TWENTIETH CONGRESS OF THE 
REPUBLIC OF THE PHILIPPINES 
First Regular Session
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25 JIJL 15 PI :43
SENATE
S.B. No. 628
m-ai.-D liv:
Introduced by SENATOR WIN GATCHALIAN
AN ACT
RENAMING THE LITERACY COORDINATING COUNCIL TO THE 
NATIONAL LITERACY COUNCIL, STRENGTHENING ITS POWERS AND 
FUNCTIONS, STREAMLINING ITS MEMBERSHIP STRUCTURE, 
PROVIDING ITS LOCAL SUPPORT MECHANISMS, REPEALING FOR THE 
PURPOSE REPUBLIC ACT NO. 7165, AS AMENDED, AND 
APPROPRIATING FUNDS THEREFOR
EXPLANATORY NOTE
The Literacy Coordinating Council (LCC) was established on November 
25, 1991 under Republic Act (R.A.) No. 71651 which mandates the LCC to act 
as the primary agency that would spearhead the formulation of policies and 
programs to eradicate illiteracy in the country. Almost two decades later on 
May 27, 2010, R.A. No. 101222 was enacted to strengthen the LCC by adding 
to its functions the following: (1) engagement of services, expertise and 
resources for the cooperation, assistance, and support of appropriate 
government agencies or NGOs involved in literacy; (2) formulation of policies
1 Otherwise known as “An Act Creating the Literacy Coordinating Council, Defining its Powers 
and Functions, Appropriating Funds Therefor, and for Other Purposes”
2 Otherwise known as “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”
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towards maximizing public and private sector support and involvement on 
literacy endeavors; and (3) proposing measures on how to organize and 
strengthen support structures for literacy at the regional, provincial, city, 
municipal and barangay levels.
Notwithstanding these enactments, however, the latest numbers from 
the Philippine Statistics Authority show that the universalization of literacy 
in the country has not been achieved despite three decades since the 
enactment of R.A. No. 7165. Based on a preliminary analysis of the 2024 
Functional Literacy, Education and Mass Media Survey (FLEMMS), 93.1% of 
the population aged 10 to 64 years old is considered basically literate. This 
implies that 6.9%, or approximately 5.87 million Filipinos within the same 
age group, are not basically literate—meaning they are unable to read and 
write a simple message with understanding, or are unable to perform basic 
mathematical operations. Furthermore, only 70.8% of individuals aged 10 to 
64 years old are functionally literate. Conversely, this means that 29.2%, or 
about 24.8 million Filipinos in the same age group, lack the ability to apply 
higher-order comprehension skills which requires them to integrate two or 
more pieces of information and draw inferences from the given content.
Apart from these literacy concerns, issues on the decline in the quality 
of education in the country, observed by the first Congressional Commission 
on Education (EDCOM) thirty years ago, also continue to this day.3
3 Compared to the 2018 cycle of the Programme for International Student Assessment (PISA), 
Filipino learners showed no significant improvement in the 2022 round. Among the 81 
participating countries, the Philippines ranked 79th in Science, 75th in Mathematics, and 
76th in Reading. Similarly, results from the 2019 Southeast Asia Primary Learning Metrics 
(SEA-PLM) revealed that Grade 5 Filipino learners failed to meet the minimum proficiency 
standards in Reading, Writing, and Mathematics. Furthermore, results from the 2019 Trends 
in International Mathematics and Science Study (TIMSS) indicated that Grade 4 Filipino 
learners obtained the lowest scores among the 58 participating countries in both Science and 
Mathematics.


This bill proposes to repeal R.A. No. 7165 by strengthening the LCC’s 
powers and functions, and more importantly streamlines its membership 
structure to align the fulfillment of its mandate with the following recent laws 
that seek to achieve the universalization of literacy as one of their goals: 1) 
R.A. No. 11510 or the “Alternative Learning System Act” (ALS Act) which 
provides a practical option to the existing formal instruction, including both 
non-formal and informal sources of knowledge and skills, to improve access 
to education and other learning opportunities and raise the level of literacy to 
contribute to an individual’s sustainable future; and 2) R.A. No. 11315 or the 
“Community-Based Monitoring System Act” (CBMS Act) which builds the 
capabilities of LGUs and communities in creating databases at the local level 
to provide useful information for the design, targeting and impact monitoring 
of poverty reduction programs and development initiatives, such as the 
universalization of literacy, at the national level. Thus, with the 
institutionalization of ALS, this bill proposes to transfer the current LCC 
secretariat to the Bureau of Alternative Education for administrative and 
technical support. Further, to complement and maximize the CBMS, it 
proposes to mobilize local government units by establishing the Local School 
Boards (LSBs) as the de facto local literacy councils to provide the local 
support ecosystem for the newly renamed National Literacy Council.
Finally, this legislation mandates the Council to formulate a three-year 
roadmap that shall incorporate strategies to achieve zero illiteracy, with 
relevant measurable targets and indicators for the introduction of 
interventions grounded in empirical results. A parallel framework shall be 
mirrored at the local level where the LSBs shall formulate a local roadmap, 
anchored on the Council’s three-year roadmap, to guide their local strategies 
in achieving zero illiteracy in the community.
I earnestly seek the immediate passage of this bill as we recognize the 
limitations of the law that it aims to repeal, and acknowledge the imperative


for a more radical reform to enable every advocate 
to fulfill the vision of literacy for all.
^akeholder of literacy
IN GATCHAL


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TWENTIETH CONGRESS OF THE 
REPUBLIC OF THE PHILIPPINES 
First Regular Session
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’i" 
■-
1’ of
25 JUL15 PI :43
SENATE
S.B. No. 628
RliCElVEO BY:
Introduced by SENATOR WIN GATCHALIAN
AN ACT
RENAMING THE LITERACY COORDINATING COUNCIL TO THE 
NATIONAL LITERACY COUNCIL, STRENGTHENING ITS POWERS AND 
FUNCTIONS, STREAMLINING ITS MEMBERSHIP STRUCTURE, 
PROVIDING ITS LOCAL SUPPORT MECHANISMS, REPEALING FOR THE 
PURPOSE REPUBLIC ACT NO. 7165, AS AMENDED, 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 “National Literacy 
Council Act”.
Sec. 2. Declaration of Policy. - Pursuant to Article II, Section 17 of the 
1987 Constitution, it is hereby declared the policy of the State to give priority 
to education to foster patriotism and nationalism, accelerate social progress, 
and promote total human liberation and development. Article XIV, Section 
2(4) likewise mandates the State to encourage non-formal, informal, and 
indigenous learning systems, as well as self-learning, independent, and out- 
of-school study programs particularly those that respond to community 
needs.


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To this end, the State shall give priority to the adoption of measures for
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the universalization of literacy.
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Sec. 3. Renaming of the Literacy Coordinating Council. - The name of the
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Literacy Coordinating Council (LCC), established pursuant to Republic Act
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(R.A.) No. 7165, as amended, is hereby changed to National Literacy Council,
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hereinafter referred to in this Act as the “Council”.
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The Council shall serve as the lead inter-agency coordinating and
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advisory body to the various National Government Agencies (NGAs), the Local
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Government Units (LGUs), and the private sector on matters pertaining to the
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formulation of policies and the adoption and implementation of measures for
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the universalization of literacy.
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The Council shall be attached to the Department of Education (DepEd).
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Sec. 4. Composition of the Council. - The Council shall be governed by
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the following;
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(a) The Secretaries of Education and the Interior and Local Government,
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as Co-Chairpersons, 
who may designate their 
respective
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undersecretaries as permanent representatives;
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(b) The National Statistician and Civil Registrar General of the
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Philippine Statistics 
Authority (PSA) or a duly 
designated
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representative;
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(c) The Director of the Bureau of Alternative Education (BAE) of the
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DepEd;
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(d) The President of the Union of Local Authorities of the Philippines;
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and
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(e) One (1) representative from the non-government organizations
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(NGOs).
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The NGO representative must be a citizen of the Philippines with
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demonstrated personal or professional commitment and advocacy in the
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propagation of literacy.


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Through the adoption of a resolution, the Council shall approve and
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confirm the election of the NGO representative who shall serve for a term of
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three (3) years, subject to reappointment on the basis of merit and
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performance.
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Sec. 5. Council Meetings. - The Council shall conduct its regular
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meetings quarterly and may hold special meetings to consider urgent matters
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upon the call of the Chairperson or a majority of its members.
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The Council shall meet at any agreed location within the Philippines,
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and the presence of a majority of all its incumbent members shall constitute
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a quorum.
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The members of the Council shall serve without compensation, but
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shall be entitled to an appropriate honorarium for attendance at meetings as
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well as reasonable allowances and reimbursement of expenses related to their
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participation in the official activities of the Council, in accordance with
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pertinent laws, rules and regulations.
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The duly designated representatives to the Council shall be afforded
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equal opportunity to vote and participate in any deliberation during meetings
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of the Council. They shall likewise be afforded, whenever necessary,
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reimbursement of any actual expenses incurred during the performance of
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Council-related functions and duties, subject to the provisions of existing
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laws, rules, and regulations.
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Sec. 6. Powers and Functions of the Council. - The Council shall exercise
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the following powers and functions:
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(a) Act as the lead advisory and coordinating body of the government
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and initiate, promote and recommend the adoption of policies for all
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literacy endeavors in the country, as well as the formulation of
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legislative agenda related to literacy;
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(b) Formulate a three-year roadmap that shall incorporate strategies on
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how to achieve zero illiteracy, including relevant measurable targets


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and indicators for the introduction of interventions that are based 
on empirical results, and which shall be subject to annual review 
and updating to determine its implementation status and ensure 
that the objectives of this Act are achieved;
(c) Set up and adopt schemes on how to organize and strengthen 
support structures for the LGUs identified as literacy advocates at 
the provincial, city, municipal, and barangay levels, including the 
adoption of strategies to maximize private sector support, 
cooperation and involvement on literacy programs, projects, and 
other related activities;
(d) Promote and coordinate with NGAs, LGUs, NGOs, and academic 
institutions on matters concerning local community literacy 
mapping activities, consistent with the local generation and mapping 
of data related to education under R.A. No. 11510, otherwise known 
as the Alternative Learning System Act”, and come up with a 
database for out-of-school children, youth and adults, including 
persons with disabilities, indigenous peoples, and other 
marginalized and vulnerable members of society, who may not have 
availed of or completed their basic education and in need of 
intervention and support;
(e) Coordinate with the PSA for the regular conduct of literacy surveys, 
such as the Functional Literacy Education and Mass Media Survey 
(FLEMMS), every two years pursuant to Section 9 of this Act;
(f) Evaluate the literacy situation in the country, propose ways and 
means for expanding educational opportunities to citizens of varied 
socio-economic origins, and adopt modern communications 
technology and other innovative modes of transmitting knowledge to 
support literacy endeavors at the national and local levels;
(g) Promote and support initiatives for the conduct of research studies 
and similar undertakings aimed at enhancing and strengthening the 
crafting of relevant and timely policy recommendations and for the


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effective implementation of literacy-related programs, projects, and
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other activities;
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(h) Organize periodic assemblies such as, among others, literacy
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conferences and awards, discover and help strengthen good literacy
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practices, and engage close partnerships with literacy advocates
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throughout the country; and
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(i) Perform such other functions as may be necessary in furtherance of
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the purposes of this Act.
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Sec. 7. The Secretariat. - The BAE shall provide secretariat support and
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render the following administrative support and technical assistance to the
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Council:
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(a) Prepare policy recommendations, plans, and other Council priorities
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and measures necessary for the advancement of basic and
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functional literacy, and other basic capabilities of out-of-school
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children, youth and adults, including persons with disabilities,
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indigenous peoples, and other marginalized and vulnerable
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members of society, who may not have availed of or completed their
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basic education and in need of intervention and support;
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(b) Consult and coordinate with NGAs, LGUs, NGOs, academic
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institutions, and other stakeholders on matters relating to the
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functions of the Council and other matters pertaining to the
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propagation of literacy endeavors;
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(c) Provide technical assistance to literacy implementers relative to the
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programs and projects on literacy;
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(d) Initiate, organize, and promote the holding of research activities,
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workshops, conferences, national literacy awards and the like,
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subject to the approval of the Council;
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(e) Set up, maintain, and update a management information system on
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literacy programs and projects, policies, best practices, research


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studies, statistical data and other relevant information relative to the
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literacy situation in the country;
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(f) Coordinate with the PSA in the conduct of the FLEMMS and other
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similar surveys for purposes of providing a quantitative framework
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that will serve as one of the bases in the formulation of policies and
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programs on the improvement of literacy and education status in the
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country;
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(g) Recommend programs, projects, and other activities to be included
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for funding in the annual budget proposal of the Council, including
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support services in the preparation of the Council’s annual budget
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proposal; and
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(h) Perform other tasks as may be directed by the Council.
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Sec. 8. Establishment of Local Literacy Councils through the Local School
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Boards. - The Council shall promote the establishment of Local Literacy
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Councils (LLCs) at the provincial, city, and municipal levels, which shall serve
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as the coordinating and advisory bodies at the local level on matters
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pertaining to the adoption and implementation of measures for the
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universalization of literacy.
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For this purpose, the Local School Boards (LSBs) established pursuant
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to R.A. No. 7160 or the “Local Government Code of 1991”, as amended, shall
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act as the de facto LLCs in the provinces, cities and municipalities, with the
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following functions in addition to Section 9 thereof:
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(a) Formulate a local roadmap, anchored on the Council’s three-year
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roadmap under Section 6 of this Act, to guide its strategies on how
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to achieve zero illiteracy in the community, based on empirical data
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and determined by relevant measurable targets and indicators, and
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subject to an annual implementation review and assessment;
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(b) Implement literacy programs and endeavors at the local level,
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including the identification of priority literacy programs, provision of
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technical assistance to literacy volunteer workers, program


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monitoring and evaluation, and coordination with government and
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non-government partners for program support activities, among
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others;
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(c) Ensure the implementation of community literacy mapping activities
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within the local level through a community-based monitoring
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system, consistent with R.A. No. 11315 or the “Community-Based
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Monitoring System Act”, to generate updated and disaggregated data
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on literacy and introduce literacy interventions and allocate
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resources based on empirical data; and
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(d) Coordinate with partner NGOs and other agencies of the government
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in the identification of out-of-school children, youth and adults,
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including persons with disabilities, indigenous peoples, and other
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marginalized and vulnerable members of the community who are in
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need of literacy intervention and support, consistent with the local
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generation and mapping of data related to education under R.A. No.
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11510, as well as the Child Find System under R.A. No. 11650.
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The Council shall issue the guidelines necessary for the establishment,
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monitoring, and evaluation of the LSBs as de facto LLCs.
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Sec. 9. PSA Literacy Surveys. - To ensure an evidenced-based
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formulation of policies and programs on the improvement and
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universalization of literacy in the country, the PSA is hereby mandated to:
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(a) Conduct the FLEMMS every two years;
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(b) Strengthen its core unit that is dedicated to the generation, analysis,
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utilization, and dissemination of all education and literacy statistics
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and information under R.A. No. 11315;
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(c) Develop and manage a nationwide database of such statistics and
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information; and
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(d) Coordinate with other government agencies whose mandates require
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the conduct of community mapping programs that are relevant to
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the education sector such as the Department of the Interior and


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Local Government and the Department of Social Welfare and 
Development.
Sec. 10. Transfer of Existing LCC Secretariat and its Appropriations to 
the BAE. - Pursuant to Section 7 of this Act, the existing secretariat of the 
LCC, including the appropriations corresponding to their salaries and other 
benefits, shall be transferred to and absorbed by the BAE of the DepEd; 
Provided, That such transfer shall neither cause any diminution in the 
salaries of the personnel concerned nor loss of rank and seniority: Provided, 
Further, That the transfer of positions and corresponding appropriations to 
the BAE shall be subject to the guidelines to be jointly issued by the DepEd 
and the Department of Budget and Management.
Sec. 11. Appropriations. - The amount necessary to cover the initial 
implementation of this Act shall be sourced from the appropriation of the LCC 
under the current General Appropriations Act (GAA). Thereafter, the amount 
necessary for its continuous implementation shall be included in the budget 
of the DepEd under the annual GAA.
Sec. 12. Submission of Annual Report. - The Council shall submit to the 
Senate Committee on Basic Education, and the House of Representatives 
Committee on Basic Education and Culture a detailed annual report of its 
accomplishments which shall include, among others, its accomplishments, 
programs and projects, and policy recommendations for the universalization 
of literacy in the country.
Sec. 13. Implementing Rules and Regulations. - Within ninety (90) days 
from the effectivity of this Act, the Chairperson of the LCC, in consultation 
with the members of the Council and other stakeholders, shall issue the rules 
and regulations implementing its provisions.


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Sec. 14. Repealing Clause. - R.A. No. 7165, as amended by R.A. No.
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10122 otherwise known as “An Act Strengthening the Literacy Coordinating
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Council by Amending R.A. No. 7165, Otherwise Known as ‘An Act Creating
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the Literacy Coordinating Council, Defining Its Powers and Functions,
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Appropriating Funds Therefor and for Other Purposes’”, is hereby repealed.
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All other laws, executive orders, presidential decrees, administrative orders,
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rules and regulations, issuances, or parts thereof contrary to or inconsistent
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with the provisions of this Act are hereby repealed or amended accordingly.
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Sec. 15. Separability Clause. - If any part or provision of this Act is
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declared invalid or unconstitutional, the other provisions not otherwise
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affected shall remain in force and effect.
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Sec. 16. Effectivity. - Notwithstanding the non-issuance of the IRR, this
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Act shall take effect fifteen (15) days after its publication in the Official Gazette
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or in a newspaper of general circulation.
Approved,