Republic of the Philippines 
HOUSE OF REPRESENTATIVES 
Quezon City 
NINETEENTH CONGRESS 
First Regular Session 
HOUSE BILL NO. ____ 
Introduced by HON. LUIS RAYMUND “LRAY” F. VILLAFUERTE, JR.,  
HON. MIGUEL LUIS R. VILLAFUERTE, HON. TSUYOSHI ANTHONY G. 
HORIBATA AND HON. NICOLAS “NICK” C. ENCISO VIII 
EXPLANATORY NOTE 
Article II, Section 17 of the 1987 Constitution declares that the State shall give priority 
to education, among others, to foster patriotism and nationalism, accelerate social 
progress, and promote total human liberation and development. The State also 
recognizes the significance of ensuring quality education at all levels especially with 
worrisome world rankings of Filipino learners. This dilemma, further, may transcend to 
the poor quality of professionals that our country produces that makes it imperative for 
the State to ensure continuous skills training of its citizens, especially the workforce.  
However, the Philippines has been one of the countries engaged in the United Nations 
Educational, Scientific and Cultural Organization (UNESCO) Institute for Lifelong 
Learning (UIL). UIL continues to strengthen the capacities of Member States to build 
effective and inclusive lifelong learning policies and systems, in line with Sustainable 
Development Goal 4. This initiative aims to develop learning ecosystems working 
across life in every setting to benefit everyone through capacity building both at local 
and national levels, strengthening partnerships, and offering data and knowledge.1 
To strengthen these current efforts, this bill aims to establish the Lifelong Learning 
Development Framework (LLDF) in cities, municipalities, and lifelong learning 
institutions which shall describe and set standards for the development of action 
components and desirable success measures for the promotion and implementation 
of lifelong learning in the country. This bill also seeks to create the Lifelong Learning 
Development Council which shall be primarily responsible in implementing the LLDF 
through (1) promotion of literacy at all levels of the society, (2) inclusive learning in the 
educational system, (3) revitalization of learning in families and communities, 
1 https://www.uil.unesco.org/en 
August 23, 2022
2:00 pm
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(4) facilitation of learning for and in the workplace, and (5) extension of the use of 
modern learning technologies. The Council is also responsible in designating learning 
cities or municipalities and providing for its guidelines. This bill also endeavors to 
enhance basic capabilities including literacy for adults and encourage lifelong learning 
in private enterprises. 
 
In view of the foregoing, the passage of this bill is earnestly sought.  
 
 
 
 
 
 
 
 
 
 
 
 
 
LUIS RAYMUND “LRAY” F. VILLAFUERTE, JR.             MIGUEL LUIS R. VILLAFUERTE   
 
 
 
 
 
 
 
 
 
 
 
 
 
TSUYOSHI ANTHONY G. HORIBATA  
 
 
NICOLAS “NICK” C. ENCISO VIII 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 


3
Republic of the Philippines 
HOUSE OF REPRESENTATIVES 
Quezon City 
NINETEENTH CONGRESS 
First Regular Session 
HOUSE BILL NO. ____ 
Introduced by HON. LUIS RAYMUND “LRAY” F. VILLAFUERTE, JR.,  
HON. MIGUEL LUIS R. VILLAFUERTE, HON. TSUYOSHI ANTHONY G. 
HORIBATA AND HON. NICOLAS “NICK” C. ENCISO VIII 
AN ACT  
INSTITUTIONALIZING THE LIFELONG LEARNING DEVELOPMENT 
FRAMEWORK, CREATING A LIFELONG LEARNING DEVELOPMENT COUNCIL, 
AND APPROPRIATING FUNDS THEREFOR 
Be it enacted by the Senate and House of Representatives of the Philippines in 
Congress assembled: 
SECTION 1. Short Title. – This Act shall be known as “The Lifelong Learning 
Development Framework (LLDF) Act.” 
SECTION 2. Declaration of Policy. – It is hereby declared the policy of the State to 
create an environment free of poverty, hunger, violence, and war; and to ensure 
equity, inclusion, and a healthy environment for everyone. To this end, the State shall 
promote lifelong learning as a means to achieve a more sustainable development and 
thus promote national security. The State shall promote universal literacy and 
prescribe the duties of the State in this regard. 
SECTION 3. Definition of Terms. – As used in this Act: 
a)
Community Learning Center (CLC) refers to a venue outside the formal
education system established and managed by LGUs to provide lifelong learning
opportunities for community development and improvement of the quality of life.
b)
Learning City or Municipality refers to a city or municipality which effectively
mobilizes its resources to: (a) promote inclusive learning in all education levels;
(b) encourage learning in families and communities; c) facilitate learning for and
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in the workplace; d) extend the use of modern learning technologies;  
e) enhance quality and pursuit of excellence in learning; and f) foster a culture of 
learning throughout life; 
c) 
Lifelong Educational Institution refers to any establishment, corporation, 
organization, or public or private teaching institution established mainly for 
lifelong education or provide lifelong vocational training or offering 
supplementary education for school curricula. It shall also refer to a center or an 
office attached to an existing educational institution that offers lifelong education 
to persons other than its regular students; 
d) 
Lifelong Learning refers to a philosophy that recognizes learning as a continuum 
and not confined to a particular period in life nor the school system but takes 
place everywhere, at all stages of life. As a conceptual framework and organizing 
principle for educational policy, lifelong learning, which is also known as lifelong 
education, encompasses all modes of education and all types of systematic 
educational activities other than regular school curriculum, including 
supplementary education, graduate studies and all forms of continuing 
education, basic literacy education for adults, ability enhancement education, 
culture and art education, book reading clubs, and citizen’s participation 
education; 
e) 
Literacy Education refers to a systematic educational program designed to teach 
adults who are unable to read and write or lack of the necessary skills needed 
for early or basic literacy and other forms of media, digital, financial, legal and 
health literacy; and 
f) 
Tertiary Education refers to the stage of education following the secondary cycle 
which 
covers 
post-secondary 
nondegree 
diploma, 
technical-vocational 
education and training, and higher education programs, including graduate 
education. 
 
SECTION 4. Lifelong Learning Development Framework. – A lifelong Learning 
Development Framework (LLDF), which shall describe and set standards for the 
development of action components and desirable success measures for the promotion 
and implementation of lifelong learning in cities, municipalities and lifelong educational 
institutions, shall be established by the Lifelong Learning Development Council 
created under this Act. 


 
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The LLDF shall have the following objectives:  
a) Promote literacy at all levels of society; 
b) Promote inclusive learning in the educational system; 
c) Revitalize learning in families and communities; 
d) Facilitate learning for and in the workplace; 
e) Extend the use of modern learning technologies; 
f) Enhance the quality of learning; and 
g) Foster a culture of learning throughout life. 
The action components and corresponding success measures shall include the 
following: 
(a) Promotion of Literacy at all levels of society. – This component upholds 
the importance of promoting literacy for all. The activities under this component 
shall include those that ensure for every citizen the opportunity to become literate 
and obtain basic skills. The corresponding success measure for this action 
component shall be adult literacy rate. 
 
(b) Promotion of inclusive learning in the educational system. – No person 
regardless of ability, gender and sexuality, social background, language, 
ethnicity, religion or culture shall be excluded from participating in the educational 
system. The activities under this component and their corresponding success 
measures shall include the following: 
(1)  Expanding access to early childhood care education, with net 
enrolment rate in pre-primary education, as success measure; 
(2)  Expanding access to formal education from primary to tertiary level, 
with average number of years of formal schooling received by people 
aged twenty-five (25) and older, as success measure; 
(3)  Expanding access to and participation in adult education and 
technical-vocational education and training, with percentage of 
citizens aged twenty-five to sixty-four (25-64) who reported receiving 
education or training in the twelve (12) months preceding the survey, 
as success measure; 
(4)  Providing support for marginalized groups, including migrant families, 
to ensure access to education, with the number or quality of measures 


 
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adopted by the LGU authorities to support learners from indigenous 
peoples and disadvantaged backgrounds, as success measure; and 
(5)  Assigning qualified professional individuals to assist persons with 
disabilities to be able to adapt and cope while being integrated in the 
education system, with the number of learners with disabilities who re-
enroll or remain in schools, as success measure. 
 
c) Revitalization of learning in families and communities. – Lifelong learning 
shall not be confined to educational or business settings, but shall include 
learning within families and local communities. This learning shall have the 
following activities and corresponding success measures: 
(1)  establishing community-based learning spaces and providing 
resources for learning in families and communities, with the number 
of functional barangay-based infrastructure or spaces dedicated to 
lifelong learning, as success measure; and 
(2)  motivating people to participate in family and community learning, 
giving special attention to vulnerable and disadvantaged groups, such 
as families in need, migrants, people with disabilities, minorities and 
third-age learners, with the availability or presence of LGU legislation 
to support learning in families, percentage of community members 
participating in community learning activities on a regular basis, and 
percentage of community members engaging in learning activities in 
their families within twelve (12) months preceding the survey, as 
success measure. 
 
(d) Facilitation of learning for and in the workplace. – The following activities 
and corresponding success measures shall fall under this component: 
(1)  ensuring that all members of the workforce have access to a broad 
array of learning opportunities, with employees’ participation rate in 
job-related education and training, as success measure; and 
(2) 
providing appropriate learning opportunities for unemployed youths 
and adults, with percentage of the unemployed enrolled in various 
employment or entrepreneurship training programs offered in the city 
or municipality, as success measure. 


 
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(e) Extension of the use of modern learning technologies. – Cities or 
municipalities shall enable all citizens to use the information and communication 
technologies (ICT), particularly the internet, for learning and self-empowerment. 
The activities and corresponding success measures under this component shall 
include the following: 
(1)  training administrators, teachers and educators to use technologies 
that enhance learning, with the percentage of teachers or educators 
who have received ICT training in the last twelve (12) months, as 
success measure; and 
(2)  city partnerships and exchanges with other learning cities or 
municipalities or lifelong institutions, as success measures. 
 
 
The desired success measures for each component may be amended and modified 
by the Lifelong Learning Development Council, as it may deem necessary. 
 
SECTION 5. Lifelong Learning Development Council. – There is hereby created a 
Lifelong Learning Development Council, hereinafter referred to as the Council, which 
shall be under the Office of the President. It shall be composed of the Secretary of the 
Department of Education (DepEd), as Chairperson, and with the following, as 
members: 
a) Secretary of the Department of the Interior and Local Government (DILG); 
b) Chairperson of the Commission on Higher Education (CHED); and 
c) Director General of the Technical Education and Skills Development Authority 
(TESDA) 
 
The Chairperson and members of the council may designate their respective 
representatives to the Council, whose rank shall not be lower than Assistant Secretary 
or its equivalent. 
 
SECTION 6. Powers and Functions of the Council. – The Council shall have the 
following specific powers and functions: 
(a)  Formulate, implement, review, and amend the LLDF, including the action 
components and success measures for the effective implementation of this Act; 


 
8
(b)  Designate a particular city or municipality as a Learning City or Municipality 
based on its proven capacity to carry out the component activities and attain the 
success measures; 
(c)  Develop guidelines for using the action components to assess if a city or 
municipality will qualify for designation as a learning city or municipality; 
(d)  Formulate a master plan, in consultation with other relevant government 
agencies, for the promotion of lifelong learning and the designation of learning 
cities or municipalities, and to implement or execute the same; 
(e)  Review the masterplan and work with the LGUs in the mandatory implementation 
and execution of the master plan; 
(f)  
Organize a secretariat and determine the staffing pattern, qualifications, duties 
and responsibilities of the secretariat, as well as the compensation for the 
positions to be created in accordance with the existing rules and regulations of 
the Civil Service Commission (CSC) and Republic Act No. 11466 or the “Salary 
Standardization Law (SSL) of 2019”; 
(g)  Submit annually to the Office of the President, the Senate of the Philippines, and 
the House of Representatives an updated report on the progress and 
accomplishments in relation to the LLDF; and 
(h)  Perform such other functions that may be related to the implementation of the 
LLDF. 
 
SECTION 7. Council Secretariat. – The Council shall organize a secretariat to be 
headed by a Chief of Office. The Council shall determine the staffing pattern, 
qualifications, duties and responsibilities of the secretariat, as well as the 
compensation for the positions to be created in accordance with the existing rules and 
regulations of the CSC and the SSL. 
 
The secretariat shall hold office at such place as may be determined by the Council. 
Pending the formal organization of the secretariat, the Council members may 
designate personnel from their respective offices to temporarily discharge the 
functions of the secretariat. 
 
 


 
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SECTION 8. Lifelong Learning Master Plan. – Within six (6) months from the 
effectivity of this Act. The Council shall draw a master plan for the promotion of lifelong 
learning and the designation of learning cities or municipalities. 
 
The master plan shall be subject to review every five (5) years and shall include the 
following: 
a) 
Medium and long-term policy objectives and basic direction for lifelong 
learning promotion and the establishment of learning cities or 
municipalities; 
b) 
Implementation of lifelong learning activities and guidelines for the funding 
of lifelong educational institutions; 
c) 
Investment plans and budgetary requirements for the promotion and 
expansion of lifelong educational institutions and learning cities or 
municipalities; and 
d) 
Guidelines for the evaluation of lifelong education programs and learning 
cities or municipalities. 
 
The Council may consult other relevant government agencies in the formulation of the 
master plan. It shall also work with the LGUs in the mandatory implementation and 
execution of the master plan. 
 
 
SECTION 9. Designation of Learning Cities of Municipalities. – The Council shall 
designate a city or municipality as a Learning City or Learning Municipality based on 
its proven capacity to carry out the component activities and attain the success 
measures in accordance with the provisions of this Act. It shall also develop guidelines 
for using the action components to assess if a city or municipality may qualify for 
designation as a learning city or municipality. 
 
A designated Learning City of Municipality shall enjoy additional support and funding 
for the following: 
(2) expanding citizen’s access to ICT tools and learning programs, with the 
percentage of teachers or educators who use ICT on a regular basis for class 
activities in schools and other lifelong learning spaces, as success measure. 


 
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a) Enhancement of quality learning. – The following activities and 
corresponding success measures shall fall under this component: 
(1) promoting a paradigm shift from teaching to learning, and from the 
mere acquisition of information to the development of creativity and 
learning skills, with the presence of LGU initiatives to promote the 
development of creativity and learning skills through the formal teaching 
curriculum, as success measure; 
(2) employing appropriately trained administrators, teachers and 
educators, with the availability of appropriately trained teachers or 
educators, as success measure; and 
(3) fostering an environment in which learners have, as far as 
practicable, ownership of their own learning, with ratio of students to 
teachers in pre-primary, primary, secondary, and adult and continuing 
education, as success measure. 
 
b) Fostering of a culture of learning throughout life. – The following activities 
and corresponding success measures shall fall under this component: 
(1) organizing and supporting public events that encourage and 
celebrate learning with the existence of public activities such as adult 
learning week and learning festivals, and use of all media to promote 
and celebrate learning, as success measure; 
(2) providing adequate information, guidance and support to all citizens, 
and stimulating them to learn through diverse pathways, with the 
percentage of learners satisfied with the provision of information and 
counselling to learners, as success measure; and 
(3) acknowledging the importance of learning in informal and non-formal 
settings and developing systems that recognize and reward all forms of 
learning, with the availability of LGU ordinance and practice of 
recognizing, validating, and accrediting all learning outcomes, as 
success measure. 
 
(c) Strengthening of political will and commitment. – Elected officials and 
administrators shall have the primary responsibility of committing political 
resources to realizing the vision of a learning city because it takes strong 


 
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political will and commitment to successfully build a learning city or 
municipality. The following activities and their corresponding success 
measures shall fall under this component: 
(1) demonstrating strong political leadership and making a steadfast 
commitment to turning LGUs into learning cities, with the strength and 
commitment 
of 
leadership 
demonstrated 
in 
developing 
and 
implementing the learning city strategy as evidenced by qualitative 
validation, as success measure; 
(2) developing and implementing well-grounded and participatory 
strategies for promoting lifelong learning for all, through policies and 
strategies to promote lifelong learning adopted by the city or municipal 
council, as success measures; and 
(3) consistent monitoring of progress towards becoming a learning city 
or municipality, with initiatives adopted by the local authorities to monitor 
progress in developing and implementing the learning city or municipality 
strategy, as success measures. 
 
d) Improvement of governance and participation of all stakeholders. – All 
sectors of society shall have a key role in learning and education and shall 
participate in building learning cities or municipalities. The activities and 
corresponding success measures under this component shall include the 
following: 
(1) establishing inter-sectoral coordination mechanisms to involve 
governmental and nongovernmental organizations and the private 
sector in building learning cities or municipalities, with effectiveness to 
encourage stakeholder mobilization and coordination in developing 
learning cities, as success measure; and 
(2) encouraging all stakeholders to provide quality learning opportunities 
and to make their own unique contribution to building a learning city or 
municipality, with stakeholders’ commitment, plans and actions to 
develop better and more accessible learning opportunities within their 
areas of responsibility and the existence of partnerships and cooperation 
between the city and the private sectors to support the learning city 
strategy, as success measure. 


 
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(e) Boosting of resource mobilization and utilization. – The following activities 
and corresponding success measures shall fall under this component: 
(1) encouraging greater financial investment in lifelong learning by 
government, civil society, private sector organizations and individuals, 
with public expenditure on education and learning as a percentage of the 
total city budget, percentage of public education expenditure spent at 
different levels or types of education, as success measure; 
(2) making effective use of the learning resources of all stakeholders and 
developing innovative funding mechanisms to support lifelong learning 
for all, with innovative initiatives of mapping and utilizing human, 
financial, cultural and other resources available to the city to facilitate 
learning in the city, as success measure; 
(3) adopting pro-poor funding policies and providing various types of 
support to disadvantaged groups, with the allocation and effective use 
of funds to support the participation of disadvantaged groups in learning, 
as success measure; 
(4) encouraging citizens to contribute their talents, skills, knowledge and 
experience on a voluntary basis, with the citizens’ contribution to helping 
other citizens, as success measure; and 
(5) encouraging the exchange of ideas, experience and best practice 
between and among organizations in different cities, with the number of 
international or inter- 
a) Establishment and operation of lifelong educational institutions; 
b) Cultivation and posting of certified lifelong education teachers; 
c) Development of lifelong education programs; 
d) Establishment of CLCs; and 
e) Other projects to be conducted for the promotion of citizens’ 
participation in lifelong education. 
 
SECTION 10. Functions of Learning Cities or Municipalities. – Heads of LGUs 
designated as Learning Cities or Municipalities, in coordination with the Council, shall 
be required to guide and support activities for the promotion of lifelong learning, 
whether initiated by the LGU or private lifelong educational institutions. If requested by 


 
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such institutions, the LGU shall, in coordination with the Council, conduct trainings 
necessary to upgrade the capabilities of persons and institutions engaged in lifelong 
learning activities. 
 
The LGUs designated as Learning Cities or Municipalities are likewise mandated to 
comply with the following: 
a) 
Provide opportunities, counselling and information of lifelong learning; 
b) 
Support the operation of lifelong learning programs; 
c) 
Establish and operate CLCs to foster the implementation of lifelong educational 
programs and provide all persons, especially the underprivileged, access to 
information and communications technologies for e-learning, blended, distance 
or open learning; and 
d) 
Provide lifelong learning opportunities for residents within their jurisdictions. 
 
SECTION 11. Support and Subsidy for Lifelong Educational institutions. – The 
heads of educational institutions offering lifelong learning shall submit an annual report 
to the appropriate government agency which has jurisdiction over them, detailing the 
programs offered, number of attendees, and other relevant data necessary to assess 
the success of the lifelong learning program. 
 
The LGU shall appropriate an amount to ensure and guarantee that lifelong learning 
in its jurisdiction shall be free and accessible to all residents, including migrants, senior 
citizens and people with disabilities. For purposes of this Act, such amount shall be 
taken from the Special Education Fund (SEF) under Republic Act No. 7160, otherwise 
known as the “Local Government Code of 1991”. The appropriate government agency 
shall include in educational institutions and other related activities. 
 
SECTION 12. Literacy Education Program. – The State and the LGUs shall 
endeavor to enhance basic capabilities including literacy for adults. Literacy education 
programs for adults shall be offered in designated schools within the learning cities or 
municipalities nationwide, in coordination with the Literacy Coordinating Council 
created under Republic Act No. 7165, as amended by Republic Act No. 10122, entitled 
“An Act Strengthening the Literacy Coordinating Council by Amending Republic Act 
No. 715, Otherwise Known as “An Act Creating the Literacy Coordinating Council, 


 
14
Defining its Powers and Functions, Appropriating Funds Therefor and for Other 
Purposes”. 
 
SECTION 13. Lifelong Learning in Private Enterprises. – Private corporations, 
institutions, workplaces and other similar establishments are encouraged to provide 
lifelong learning to their employees, conduct activities for its promotion, and give 
consideration to employees who enroll in graduate studies or in any form of lifelong 
learning and continuing education by allowing revised schedules and workloads 
without necessarily sacrificing the quality of work. 
 
The employers are also encouraged to provide scholarships and incentives to their 
employees who wish to pursue lifelong learning activities. 
 
 
SECTION 14. Guidelines. – The following guidelines shall be respected at all times: 
a) 
All citizens shall be guaranteed equal opportunities for lifelong learning; 
b) 
Lifelong learning shall be conducted based on the willingness of the learner to 
participate and study voluntarily; and 
c) 
Lifelong learning shall not be exploited as a tool for political propaganda or 
personal prejudices. 
 
SECTION 15. Appropriations. – The amount necessary for the immediate 
implementation of this Act shall be included in the annual General Appropriations Act. 
 
SECTION 16. Implementing Rules and Regulations. – Within sixty (60) days from 
the approval of this Act, the DepEd, CHED and TESDA shall, in coordination with the 
DILG and other concerned government agencies and civil society organizations, 
formulate and issue the necessary rules and regulations to implement the provisions 
of this Act. 
 
SECTION 17. Separability Clause. – If, for any reason, any part or provision of this 
Act is declared invalid or unconstitutional, the remaining parts or provisions not 
affected shall remain in full force and effect. 
 


 
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SECTION 18. Repealing Clause. – Section 272 of Republic Act No. 7160 shall be 
amended to include the purpose of this Act to the allocation of the SEF. All laws, 
presidential decrees, executive orders, rules and regulations contrary to or 
inconsistent with the provisions of this Act are repealed of modified accordingly. 
SECTION 19. Effectivity. – This Act shall take effect fifteen (15) days after its 
publication in the Official Gazette or in a newspaper of general circulation. 
 
Approved,