and fundamenta l f reedoms are a lso proh ib i ted .

3l3839 Sect ion 6, Persons l iable - Any person, natural or jur idical , or their representat ives,40 including government, government-owned and control led corporat ions, or any pr ivate

47 corporat ion, inst i tut ion or company, who commits any of the acts under Sect ion 5, shal l42 be l iab le under th is Ac t .4344 Any person, natural or jur idical , or their representat ives, who requests, instructs,

45 induces, encourages, authorizes, tolerates, or assists another to commit any of the acts46 under Sec t ion 5 sha l l a lso be pr inc ipa l l y l iab le under th is Ac t .

Z Section 7. Programs to promote non-discrimination ond diversity - The State shall3 endeavor to e l im ina te a l l fo rms o f d isc r im ina t ion and sha l l there fore pursue in i t ia t i ves4 and programs tha t seek to enab le an env i ronment f ree o f s t igma and d isc r im ina t ion . l t5 sha l l d i rec t the mach inery and resources o f the Sta te to ensure non-d isc r im ina t ion and6 promote equal i ty and shal l encourage other sectors of the society to engage and7 part ic ipate in these efforts. l t shal l ensure the establ ishment of the fol lowing programs:

89 A. Soc ia l Pro tec t ion Program - The na t iona l government sha l l imp lement soc ia l

10 protect ion measures for communit ies affected by and vulnerable to st igma and77 d isc r im ina t ion .7213 B. Diversi ty Programs and pol ic ies - Al l government agencies, government-owned

74 and control led corporat ions, pr ivate companies, publ ic and pr ivate educat ional15 inst i tut ions, and other ent i t ies shal l establ ish diversi ty programs to ensure that76 d isc r im ina t ion and abuse are prevented . They sha l l a lso c rea te an in te rna l77 redress mechanism to address cases of discr iminat ion and grant administrat ive18 remedies or sanct ions for such cases.1920 The Civi l Service Commission, Department of Labor and Employment,2t Department of Inter ior and Local Government, the Armed Forces of the22 Ph i l ipp ines , Depar tment o f Educat ion , Commiss ion on H igher Educat ion ,23 Technical Educat ion and Ski l ls Development Authori ty, Department of Just ice,24 Department of Foreign Affairs, and Department of Health shal l ensure the25 imp lementa t ion o f th is sec t ion .2627 Fa i lu re o f the above agenc ies to ensure the imp lementa t ion o f th is p rov is ion sha l l be28 deemed re fusa l to address d isc r im ina t ion and sha l l be pena l ized as an ana logous ac t o f29 d isc r im ina t ion .3031 Section 8. Duties of the Commission on Humdn Rights. - The Commission shall32 invest igate and prosecute on i ts own or on complaint by any person acts or omissions33 v io la t ing th is Ac t . l f the Commiss ion has reasonab le cause to be l ieve tha t any person or34 group o f persons is engaged in d isc r im ina t ion under th is Ac t , the Commiss ion sha l l35 commence a legal act ion in the regular court .3637 The Commission shal l also direct the off icer concerned to take appropriate act ion38 against a publ ic off icer or employee at faul t or who neglect to perform an act or39 discharge a duty required under this Act, and order revocat ion of l icense, removalfrom40 off ice or employment, suspension, demotion, f ine, censure, or prosecut ion, and ensure47 compl iance therewith. Refusal by any off icer without just cause to comply with an order42 of the Commission to revoke the l icense, remove, suspend, demote, f ine, censure, or43 prosecute an off icer or employee who is at faul t , or who neglects to perform an act or44 discharge a duty required under this Act, shal l be a ground for discipl inary act ion against45 said off icer.46

1 Sect ion 9. Penalt ies. - Persons found gui l ty of any of the discr iminatory pract ices under2 Sec t ion 5 (A) , 5 (B) , 5 (E) , 5 (F) , and a (K) o f th is Ac t sha l l be pena l ized w i th a f ine o f no t3 less than One Hundred Thousand Pesos (P100,000) but not to exceed Two Hundred anda Fif tyThousand Pesos (P250,000) or imprisonment of two (2)years but not more than six5 (6) years, or both at the discret ion of the court .67 Persons found gu i l t y o f any o f the d isc r im ina tory p rac t ices under Sec t ion 5 (C) , 5 (D) ,5

S (G) , 5 (H) , 5 ( l ) , 5 (J ) and 5 (K) o f th is Ac t sha l l be pena l ized w i th a f ine o f no t less than9 Two Hundred Fif ty Thousand Pesos (P250,000) but not to exceed Five Hundred

10 Thousand Pesos (P500,000) or imprisonment of s ix (6) years but not more than twelve11 (12) years, or both at the discret ion of the court .7213 l f the violator is a corporat ion, organizat ion or any simi lar ent i ty, the off ic ials thereof74 d i rec t l y invo lved sha l l be l iab le there for .1516 l f the violator is an al ien or a foreigner, he shal l be deported immediately after service of77 sentence without further deportat ion proceedings.

1819 Persons found gui l ty of any of the discr iminatory pract ices prohibi ted under this Act20 sha l l a lso be c iv i l l y l iab le .2 !22 The administrat ive remedies provided under this Act do not bar prosecut ion or civ i l23 claims in proper courts for any act of discr iminat ion committed under this Act.2425 l f any cr ime penal ized under the Revised Penal Code is committed in pursuit of26 d isc r im ina t ion , the pena l ty p rov ided under the Rev ised Pena l Code sha l l be app l ied and27 the d isc r im ina t ion commi t ted sha l l be cons idered as an aggravat ing c i rcumstance.l 6

29 Sect ion LO. Appropridt ions. - The ini t ia l amount necessary to implement the provisions

30 of this Act shal l be charged against the current year 's appropriat ion of the agencies31 tasked to implement the provisions of this Act. Thereafter, such sums as maybe32 necessary fo r the cont inued imp lementa t ion o f th is Ac t sha l l be inc luded in the Annua l33 General Appropriat ions Act.3435 Section IL. Implementing Rules and Regulotions. - The CHR, Civil Service Commission,36 Department of Labor and Employment, Department of lnter ior and Local Government,37 the Armed Forces o f the Ph i l ipp ines , Depar tment o f Educat ion , Commiss ion on H igher

38 Educat ion, Technical Educat ion and Ski l ls Development Authori ty, Department of39 Just ice, Department of Foreign Affairs, Department of Health, Nat ional Commission on40 Ind igenous Peop les , and Nat iona l Commiss ion on Mus l im F i l ip inos sha l l p romulga te the41. necessary implementing rules and regulat ions within sixty (60) days from the effect iv i ty42 0f this Rct.4344 Section 12. Separability clause. - Any portion or provision of this Act that may be45 declared unconstitutional or invalid shall not have the effect of nullifying the other46 portions and provisions hereof as long as such remaining portion or provision can stil l47 subsist and be given effect in their entirety.

L

2 Section 13. Repeoling clause. All laws, decrees, orders, rules and regulations or3 parts thereof inconsistent with this Act are hereby repealed, amended, or modif ied4 accordingly.56 Section t4. Effectivity. -- This Act shalltake effectfifteen (15) days after its publication

7 inthe Off ic iol Gozette or in at least two (2) newspapers of general c irculat ion.89

10 Approved,