Analyzing the EDCOM II Year Two Report for School Leaders
Analysis of the EDCOM II Year Two Report. Learn about foundations of learning, teacher workforce gaps, and NQESH preparation implications.
The Second Congressional Commission on Education (EDCOM II) Year Two Report, titled Fixing the Foundations: A Matter of National Survival, presents an assessment of the Philippine education system. Published in January 2025, the report identifies structural roots of current challenges and proposes legislative and policy interventions. For school heads and educators, the document serves as a roadmap for understanding systemic failures in Early Childhood Care and Development (ECCD), basic education, and teacher preparation.
Foundational gaps in early childhood care and development
Research cited in the report emphasizes that the window of opportunity for children aged 0–8 is essential for laying a base for future learning. Despite the designation of the ECCD Council as responsible for children aged 0–4 under the Early Years Act of 2013, the sector receives low attention and support.
Data indicates that only 25% of Filipino children meet the recommended energy intake (REI) between 6–12 months. This nutritional deficit is particularly acute in impoverished households. A study by the Philippine Institute for Development Studies (PIDS) shows that children aged 3–5 rely mainly on carbohydrates while consuming 20% less protein and 40% less fat than recommended.
On the demand side, parental perception remains a barrier. Approximately 97% of parents surveyed believe children under 5 are “too young” for school. Furthermore, only 50% of children aged 3–4 engage in reading activities at home. The report identifies distance to child development centers (CDCs) as a significant deterrent, with most parents preferring facilities within a 10-minute walking distance.
Challenges in ECCD financing and governance
Financing for ECCD is identified as inadequate and inequitable. The national government allocates Php 3,870 per child for health-related ECCD services, which is lower than the average of Php 8,700 in other low- and middle-income countries. Disparities among local government units (LGUs) further complicate implementation.
- First-class municipalities have Special Education Fund (SEF) incomes 68 times greater than sixth-class municipalities.
- Municipalities have a median SEF income of Php 1.6 million, representing only 4% of the median SEF income of cities and provinces.
- The National Nutrition Council (NNC) faces limited capacity, with only 93 personnel out of 126 authorized positions.
State of basic education and learning poverty
The report reveals that 9 out of 10 Filipino children cannot read proficiently. Most Grade 3 students were found to be 1–2 years behind curriculum expectations. This gap widened to 2–3 years due to the impacts of the COVID-19 pandemic.
Classroom shortages remain a primary concern. DepEd reports a backlog of 165,443 classrooms. Currently, only 30% of school buildings are in good condition. Over 5.1 million learners are classified as “aisle learners,” meaning they are in excess of the ideal classroom density of 25 to 45 learners.
Impact of class suspensions and disasters
The Philippines is identified as a disaster-prone country, leading to frequent class suspensions. In the school year 2023–2024, approximately 11 million learners lost over 20 school days. The Cordillera Administrative Region (CAR) lost 42 days, followed by Region IV-A with 38 days.
Research indicates that for every day of school closure, student achievement at Grade 4 for math and science declines by 12%–14% of a standard deviation, equivalent to half a year of learning. The report notes that these losses are driven more by a drop in student engagement than by teaching inefficiencies.
Curriculum and instruction updates
The rollout of the MATATAG curriculum has faced implementation hurdles. As of January 2025, only 35 out of 90 textbook titles for Grades 4 and 7 have been fully delivered. The report also highlights issues with the National Learning Recovery Program (NLRP), noting that learning camps reached only 10% of students needing intervention.
The teacher education and leadership pipeline
EDCOM II identifies significant misalignments in teacher preparation and career progression. A key finding is that 62% of high school teachers teach subjects outside their college major. This mismatch is highest in the physical sciences (98%) and biological sciences (80%).
Career progression and administrative burden
Teachers face slow promotion tracks. It takes an average of 15 years to move from Teacher 1 (Salary Grade 11, Php 27,000) to Teacher 3 (Salary Grade 13, Php 31,320). The recently implemented Expanded Career Progression System aims to address these bottlenecks. While DepEd has created 24,519 Administrative Officer (AO) II positions to relieve teachers of non-teaching tasks, two out of three teachers still work more than 40 hours per week due to ancillary duties.
Shortage of designated school heads
The report identifies a critical shortage in school leadership. Only 45% of public schools have a designated school principal. There are 12,057 schools operating with incorrect school head items, contrary to DepEd policy.
| Position Category | Number of Schools |
|---|
| Schools with Principal | 20,381 |
| Head Teacher only | 13,332 |
| Teacher-in-Charge (TIC) only | 8,916 |
| Officer-in-Charge (OIC) only | 2,337 |
| Undefined | 193 |
The National Qualifying Examination for School Heads
For educators aspiring to leadership roles, the National Qualifying Examination for School Heads (NQESH) remains a significant barrier. The report documents inconsistent administration and low passing rates, which disrupts the leadership pipeline.
Historical NQESH passing rates
| Year | Passing Rate | Assessment Standard |
|---|
| 2016 | 2.22% | NCBSSH |
| 2017 | 24.75% | NCBSSH |
| 2018 | 0.68% | NCBSSH |
| 2021 | 36% | PPSSH |
| 2023 | 26% | PPSSH |
The shift to the Philippine Professional Standards for School Heads (PPSSH) in 2021 aimed to align the exam with modern leadership competencies. However, the 2023 passing rate of 26% reflects a continuing gap in training for candidates. The report suggests that the NQESH is often perceived as excessively challenging, which deters capable candidates from advancing.
Governance reforms and decentralization
EDCOM II argues that the trifocalization of education into DepEd, CHED, and TESDA has created silos that hamper sector-wide planning. While government expenditure per student has increased, it has not translated into improved learning outcomes.
Proposed Cabinet Cluster for Education
To address coordination failures, the Commission proposed the creation of a Cabinet Cluster for Education. This proposal was approved in principle in August 2024. The cluster will include DepEd, CHED, TESDA, DOLE, and DBM, with the following objectives:
- Address the learning crisis immediately.
- Formulate a 10-year National Education and Workforce Development Plan.
- Align agency-level targets and budgets.
School-based management and autonomy
The report advocates for a shift toward decentralization. Analysis shows that improved management practices in schools are linked to gains in student performance. A 1 standard deviation increase in management quality is associated with a 0.2 to 0.4 standard deviation improvement in student scores.
Currently, 94% of public schools are non-implementing units (non-IUs), meaning they cannot receive their school Maintenance and Other Operating Expenses (MOOE) budget directly. These schools must submit monthly cash advance requests to their division offices, leading to delays in the utilization of funds.
Implications for NQESH preparation and school leadership
Aspiring school heads should focus their preparation on the PPSSH, as it is the current assessment standard for the NQESH. The report emphasizes that leadership must move beyond bureaucratic compliance toward a focus on learning outcomes.
- Alignment with PPSSH: Performance evaluations and recruitment processes are being aligned with the five domains of the PPSSH.
- Data-Informed Leadership: The report advocates for the use of the electronic School Form 7 (eSF7) and the Professional Development Information System (PDIS) to track teacher profiles and development needs.
- Instructional Leadership: There is a call for school heads to prioritize foundational literacy and numeracy, especially at Key Stage 1 (Kindergarten to Grade 3).
- Resource Management: Understanding the revised school MOOE formula is essential. The Boncodin formula is being replaced by a normative formula that accounts for 27 variables influencing the cost of school operations.
Analysis of the principal pipeline suggests that the shortage of designated school heads is a binding constraint on decentralization. The report recommends that a principal plantilla position be allocated to every school and that recruitment and appointment processes be streamlined to fill these positions rapidly. The recent 2025 NASH results show that only 25.6% of takers met the standards in at least four domains, highlighting the continued need for targeted professional development.
Insight for school heads
The EDCOM II report underscores that quality of education is not determined solely by the amount of funding but by effective resource utilization and strong leadership. Case studies from Gapan City show that schools in low-resourced contexts can outperform 90% of schools nationwide through effective management and a conducive learning environment. For school heads, this means that exercising agency within the local context is the most direct path to reversing the learning crisis.