EIGHTEENTH CONGRESS OF THE 
REPUBLIC OF THE PHILIPPINES
Third Regular Session
SENATE
S. B. NO. 2387
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71 SEP-6 P4 34
Introduced by SENATOR JOEL VILLANUEVA
AN ACT
INSTITUTIONALIZING THE LIFELONG LEARNING DEVELOPMENT 
FRAMEWORK, BROADENING THE MANDATE OF THE PHILIPPINE 
QUALIFICATIONS FRAMEWORK-NATIONAL COORDINATING 
COUNCIL (PQF-NCC), AMENDING FOR THE PURPOSE REPUBLIC 
ACT NO. 10968, OTHERWISE KNOWN AS THE PHILIPPINE 
QUALIFICATIONS FRAMEWORK ACT, AND APPROPRIATING 
FUNDS THEREFOR
EXPLANATORY NOTE
The International Labour Organization noted that the concept of lifelong 
learning recognized that “whilst the value of initial training was not to be 
discounted, the frontloading of skills through education and training for a 
single lifetime qualification was no longer sufficient, and that education 
and training systems of the future needed to be flexible and prepare 
individuals to learn continuously over their life.”1
In the United Nations (UN) 2030 Agenda for Sustainable 
Development, Goal 4, UN Member States have committed to ensure 
inclusive and equitable quality education and promote lifelong 
opportunities for all.2 Flexible lifelong learning has likewise been 
recognized by the Philippine government as a priority strategy, with a 
special focus on digital skills training.3
1 International Labor Organization, Lifelong Learning: Concepts, Issues, and Actions, available at 
https://vmw.ilo.org/wcmsp5/groups/public/—ed_emp/—
ifp_skills/documents/publication/wcms_711842.pdf (last accessed September 2, 2021).
2 2030 Agenda for Sustainable Development.
3 Updated Philippine Development Plan 2017-2022.


Indeed, while present learning frameworks prioritize the education 
and development of children and young adults to prepare them for the 
future, it is clear that learning is a continuous and lifelong process. There 
is, therefore, a need to establish policies that will provide an enabling 
environment for lifelong learning opportunities to flourish, and to be 
accessible to persons from all walks of life.
This measure requires the development of a Lifelong Learning 
Development Framework, to be developed by the Philippine Qualifications 
Framework-National Coordinating Council (PQF-NCC). The PQF-NCC 
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.
To ensure equitable, inclusive, and accessible lifelong learning 
opportunities, local government units which are designated as Learning 
Cities or Municipalities shall be empowered to take the lead in the 
implementation of this measure within their respective jurisdictions, 
including the establishment and operation of community learning centers. 
For this purpose, LGUs designated as Learning Cities or Municipalities 
shall enjoy additional support and funding to promote their residents’ 
participation in lifelong education.
With the increasingly volatile labor markets and the advent of the 
Fourth Industrial Revolution, this bill ensures that there is be no shortage 
of sources of knowledge that will allow our citizens to better adapt to 
dynamic and ever-changing times.
Thus, the immediate passage of this bill is earnestly sought.
SENATOR/BOEL VILLANUEVA


EIGHTEENTH CONGRESS OF THE 
REPUBLIC OF THE PHILIPPINES
Third Regular Session
' • . i \\ i
)
’21 SEP-6 P4 34
SENATE
2387
S. B. NO.
Introduced by SENATOR JOEL VILLANUEVA
AN ACT
INSTITUTIONALIZING THE LIFELONG LEARNING DEVELOPMENT 
FRAMEWORK, BROADENING THE MANDATE OF THE PHILIPPINE 
QUALIFICATIONS FRAMEWORK-NATIONAL COORDINATING 
COUNCIL (PQF-NCC), AMENDING FOR THE PURPOSE REPUBLIC 
ACT NO. 10968, OTHERWISE KNOWN AS THE PHILIPPINE 
QUALIFICATIONS FRAMEWORK ACT, AND APPROPRIATING 
FUNDS THEREFOR
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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”
SEC. 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 development. The State shall promote universal literacy and 
prescribe the duties of the State in this regard.
SEC. 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 local government units (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 
in the workplace; d) extend the use of modern learning technologies; e)


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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 providing 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, also known as 
lifelong education, encompasses all modes of education and all types of 
systematic educational activities other than regular school curriculum, and all 
other learning attained through different modes;
e) Literacy Education refers to a systematic educational program designed to 
teach adults who are unable to read and write or lack 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.
SEC. 4. Lifelong Learning Development Framework. - A Lifelong Learning 
Development Framework (LLDF) shall be developed by the Philippine Qualifications 
Framework-National Coordinating Council (PQF-NCC) as provided under this Act. The 
LLDF 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.
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


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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, sex, 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 and 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, but not limited to, 
migrant families, to ensure access to education, with the number or 
quality of measures adopted by LGUs 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 only be confined to educational or business settings, but shall also 
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 
indigent families, migrants, people with disabilities, minorities and third- 
age learners, (i) with the availability or presence of LGU legislation to 
support learning in families, (ii) percentage of community members 
participating in community learning activities on a regular basis, and (iii) 
percentage of community members engaging in learning activities in 
their families within twelve (12) months preceding the survey, as success 
measures.
d) Facilitation of learning for and in the workplace. - The following activities and 
corresponding success measures shall fall under this component:


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(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.
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) expanding citizens' 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.
f) 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, 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.
g) 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


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(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.
h) 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. 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 or municipalities, 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 measure.
i) 
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.
j) 
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


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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, experiences and best practice 
between and among organizations in different cities, with the number of 
international or inter-city partnerships and exchanges with other learning 
cities or municipalities or lifelong learning institutions, as success 
measure.
The desired success measures for each component may be amended and 
modified by the PQF-NCC, as it may deem necessary.
SEC. 5. Additional Role and Member of PQF-NCC. - The mandate of the 
Philippine Qualifications Framework - National Coordinating Council (PQF-NCC) 
established by virtue of Republic Act No. 10968, otherwise known as the Philippine 
Qualifications Framework (PQF) Act, is further strengthened to assume the powers 
and functions provided under this Act. In addition to the existing composition of the 
PQF-NCC, the Secretary of the Department of the Interior and Local Government 
(DILG) shall also be a member of the PQF-NCC.
For the avoidance of doubt, all members of the PQF-NCC may designate their 
respective representatives to the PQF-NCC, whose rank shall not be lower than 
Assistant Secretary or its equivalent.
SEC. 6. Additional Powers and Functions of the PQF-NCC. - In addition to 
its mandate under the PQF Act, the PQF-NCC 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;
(b) Implement the Philippine Credit Transfer System (PCTS) and the Philippine 
Qualifications Register (PhQuar);
(c) 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;
(d) Develop guidelines for using the action components to assess if a city or 
municipality will qualify for designation as a learning city or municipality;


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(e) 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;
(f) Review the master plan and work with the LGUs in the mandatory 
implementation and execution of the master plan;
(g) Include in its annual report to the Office of the President, the Senate of the 
Philippines, and the House of Representatives a 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.
SEC. 7. Lifelong Learning Master Plan. - Within six (6) months from the 
effectivity of this Act, the PQF-NCC 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 PQF-NCC 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.
SEC. 8. Designation of Learning Cities or Municipalities. - The PQF-NCC 
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 or Municipality shall enjoy additional support and 
funding for the following:
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 community learning centers (CLCs); and
e) Other projects to be conducted for the promotion of citizens' participation in 
lifelong education.


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SEC. 9. Functions of Learning Cities or Municipalities. - Heads of LGUs 
designated as Learning Cities or Municipalities, in coordination the PQF-NCC, 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 
such institutions, the LGU shall, in coordination with the PQF-NCC, conduct trainings 
necessary to upgrade the capabilities of persons and institutions engaged in lifelong 
learning activities.
The LGUs designated as Learning Cities or Municipalities shall undertake the 
following;
a)
b)
c)
d)
Provide opportunities, counseling, and information on lifelong learning: 
Support the operation of lifelong learning programs;
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 
Provide lifelong learning opportunities for residents within their jurisdictions.
SEC. 10. 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 persons with disabilities. For the 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 its annual budget the necessary 
amount to subsidize the continued operation of lifelong educational institutions and 
other related activities.
SEC. 11. Literacy Education Programs. - The State and the LGUs shall 
endeavor to enhance basic capabilities of all Filipinos, by, among others, developing 
and promoting adult literacy programs, which shall be offered in designated schools 
within the learning cities or municipalities. This shall be done 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. 7165, Otherwise Known as "An Act Creating 
the Literacy Coordinating Council, Defining its Powers and Functions, Appropriating 
Funds Therefor and for Other Purposes".
SEC. 12. 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.


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The employers are also encouraged to provide scholarships and incentives to 
their employees who wish to pursue lifelong learning activities.
SEC. 13. 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.
SEC. 14. Appropriations. - The Special Education Fund created under the 
Local Government Code shall also be used to fund the objectives of this Act. In 
addition, the amount necessary for the initial implementation of this Act shall be 
sourced from the current budgets of the concerned agencies and/or LGUs. Thereafter, 
the concerned agencies shall include in its annual budget such appropriations as may 
be necessary to subsidize the continued operation of the lifelong learning institutions 
and other related activities.
SEC. 15. Implementing Rules and Regulations. - Within sixty (60) days from 
the approval of this Act, the PQF-NCC shall, in coordination with other concerned 
government agencies and civil society organizations, formulate and issue the 
necessary rules and regulations to implement the provisions of this Act.
SEC. 16. 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.
SEC. 17. Repealing Clause. - The relevant provisions of the PQF Act are 
hereby amended to conform with the provisions of this Act. Section 272 of the Local 
Government Code of 1991 shall also be amended In accordance with the provisions 
of this Act.
All other laws, presidential decrees, executive orders, and rules and regulations 
contrary to or inconsistent with the provisions of this Act are repealed or modified 
accordingly.
SEC. 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,