Republic of the Philippines 
HOUSE OF REPRESENTATIVES 
Quezon City 
NINETEENTH CONGRESS 
First Regular Session 
HOUSE BILL NO. _________ 
Introduced by Representative 
HARRIS CHRISTOPHER M. ONGCHUAN 
EXPLANATORY NOTE 
In 2019, the Philippines ranked the lowest among 79 countries in the 2018 
Programme for International Student Assessment (PISA), a study conducted by the 
Organization for Economic Cooperation and Development (OECD), despite having a 
functional literacy rate of 91.6% in that same year according to the Philippine Statistics 
Authority (PSA). This means that although a majority of Filipinos have the ability to 
read and write, there continues to be a deficiency in understanding and interpreting 
written information. 
Taking this into consideration, it should be the priority of the state to promote 
universal literacy, in order to foster an environment where sustainable development 
is possible. This may be achieved through Lifelong Learning, a way of life that 
recognizes the importance of learning in all stages and aspects of life, even outside the 
schooling system. 
This act aims to institutionalize Lifelong Learning by establishing the Lifelong 
Learning Development Framework (LLDF), which outlines a set of objectives and 
metrics leading to the implementation of Lifelong Learning. Furthermore, it will 
establish the Lifelong Learning Development Council (LLDC), an inter-agency body 
that will oversee the implementation of the LLDC. 
This bill was filed in the 18th Congress by Representatives Garcia, Sy-Alvarado, 
and Bordado.  It was approved by the House and was transmitted to the Senate. 
In view of the foregoing, the passage of the bill is earnestly sought. 
August 30, 2022
8:02 am
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 HARRIS CHRISTOPHER M. ONGCHUAN 


 Republic of the Philippines 
HOUSE OF REPRESENTATIVES 
Quezon City 
NINETEENTH CONGRESS 
First Regular Session 
HOUSE BILL NO. _________ 
Introduced by Representative 
HARRIS CHRISTOPHER M. ONGCHUAN 
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 Tile. - 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 security. 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 LGUs to provide lifelong
learning opportunities for community development and improvement of the
quality of life:
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b) Learning City or Municipality refers 10 a city or municipality which 
effectively mobilizes its resources to: (a) promote inclusive learning in all 
education levels; (b) encourage laming in families and communities; c) 
facilitate learning for and 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 any establishment, corporation, 
organization, or public or private teaching institution established mainly for 
lifelong education or 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, 
which is also known as lifelong education, encompasses áll 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 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 postsecondary non degree diploma, technical-voçational 
education and training, and higher education programs, including graduate 
education.  
 
Sec. 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 & Development 
Council created under this Act. 
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 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 an 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 adopted by the LGU authorities to support learners from 
indigenous peoples and disadvantaged 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 be confined to educational or business settings. but shall include 
learning within families and local communities. This learning shall have 
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 GU legislation to 
support learning in families, percentage 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 the percentage of the unemployed enrolled in 
various employment entrepreneurship training programs offered in 
the city or municipality, as a 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 city partnerships and exchanges with other 
learning cities or municipalities or lifelong learning 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. 
 
SEC. 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 co of the Secretary of the 
Department of Education (DepEd), as Chairperson, and with it the following, as 
members: 
a) Secretary of the Department of the interior and Local Government (DILG); 
b) Chairperson of the Commission ön 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. 
 
SEC. 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: 
 
(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 measure 
 
(c) Develop guidelines for using the action components to access 11 2 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 laming and the designation of leaming 
cities of municipalities, and to implement or execute the same:  
 
(e) Review the master plan and work with the LGUs in the mandatory 
implementation and execution of the master plan; 
 
(f) Organize a secretariat arid 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 (SC) 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. 
 
SEC. 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 SC and the SSL.  
 
The secretariat shall hold office at such a 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. 
 
SEC. 8. Lifelong LearningMaster 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 LGs in the mandatory 
implementation and execution of the master plan. 
 
SEC. 9. Designation of Learning Cities or Municipalities. - The Council shall 
designate a city or municipality as a Learning City or Leaming 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 laming city or municipality. 
 
A designated Learning City or Municipality shall enjoy additional support 
and funding for the following: 
(1) expanding citizens' access to IT tools and learning programs, with the 
percentage of teachers or educators who use ICT on a regular basis for class activities 
in school and other lifelong learning spaces, as success measures. 
 
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 L.GU initiatives to promote the development of creativity and 
learning skills through the formal teaching curriculum, as a 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 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 
leaming 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 lam through diverse pattiways, with the percentage of 
learners satisfied with the provision of information and counseling to 
learning, as success measure; and 
 
(3) acknowledging the importance of learning in informal and non-formal 
settings and developing systems that recognize and reward all fans of 
learning, with the availability of LGU ordinance and practice of recognizing, 
validating, and accrediting all laming outcomes, as success measures. 
 
h) Strengthening of political will and commitment elected officials and 
administrators shall have the primary responsibility of committing political 
resources lo realizing the vision of a leaming city because it takes strong political will 
and commitment to successfully build a leaning 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 timing 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 it 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.  
 
i) Improvement of governance and participation of all stakeholders. - All 
sectors of society shall have a key role in learning 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 laming 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 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 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, success mcasure; and 
 
(5) encouraging the exchange of ideas, experiences and best practice between 
and among organizations in different cities, with the number of interational 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. 
 
SEC. 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, in coordination with the Council, conduct training necessary to 
upgrade the capabilities of persons and institutions engaged in lifelong learning 
activities. The LGs designated as Leaming Cities or Municipalities are likewise 
mandated to comply with the following: 
a) Provide opportunities, counseling, and information on lifelong learning: 
b) Support the operation of lifelong learning programs; 
c) Establish and operate CCs 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. 
 
SEC. 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 its annual budget the necessary 
amount to subsidize the continued operation of lifelong educational institutions and 
other related activities. 
 
SEC. 12. Literacy Education Programs. - 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. 7165, Otherwise Known as "An Act Creating 
the Literacy Coordinating Council, Defining its Powers and Functions, 
Appropriating Funds Therefor and for Other Purposes" 
 
SEC. 13. Lifelong Learning in Private Enterprises. - Private corporations, 
institutions, workplaces and other similar establishments are encouraged to provide 
lifelong laming 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. 
 
SEC. 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. 
 
SEC. 15. Appropriations. - The amount necessary for the immediate 
implementation of this Act shall be included in the annual General Appropriations 
Act. 
 


SEC. 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. 
 
SEC. 17.  Separability Clause. – If any portion or provision of this Act is declared 
invalid or unconstitutional, other provision hereof shall remain in full force and effect. 
 
SEC. 18. Repealing Clause. – All laws, decrees, executive orders, rules and 
regulations, issuances or part thereof inconsistent with the provision of this Act are 
hereby repealed, amended, or modified accordingly. 
  
SEC. 19. Effectivity. - This Act shall take effect fifteen (15) days after the 
completion of its publication in the Official Gazette or at least two (2) newspapers of 
general circulation.  
Approved.