Presentation based on a paper co-authored with Dina Ocampo, PhD for a study conducted by the University of the Philippines Center for Integrative and Development Studies (UP CIDS) and funded by the Department of the Interior and Local Government National Capital Region (DILG NCR); considers the proposed changes articulated in the draft Bayanihan Federalism Constitution and shows possible basic education governance mechanisms | November 8, 2019 Policy brief: https://cids.up.edu.ph/publications/policy-briefs/2020-series/2020-10

1. BASIC EDUCATION AND FEDERALISM
Implications and Options for NCR
8 November 2019
Photo Credit: World Vision Philippines

2. PRESENTATION OUTLINE
CURRENT STATE
PROPOSED FEDERAL
CONSTITUTION
COMPARISON WITH
OTHER COUNTRIES
SCENARIOS and
OPTIONS FOR BASIC
EDucation
Education and workforce landscape
Social and economic rights
Distribution of powers
Key changes
Unitary vs. Federal
Governance of basic education
Federal government having
exclusive power
Shared power between federal and
regional governments
2

3. Basic and Functional Literacy (2005, 2008, 2013)
86.4%
90.3%
95.6%
96.5%
Functional Literacy
2013
2008
2013
2008
Basic
Basic Literacy – ability of a person to read and
write with understanding simple messages in
any language or dialect
Functional Literacy – significantly higher level of
literacy which includes not only reading and writing
but also numeracy skills
Sources: Functional Literacy, Education and Mass Media Survey (2003, 2008, 2013) 3
93.4%
2003
84.1%
2003
99.0%
99.2%
99.5%
94.6%
94.0%
95.3%
NCR
NCR

4. AGE
GROUP
POPULATION
(in thousands)
POPULATION CURRENTLY ATTENDING SCHOOL
(in thousands)
Total
Male
Female
Total
%
Male
%
Female
%
5 – 9 10,839 5,595 5,244 10,176 93.9% 5,238 93.6% 4,939 94.2%
10 – 14 10,480 5,398 5,083 10,051 95.9% 5,131 95.1% 4,920 96.8%
15 – 19 10,120 5,164 4,956 6,518 64.4% 3,220 62.3% 3,299 66.6%
20 – 24 9,396 4,747 4,649 1,437 15.3% 756 15.9% 681 14.6%
Total 40,836 20,903 19,932 28,182 69.0% 14,344 68.6% 13,838 69.4%
School-Age Population and Participation (2015)
Source: 2015 Census of Population
4

5. Basic Education Enrolment (SY 2013 to SY 2017)
Kindergarten
Elementary
Junior High School
Senior High School
Alternative Learning
System
2013
2014
2015
2016
2017
2.3
2.2
2.1
1.8
2.2
14.5
14.5
14.4
14.1
13.6
7.2
7.3
7.4
7.6
8.0
1.4
2.8
0.5
0.5
0.6
0.7
TOTAL = ~27.3M
In Millions
Sources: DepEd (2016 and 2017) 5

6. Net Enrolment Rate (SY 2010 to SY 2015)
57
74
77
76
79
55
96
97
95
94
93
90
65
65
65
65
63
68
2010 2011 2012 2013 2014 2015
Kindergarten Elementary Junior High School
6
Source: DepEd (2016)

7. Source: DepEd (2016)
Completion Rates AND National Achievement Test (NAT)
Scores (2010 to 2015)
Completion Rate, % NAT Overall Score, %
0
10
20
30
40
50
60
70
80
2010 2011 2012 2013 2014 2015
0
10
20
30
40
50
60
70
80
90
2010 2011 2012 2013 2014 2015
Elementary Secondary
7

8. DepEd Budget Allocation (2010 to 2018)
DepEd Budget, ₱
% of National Budget
Growth Rate
% to GDP
11.4%
12.6%
13.2%
14.6%
13.6%
14.1%
2010
2011
2012
2013
2014
2015
175.0B
207.3B
238.8B
293.4B
309.B
367.1B
18.5%
15.2%
22.9%
5.5%
18.7%
2.9%
1.9%
2.1%
2.2%
2.5%
2.4%
14.4%
433.5B
18.1%
2.6%
2016
3.6%*
16.9%
568.4B
30.8%
2017
3.3%*
15.3%
580.6B
2.1%
2018
Sources: DepEd (2016 and 2017) and DBM (2018)
*Based on GDP forecast
8

9. Spending per Public School Student
(SY 2009 to SY 2016)
9,019
8,816
10,102
11,533
13,991
14,631
Growth Rate
-2%
15%
14%
21%
4%
2014
2013
2012
2011
2010
2009
22%
17,794
2015
3%
18,251
2016
Sources: DepEd (2015 and 2016) 9
Per Capita Spending, ₱

10. Median Years of Completed Education by
Wealth Quintile and by Sex
Source: National Demographic and Health Survey 2017
10
Wealth Quintile
Median Years
Completed (Female)
Median Years
Completed (Male)
Philippines
9.1
8.1
Lowest
5.6
4.5
Second
7.0
6.7
Middle
9.3
8.6
Fourth
10.3
10.2
Highest
12.2
11.5

11. Net Attendance Ratio (NAR) by Wealth
Quintile and by Sex
Source: National Demographic and Health Survey 2017
11
Wealth
Quintile
Primary School
Secondary School
Female
Male
Total
Female
Male
Total
Philippines
93.5%
92.8%
93.1%
82.5%
74.4%
78.2%
Lowest
92.4%
91.3%
91.8%
69.0%
52.9%
60.3%
Second
93.7%
92.3%
93.0%
81.4%
71.7%
76.3%
Middle
94.2%
93.8%
94.0%
85.0%
79.3%
82.0%
Fourth
94.0%
94.3%
94.2%
87.1%
83.9%
85.4%
Highest
93.6%
93.3%
93.4%
92.0%
88.1%
89.9%

12. Kindergarten
Elementary
Junior High School
Senior High School
2013
2014
2015
2016
2017
NCR Basic Education Enrolment (SY 2013 to SY 2017)
0.22
0.21
0.21
0.19
0.22
1.52
1.50
1.49
1.44
1.39
0.91
0.90
0.89
0.87
0.88
0.20
0.37
TOTAL = 2.87M
In Millions
12
Source: DepEd Planning Service (2019)

13. 66.0
81.9
76.3
66.2
81.9
76.7
64.4
80.9
75.5
75.6
81.6
77.6
24.2
77.6
80.0
77.2
25.0
Kindergarten
Elementary
Junior High School
Senior High School
2013
2014
2015
2016
2017
NCR Share of Public Education (SY 2013 to SY 2017)
TOTAL = 71.9%
In %
13
Source: DepEd Planning Service (2019)

14. NCR Net Enrolment Rate (SY 2010 to SY 2017)
14
90.1
97.2
94.4
99.6
99.0
99.8
95.9
92.8
77.8
77.8
77.5
81.6
78.9
84.1
83.4
84.8
55.3
62.7
2010
2011
2012
2013
2014
2015
2016
2017
Kinder and Elementary
Junior High School
Senior High School
Source: DepEd Planning Service (2019)

15. NCR Completion Rates AND NAT Scores (2010 to 2015)
Completion Rate, % NAT Overall Score, %
0
10
20
30
40
50
60
70
80
90
100
2010 2011 2012 2013 2014 2015 2016 2017
Elementary Secondary
15
0
10
20
30
40
50
60
70
2010 2011 2012 2013 2014 2015 2016
Source: DepEd Planning Service (2019)

16. NCR Revenues and Expenditures (2013 to 2016)
Source: DOF BLGF (2019)
16
(In ₱ Millions)
2013
2014
2015
2016
Total Revenues
69,949
78,941
89,621
95,026
Total Expenditures
49,038
49,686
50,259
56,740
Total LGU Expenditures on Education
15,499
16,440
16,161
16,911
Total Special Education Fund (SEF)
8,136
8,836
9,273
9,429
Education, Culture and Sports /
Manpower Development
7,363
7,604
6,888
7,482
%Share of Education in Total Expenditures
31.6%
33.1%
32.2%
29.8%

17. 17
₱3,071
₱933
₱1,628
₱12,713
₱1,062
₱4,380
₱4,068
₱1,369
₱3,036
₱611
₱5,325
₱7,856
₱3,580
₱2,163
₱3,677
₱1,775
₱1,892
₱3,379
₱961
₱1,991
₱13,996
₱875
₱4,820
₱5,150
₱1,362
₱2,905
₱1,083
₱4,307
₱7,779
₱3,977
₱2,159
₱4,213
₱2,768
₱2,370
₱3,574
₱1,056
₱2,166
₱15,770
₱942
₱5,464
₱5,630
₱1,523
₱3,466
₱1,386
₱1,588
₱8,031
₱4,452
₱2,537
₱4,047
₱1,715
₱3,655
₱3,496
₱993
₱747
₱15,696
₱1,133
₱6,278
₱4,969
₱1,571
₱3,926
₱1,546
₱2,327
₱8,470
₱4,205
₱2,395
₱5,793
₱2,027
₱4,358
NCR
Caloocan
Las Pinas
Makati
Malabon
Mandaluyong
Manila
Marikina
Muntinlupa
Navotas
Paranaque
Pasay
Pasig
Quezon City
San Juan
Taguig and Pateros
Valenzuela
2013
2014
2015
2016
Per Capita SEF in
NCR (2013 to 2016)
Sources: DOF BLGF (2019) and DepEd
Planning Service (2019)

18. Sources: Family Income and Expenditure Survey 2015; Labor Force Survey 2018, National Demographic and Health Survey 2017 18
Family Income (2015), Labor Force (2018), and Median Years of
Completed Education (female and Male) by Region
Region
Average
Family
Income
Working Age
Population
(‘000)
Labor Force
Participation
Un-
employed
Under-
employed
Median Years
Completed
(Female)
Median Years
Completed
(Male)
PHL
₱267,000
71,319
60.9%
5.3%
16.4%
9.1
8.1
NCR
₱425,000
9,087
60.3%
6.6%
7.2%
10.7
10.6
CAR
₱282,000
1,270
61.9%
4.1%
15.2%
10.2
9.1
I
₱238,000
3,520
61.7%
6.8%
22.1%
9.6
9.0
II
₱237,000
2,402
63.9%
3.0%
19.5%
8.2
7.3
III
₱299,000
7,889
59.9%
5.8%
11.4%
9.2
8.5
IV-A
₱312,000
10,096
62.7%
6.6%
13.4%
10.1
9.1
IV-B
₱222,000
2,093
62.0%
4.7%
20.6%
7.8
6.8
V
₱187,000
4,113
60.9%
4.9%
29.6%
7.8
6.9
VI
₱226,000
5,459
61.2%
5.3%
18.6%
8.1
6.9
VII
₱239,000
5,296
61.3%
5.3%
17.8%
8.0
6.8
VIII
₱197,000
3,155
61.2%
4.2%
21.4%
7.7
6.6
IX
₱190,000
2,617
56.3%
4.1%
18.9%
6.9
6.4
X
₱221,000
3,314
66.3%
4.1%
20.8%
8.6
7.0
XI
₱247,000
3,505
60.3%
4.3%
15.4%
7.7
8.2
XII
₱188,000
3,150
61.7%
3.9%
17.0%
7.3
6.6
Caraga
₱198,000
1,885
64.4%
4.0%
25.4%
8.1
6.7
ARMM
₱139,000
2,390
46.6%
3.7%
8.4%
5.4
4.2

19. THE PROPOSED FEDERAL CONSTITUTION
Bayanihan federalism: draft constitution for a strong, indissoluble republic
Social and economic rights
Complete, quality education is now
explicitly stated as a social and
economic right (Art. III B. Sec. 26(c))
Distribution of powers
The Federal Government shall have exclusive
power over basic education (Art. XII Sec. 1(m))
The Federated Region shall have exclusive
power over culture and language
development (Art. XII Sec. 2(m))
Key changes
• Free public education in kindergarten, elementary, secondary, and tertiary levels
(kindergarten, elementary, and secondary education are compulsory)
• Federal Constitution and Philippine History and Culture will be part of the curriculum
• “Accreditation may be pursued as a means to continually improve education institutions.
Autonomous education institutions shall be given incentives.”
(Art. XVII Sec. 2, 3, 4)
19

20. Source: K-12 Program: Sustaining Education under the Duterte Presidency (2017) 20
Guatemala
Philippines
Indonesia
France
Brazil
Australia
Malaysia
India
Germany
USA
UNITARY
FEDERAL
13121110987654321
Elementary Middle Education Secondary Education
Elementary Junior High School Senior HS
Elementary Junior Secondary
Senior Gen. Secondary
Senior Tech-Voc
Elementary Middle School
High School
Vocational HS
Elementary Lower Secondary School
Upper Secondary
Tech-Voc Education
Elementary Secondary School Sr. Secondary
Elementary Lower Secondary Upper Sec.
Elementary
Lower
Secondary
Sr. Secondary
Polytechnic
Elementary
Gymnasium (Honors)
Realschule (Average)
Hauptschule (Below Average)
Elementary Middle School High School
K
Governance and Basic Education Cycles in 10 Countries

21. Scenario 1: FEDERAL Government HAS EXCLUSIVE POWER
SCHOOLS
(60,000+)
Frontline services of the department accountable
for education and learner outcomes
DIVISION OFFICES
(221)
Supervises the implementation of the set policies and
programs in the schools and learning centers;
provides technical support to the schools and
learning centers
REGIONAL OFFICES
(17)
Adopting/adapting the national policies and
programs to address the context and needs of the
region, ensuring that standards are being followed
CENTRAL OFFICE
Setting of policies, standards, guidelines and
programs for national adoption
LOCAL SCHOOL BOARD (LSB)
1. Prepare annual supplementary budget
2. Authorize the disbursement of SEF
3. Serve as advisory committee to the
sanggunian on educational matters
4. Recommend changes to the names of
public schools
Source: RA 9155
Source: RA 7160
21

22. 22
School Based Management: Framework and Results
LEADERSHIP and
GOVERNANCE
RESOURCE
MANAGEMENT
CURRICULUM and
LEARNING
(K TO 12)
ACCOUNTABILITY
and CONTINUOUS
IMPROVEMENT
VISION, MISSION, GOALS
CENTRAL, REGION, DIVISION
ASSESS
STRUCTURE
EVALUATE
FUNCTIONALLY-
LITERATE
CITIZEN
Source: DepEd Order 83, s. 2012
Key Results and Findings:
1. Associated with better school
performance based on NAT scores
2. Greater inequality in school
resources over time while lesser
inequality in student achievement
3. Higher financial decentralization
for schools, but school level funds
remain comparatively meager vs.
overall education spending
4. Importance of leadership skills of
school heads
Source: School Based
Management in the Philippines:
An Empirical Investigation (2013)

23. FEDERATED REGIONS
Scenario 2: SHARED POWER Between FEDERAL and REGIONs
FEDERAL
GOVERNMENT
• Standards
• National
assessment
• Resource
provision for
strategic
areas
• Assistance to
regions
• Budget and provision
of physical and
learning resources
• Localization and
indigenization
• Program management
• Hiring and staffing
• Human resource
development
• Creation of public
schools
• Regulation of private
schools
SHARED
• National basic
education agenda
• Monitoring and
Evaluation
• Research and
Development
• Data and knowledge
management
Based on RA 9155; K-12 Program: Sustaining Education under the Duterte Presidency (2017); and A Resource Material on Education and
Federalism in Nepal (2014)
23

24. Recommendations for Policymakers
24
1. Establishment of regional governments – its powers and
functions, relation to federal and local governments – is most
crucial element in shift from unitary to federal system.
2. Costs and benefits of basic education are best internalized at
local level, but equity considerations require uniform
standards across jurisdictions.
3. “Big bang” approach to devolution rarely works.
4. The new system must improve equity and not lead to greater
inequality and marginalization.
5. Radical shifts in governance require a strong civil service and
continuous human resource development.
Based on Federalism: Prospects for the Philippines (2017); Designing the Fiscal Features of a Federal Form of Government: Autonomy, Accountability, and
Equity Considerations (2017); and A case study of the decentralization of health and education services in the Philippines (2009)