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DecentralizationofEducationin
thePhilippines
Status,TrendsandChallenges
ByDr.EthelAgnesP.Valenzuela
SEAMEOINNOTECH
1
TherolesandchallengesofDistrictEducationOfficesinacontextofdecentralization
ExperiencesfromthePhilippinesandSriLanka
IIEPWorkshopinManila,1216July2010
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OverviewofthePhilippineEducational
System
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EducationalGovernance
3
HigherEducation
Commissionon
Higher
Education
handles
4years
postsecondaryandadvancedegrees
TechnicalandVocationalTraining
TechnicalEducationandSkillsDevelopmentAuthority(TESDA)
2yearspostsecondary
BasicEducation
DepartmentofEducationhandles
10yearsofprimary/elementaryandsecondaryeducationschoolingandsomepreschoolclasses
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Whypursuedecentralizationinthe
Philippines?
EducationalSituation:
Poorqualityofeducation
Shortfallsinclassrooms
Shortfallsintextbooksandteachers
Lowachievementinscience,mathandlanguage
Disparityin
rural
and
urban
areas
in
terms
of
achievement
Decliningparticipation
of
the
private
sector
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EducationReformRecommendations
Promotionofschoolbasedmanagementasa
systemof
empowering
the
school
to
provide
leadershipandforthecommunitythatserves
tohaveownershipoftheschool
Thetrifocalization ofeducationwasintendedtoguaranteeconcentrationonbasiceducation
andeffectiveness
in
the
delivery
of
basic
education
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AspectsofDecentralization
Decentralizationaimstowidendecisionmaking
while
increasing
responsibility
and
accountability. TheLocalGovernmentnowplaysarolein:Construction,repairandmaintenanceofschool
buildingsand
other
facilities
of
public
elementary
and
secondaryschools;
Establishmentandmaintenanceofextensionclasses
whennecessary
Sportsactivitiesatthedivision,district,municipalandbarangay levels
7
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LegalBasisofEducationDecentralization:GOVERNANCE
OF BASIC EDUCATION ACT (GOBEA)2001
Section2,DeclarationofPolicystates,
schoolshall
be
at
the
heart
of
the
formal
education
system.
It
is
where
childrenlearn.Schoolsshallhaveasingleaimofprovidingthebestpossibleeducationforalllearnersandthestateshallencouragelocalinitiativesforimprovingthequalityofbasiceducation.
Thestateshallensurethatthevalues,needsandaspirationsofaschoolcommunityarereflectedintheprogramofeducationforthechildren,outofschoolyouthandadultlearners.Schoolsandlearningcentersshallbeempoweredtomakedecisionsonwhatisbestforthelearnerstheyserve
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LegalBasisofEducationDecentralization:GOVERNANCE
OF BASIC EDUCATION ACT (GOBEA)
2001
Section3,PurposesandObjectivessetsoutinb),definetherolesandtheresponsibilitiesof,andprovideresourcestothefieldofficeswhichshall
implementeducational
programs,
projects
and
services
in
the
communities
they andind),
ensureschoolsandlearningcentersreceivethekindoffocusedattentiontheydeserveandthateducationalprograms,projectsandservicestakeinto
accountthe
interests
of
the
community
andine)
encourageschoolsandlearningcenterstoreflectthevaluesofthecommunity
by
allowing
teacher/learning
facilitators
and
other
staff
to
have
flexibility
to
servetheneedsofalllearners
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LegalBasisofEducationDecentralization:
GOVERNANCE OF BASIC EDUCATION ACT (GOBEA)
2001
The
Act
leaves
the
organizational
structures
to
implementthesepolicies,purposesandobjectivesopen,tobeproposedbytheSecretary,andtobeagreedwiththerelevantoffices
including
that
of
the
President,
the
Civil
ServiceDepartmentandDepartmentofBudgetandManagement
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Directive
Mainstream
L
E
AR
N
E
R
R
E
Q
U
I
R
E
M
EN
T
S
Public
Private
AlliancesResearch and
Evaluation
BasicEducationPrograms &Services
Performance
Feedback
Performance
Management
Reporting
Administrative
ServicesHR
Services
Finance &
Audit
Services
ICTServices
Legal
Services
Manage
ment,
Planning,
Standard
Setting,
QAand
M&E
DecentralizedEducationalManagement
Frameworkin
the
Philippines
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DEMFramework
Thedirectivelayer oftheprocessprovidestheoveralldirectiontoalltheactivitiesandservicesoftheDepartment. Itincludesactivitiesandprocesseslikepolicyformulationandsettingstandards,qualityassurance,settingtheoverallstrategic
directionsof
the
entire
department
to
ensure
achievement
of
its
vision
and
mission.
Themainstreamlayer consistsofthemajorprocessesandactivities,whichdirectlyaddresstherequirementsofthelearners.Itcoversprocessesandprogramson
ensuringprivate
public
network
and
alliances,
delivery
of
the
basic
education
serviceswhichincludepreschool,elementary,secondaryALS,specialeducation,scienceandtechnologyandtechnical/vocationalhighschools.Performancefeedbackandmanagementreportingmechanismsformpartofthemainstreamlayertoensurecontinuousprocessimprovementandinformedmanagementdecisions.
Thesupportivelayer providesthemajorsupportprocessestothemainstreamprogramsandactivities. TheAdministrativeprocessesincludeprocurementservices.
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SharedGovernancePrinciple
SharedGovernanceisaprinciplewhichrecognizes
that
every
unit
in
the
education
bureaucracyhasaparticularrole,taskand
responsibilityinherentintheofficeandfor
whichit
is
principally
responsible
for
outcomes.
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Principles
Section3.1Principle Sharedgovernanceisaprinciplewhichrecognizesthateveryunitintheeducationbureaucracyhasaparticularrole,taskandresponsibilityinherentintheofficeandforwhichitisprincipallyresponsibleforoutcomes.
Section3.2Theprinciplesofaccountabilityandtransparencyshallbeoperationalized intheperformanceoffunctionsandresponsibilitiesatalllevelsofgovernance.
Section3.3 Theprocessofdemocraticconsultationshallbepursuedasthedecisionmakingprocessatappropriatelevels. Wheneverfeasible,stakeholdersshallbeconsultedonmattersthat
affect
the
welfare
and
instructional
needs
of
the
learners.
Section3.4 Thecommunication channelsoffieldofficesshallbestrengthenedtofacilitateflowofinformationandexpandlinkageswithothergovernmentalagencies,localgovernmentunitsandnongovernmentalorganizationsforeffectivegovernance.
Feedbackmechanismshallbeestablishedtoensurecoordinationandopencommunicationamongthecentraloffice,theregional,division,districtandschools/learningcenterlevels.
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Dutiesandresponsibilitiesina
DecentralizedEnvironment
National Office:
(1)Formulating
national
educational
policies;
(2)Formulatinganationalbasiceducationplan;
(3)PromulgatingnationaleducationalStandards;
(4)Monitoring
and
assessing
national
learning
outcomes;
(5)Undertakingnationaleducationalresearchandstudies;
(6)Enhancingtheemploymentstatus,professionalcompetence,welfareandworkingconditionsofallpersonnel
of
the
Department;
and
(7)Enhancingthetotaldevelopmentoflearnersthroughlocalandnationalprogramsand/orprojects.
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DutiesandResponsibilitiesina
DecentralizedEnvironment
RegionalOffice :Consistentwiththenationaleducationalpolicies,plansandstandards,theregionaldirectorshallhaveauthority,
accountabilityand
responsibility
for
the
following:
(1)Definingaregionaleducationalpolicyframeworkwhichreflectsthevalues,needsandexpectationsofthecommunitiestheyserve;
(2)Developingaregionalbasiceducationplan;
(3)
Developing
regional
educational
standards
with
a
view
towards
bench
markingforinternationalcompetitiveness; (4)Monitoring,evaluatingandassessingregionallearningoutcomes; (5)Undertakingresearchprojectsanddevelopingandmanagingregion
wideprojectswhichmaybefundedthroughofficialdevelopment
assistanceand/or
or
other
finding
agencies;
(6)Ensuringstrictcompliancewithprescribednationalcriteriafortherecruitment,selectionandtrainingofallstaffintheregionanddivisions.
(7)Formulating,incoordinationwiththeregionaldevelopmentcouncil,
thebudget
to
support
the
regional
educational
plan
which
shall
take
into
accounttheeducationalplansofthedivisionsanddistricts;
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DutiesandResponsibilitiesinaDecentralized
EnvironmentRegionalOffice
(8)Determiningtheorganizationcomponentofthedivisionsanddistrictsandapprovingtheproposedstaffingpatternofallemployeesinthedivisions
and
districts;
(9)Hiring,placingandevaluatingallemployeesintheregionaloffice,exceptforthepositionofassistantdirector;
(10)Evaluatingallschoolsdivisionsuperintendentsandassistantdivision
superintendentsin
the
region;
(II)Planningandmanagingtheeffectiveandefficientuseofallpersonnel,physicalandfiscalresourcesoftheregionaloffice,includingprofessionalstaffdevelopment.;
(12)
Managing
the
database
and
management
information
system
of
the
region; (13)Approvingtheestablishmentofpublicandprivateelementaryand
highschoolsandlearningcenters;and
(14)Preforming suchotherfunctionsasmaybeassignedbyproper
authorities.
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DutiesandResponsibilitiesinaDecentralized
Environment
TheDepED DivisionOffice:
Adivisionshallconsistofaprovinceoracitywhichshallhaveaschoolsdivisionsuperintendent,
at
least
one
assistant
schools
divisionsuperintendentandanofficestafffor
programs
promotion,
planning,
administrative,fiscal,legal,ancillaryandothersupportservices.
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DutiesandResponsibilitiesinaDecentralized
EnvironmentTheDepED DivisionOffice:
(1) Developing and implementing division education development plans;
(2) Planning and managing the effective and efficient use of all personnel, physical andfiscal resources of the division, including professional staff development;
(3) Hiring, placing and evaluating all division supervisors and schools districtsupervisors as well as all employees in the division, both teaching and nonteaching personnel, including school heads, except for the assistant divisionsuperintendent;
(4) Monitoring the utilization of funds provided by the national government and thelocal government units to the schools and learning centers;
(5) Ensuring compliance of quality standards for basic education programs and for thispurpose strengthening the role of division supervisors as subject area specialists;
(6) Promoting awareness of and adherence by all schools and learning centers toaccreditation standards prescribed by the Secretary of Education;
(7) Supervising the operations of all public and private elementary, secondary andintegrated schools, and learning centers; and
(8) Performing such other functions as may be assigned by proper authorities.
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DutiesandResponsibilitiesinaDecentralized
EnvironmentSchoolsDistrictLevel
Upon the recommendation of the schools division superintendents, theregional director may establish additional schools district within a schoolsdivision. School districts already existing at the time of the passage of thelaw shall be maintained.
A schools district shall have a schools district supervisor and an office staff for
program promotion. The schools district supervisor shall be responsible for: (1) Providing professional and instructional advice and support to the
school heads and teachers/facilitators of schools and learning centers inthe district or cluster thereof;
(2) Curricula supervision; and (3) Performing such other functions as may be assigned by proper
authorities.
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TheSchoolsDistrictLevel
Section8.1Powers,DutiesandFunctions
TheSchools
District
Level
A
schools
district
shall
have
aschools
district
supervisorandanofficestaffforprogrampromotion.
Inconsonancewiththepolicy,purposesandobjectives,andtheprinciplesenunciatedinR.A.9155 theschooldistrictsshallhavethefollowingauthority,accountabilityandresponsibility:
8.1.1 Monitor,assess,superviseandevaluatetheimplementationofvariouscurriculainbasic
educationin
both
public
and
private
schools/learning
centers
including
early
childhood
education,
specialeducationandalternativelearningsysteminthedistrictorclusterthereof
8.1.2 Provide professionalandinstructionaladviceandsupporttotheschoolheadsandteachers/facilitatorsofpublicandprivateelementaryandsecondaryschoolsandlearningcentersincludingearlychildhoodeducation,specialeducationandalternativelearningsysteminthe
districtor
cluster
thereof
8.1.3Performsuchotherrelatedfunctionsasmaybeassignedbyproperauthorities.
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SchoolDistrictLevel
AschooldistrictalreadyexistingatthetimeofthepassageofthisActshallbe maintained.However,
an
additional
school
district
may
be
establishedbytheregionaldirectorbasedoncriteriasetbytheSecretaryandonthe
recommendationof
the
schools
division
superintendent.
Forthispurpose,theSecretaryofEducationshall
setstandards
and
formulate
criteria
as
basis
of
theRegionalDirectorintheestablishmentofanadditionalschooldistrict.
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DutiesandResponsibilitiesinaDecentralized
EnvironmentSchoolLevel
There shall be a school head for all public elementary schools
and public high schools or a cluster thereof. Theestablishment of integrated schools from existing publicelementary and public high schools shall be encouraged.
The school head, who may be assisted by an assistant school
head, shall be both an instructional leader and administrativemanager. The school head shall form a them with the schoolteachers/learning facilitators for delivery of qualityeducational programs, projects and services. A core of
nonteaching staff shall handle the school's administrative,fiscal and auxiliary services.
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DutiesandResponsibilitiesinaDecentralized
Environment
SchoolLevel
(7)Administering
and
managing
all
personnel,
physical
and
fiscal
resources
of
the
school;
(8)Recommendingthestaffingcomplementoftheschoolbasedonitsneeds; (9)Encouragingstaffdevelopment; (10)Establishingschoolandcommunitynetworksandencouragingtheactive
participationof
teachers
organizations,
nonacademic
personnel
of
public
schools,
andparentsteacherscommunityassociations;
(11)Acceptingdonations,gifts,bequestsandgrantsforthepurposeofupgradingteachers'learningfacilitators'competencies,improvingadexpandingschoolfacilitiesandprovidinginstructionalmaterialsandequipment.Suchdonationsor
grantsmust
be
reported
to
the
appropriate
district
supervisors
and
division
superintendents;and
(12)Performingsuchotherfunctionsasmaybeassignedbyproperauthorities.
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PromotionswithinDepED
TheSecretaryofEducationshallcreateapromotionsboard,attheappropriatelevels,whichshallformulateandimplementasystemofpromotionforschoolsdecisionsupervisors,schoolsdistrictsupervisors,
and
school
heads.
Promotion
of
school
heads
shall
be
basedoneducationalqualification,meritandperformanceratherthanonthenumberofteachers/learningfacilitatorsandlearnersintheschool.
Thequalifications,
salary
grade,
status
of
employment
and
welfare
andbenefitsofschoolheadsshallbethesameforpublicelementary,secondaryandintegratedschools.
Noappointmenttothepositionsofregionaldirectors,assistant
regionaldirectors,
schools
division
superintendents
and
assistant
schoolsdivisionsuperintendentsshallbemadeunlessfileappointeeisacareerexecutiveserviceofficerwhopreferablyshallhaverisenfromtheranks.
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DutiesandResponsibilitiesina
DecentralizedEnvironment
Theschoolheadsshallhaveauthority,accountabilityandresponsibilityforthefollowing:
1. settingthe
mission,
vision,
goals
and
objectives
2. creatinganenvironmentthatisconducivetoteachingandlearning
3. implementingcurriculumandbeingaccountableforhigherlearning
outcomes
4. developingaschooleducationprogramandSIP
5. offeringeducationprograms,projectsandserviceswhich
provideequitable
opportunities
for
all
learners
in
the
community
6. introducingnewandinnovativemodesofinstructiontoachievehigherlearningoutcomes
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DutiesandResponsibilitiesina
DecentralizedEnvironment
administeringandmanagingallpersonnel,physicalandfiscalresources recommendingstaffingcomplementbasedonitsneeds
encouraging
staff
development; establishingschoolandcommunitynetworksandencouragingactiveparticipationofteachersorganizations,nonacademicpersonnelofpublicschoolsandPTCAs
acceptingdonations,gifts,bequestsandgrantsforthepurposeofupgrading
teachers/learning
facilitators
competencies,
improving
and
expandingtheschoolfacilitiesandprovidinginstructionalmaterialsandequipment;suchdonationsorgrantsmustbereportedtotheappropriatedistrictsupervisoranddivisionalsuperintendents
performing
other
functions
as
may
be
assigned
by
proper
authorities.
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PerceptiononDecentralizationofEducationin
the
Philippines
(SEDIP
Survey)DepED personnel at all administrative levels have some
general idea of what education decentralization entails.
Most associate this with the transfer of power andresponsibility to divisions and schools, and some others, with
the empowerment of field officials and other stakeholders.
Still a few others, equate education decentralization withschoolbased management.
Not surprisingly, the latter two responses (empowerment of
field offices and schoolbased management) are more likely to
be mentioned by respondents at the district and school levels
rather than those at the higher levels (Central, Regional and
Division Offices) of the education hierarchy.
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PerceptiononDecentralizationofEducationin
the
Philippines
(SEDIP
Survey)In terms of the division of labor and of tasks and responsibilities
across the educational hierarchy, there is also some convergence in
the views of respondents as to which administrative level/s should
assume the greater responsibility for a given educational task or
function under a decentralized setup.
It should be noted that this does not necessarily equate to a
consensus of views among the survey respondents. In general, it
should be borne in mind that some territorialism is evident in the
survey respondents, (i.e., respondents tend to vote for their own
administrative level as that which should be performing a given
task.
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PerceptiononDecentralizationof
Educationin
the
Philippines
(SEDIPSurvey)
TheCentralofficeisseenasassumingamajorroleintheperformance
ofeducational
policymaking;
the
setting
and
formulation
of
education
qualitystandards;andthedevelopmentanddesignofcurriculum
contentandstructure.
TheDivisionOfficeontheotherhand,isseenasprimarilyresponsible
forthe
hiring
and
termination
of
teachers,
as
well
as
for
monitoring
learningoutcomesandeducationalperformance,andtheprocurement
oftextbooks.
Therespondentsalsoviewthelattertwofunctions(monitoringandtextbook
procurement)
as
responsibilities,
which
the
Division
should
sharewiththeschoolsintheirareas.
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PerceptiononDecentralizationof
Educationin
the
Philippines
(SEDIPSurvey)
Under a decentralized setup, the schools are seen as primarily responsible for
several tasks. In descending order of importance these tacks/functions are asfollows:the repair and maintenance of school buildings;
the development of instructional materials;
the performance evaluation of teachers;
the procurement of school furniture and equipment,the construction of school buildings and facilities;
the generation and mobilization of resources;
and the allocation and utilization of fiscal resources.
In addition, schools are perceived along with the Division Offices as also
primarily responsible for planning, program development and the inservice
training of teachers.
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PerceptiononDecentralizationof
Educationin
the
Philippines
(SEDIPSurvey)
Other Findings:
Themostwidelycitedreason,asthebarriertothefullimplementationofRA9155isthelackofcooperationfromstakeholders followedcloselybylackofmanpowerormanpower
preparation.
Thereisstillalargeconcernaboutthereadinessofpersonnel/officestohandledevolveddutiesmostlycitingthatpersonnellackskillsandrequiremoretraining.
Amajorityalsoexpressessomeconcernsaboutredundancies,theproportionbeing
highestat
the
district
level.
Astoconcernaboutadditionaljobs/tasksthatmaybeassignedwithnoadditionalcompensationasaresultofdecentralization,understandablytheconcernismainlyatthe
lowerlevels. Majorityatthecentraloffice,regionaloffice,andthedivisionofficearenot
concernedbutmajorityatthedistrictlevelandschoollevelareconcernedaboutadditional
tasks.
Finally,itisinterestingtonotethatdespiteperceivedconcernsaboutdecentralization,averylargemajorityofrespondentsatalllevelsareinfavorofdecentralizationandbelievethatitwill
improvethequalityoftheeducationalsystem.
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THANKYOU
Dr.EthelAgnesP.Valenzuela
ResearchSpecialistandHead,ResearchStudiesUnit
34E.Valenzuela SEAMEOINNOTECH