EFA2000: Literacy Assessment
Philippines
EDUCATION FOR ALL: THE YEAR 2000 ASSESSMENT
COUNTRY REPORT
BY
PHILIPPINES
[This is an excerpt of country report containing relevant sections on literacy and non-formal
education.]
Downloaded from Asia-Pacific Literacy Data Base (http://www.accu.or.jp/litdbase).
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EFA2000: Literacy Assessment
Philippines
Report
Philippine Country EFA Assessment
– The Internalisation and Evolution of EFA in the Philippines
The State of Philippine Primary Education at the Start of EFA
…..
Learning Outcomes
…..
The literacy rate among 15-24 year olds, which is one proxy measure for the educational system’s
effectiveness in imparting the basic skills of reading and writing, stood at 96.6% with a gender parity
index of 1.0 in 1990. The high level of literacy within this particular age group reflects the recent
outcomes of the educational process. Therefore, when the literacy rate is analysed in relation to the
results of achievement tests, it raises the question of whether primary level education is on the whole
good only at developing simple reading and writing skills and not much else. It is no wonder then that
the 1989 functional literacy rate 1 among the population 10 years and alternative (73.2%) was
appreciably lower than the simple literacy rate2 for the same population segment (89.8%). If that is so,
there was then very little justification in having maintained a six-year primary cycle producing skills
that could have been achieved more efficiently and as effectively through a shorter and less expensive
programme.
…..
Adult Literacy
In 1990, the simple literacy rate among 15+ year olds was 93.6 percent with a gender parity
index of 0.991. Although this literacy level was high at that time for developing country standards,
there nonetheless were an absolute number of about 2.3 million alternative adults. Since the literacy
rate among the narrower age group of 15-24 year olds as presented above was higher at 96.6 percent,
it meant that many of the non-literates came from the above 24 age-group and were earlier products of
the educational system. This is highly probable, considering that for the past 30 years the gross
enrolment ratio in the primary level had always been more than 100.0 percent. This may or may not be
a reflection of the capability of the educational system during the earlier years, but the fact is that in
1990, they had become a big burden in terms of providing them the basic literacy they needed.
Conclusions
….
1
The functional literacy rate refers to the percentage of the population that has the ability to read and write
with comprehension, as well as to make simple arithmetical calculations in an expanded sense; and the
possession of minimum skills needed to carry out simple functions in life and interact with others in society.
2 The simple literacy rate is defined as the percentage of the population who can read and write and
understand simple messages in any language or dialect.
2
EFA2000: Literacy Assessment
Philippines
Yet, there were high levels of simple literacy among both 15-24 year olds and 15+ year olds.
Such that when these indicators are related to the inadequate percentages of pupils who mastered
reading/writing, mathematics and life skills, it brings up the idea that while the primary education
system was effective in imparting simple literacy, it was non-optimal in developing greater
knowledge. The comparatively lower level of functional literacy should lend credence to this
hypothesis.
….
Philippine EFA Goals and Targets
Literacy Targets
Under the PPA, the nationwide simple literacy rate was to increase from 89.8 percent 1989 to
98.0 percent in 2000, while the functional literacy rate was to increase from 73.2 percent in 1989 to
85.0 percent in 2000. The MPBE did not revise these goals (see Chart I-9 below).
Figure 0-1: PPA Targets for Simple and Functional Literacy
Simple and Functional Literacy Rates
PPA Targets
120
100
Simple Literacy
Functional Literacy
Percentage
80
60
40
20
0
1989
2000
Year
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EFA2000: Literacy Assessment
Participation Rate
Regions
I
II
III
IV
V
VI
VII
VIII
IX
X
XI
XII
NCR
CAR
ARMM
NATL
Philippines
1989
99.9
92.7
99.9
99.9
98.5
97.9
96.9
98.6
98.7
99.9
99.9
99.9
99.9
99.9
99.7
99.1
1991
99.9
93.4
99.9
99.9
98.6
98.1
97.2
98.7
98.9
99.9
99.9
99.9
99.9
99.9
99.7
99.5
1995
99.9
96.3
99.9
99.9
99.7
98.9
98.4
99.3
99.4
99.9
99.9
99.9
99.9
99.9
99.9
99.7
Cohort Survival
2000
100
100
100
100
100
100
100
100
100
100
100
100
100
100
100
100
1989
80.5
69.1
80.7
77.6
66.1
64.6
62.1
55.5
56.9
63
63.1
55.9
93.1
64.5
37.5
68.7
1991
81.2
70.2
81.3
78.4
67.3
65.9
63.5
57.1
58.5
64.3
64.5
57.6
93.2
65.8
39.9
69.2
1995
83.7
74.7
83.4
81.4
72.3
71.1
69.1
63.9
65
69.8
69.9
64.2
93.7
71
49.4
73.8
Achievement Level
2000
86.9
80.2
87
85.2
78.5
77.6
76.1
72.3
73.1
76.7
76.7
72.5
94.2
77.5
61.8
80
1989
56.2
50.3
60
66.6
58
46.8
61
51.4
54.1
52.1
54.9
59
60.6
55.8
41.1
55.2
1991
59.7
54.2
63.3
65.9
61.4
50.9
64.3
55.2
57.8
55.9
58.5
62.4
63.9
59.3
45.5
60
1995
66.8
62
70
75.4
68.3
59.1
70.8
62.9
65.1
63.4
65.7
69.1
70.5
66.5
54.4
66.9
Dropout Rate
2000
75.7
71.7
78.3
82.8
76.9
69.3
79
72.4
74.3
72.9
74.8
77.6
78.7
75.4
65.4
75
1989
6.2
8.1
4.1
5.1
9.3
9.6
8.1
8
10.7
9
9.2
12.6
2.8
12.6
16
7.6
1991
1995
5.4
7
3.7
4.5
8
8.3
7
6.9
9.2
7.8
7.9
10.8
2.5
10.8
13.7
6.5
4
2000
3.8
4.8
2.7
3.3
5.5
5.6
4.8
4.8
6.2
5.3
5.4
7.2
2
7.2
9
4.5
1.8
2.1
11.6
1.7
2.2
2.3
2.1
2.1
2.4
2.2
2.2
2.7
1.4
2.7
3.1
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EFA2000: Literacy Assessment
Philippines
Resource and Funding Implications of the EFA Targets
….
Costs by Component
The distribution of the total expected cost among the EFA components are shown in Table I-9
below. As planned, ECD projects were to have gotten the largest share of the EFA budget at 4.2
billion pesos or 50.8 percent, owing to enormous costs of the needed institution building and because
of the large number of region-based ECD projects. Surprisingly, only 10.7 percent of the total
estimated cost was programmed for UPE, in spite of the serious problems in internal efficiency and
learning outcomes. Programmes for eradicating alternative and improving functional skills were
allocated 22.2 percent consistent with the strategic importance placed by the EFA movement the
evolution of alternative learning systems. Integrated programmes, which were to cut across two or
more EFA components, were earmarked 16.3 percent of the total budget (also see Chart I-10 below).
Table 0-1: Estimated Component Costs of the Philippine EFA
Amount
Percentage Share
(in million Pesos)
4,209.0
50.8
887.0
10.7
322.0
3.9
1,517.0
18.3
1,350.0
16.3
Component
Early Childhood Development (ECD)
Universal Quality Primary Education (UPE)
Eradication of Illiteracy (EOI)
Continuing Education Development (CED)
Integrated Programmes (INTPRO)
TOTAL
8,285.0
100.0
The Philippine EFA Strategy
…..
For those outside of the educational mainstream, such as non-literate, semi-literate adults and
out-of-school youths, broader access to the alternative learning systems was to be ensured to provide
them functional literacy skills and continuing education for development (CED). The ALS was
equally meant to serve developmental functions: through it learners would go on learning towards the
development of a learning society, the scope of choices of learners in acquiring education would be
widened, certain inherent inadequacies and limitations of the school system would be addressed and
the way for the so-called borderless or “open” learning would be smoothly paved.
…..
The Environment for EFA
….
Strengthening Home-School Partnership
…..
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EFA2000: Literacy Assessment
Philippines
DECS sa Barangay (DECS in the Barangay) Programme
Launched in 1996, this program is being implemented at the barangay level with focus on the
rural communities. The aim is to establish operational linkages with line agencies, local government
units, local development councils and inter-sectoral consultative councils organised in every
barangay. The specific objectives of the Program are to increase literacy rate, achievement rate and
participation rate; decrease dropout rate; provide all barangays and remote sitios with adequate school
facilities like books, desks, blackboards, classrooms and toilets; and make barangay schools as
learning centres or community centres of educational information.
Philippine EFA Thrusts on Alternative Learning Systems
The PPA subsumed the twin components of Eradication of Alternative (EOI) and Continuing
Education and Development (CED) under an umbrella programme of innovation dubbed as
Strengthening of Alternative Learning System (ALS). In the 1991 Jomtien Conference, this was
recognised as the Philippines’ unique contribution or approach to the global EFA Movement’s
ultimate objective of reaching out to those who have either been deprived of formal basic education or
those who choose not to acquire their basic learning needs from the conventional learning or school
system.
Eradication of Alternative
Eradication of Alternative in Selected Areas (EISA)
A research and development project that addressed the low literacy levels among out-of-school
youths, adults, women and girls 13 years and over in marginalized communities, which constrain
attainment of personal development and participation in community development. The project also
looked into solutions to the difficulty in identifying, locating and monitoring the learning progress of
literacy clientele.
Parent Education and Female Functional Literacy
An expansion to five provinces of a similar one that was being implemented in 1990 in seven
Area-Based Child Survival and Development (ABCSD) provinces. In these areas, as in the expansion
sites, women and girls were more disadvantaged in terms of literacy than their male counterparts. The
literacy intervention was expected to result in improved status of women in the community; increased
participation in community development projects; and in the capability of women and parents to
improve family life and conditions.
Promotion of Continuing Education & Development
Media Advocacy of Values and Informal Education
A deliberate attempt to maximise the positive role of media in the formation of values and
consciousness, this initiative advocated themes and issues that enhance consciousness of the dignity of
human life, man’s responsibilities towards his fellowmen and his role as steward of society and the
environment. Media advocacy was to reach children and adults nationwide via television, radio and
print.
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EFA2000: Literacy Assessment
Philippines
Science for the Masses
This national project was conceived to be a principal vehicle for attaining scientific and cultural
literacy among Filipinos. The targets are OSY, adults, students in formal schools and clientele of the
alternative learning systems. They were to be reached via a network of science and technology
museums and centrums, science communication through the intensification of science broadcasts (TV
and radio) and publication of research and development outputs.
Production of Indigenous Teaching Materials and Training on Productivity Enhancement
of Economic Projects (PEEP) for Barangay Folks
The PEEP effort addressed the dearth of materials relating to productivity, production culture,
self-development, decision-making, appropriate technology and other basic life skills that hamper
education and training for economic productivity in the rural areas. It aimed to produce and
disseminate modules on various life skill areas and train 950,000 rural and urban poor women in all
regions using these indigenous learning materials.
Implementation of Integrated Programmes
Programme for the Development of Alternative Learning Systems
Another R & D project that sought to establish a stream of learning encompassing non-formal
and informal education, to run parallel to the formal or school-based learning system. If the study
confirmed the feasibility of this project, it would have been used as basis for future legislation
enabling individuals to broaden their access to learning opportunities.
National Distance Learning for Out-of-School Youths and Neo-Literate Women
This project, which was piloted in selected communities, rested on a learner or demand-oriented
participatory and culture-based learning system founded on a multi-media channel approach to
message delivery. The design called for the use of radio and instructional modules as main channels;
the others being audiocassettes, comic books, folk media and other indigenous channels. There was
also a linkage to entrepreneurship agencies and a provision for access to livelihood seed funding.
Integrated Community Based Continuing Education for Depressed, Disadvantaged and
Underserved (DDU) Communities
An extension of the experience of an earlier project of the Canadian International Development
Agency (CIDA) and the Southeast Asian Ministers of Education Organisation (SEAMEO) to 100
identified communities. Successfully tried out in four low-income villages in Luzon, this undertaking
aimed to provide training programmes designed to improve the cognitive and practical skills of the
villagers. Another objective was to enable the clients to conduct sustainable income-generating and
other social development projects. These learning programmes were supported by a viable multipurpose social cooperative and other village-based organisations, which were set up through the
primer funds provided by the project. There was a built-in mechanism to replicate the project in other
depressed communities in future.
…..
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EFA2000: Literacy Assessment
Philippines
Part II - Philippine Performance towards Achievement of EFA
…..
Progress towards PPA Targets: ALS
Simple Literacy
The 1994 simple literacy level of 93.9 percent was just 4.1 percentage points below the 98.0
percent target set for 2000 (see Table II-13).
Table II-1: Simple Literacy Rate, Targets vs. Latest Data by Region
Region
1994 Actual
2000 Target
Gap
I
II
III
IV
V
VI
VII
VIII
IX
X
XI
XII
ARMM
CAR
NCR
95.5
93.3
96.3
96.4
94.9
91.9
93.1
90.9
89.7
94.6
92.0
90.8
73.5
88.8
98.8
98.4
97.2
100.0
99.9
96.6
96.9
97.0
93.6
92.9
98.4
98.4
91.7
80.2
96.1
100.0
-3.0
-3.9
-3.7
-3.4
-1.8
-5.0
-4.0
-2.7
-3.2
-3.8
-6.4
-0.9
-6.8
-7.3
-1.2
Philippines
93.9
98.0
-4.1
By 1994, eight regions had actually surpassed their 1995 targets. Good performance was led by
Region XII, which had already overshot its 1995 target by 5.2 percentage points and was only 0.91
percentage points from its 2000 objective. Surprisingly, it is followed by the ARMM whose 73.5
actual simple literacy rate was 3.7 percentage points higher than its 1995 target of 69.8 percent.
Based on the 1994 performance, Regions XII, NCR and V have the highest probability of
achieving their 2000 targets, since they had gaps of only 0.91, 1.17 and 1.77 percentage points,
respectively. On the other hand, CAR, ARMM and Region XI have relatively higher gaps at 7.3, 6.8
and 6.4, respectively. These regions may thus find it difficult to attain their targets.
Functional Literacy
Nationwide, the functional literacy rate rose from 73.2 percent in 1989 to 83.8 percent in 1994.
Thus, the gap between actual performance in 1994 and the 85.0 percent targeted level for the year
2000 is only 1.2 percentage points (Table II-14). If the highly favourable record of the five-year
period 1989-1994 is an indication of success in combating alternative, then this very small difference
appears highly surmountable. In fact, despite the methodological changes and the apparently
“tougher” questions in the questionnaire, functional literacy managed to increase to its 1994 level,
surpassing expectations with a growth of 10.6 percentage points compared to the 1989 baseline.
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EFA2000: Literacy Assessment
Philippines
Table II-2: Functional Literacy Rate, Targets vs. Latest Data by Region
Region
1994 Actual
2000 Target
Gap
I
II
III
IV
V
VI
VII
VIII
IX
X
XI
XII
ARMM
CAR
NCR
86.4
86.6
87.3
88.0
82.8
80.9
80.9
79.8
75.4
83.4
79.4
77.4
61.2
78.6
92.4
82.7
83.8
89.0
86.7
83.7
83.8
84.2
85.0
75.7
86.9
85.2
84.7
68.1
85.7
86.5
3.7
2.8
-1.7
1.3
-0.8
-2.9
-3.3
-5.2
-0.3
-3.5
-5.9
-7.3
-6.9
-7.1
5.9
Philippines
83.8
85.0
-1.2
This remarkable development in the literacy situation is highlighted by the fact that four regions
did not have to wait for the year 2000. Regions I, II, IV, and NCR have as early as 1994 not only
surpassed their individual year 2000 targets by more than one-percentage point; they also went past
the national 2000 target of 85.0 percent.
Alongside this encouraging development in FL, five regions will have much catching up to do
before the end of the EFA Decade. As shown by Table II-14, Regions XII (Central Mindanao), the
Cordillera Administrative Region (CAR), the Autonomous Region of Muslim Mindanao, XI
(Southern Mindanao), and VIII (Eastern Visayas) still have to surmount their respective above-five
percentage point FL gaps. CAR and Region XII will face the toughest challenge among the
underachievers in meeting FL targets while Regions III, VI, VII, and X with their below fourpercentage point gaps will have relative ease in meeting year 2000 target. On the other hand Regions
V and IX, with their 0.83 and 0.33 remaining percentage point-gaps, respectively, will have the least
problem of meeting the FL target at the end of the EFA Decade. In sum, Table 24 indicates that the
most intensive internal efforts and massive external interventions in both formal, non-formal and
informal education will have to be focussed in Regions XII, CAR, ARMM, XI and VIII to close the
still yawning gaps in FL at this point in time.
A Note on the Measurement of Literacy in the Philippines
At that time of the formulation of the EFA-PPA, the only available and collected data for
measuring progress in fulfilling the objectives of the Alternative Learning Systems (ALS) component
were the basic or simple literacy (SL) and the functional literacy (FL) rates. It was envisioned that
other suitable and adequate measures would evolve within the EFA decade under the Grand Alliance.
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EFA2000: Literacy Assessment
Philippines
Both SL and FL data are gathered through the Functional Literacy and Exposure to Mass Media
Survey (FLEMMS). So far, the Philippines had twice undertaken the FLEMMS.3 The first was done
in 1989 while the second, which introduced some modifications in the survey instruments and timing,
was done in 1994. In 1990, data on simple literacy was also generated by the 1990 Census, thus,
giving a wider and more accurate view of the Filipinos level of basic literacy. Based on the
Administrative Order issued by President F. Ramos in 1993 regularising the conduct of the FLEMMS
every five years, the third Survey is scheduled in 1999, a year away from the closing of the EFA
Decade. This could be of immense use for the full assessment of the impact of the EFA movement in
the Philippines in the area of literacy.
While all other countries only collect and use data on simple or basic literacy, the Philippines
has included FL 4 for monitoring purposes because it was the closest that could approximate the
learning objectives of CED. This was deemed to be more qualitative and better serve other
developmental purposes. As CED is underpinned by a broader concept of functional literacy, the
PPA has envisioned that it would be supplemented by certain impact indicators that correspond to a
set of integrative outcomes on social development indicating better quality of life in the community
setting. Thus, apart from FL, the PPA recommended additional CED indicators such as: family
income, percentage of graduates of NFE programs, number of trainees, percentage of practitioners to
trainees, employment status, incidence of alcoholism, drug abuse, and other social ills in the barangay,
status of maternal and child health conditions, health and sanitation status, and number of people
participating in community development activities in the barangay.
Simple literacy is officially defined in the FLEMMS as the “ability of a person to read and
write with understanding a simple message in any language or dialect.” The National Statistics Office
(NSO) definition of terms also explains that the simple literacy status of an individual can be
determined based on the respondent’s answer to the question “Can ______ read and write a simple
message in any language or dialect?”
3
There is a growing appreciation in the Philippines of FL as an indicator of overall social development
planning and quality and efficiency of education from its being a traditional non-formal education access
indicator. It has also been adopted as key social indicator in subsectoral planning documents. In support of
the program for Eradicating Alternative in the Year 2000, the Philippine Statistical System has decided to
regularise the generation of these indicators every five years (Napoleon B. Imperial, “Re-Thinking The
Scope And Uses Of Functional Literacy In The Philippines: Towards International Benchmarking,” think
paper presented to the LCC Workshop, INNOTECH, Quezon City, 22 January 1998.
4
According to the UNESCO Principal Office in Asia and the Pacific (PROAP) in recent Internet inquiry, the
Philippines is the only country that gathers regular statistical data on FL. UNESCO does not collect or
compile data on functional literacy of the member countries in its regular publication, World Education
Report. While many countries and their think-tank institutions agree on the need to make their people more
functionally literate, their views on and the means to achieve FL, both as results of learning experiences and
as a learning process still widely differ. See Imperial, ibid. for some discussions on the recent move of the
Philippines to review the definition and use of functional literacy through an Experts Group commissioned by
the Literacy Council (LCC).
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EFA2000: Literacy Assessment
Philippines
The official definition of terms of the 1994 FLEMMS describes FL as the “ability to read and
write with comprehension, as well as to make simple arithmetic calculations (numeracy) in an
expanded sense. It adds that “it includes the possession of minimum skills needed to carry out simple
functions in life and to interact with others in society.”5 Furthermore, as stated in the explanatory
notes of the survey questionnaires of the NSO on the 1994 FLEMMS, FL is “a significantly higher
level of literacy, which includes not only reading and writing skills but also numeracy skills. The
skills must be sufficiently advanced to enable the individual to participate fully and efficiently in
activities commonly occurring in his life situation that require a reasonable capability of
communicating by written language.”6 The UNESCO, for its part, defines FL as the “ability to read
and write adequately enough to cope with the demands of daily living.”
In operational terms, therefore, the literate Filipino is defined as one who is “either assumed to
be literate simply because he merely says he can read and write or he has actually demonstrated
writing and reading skills in any language or dialect during the survey. Similarly, a functionally
literate person is one, who during the survey is deemed as such simply because he has either
completed secondary education or was able to answer correctly at least one of the three questions
involving numeracy and reading comprehension in the survey questionnaire written in a dialect or
language of his choice. Outside this category of respondents everybody else, that is, all persons who
have at least graduated from high school are assumed to be functionally literate, regardless of the
number of years they have been out of school.
Summary: Progress towards PPA Targets
…..
Alternative Learning Systems
The 98.0 percent simple literacy target set in the PPA for 2000 could be attained given the leadtime. In 1994, the nationwide simple literacy level stood at 93.9 percent, only 4.1 percentage points
below the 2000 goal.
Nationwide, the functional literacy rate rose from 73.2 percent in 1989 to 83.8 percent in 1994.
Thus, the gap between actual performance in 1994 and the 85.0 percent targeted level for the year
2000 is only 1.2 percentage points. Given the necessary inputs and aggressive implementation of
interventions in formal education and literacy programs, the 4.1 percentage points difference between
the year 2000 and the actual 1994 simple literacy will not be that difficult to close.
…..
5
See also Literacy Coordinating Council, The New Definition and Indicators of Functional Literacy, 1998,
which followed the parameters based on the International Commission on Education for the 21st Century
(Delors Report),
6 Paula M. Collado, “Literacy and Mass Media Exposure: Results from 1994 FLEMMS,” National Statistical
Office, 1994
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EFA2000: Literacy Assessment
Philippines
Part III – Developments in the Provision of Primary Education
……
Literacy Rate of 15-24 Year-Olds
(Core Indicator 16)
There was only a very slight increase in the nationwide simple literacy rate among 15-24 yearolds between 1990 (96.6%) and 1994 (97.3%). For both years, the gender parity index stood at almost
1.00, although female literacy levels were slightly higher than that of males’ (see Table II-51 and
Figure III-46). As early as 1994, the Philippines had already posted a substantial achievement in
pushing universal literacy in this age bracket, but even the seemingly small percentage of alternative
still translated into 392,000 persons at that time.
Area
PHILIPPINES
Gender
1990
Rate
TOTAL
Male
Female
1994
GPI
96.6
96.3
96.9
Rate
1.006
Table III-1: Literacy Rate of 15-24 Year-Olds, National Aggregates
Figure III-1: Literacy Rate of 15-24 Year-Olds, National Aggregates
Core EFA Indicator 16
Literacy Rate and Gender Parity Index of 15 - 24 Year-Olds
NATIONAL AGGREGATES BY GENDER
98.5
Total Female
98
97.5
Total Phils
Rate
97
Total Male
96.5
96
95.5
95
1990
1994
Year
12
97.3
96.6
98.1
GPI
1.016
EFA2000: Literacy Assessment
Philippines
There was no appreciable variation in literacy levels among and within regions. For 1990 and
1994, the standard deviation among regions had been minimal and the variation within regions
(among provinces), while generally higher than the variation among regions, was likewise
insignificant for the two years (Tables III-52 and Figures III-47 and III-48).
Table III-2: Literacy Rate of 15-24 Year-Olds, Means & Standard Deviations
Area
PHILIPPINES
Region I
Region II
Region III
Region IV
Region V
Region VI
Region VII
Region VIII
Region IX
Region X
Region XI
Region XII
Region XIII
CAR
NCR
ARMM
1990
Mean
96.014
98.766
96.507
98.917
97.846
97.922
96.610
95.904
94.281
84.104
96.451
95.587
89.468
S.D.
3.644
0.229
1.760
0.243
1.899
1.095
0.970
3.069
3.016
10.119
1.690
1.460
5.983
95.322
99.277
2.607
0.053
13
1994
Mean
96.751
98.922
96.870
95.391
98.578
98.171
96.577
97.793
93.255
92.257
98.414
95.521
93.951
93.429
99.464
S.D.
2.099
0.495
2.009
8.095
1.323
1.968
1.763
2.045
4.196
5.854
1.543
4.916
3.969
4.374
0.738
EFA2000: Literacy Assessment
Philippines
Figure III-2: Literacy Rate of 15-24 Year-Olds, Regional Means
Core EFA Indicator 16
Literacy Rate and Gender Parity Index of 15 - 24 Year-Olds
REGIONAL MEANS
105
NCR
100
95
Rate
Reg IX
90
85
80
75
1990
1994
Year
Figure III-3: Literacy Rate of 15-24 Year-Olds, Standard Deviations
Core EFA Indicator 16
Literacy Rate and Gender Parity Index of 15 - 24 Year-Olds
STANDARD DEVIATIONS WITHIN REGIONS
12
10
Reg III
Rate
8
Reg IX
6
4
2
Reg I
0
1990
Year
14
1994
EFA2000: Literacy Assessment
Philippines
Adult Literacy
Literacy Rate & GPI of 15+ Year-Olds
(Core Indicators 17 & 18)
There was virtually no change in the nationwide simple literacy rate among 15+ year-olds 1990
(93.6%) and 1994 (93.6%). For both years, the gender parity index stood at almost 1.00, although
male literacy levels were slightly higher than that of females’. (Table III-53 and Figure III-49).
Although this literacy level among adults can be considered high by developing country standards,
what is worrisome is the absolute number of the alternative within this age bracket, which stood at 2.7
million persons at that time.
Table III-3: Literacy Rate & GPI of 15+ Year-Olds
Area
PHILIPPINES
Gender
1990
Rate
TOTAL
Male
Female
1994
GPI
93.6
94.0
93.2
Rate
0.991
Figure III-4: Literacy Rate & GPI of 15+ Year-Olds, National Aggregates
Core EFA Indicators 17 & 18
Literacy Rate and Gender Parity Index of 15+ Year-Olds
NATIONAL AGGREGATES BY GENDER
94.2
94
93.8
Total Male
93.6
Rate
Total Phils
Total Female
93.4
93.2
93
92.8
1990
Year
15
1994
93.6
93.7
93.5
GPI
0.998
EFA2000: Literacy Assessment
Philippines
There was no appreciable variation in literacy levels among and within regions. For 1990 and
1994, the standard deviation among regions had been minimal and the variation within regions
(among provinces), while generally lower (except for four regions) than the variation among regions,
was likewise insignificant for the two years (Table III-50 and Figures III-50 and III-51).
Table III-4: Literacy Rate & GPI of 15+ Year-Olds, Means & Standard Deviations
1990
1994
Area
Mean
S.D.
Mean
S.D.
PHILIPPINES
96.014
3.644
96.751
2.099
Region I
98.766
0.229
98.922
0.495
Region II
96.507
1.760
96.870
2.009
Region III
98.917
0.243
95.391
8.095
Region IV
97.846
1.899
98.578
1.323
Region V
97.922
1.095
98.171
1.968
Region VI
96.610
0.970
96.577
1.763
Region VII
95.904
3.069
97.793
2.045
Region VIII
94.281
3.016
93.255
4.196
Region IX
84.104
10.119
92.257
5.854
Region X
96.451
1.690
98.414
1.543
Region XI
95.587
1.460
95.521
4.916
Region XII
89.468
5.983
93.951
3.969
Region XIII
CAR
95.322
2.607
93.429
4.374
NCR
99.277
0.053
99.464
0.738
ARMM
Figure III-5: Literacy Rate & GPI of 15+ Year-Olds, Regional Means
Core EFA Indicators 17 & 18
Literacy Rate and Gender Parity Index of 15+ Year-Olds
REGIONAL MEANS
120
NCR
100
80
Rate
Reg IX
60
40
20
0
1990
1994
Year
16
EFA2000: Literacy Assessment
Philippines
Figure III-6: Literacy Rate & GPI of 15+ Year-Olds, Standard Deviations
Core EFA Indicators 17 & 18
Literacy Rate and Gender Parity Index of 15+ Year-Olds
STANDARD DEVIATIONS WITHIN REGIONS
16
14
Reg IX
12
CAR
Rate
10
8
Reg XI
6
Reg II
4
2
NCR
0
1990
Year
1994
The State of Primary Education towards the End of the EFA Decade
…..
Learning Outcomes
In 1998, the percentage of primary school pupils having reached Grade 6 who mastered basic
competency in Reading/Writing, Mathematics and Life Skills were 61.6%, 78.2% and 60.9%
respectively. Reading/Writing and Mathematics competency increased between 1995 and 1998, but
there was a decrease in the percentage mastering basic competencies in life skills/others. Females
generally did better than the males. The urban areas had a better performance than the rural areas.
There was only a very slight increase in the nationwide simple literacy rate among 15-24 year-olds
between 1990 (96.6%) and 1994 (97.3%). For both years, the gender parity index stood at almost 1.00,
although female literacy levels were slightly higher than that of males’.
Adult Literacy
There was no change in the simple literacy rate among 15+ year olds. The level remained
constant at 93.6 percent for 1994 and 1990. However, there was an improvement in the gender parity
index, which rose to 0.998 in 1994 from the 0.991 level in 1990.
…..
17
EFA2000: Literacy Assessment
Philippines
Part IV – A Retrospective on the Implementation of EFA
…..
External Assistance for EFA
….
In addition to serving as the engines for development towards EFA, these projects allowed the
“grand alliance” among public and private sector agencies involved in EFA to take root as planned
under the PPA. This was to be realised through the new genre of basic education programmes and
projects that were started under the framework of the MPBE. For example, under the on-going ADB
Non-formal education (NFE) Project, the NGOs have become active partners in the delivery of
community-based literacy program. Incidentally, one of the most important and quite revolutionary
innovations proposed under EFA is the “establishment of viable alternative learning system (ALS)
encompassing non-formal and informal education” for which the Philippine EFA has been lauded by
the world educational community especially during the Jomtien Conference. This has thus been
partially fulfilled at the time of this assessment through the incorporation of the accreditation and
equivalency component of ALS in the on-going
ADB NFE Project. This is a significant step in validating the feasibility and viability of non-school
based learning channels.
During the EFA decade, the UNDP initiated the Community Support Scheme (CSS) approach
that was implemented in all the project sites. The CSS had a positive effect on the overall performance
of the school and schoolchildren. With support from the parents, local officials, community members
and volunteers, the schoolchildren’s performance had increased and the completion of incomplete
schools catalysed.
….
Table IV-1: External Assistance to Primary Education
Project
Non-formal education
Project
Project
Period
Description
1994-1999
Development
of
functional
education and literacy, continuing
education and capacity building of
non-formal education staff in DECS.
Source
Estimated
Proj Cost
ADB
US$ 25 M
Sources: Development Academy of the Philippines, Policies, Trends and Issues in Philippine Education (1997)
World Bank, Philippines – Education Sector Assistance Strategy Note, (1998).
Educational Development Projects Implementing Task Force (EDPITAF), PROBE
…..
18
EFA2000: Literacy Assessment
Philippines
The Efficacy and Impact of Philippine EFA Thrusts
…..
Alternative Learning Systems
The progress in the literacy levels in the Philippines can reasonably be inferred as largely a
result of the high participation rate in formal basic education, which features an almost universal
coverage in primary (or elementary) education. However, the gains being made by both the
government and non-governmental organisations in providing the basic learning needs of the still
substantial number of alternative or those with very minimal schooling effectively contribute to the
increasing literacy rates.
The DECS’ Bureau of Non-formal education believes that the rate of acceleration in literacy
will further increase as a result implementation of the Literacy Service Contracting Scheme (LSCS).
Before this, the Government had started implementation in 1994 of the Non-formal education Project
funded by the Asian Development Bank (ADB-NFE) and the literacy projects funded by the UNICEF
under the Country Programme for Children (CPC) III. These directly support and incorporate the EOI
objectives of EFA.
Many NGOs have increased the tempo of their literacy programs, often in partnership with the
government; thus accelerating the meeting of the EFA targets.. The Government’s own effort to
improve the literacy situation is accelerated by the sustained partnership in advocacy by the LCC, the
PIA and the AIJ among LGU officials, literacy workers and literacy-oriented NGOs primarily through
the Annual Literacy Awards. The impact of these initiatives will hopefully be reflected in next literacy
census that will be conducted towards the end of the decade.
In the regions and divisional offices of the DECS, many forms of simple and functional literacy
programmes were implemented between 1990 and the present. The most widely adopted, however, are
the Magbassa Kita (Let’s Read) Project and the Functional Education and Literacy Project that is now
a component of the ADB Non-formal education Project. The former is a long-running project that was
already in place even before the start of EFA. It aims to reduce basic alternative through regular funds
provided by some DECS regional offices, but has been discontinued in some. There still are Magbassa
Kita classes that are conducted, especially in the National Capital Region (NCR), where there is a
regular influx of alternative from the provinces. These basic literacy efforts continue through books
and materials provided by the Magbassa Kita Foundation using regular DECS teachers. There is a
clamor from some regions for the revival of this programme with increased funding in their localities.
The FELP, which aims to raise both simple and functional literacy rates has been in existence
for more than two decades and has now been incorporated as a component of the ADB-NFE Project. It
targets mostly out-of-school youths, alternative adults and women of the poorest households and gives
them training not only in literacy but also in livelihood skills such as food preservation, baking,
cosmetology and hair science. A crucial component of this initiative concerns the need to provide
capitalisation funds for the graduates so that they could employ their new capabilities immediately.
Since FELP is now project-based, its future sustainability is a problem that must be faced at this early
stage.
Scattered around the various regions are literacy training programmes that cater to specific
groups. There are functional literacy classes for females in Regions IX and VIII. for prisoners in NCR
(the Education behind Bars Project), for ethnic communities in Region II, and even a functional
literacy programme for cultural communities affected by the Casecnan Dam Project , also in Region
II, to name a few.
19
EFA2000: Literacy Assessment
Philippines
Clearly, the number and variety of literacy programmes in place should partly explain the high
literacy rates in the country. However, the task of making people literate is progressively becoming
more difficult as the ones bound to be left out repeatedly are either those who steadfastly refuse to join
literacy classes or those who are simply unreachable by virtue of geography. To push literacy rates
further to near-universal levels would require bringing the classes to the unreachables, as what is being
done under the Army Literacy Patrol Scheme (ALPS), which, as the project’s title states, is conducted
by Army personnel in the hinterlands and the mountain areas. There are drawbacks to this modality,
especially since Army personnel are not trained to be literacy providers. This can be remedied
nonetheless by providing them with proper orientation and training.
The regional offices have observed that people become more critical and analytical with respect
to issues affecting their lives and are able to meaningfully participate in group and community affairs.
A study conducted by the BNFE stated that one of the perceived impacts of the female functional
literacy programme was the increased utilisation of available social services in the community,
including schooling opportunities.7 Providing literacy training therefore gives immediate satisfaction
to both the givers and the receivers because of the relatively short programme period and the ease of
measuring outcomes. Nevertheless, the implementation of literacy programmes are fraught with
problems and difficulties that must be overcome to ensure efficiency in the total Philippine effort.
Feedback sessions with field operatives have yielded the following observations and suggestions:
1)
Lack of teachers in the field; there is therefore a dearth of NFE district coordinators to
assist the district supervisor in his capacity as district NFE manager. Full-time NFE coordinators are
needed.
2)
Small budget allocation from central office; LGUs and NGOs could not provide or
promise definite financial assistance. Inadequacy in literacy materials is felt; regional offices cannot
finance all the literacy materials required due to lack of MOOE funds.
3)
Lack of practice in using reading and writing skills make literacy graduates revert to
their former state. Community learning centres should be established where literacy materials are
provided for completers to enrich their new skills.
4)
Many target clienteles are reluctant to participate in literacy learning groups because of
the stigma associated with the term “alternative.” Perhaps a different terminology such as “reading
and writing impaired” should be adopted.
5)
Most hardcore Alternative are that way because they are perpetually busy working to
feed their families.
6)
Distance between residence and venue of literacy classes discourage potential trainees
from participating.
7)
Facilities were sometimes not conducive to learning. The absence of furniture and dark
rooms make it doubly difficult for the alternative and sickly among the trainees to learn.
8)
Completers of basic literacy programmes seem to be contented with the skills they have
acquired. They only continue on to functional literacy programmes if livelihood training is integrated.
7
Bureau of Non-formal education (BNFE), DECS, 1993 Annual Report, as cited in O. Solon and S. Quimbo,
op.cit..
20
EFA2000: Literacy Assessment
Philippines
EFA Management Policies and Structures
…..
Social Mobilisation & Advocacy
The Asian Institute of Journalism and Communication (AIJC) served as the lead agency and
technical secretariat for the EFA advocacy and social mobilisation movement. The Institute’s social
mobilisation and advocacy (SAM) activities were supported by the UNICEF and the UNESCO
National Commission of the Philippines. The Institute organised a project team to plan and manage
the activities. The EFA Social Mobilisation and Advocacy Project was named the Most Outstanding
Information Programme by an NGO in support of a Development Programme in the 1994 Gawad
Oscar Florendo sponsored by the Public Relations Organisation of the Philippines. Meanwhile,
AIJC’s partnership with UNICEF continues to date with focus on the ASM needs of EFA-Country
Programme for Children (CPC).
AIJC’s EFA activities consisted of (1) planning and production of information, education and
communication (IEC) materials; (2) policy advocacy, (3) conduct of media relations, (4) networking
with various sectors and professional organisations; (5) capability building and (6) resource
mobilisation. During the EFA decade, the SAM component accomplished the following: (1)
preparation of quality IEC materials on EFA in general and in specific matters such as literacy, early
childhood, school enrolment; (2) greater awareness and acceptance of the newsworthiness of basic
education and literacy by tri-media; (3) training of public information officers in SAM strategies; (4)
institutionalisation of the National Literacy Awards; and (5) integration of the SAM component in
succeeding education-related programmes and projects.
The EFA experience has succeeded in emphasising among policy and decision makers the
important role of SAM in planning and managing developing programmes. A number of on-going
internationally-assisted major educational programmes now include a SAM component. These include
the Third Elementary Education Project (TEEP) of the World Bank and OECF, the Philippine Nonformal education Project funded by the ADB, and the Integrated Early Childhood Development
Programme of the World Bank, among others.
Summary
…..
Alternative Learning Systems
Despite the number and variety of literacy programmes in place, the mainline strategy still
employs static training venues that do not maximise these programmes’ reach among the hardcore
alternative. Moreover, the prevailing negative attitudes and perceptions among the members of this
segment prevent their being efficiently co-opted into the literacy programme. If this situation
continues, both simple and functional literacy levels in the country would never really reach 100
percent.
The extent to which the Literacy Coordinating Council, an interagency body within the DECS
and the BNFE, which supports the Council in its role as implementing organisation for alternative
learning systems, have addressed the concerns for eradicating alternative and providing opportunities
for continuing education must be examined.
21
EFA2000: Literacy Assessment
Philippines
Management of EFA
The Master Plan for Basic Education as Foundation
The DECS implements EFA responsibilities using the MPBE as its guiding framework, but the
present MPBE largely focuses on the UQPE component of the EFA Programme. Hence, it is timely
for DECS to review and expand the MPBE by incorporating the rest of EFA thrusts and objectives. In
particular, the MPBE is weak on policies and programmes concerning eradication of alternative and
continuing education development. Thus, the DECS should accept the fact that the EFA for the next
decade cannot be implemented through the extant MPBE without the injection of the necessary
changes. To do otherwise would be to accord MPBE with features it was not designed to address in
the first place and would therefore be unfair to DECS itself as an institution and misleading to EFA as
a goal.8
…..
8
NEDA comments on the second draft of the Philippine Country EFA Assessment Report, contained in a
letter of Ms. Erlinda M. Capones, Director, Social Development Staff, NEDA, to Asst. Sec. Ramon C. Bacani,
23 August 1999.
22
EFA2000: Literacy Assessment
Philippines
Part V – Future Directions for the Philippine EFA
…..
Recommendations
Strengthening the Foundation of Education
Alternative Modes of Service Delivery
a) Expansion of pre-school services through contracting private sector providers beyond the
5th and 6th class municipalities should be seriously considered in order to increase
participation.
b) The impact of the 8-week Early Childhood Experiences in Grade 1 scheme should be
studied with the view of improving effectiveness or identifying possible alternative modes
of delivering ECCD programmes.
…..
Alternative Education Streams
a) Outreach programmes that literally bring the training to marginalized and difficult to reach
groups should be promoted rather than just concentrating on static training venues. As
literacy programmes intensify and literacy rates rise higher, there will come the time when
alternative will be confined to a hardcore segment that either refuses to attend or is difficult
to reach.
b)
Non-formal education Accreditation and Equivalency (A & E) programme offers an
alternative pathway by which out-of-school youth and adults can earn educational
qualifications comparable to the formal school system. It utilises a range of innovative nonformal learning strategies designed to break down the traditional learning barriers of time,
accessibility and resources. The A & E, which is currently in pilot stage, should be given
support as an alternative means of certification of learning for persons aged 15 years and
alternative who are unable to avail of the formal school system or who have dropped out.
c) Concrete steps should be taken to further enhance access and participation in literacy
programmes by integrating livelihood skills training components and finding solutions to
non-participation caused by fear of stigmatisation.
d) Community learning centres should be established where literacy materials are provided for
completers to enrich their new skills. Lack of practice in using reading and writing skills
make literacy graduates revert to their former state.
23
EFA2000: Literacy Assessment
Philippines
List of Acronyms and Abbreviations
ABCSDP
ADB
AIR
ALS
ARMM
ASEAN
ASNP
AUSAID
BCDA
BEE
BHS
BNFE
BRIGHT
CAR
CED
CHED
CIDA
CIDSS
CONSTEL
CPC
CSAC
CSR
CWC
DECS
DDU
DILG
DIP
DOH
DPWH
DSWD
ECCD
ECDP
ECD
ECE
EDCOM
EFA
EISA
EOI
EPI
GER
GNP
GO
GOP
HEKASI
IMCI
INTPRO
IRA
LSCS
LGC
– Area-Based Child Survival and Development Programme
– Asian Development Bank
– Apparent Intake Rate in Grade 1
– Alternative Learning Systems
– Autonomous Region for Muslim Mindanao
– Association of Southeast Asian Nations
– Alternative School Nutrition Programme
– Australian Agency for International Development
– Bases Conversion Development Authority
– Bureau of Elementary Education, DECS
– Barangay Health Station
– Bureau of Non-formal education, DECS
– Better Reading Instruction Geared towards Higher Thinking Skills
– Cordillera Administrative Region
– Continuing Education Development
– Commission on Higher Education
–Canadian International Development Agency
– Comprehensive and Integrated Delivery of Social Services
– Continuing Science Education via Television
– Country Programme for Children (UNICEF)
– Children in Situations of Armed Conflict
– Cohort Survival Rate
– Council for the Welfare of Children
– Department of Education, Culture & Sports
– Depressed, Disadvantaged and Underserved
– Department of the Interior and Local Governments
– Dropout Intervention Programme
– Department of Health
– Department of Public Works and Highways
– Department of Social Welfare & Development
– Early Childhood Care and Development
– Early Childhood Development Project
– Early Childhood Development
– Early Childhood Education
– Congressional Education Commission
– Education for All
– Eradication of Alternative in Selected Areas
– Eradication of Alternative
– Expanded Programme for Immunisation
– Gross Enrolment Rate
– Gross National Product
– Government Organisation
– Government of the Philippines
– Heograpiya, Kasaysayan at Sibika (Geography, History & Civics)
– Integrated Management of Child Illness
– Integrated Programmes
– Internal Revenue Allotment
– Literacy Service Contracting Scheme
– Local Government Code
24
EFA2000: Literacy Assessment
LGU
MBN
MCH
MDSP
MG
MLC
MOOE
MPBE
MTPDP
NCEFA
NCR
NEAP
NEAT
NEDA
NER
NESC
NETRC
NGO
NIR
NSED
NTS
OPS
PD
PDCC
PEEP
PEM
PES
PMT
PPA
PPAC
PPAN
PRC
PROBE
PRODED
PTCA
RA
RCEFA
RISE
SMAP
SMEMDP
SPED
SRA
SUC
TCPA
TEB
TEEP
TESDA
UNESCO
UNICEF
UNDP
UQPE
WB
Philippines
– Local Government Unit
– Minimum Basic Needs
– Maternal and Child Health
– Multi-grade Demo School Project
– Multigrade Teaching
– Minimum Learning Competencies
– Maintenance and Other Operating Expenditures
– Master Plan for Basic Education
– Medium-Term Philippine Development Plan
– National Committee for Education for All
– National Capital Region
– National Educators Academy of the Philippines
– National Elementary Achievement Test
– National Economic & Development Authority
– Net Enrolment Rate
– New Elementary School Curriculum
– National Education Testing and Research Centre
– Non-Government Organisation
– Net Intake Rate in Grade 1
– National School Enrolment Day
– National Technical Secretariat
– Office of Planning Service, DECS
– Presidential Decree
– Public Day Care Centre
– Productivity Enhancement of Economic Projects
– Protein Energy Malnutrition
– Parent Effectiveness Service
– Project Management Team
– Philippine Plan of Action
– Philippine Plan of Action for Children
– Philippine Plan of Action for Nutrition
– Professional Regulations Commission
– Programme for Basic Education
– Programme for Decentralised Education Development
– Parent-Teacher-Community Association
– Republic Act
– Regional Committee for Education for All
– Regional Initiative in Science Education
– Social Mobilisation and Advocacy Programme
– Science and Mathematics Education Mastery Programme
– Special Education Programme
– Social Reform Agenda
– State Universities and Colleges
– Teacher-Child-Parent Approach
– Teacher Education Board
– Third Elementary Education Project
– Technical Education and Skills Development Authority
– United Nations Educational, Scientific and Cultural Organisation
– United Nations Children’s Fund
– United Nations Development Programme
– Universal Quality Primary Education
– World Bank
25