The release of Programme for International Student Assessment (PISA) which placed the Philippines near the bottom of rankings calls for a radical change in the country’s education system.
For context, PISA is a measurement of a 15-year-old’s ability to apply their performance in reading, mathematics and science. It was organized by the Organisation for Economic Co-operation and Development, a forum composed of 38 member countries, majority of whom are classified as high-income economies. It aims to provide comparable data, such as rankings among countries, as a basis to enable countries to improve their education policies.
In the assessment, students took two one-hour tests, each focusing on one subject. Students were given different test questions and different combination of subjects (ie, mathematics followed by reading, science followed by mathematics, and so on). There were both multiple-choice questions and those that require subjective responses.
The Philippines participated in PISA’s 2022 assessment with 7,193 students from 188 schools.
The 2022 results, released late in 2023, paint a bleak assessment of how 10th-grade Filipino students compare with their contemporaries.
Mathematics: 76th of 81 countries
With OECD average of 69%, only 16% of Filipino students attained at least Level 2 proficiency in mathematics. The test assessed how students interpret and translate a simple situation into a mathematical expression. For example, compare the distance between two alternative routes or converting prices into a different currency. In contrast, over 85% of students in Singapore, Macau, Japan, Taiwan, Estonia and Hong Kong reached this level or above.
Science: 80th of 81 countries
With OECD average of 76%, 23% of Filipino students attained Level 2 or higher in science. The test assessed how students recognize the correct explanation of a familiar scientific phenomena and utilize knowledge to determine whether a conclusion is valid based on data provided. It was also revealed that almost no Filipino students were top performers in science.
Reading: 79th of 81 countries
With OECD average of 74%, 24% of Filipino students attained Level 2 or higher in reading. The test assessed how students can identify a concept within a text of moderate length, and find information based on both explicit and complex criteria. For comparison, 89% of Singapore students, who topped the list, managed to achieve Level 2 or higher, while Cambodia, at 8%, is at the bottom of the list.
To say that the result is disappointing is an understatement, and can lead to blaming different people such as teachers, policymakers, families and students themselves. Finger pointing can take place to identify the culprit, but also to escape responsibility and ownership of the problem.
The PISA study highlighted some factors that contribute to the low performance among Filipino students.
Low sense of belongingness leads to subpar performance
Apparently, it is easier to make friends in Philippine schools compared to other countries. In 2022, 83% of students in the Philippines reported that they make friends easily at school (OECD average: 76%). Eighty-four percent felt that they belong at school, better than the 75% OECD average.
However, 28% reported feeling lonely at school, and 28% like an outsider or left out of things at school, both of which are above OECD average of 16% and 17%, respectively.
It may sound ironic that in an environment where friends can easily be made, loneliness is prevalent. But such can exist when that environment fosters the existence of superficial friendships and lack of deep and meaningful relationships among peers. If a student undergoes personal issues like family problems, mental health issues or stress, they may find it difficult to open up to friends about these issues, leading to loneliness even in the presence of social support.
In broader sense, 17% of Filipino students expressed their dissatisfaction in life, up from 14% in 2018. This followed the same pattern as the OECD countries, whose average ratio of students who are not satisfied with life increased from 11% in 2015 to 16% in 2018 and 18% in 2022. Those who have low regard in life may deprioritize studies in favor of vices, leading to low educational performance.
Safety school environment boosts performance
A safe environment for students can bolster their academic performance, but bullies threaten safety of students while in school, and can disrupt their learning experience. Although the Philippines is at par with OECD average on feeling safe on their way to school or while in the classroom, Filipino students report not feeling safe at other places in school such as hallway, canteen or restrooms is 19% versus the OECD average of 10%.
Some 43% of girls and 53% of boys reported being the victim of bullying acts at least a few times a month (OECD average: 20% of girls and 21% of boys). On average across OECD countries, fewer students were exposed to bullying in 2022 compared to 2018: for example, only 7% of students reported that other students spread nasty rumours about them in 2022, compared to 11% in 2018. In the Philippines, too, the corresponding proportions shrank (15% in 2022 compared to 32% in 2018).
PISA data collected from school principals show that the percentage of parents who were involved in school and learning decreased substantially between 2018 and 2022 in many countries/economies. This was not the case in the Philippines. In 2022, 63% of students in the Philippines were in schools whose principal reported that during the previous academic year at least half of all families discussed their child’s progress with a teacher on their own initiative (and 83% on the teacher’s initiative).
In 2018, the corresponding number was 72% (and 86%). Systems that had more positive trends in parental involvement between 2018 and 2022 (i.e. systems in which the share of parents who discussed their child’s progress with a teacher on their own initiative shrank less) tended to show more stable or improved performance in mathematics.
Learning environment during COVID
In the Philippines, 55% of students reported that their school building was closed for more than three months due to COVID-19. On average across OECD countries, 51% of students experienced similarly long school closures. In education systems where performance remained high and students’ sense of belonging improved, fewer students experienced longer school closures.
During remote learning, 41% of students in the Philippines had problems at least once a week with understanding school assignments and 34% of students with finding someone who could help them with schoolwork (OECD averages: 34% and 24%). In education systems where performance remained high and students’ sense of belonging improved, fewer students encountered problems during remote learning.
Support for students’ well-being was often limited when their schools were closed. In the Philippines, 21% of students reported that they were supported daily through live virtual classes on a video communication program. Only 18% of students reported that they were asked daily, by someone from the school, how they were feeling (OECD averages: 51% and 13%).
If school buildings have to close again in the future, many students across the OECD feel confident about using digital technology for learning remotely but fewer students feel confident about taking responsibility for their own learning. Some 52% of students in the Philippines feel confident or very confident about using a video communication program and 68% of students feel confident or very confident about motivating themselves to do school work (OECD averages: 77% and 58%).
Resources invested for education
In about half of all countries/economies with comparable data, school principals in 2022 were more likely than their counterparts in 2018 to report a shortage of teaching staff. This was also the case in the Philippines. In 2022, 43% of students in the Philippines were in schools whose principal reported that the school’s capacity to provide instruction is hindered by a lack of teaching staff (and 19%, by inadequate or poorly qualified teaching staff).
In 2018, the corresponding proportions were 19% and 8%. In most countries/economies, students attending schools whose principal reported shortages of teaching staff scored lower in mathematics than students in schools whose principal reported fewer or no shortages of teaching staff.
How 15-year old Filipino students’ schooling compare with other countries
In the Philippines, 84% reported that they had attended pre-primary education for one year or more (OECD average: 94%). On average across OECD countries, students who had attended pre-primary education for one year or more scored higher in mathematics at the age of 15 than students who never attended or who had attended for less than one year, even after accounting for socio-economic factors.
Some 25% of students in the Philippines reported that they had repeated a grade at least once (OECD average: 9%) after entering primary school. Grade repetition tends to be less prevalent in high performing systems.
In the Philippines, 32% of students attended a school where principals had the main responsibility for hiring teachers (OECD average: 60%), and 50% were enrolled in a school where teachers had the main responsibility for choosing which learning materials are used (OECD average: 76%). Many high-performing school systems tend to entrust principals and teachers with these responsibilities.
What went wrong: How the Philippines languished at the bottom of PISA rankings?
Infrastructure and Budget Contsraints
Limited government budget
The Department of Budget and Management released P924.7 billion budget for the Department of Education, with P758.6 billion was allotted for the Department of Education, while P31.0 billion for the Commission on Higher Education. An additional P15.2 billion had been provided for the Technical Education and Skills Development Authority and P105.6 billion for the 116 state universities and colleges in the Philippines, among others.
Apparently, this budget is not enough to cover support for 21 million students who enrolled nationwide, as well as construction and maintenance of school facilities, availability and distribution of learning materials, and hiring and training of teachers and support staff. For instance, the Department of Education reports a classroom shortage of 159,000 for school year 2023-24, far severe than the previous year’s deficit of 91,000 classrooms.
There is also a severe shortage of teaching positions. Out of 46,000 vacancies at Department of Education, only 3,415 positions have been filled, according to the second Congressional Commission on Education. The lack of qualified educators mean the teacher-student ratio is 1:40, higher than the ideal 1:30 ratio, and worse than regional peers Indonesia (1:17), Thailand (1:12) and Brunei (1:9).
Lack of locations to build schools
As a corollary to the previous point, many public schools in the Philippines suffer from overcrowded classrooms, which can hinder effective teaching and limit individual attention to students. Besides the limited budget to build classrooms, there is a longstanding belief by the Department of Education officials that lands dedicated to establishing school buildings must not be purchased, but rather donated by the local government or private individuals or groups.
The chronic problem of classroom shortage has led to short-term solutions such as dividing classrooms to accommodate separate classes, and segregate classes into morning, afternoon and evening shifts. The rapid adoption of online classes during COVID-19 pandemic has hastened the development of distance learning classes.
Teaching Quality and Compensation
Lack of quality educators
Many teachers in the Philippines may not receive adequate training or professional development opportunities, which affects their ability to deliver high-quality instruction. According to a 12-year research on licensure examination for teachers by the Philippine Business for Education, 56% of schools in the country that offer education courses suffer below-average passing rates since 2010. LET passing rates were lower compared to other licensure exams such as nursing, accountancy and civil engineering.
The research further revealed that only two percent of institutions offering education degrees are considered high-performing, defined as schools whose LET passing rate is at least 75%. It is not certain how the Professional Regulations Commission or the Commission on Higher Education is dealing with poorly-performing schools.
Teachers are also held responsible for election duties and are frequently appointed as Board of Election Inspectors, occasionally assist the Philippine Statistics Authority to conduct census and surveys, and may be the frontliner during disaster response such as typhoon relief or earthquake drills. These additional burden that fall into the teachers’ shoulders not only take them away from their primary duties as educators but also deprive them of the precious training and development to further advance the quality and effectiveness of their roles.
As a result, many teaching methods involve rote memorization instead of analysis and critical thinking as undertrained teachers come to the classroom unprepared.
Low teacher compensation
Teachers in the Philippines are often underpaid, and can lead to low morale and lack of motivation and passion for teaching. As a result, many of them have left their positions for higher-paying jobs abroad, creating vacancies that are difficult to fill. As of this writing, entry-level salary for teachers is P27,000 in the public sector. Private school teachers even have lower base salary that starts as low as P10,000. Such reality often leads to high attrition rate, and also discourages new graduates from pursuing teaching careers.
Many Filipino teachers resort to side hustles such as private tutorials or even manual labor, to supplement their income. Additional workload takes time and energy away from preparing their lessons or offering quality education in the classroom.
Financial stress and erosion of profesional dignity
Teacher’s salaries are subject to mandatory deductions (BIR, PhilHealth, GSIS, and other fees) before receiving their take-home pay. Due to low levels of net income, Filipino teachers are deprived of affording decent living standards and opportunities for professional development. In fact, many of them are in debt and rely on loans offered by both established banks or illegal loansharks to sustain their needs.
A Filipino party-list lawmaker claimed that debts incurred by teachers have reached a staggering P300 billion as the vicious cycle of engaging in loans with soaring interest rates have ruled the money lending marketplace.
As such, low wages and engagement in unsustainable loan practices have degraded the perception that teaching is not a valued profession, and erode their professional dignity.
Curriculum Issues
Limited access to early childhood education
Many children in the Philippines do not have access to early childhood education, a crucial stage in developing foundational skills in reading, math and science. The lack of early childhood education creates gaps in learning and hinders children’s cognitive, emotional and social development. This can lead to lower levels of school readiness and drive educational inequality as children progress in their formative years in school.
Misaligned teaching competencies
The curriculum in the Philippines is not fully aligned with the competencies measured by PISA, which focuses on application of knowledge in real-world contexts. The K-12 curriculum mainly focuses on content knowledge rather than critical thinking and problem-solving, areas PISA assesses students. Despite the launch of K-12 education system in the Philippines in 2012, many Philippine schools continue to adopt teaching methods that focus on rote memorization which does not stimulate critical thinking.
Focus on national education
Many subjects taught in Philippine schools are aligned to address national education goals, and centered towards Philippine history, culture and values. Subjects such as Araling Panlipunan (Social Studies), Music, Arts, Physical Education, and Health (MAPEH), Sining (Arts), and Sibika at Kultura (Civics and Culture) collectively support on building a strong sense of national identity, acknowledgement and preservation of cultural heritage. However, on a global competitive stage, the significance of these subjects is muted.
Methods of instruction
Part of the educational approach introduced when K-12 curriculum is the mother tongue-based multilingual education. This mandates the use of the student’s first language as the primary medium of instruction from kindergarten to Grade 3, before shifting to English and Filipino. It was believed that by using the child’s mother tongue, they will better understand the lessons, promoting improved learning outcomes.
However, as children have limited exposure to formal education in English– mainly on television and radio broadcast media — they have weaker proficiency in the language of assessment by the time they reach 15-years old in time for PISA tests in reading, mathematics and science.
The sudden shift to English and Filipino after third grade presents students cognitive overload as they need to become proficient in both languages on top of the baseline mother tongue knowledge. The delayed exposure to Filipino and English as formal medium of instructure can cause students to struggle with complex English language structure, and impact their performance in key PISA tests on reading comprehension and problem-solving.
The problem is exacerbated by the lack of preparedness by teachers who may not even be fluent in the prescribed mother tongue, and insufficient teaching materials for local language.
Socio-economic factors
Pervasive poverty across Filipino families
A significant portion of Filipino students comes from low-income families, which can limit their access to educational resources, such as books, learning facilities, and private tutoring. Poverty also contributes to higher dropout rates, particularly among older students in order to support their families. And even those who manage to stay in school struggle to cope with academic requirements and the required environment for optimal learning experience.
At home, these students may lack quiet spaces or materials to study, and face additional pressures like helping with household chores and errands, leaving little time for homework or study. They may not have access to computers or Internet technology, making it challenging for them to complete assignments that require digital literacy. Many of them leave home hungry, affecting their ability to concentrate. Malnutrition causes students to miss school and fall behind academically.
Students from impoverished locations have to walk long distances to school, or take overcrowded transport with limited frequency, leading to tardiness.
Government measures
The Philippine government has launched measures to arrest the decline in standard of living among Filipinos falling below the poverty line. One of which is Pantawid Pamilyang Pilipino Program (4Ps), a conditional cash transfer program providing financial assistance to poor families. To avail of the cash incentive, school-age children of recipient families must be enrolled and maintain 85% or higher attendance rate in school, and children complete their immunization schedules and regular health checks.
The program has helped reduce absenteeism, provide children with school supplies and fund additional educational expenses, and better access to education in general. However, there are several challenges that 4Ps cannot address.
Many schools in rural areas still lack adequate facilities and trained teachers. Cash transfers alleviate immediate needs but does not fully solve the root causes of poverty, so poor students remain at a disadvantage.
Out-of-school youths, indigenouse people, persons with disabilities, and adults in the Philippines who failed to complete formal education can avail of the Alternative Learning System. Its flexible learning environment and modular classes offer convenient way for learners to pursue them at a convenient time and location. ALS relies on mobile teachers who travel to underserved or remote communities to deliver learning sessions.
But just as the mainstream education system struggle to cope with limited resources, ALS also faces constraints such as learning materials, facilities and trained ALS teachers.
How can the Philippines improve its PISA ranking?
Boost in investment in education
Traditionally, about 15% of the total Philippine government budget goes to educational agencies such as the Department of Education, Commission on Higher Education and Technical Education and Skills Development Authority.
Despite of the relatively large allocation from the total budget, challenges remain in addressing acute infrastructure shortage, outdated teaching methods and educator training. Percentage allocation to education spending has even declined over the years. Thus, while increase in budget allocation is necessary, it’s also crucial to implement a more efficient use of the budget and increase investment in educational reforms.
Enhance teaching quality
Invest in continuous and sustainable professional development programs for teachers and educators to upgrade their skills in teaching such as mastery of core subjects (reading literacy, mathematics and science), develop skills to instill critical thinking and problem solving. Teachers should be able to deprioritize memorization in favor of analyzing and evaluating information.
Instead of creating exams whose answers require memorizing key dates in the Cry of Pugad Lawin and Execution of Jose Rizal in Araling Panlipunan, teachers should instead encourage deeper analysis by asking what are the socio-political factors that led to the revolutionary movements against Spanish colonialism, and how the different approaches employed by Bonifacio and Aguinaldo influence the outcome of the revolution. In this way, students will embrace the habit of critical thinking instead of focusing on objective questions that are prone to cheating and bring minimal learning impact.
Foster teacher mentorship programs
Develop mentorship programs where veteran teachers support less experienced ones, helping elevate overall teaching standards. This can be implemented through mentor-mentee partnership, with a newcomer pairing with a senior teacher, and exposure of inexperienced ones to a real-time classroom management and lesson delivery skills.
Both can align with specific goals such as preparing lesson plans and practicing techniques on student engagement. A feedback session allows a mentor to provide constructive criticism after observing a teaching demonstration. Both can also align on best practices across different situations such as handling a disruptive student behavior or lack of classroom participation. This approach can bring confidence and practical skills to new teachers, while their mentors can also gain leadership experience.
Raise teacher salaries
Increasing teacher wages helps attract and retain high-quality teachers and improve their motivation. However, if allocated budget is not adequate to address salary increase, non-monetary benefits can also be provided. This can include professional development opportunities such as free training and workshops or scholarships for further education.
So if a teacher is aspiring for a higher post such as a school principal, he or she can avail of state-funded courses or units that advance their qualification for leadership roles. They can also avail of wellness and health programs such as access to yoga classes or wellness retreats.
Curriculum reforms
A shift from the current set of subjects taught in school, plus effective teaching methods, are needed to be able to cope with global education standards. For example, focus on subjects that stimulate analysis and inquiry-based learning such as mathematics and science, and critical thinking and comprehension.
This will not only bring better PISA results, but more importantly, help Filipino students keep up with global standards. As more Filipinos seek employment abroad, such skills help them be more competitive in the international job market.
Deprioritize or intergrate subjects into broader themes
Many students ask whether learning algebra or math subjects are helpful in the workplace, it actually helps develop analytical thinking, an essential attributes for careers in medicine, research and engineering. For example, nurses need to assess patient conditions and prioritize care, which requires quick analysis and problem-solving.
Data analysts require a review of large data sets, identify trends and arrive to data-driven decisions, which also require critical thinking to interpret results.
The shift towards mathematics, science and subjects that require critical thinking and comprehension also means deprioritizing certain subjects or merging them into broader themes. For example, integrate history and social studies into a broader curriculum, and upgrade technology and livelihood education towards skills that are more aligned in the current age.
Introduce subjects that are aligned with current times
While this may not necessarily relate to improving PISA results, the introduction of ubjects such as coding, financial literacy, and entrepreneurship opens up Filipino students to a wider horizon of opportunities besides seeking employment after graduation.
Introduce subjects such as financial literacy (budgeting and investing), environmental education (climate change and renewable energy), information literacy (identifying media bias and protecting personal data online), civic education (the Philippine constitution and governance), entrepreneurship (business planning and financing startups), disaster preparedness (first aid and understanding hazard maps), digital skills (Python coding and cybersecurity), nutritional education (understanding diseases and maintaining healthy lifestyle).
They can be electives chosen by students based on their interest and passion, and can be a stepping stone towards understanding and embracing a chosen career.
Enhance assessment and feedback
It is important to measure the effectiveness of teaching methods, classroom settings, and subjects offered. In this way, school officials can identify strengths and weaknesses, and make necessary adjustments based on available research data. For example, baseline tests among elementary school pupils help determine which students are struggling on foundational concepts such as fractions or grammatical guidelines.
Those whose assessments fall below a certain levels are given additional support and take supplementary exercises, attend remedial classes or receive peer tutorial sessions. Those who excel or above average are given advanced enrichment activities to based on their needs and address their intellectual curiosity.
Promote a culture of learning
Encouraging life-long learning for Filipino students involves the support of teachers, parents and a wider member of the society. Practical skills such as financial literacy, entrepreneurship and technology can be promoted at programs organized by local governments (inter barangay quiz bee) and the media (educational programs on TV) and materials made available at local libraries or computer units funded by the government. Showcase stories of successful individuals who pursued continuous learning as a way to inspire students and adults alike.
Maintain a sustainable policy implementation
It is not unusual that a new presidential administration will abandon an existing policy and replace it with a new one. For example, the Philippines under the Noynoy Aquino administration pursued a case against China over sea disputes, but the following regime under Rodrigo Duterte adopted a more conciliatory stance towards China.
On a more familiar topic, the Enhanced Basic Education Act of 2013 which launched the K-12 education reform enacted by Aquino had to be scaled back as it was deemed too ambitious and rushed its implementation, particularly in terms of infrastructure, teacher readiness and availability of resources. In the Duterte administration, these challenges were acknowledged and attempted to address issues from classroom crowding to actual curriculum implementation in the classroom.
While tweaks to the policy is aimed at gradually adopting the reforms, there must be concrete steps to take to ensure continuity of implementation and bring long-term impact. Institutionalizing the policies through legislation just like the Enhanced Basic Education Act helped galvanize the implementation of the K-12 program.
Such policies will then be integrated and secured within the framework of long-term development plans such as the Philippine Development Plan and Ambisyon Natin 2040, both of which transcends presidential terms. Participation of multiple stakeholders including the private sector, civic groups, and international educational organizations will also help monitor and track progress and derive data-driven adjustments.
Conclusion
The Philippines is embarking on a long journey towards reforming its education system. Improving Philippine education, is not only meant to rank better in PISA assessments, but generate more competitive and forward-thinking generation of graduates. This long-term strategy should focus on teacher training, infrastructure building, enhancement of curriculum and consistent funding.
By addressing systemic issues such as poverty and infrastructure gaps, and fostering critical thinking and problem-solving skills, the country can boost global competitiveness and create a more resilient education system for years to come.