NINETEENTH CONGRESS OF THE 
REPUBLIC OF THE PHILIPPINES 
Third Regular Session
SENATE
S.B. No. 2960
RE
20S
DATE
TIME
INDEX
BILLS
(In substitution of Senate Bill No. 364 and Senate Bill No. 2072)
Prepared and submitted by the Committee on Higher, Technical and Vocational Education 
(upon the recommendation of the Subcommittee on Philippine Qualifications Framework), 
jointly with the Committees on Basic Education; and Finance, with Senators Villanueva, 
Ejercito Estrada, Cayetano (A.), Gatchalian, and Poe as authors thereof
AN ACT
INSTITUTIONALIZING THE LIFELONG LEARNING DEVELOPMENT 
FRAMEWORK, BROADENING THE MANDATE OF THE PHILIPPINE 
QUALIFICATIONS FRAMEWORK - NATIONAL COORDINATING 
COUNCIL (PFQ-NCC), AMENDING FOR THE PURPOSE REPUBLIC ACT 
NO. 10968, OTHERWISE KNOWN AS THE PHILIPPINE 
QUALIFICATIONS FRAMEWORK ACT, APPROPRIATING FUNDS 
THEREFOR AND FOR OTHER PURPOSES
Be it enacted by the Senate and House of Representatives of the Philippines in Congress 
assembled:
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SECTION 1. Short Title. - This Act shall be known as “The Lifelong Learning
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Development Framework (LLDF) Act.”


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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 full, productive, and freely chosen employment 
and decent work for all, and to promote a more sustainable national, regional, and local 
development. The State shall promote universal literacy and promote the constitutional 
right of all citizens to quality and accessible education at all levels 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, including, but not limited to, learning hubs, reading centers, libraries and e- 
libraries, 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 continuous 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 Learning Provider refers to any establishment, corporation, organization, or 
public or private institution 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 principle that recognizes learning as a continuum and 
not confined to a particular period in life nor the school system but takes place in all 
modes and locales, at all stages of life, which results in improving knowledge, know­
how, skills, competencies, and/or qualifications for personal, social, and/or 
professional reasons. As a conceptual framework and organizing principle for
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educational policy, lifelong learning, also known as lifelong education, encompasses 
all modes of learning and all types of formal, nonformal, or informal educational 
activities:
e. 
Basic literacy refers to the ability of a person to read, write, and compute;
f. 
Functional Literacy refers to the ability of a person to read, write, compute, and 
comprehend. The skills must be sufficiently advanced to enable the individual to 
participate fully and efficiently in activities commonly occurring in his or her life 
situation that requires a reasonable capability of communicating by written language 
and other digital means of communication; and
g. 
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. 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 
voluntarily participate and study accordingly: and
c. 
Lifelong learning shall not be exploited as a tool for political propaganda or personal 
prejudices.
SEC. 5. Lifelong Learning Development Framework. - A Lifelong Learning 
Development Franiework (LLDF) shall describe and set the standards for the 
development of action components and desirable success measures for the promotion 
and implementation of lifelong learning in cities, municipalities and lifelong learning 
provider.
a. The LLDF shall have the following objectives;
1. Promote functional literacy at all levels of society;


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2. 
Promote inclusive learning in the educational system;
3. 
Revitalize learning in families and communities;
4. 
Facilitate learning for and in the workplace, with the participation of industry 
and other stakeholders;
5. 
Extend the use of modern learning technologies;
6. 
Ensure the quality of learning; and
7. 
Foster a culture of learning throughout life.
b. The action components and corresponding success measures shall include the
following:
1. 
Promotion of Literacy at All Levels of Society. - This component upholds the 
importance of promoting basic and functional literacy for all. The activities 
under this component shall include those that ensure for every citizen the 
opportunity to become literate and obtain foundational and transversal skills. 
The corresponding success measure for this action component shall be adult 
literacy rate.
2. 
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 lifelong learning system. The 
activities under this component and their corresponding success measures 
shall include the following;
2.1 Expanding access to early childhood care and education, with net 
enrolment rate in pre-primary education, as success measure;


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2.2 
Scaling micro-cred^intial initiatives, promoting transferable skills 
development, and recognizing alternative learning certifications through 
the Philippine Credit Transfer System (PCTS), as success measure;
2.3 
Promoting inclusivity and equity in education by expanding access to and 
participation in alternative education programs for underserved groups, 
with the number of beneficiaries reached and the quality of programs 
provided, as success measure;
2.4 
Expanding access to formal education from primary to tertiary level, with 
average number of years of formal schooling received by people aged 
twe'^’ty-five (25) arid'blder, as success measure;
2.5 
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 last twelve (12) months as reported and monitored, as 
success measure; and
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2.6 Providing support for underrepresented and marginalized groups, 
including women, youth, indigenous peoples, and persons with 
disabilities, to ensure equitable access to education through inclusive 
learning options, pathways and support mechanisms, with the adoption 
of quality measures by LGUs and the successful integration and retention 
of learners as success measure.
3. 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:
3.1 Establishing or recognizing community-based learning spaces and 
providing resources for leariiing in families and communities, with the 
number of functional community-based infrastructure or spaces 
dedicated to lifelong learning, as success measure; and
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3.2 Motivating citizens 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, as 
success measures.
4. 
Facilitation of Learning for and in the Workplace. - Lifelong learning shall 
support the economic activities and the workforce in the community and related 
environs. The following activities and corresponding success measures shall 
fall under this component:
4.1 
Ensuring that all members of the workforce have access to a broad array 
of learning opportunities as part of work-to-work transition, with 
employees’ participation rate in job-related education and training, as 
success measure:
4.2 
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; and
4.3 
Promoting innovative, transparent, equitable, and sustainable financing 
mechanisms as well as non-financial incentives for workers’ participation 
in training, with percentage of workers who enroll in and complete training 
programs as direct result of the introduced financing mechanisms and 
incentives as success measure.
5. 
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 and in general, all 
forms of relevant media, for learning and self-empowerment. The activities and
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corresponding success measures under this component shall include the 
following:
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5.1 
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
5.2 
Expanding citizens’ access to ICT tools, and learning programs, with the 
number of established ICT tools and learning programs, as well as the 
percentage of users who regularly utilize ICT for class activities in schools 
and other lifelong learning spaces, as success measures.
6. Enhancement of Quality Learning. - The following activities and corresponding
success measures shall fall under this component:
6.1 
Promoting a paradigm shift from teaching to learning, from the mere 
acquisition of inforrriation to the development of creativity and learning 
skills, with the measure of learning acquired assessed in accordance with 
relevant standards, as success measure;
6.2 
Employing appropriately trained administrators, teachers, educators and 
subject matter expert with the availability of appropriately trained teachers 
or educators, as success measure;
6.3 
Fostering an environment in which learners have, as far as practicable, 
ownership of their own learning, with ratio of students to teachers in 
kindergarten, elementary, juriior high school, senior high school and adult 
and continuing educ^ation, as success measure; and
6.4 
Ensuring the relevance of skills training to the needs of business and 
labor market needs, with employment and engagement and productive 
activities of graduates as a success measure.


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For the purpose of this component, education agencies shall likewise provide 
assessment mechanisms, which include various dimensions such as learning to 
know, to do, to be, to live together, and to use technology with success measures 
and performance indicators, in coordination with the PQF-NCC.
7. 
Fostering of a Culture of Learning Throughout Life. — The following activities 
and corresponding success measures shall fall under this component:
7.1 
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 International Literacy Day, and use of 
different modalities to promote and celebrate learning, as success 
measure;
■ 7.2 Providing adequate information, career counselling and vocational 
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
7.3 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 aligned with 
the PCTS and Republic Act No. 10968 or the Philippine Qualifications 
Frai'.iework (PQF)iA'^t, as success measure.
8. 
Strengthening 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 or municipality. The following 
activities and their corresponding success measures shall fall under this 
component;
8.1 
Demonstrating strong political leadership and making a steadfast 
commitment to turning LCDs into learning cities or municipalities, with the


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strength and commitment of leadership demonstrated in developing and 
impiementing the ie'-rning city or municipality strategy as evidenced by 
qualitative validation, as success measure;
8.2 
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
8.3 
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 
straitegy, as successrtmeasure.
9. Improvement of Governance and Participation of All Stakeholders. - All sectors 
of society shall have a key role in iearning and education and shall participate 
in buiiding learning cities or municipalities. The activities and corresponding 
success measures under this component shall include the following:
9.1 
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;
9.2 
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 or municipality and the private sector to support the 
learning strategy, as success measure;
9.3 
Strengthening in+ersectoraf^ 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 or municipalities, as success measure;
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9.4 
Establishing coordination among government and stakeholders in the 
collection, analysis, and dissemination of labor market information, with 
the use of tools and latest technologies, supportive of skills development 
and lifelong learning policies, strategies, programs, as success measure; 
and
9.5 
Establishing inter-LGU mechanism to support the development and 
implementation of related lifelong learning programs.
10. Boosting of Resource Mobilization and Utilization. - The following activities and
corresponding success measures shall fall under this component:
10.1 Encouraging greater financial investment in lifelong learning by national 
and local government units, civil society, private sector organizations and 
individuals, with public expenditure on education and learning as a 
percentage of the total city or municipality budget, percentage of public 
education expenditure for different levels or types of education, as 
success measure;
10.2 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 or municipality to 
facilitate learning, as success measure;
10.3 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 participa’ion of disadvantaged groups in learning, as success 
measure;
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10.4 Encouraging citizens to contribute their talents, skills, knowledge and 
experience on a voluntary basis, with citizens' contribution to helping 
other citizens, as success measure; and
10.5 Encouraging the exchange of ideas, experiences and best practices 
between and among organizations in different cities and municipalities, 
with the number of international or inter-city or inter-municipality 
partnerships and exchanges with other lifelong learning institutions, as 
success measure.
The desired success measures for each component shall be reviewed and 
evaluated annually, and amended and modified by the PQF-NCC, as it may deem 
necessary. For each success measure, whether enumerated under this Act, or thereafter
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amended or modified, performance indicators shall be identified by the PQF-NCC.
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SEC. 6. Additional Role and Member of PQF-NCC. - The mandate of the PQF-
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NCC established by virtue of Republic Act No. 10968, otherwise known as the PQF Act,
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is further strengthened to assume the powers and functions provided under this Act. In
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addiiion to the existing composition Of the PQF-NCC, the Secretaries of the Department
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of the Interior and Local Government (DILG) and the Department of Trade and Industry
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(DTI) shall also be a member of the PQF-NCC.
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All members of the PQF-NCC may designate their respective representatives to the
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PQF-NCC, whose rank shall not be lower than Assistant Secretary or its equivalent.
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SEC. 7. 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. 
Formulate a master plan, in consultation with relevant government agencies, for the 
promotion of lifelong learning and the designation of learning cities and 
municipalities, develop guidelines for designation of cities and municipalities, and
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designate a particular city or municipality as a Learning City or Municipality based 
on such guidelines;
c. 
Monitor and evaluate the master plan and work with the LGUs in the mandatory 
implementation and execution of the master plan;
d. 
Implement the PCTS within and across the different levels of education and 
modalities of delivery and recognition, in partnership with lifelong learning 
institutions, and the Philippine Qualifications Register (PhQuar);
e. 
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;
f. 
Support the capability-building activities of the designated learning city/municipality 
to effectively implement and measure the achievements/outcomes of the Master 
Plan; Support the capabilities of the designated learning city/municipality to 
effectively implement and measure the achievements/outcomes of the Master Plan;
g. 
Integrate relevant provisions of Republic Act No. 8759 or the Public Employment 
Service Office (PESO) Act of 1999 to facilitate a seamless transition between 
education and employment; and
h. 
Perform such other functions that may be related to the implementation of the LLDF.
SEC. 8. Lifelong Learning National Master Plan. - Within six (6) months from 
the effectivity of this1 Act, the PQF-h!GC, with the participation of relevant stakeholders, 
shall formulate a national master plan for the promotion of lifelong learning that aligns with 
and supports the objectives and priorities of the Philippine Development Plan (PDP). The 
master plan shall serve as a strategic blueprint for the promotion of lifelong learning and 
the establishment of learning cities and municipalities across the country.
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The master plan shall be subject to review every five (5) years to ensure its
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alignment with evolving national development goals and stakeholder needs. It shall
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include the following components:
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a.
Medium and long-term policy objectives and basic direction for lifelong learning 
promotion and the establishme^st of learning cities or municipalities:
b. 
Implementation of lifelong learning activities and guidelines for the funding of lifelong 
learning provider;
c. 
Investment plans and budgetary requirements for the promotion and expansion of 
lifelong learning provider and learning cities or municipalities; and
d. 
Guidelines for the evaluation of lifelong education programs and learning cities or 
municipalities.
The PQF-NCC shall actively coiiaborate with other relevant government agencies in 
the formulation of the master plan to ensure comprehensive policy coherence. It shall also 
coordinate with LGUs in the mandatory implementation and execution of the master plan, 
with clear reference to the PDF’s overarching objectives.
SEC. 9. Designation of Learning Cities and Municipaiities. - 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. The PQF-NCC shall also develop guidelines 
in using the action components as provided under this Act to assess if a city or municipality
may qualify for designation as a learning city Dr municipality.
•n
A designated Learning City or Municipality shall enjoy additional support and funding 
for the following;
a. 
Support the operation of lifelong learning provider and community learning centers;
b. 
Cultivation and posting of certified lifelong education teachers;
c. 
Development of lifelong education programs; and
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d. Other projects to be conducted for the promotion of citizens' participation in lifelong 
education.
Additionally, the PQF-NCC shall designate geographically isolated and 
disadvantaged areas that desire to become learning cities and municipalities, which shall 
likewise receive the assistance provided under this Act. The PQF-NCC shall also assist 
them in the attainment of success measures as indicated under this Act or thereafter 
amended or modified.
SEC. 10. Functions of Designated Learning Cities and Municipaiities. - Heads 
of LCDs designated as Learning Cities or Municipalities shall guide and support activities 
for the promotion of lifelong learning, whether initiated by the LGU or lifelong learning 
provider.
The LGUs designated as Learning Cities or Municipalities shall undertake measures 
to institutionalize the following;
a. 
Opportunities for counseling, coaching, mentoring, and information-sharing on 
lifelong learning:
b. 
Operation of lifelong learning programs;
j. 
i
c. 
Establishment and operation of 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 community and enterprise-based trainings;
d. 
Lifelong learning opportunities for residents within their jurisdictions; and
e. 
Guidance for all lifelong learning activities/programs for stakeholders, including, but 
not limited to, private organizations.
SEC. 11. Support and Subsidy for Lifeiong Learning Provider. - The heads of 
learning provider offering lifelong learning shall submit an annual report to the appropriate 
government agency which has jurisdiction over them, detailing the programs offered,
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number of attendees, and other relevant data necessary to assess the success of the 
lifelong learning program.
The LGU shall appropriate the necessary amount to ensure and guarantee that 
lifelong learning in its jurisdiction shall be accessible to all residents, including, but not 
limited to, women, youth, indigenous persons, and persons with disabilities.
SEC. 12. Literacy Education Programs. - The LGUs shall endeavor to enhance 
basic capabilities or 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 or “An Act Creating the Literacy Coordinating 
Council, Defining its Powers and Functions, Appropriating Funds Therefor, and for Other 
Purposes,” As Amended by Republic Act No. 10122, as well as the Bureau of Alternative 
Education of the Department of Education created under Republic Act No. 11510 or “An 
Act Institutionalizing the Alternative Learning System in Basic Education for Out-of-School 
Children in Special Cases and Adults and Appropriating Funds Therefor.”
SEC. 13. Lifeiong Learning in Private Enterprises. - Private corporations, 
institutions, workplaces and other Similar establishments are encouraged to provide 
inclusive lifelong learning to their employees to ensure that their skills remain relevant and 
responsive to the changes of the world or work. Private enterprises are encouraged to 
conduct activities for the promotion of lifelong learning, and give consideration and/or 
incentives to employees who enroll in graduate studies or in any form of lifelong learning 
and continuing education by allowing revised schedules, alternative work arrangements 
and adjusted workloads without necessarily sacrificing the quality of work. The 
participation of private enterprises in the following areas supportive of lifelong learning 
shall also be promoted;
a. 
Providing information to employees reg'a'rding current and future skills needed;
•ft
b. 
Updating of skills standards and training design responsive to changing needs in the
labor market:
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c. Development of enterprise-based and community-based skills training and career
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guidance mechanisms; and
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d. Collaboration through the involvement of all relevant stakeholders to pool expertise,
resources, and funding towards concrete upskilling and reskilling actions.
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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. 14. Appropriations. - Notwithstanding the provisions of Sections 235 and 
272 of Republic Act No. 7160 or the “Local Government Code of 1991”, a portion of the 
Special Education Fund shall be used to fund the objectives of this Act within the LGUs’ 
respective areas of jurisdiction. 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 and LGUs 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 ninety (90) days from 
the effectivity 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. Repkialing 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 is also amended accordingly pursuant to 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.
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SEC. 19. Effectivity. - This Act shall take effect fifteen (15) days after its complete 
publication in the Official Gazette or in a newspaper of general circulation.
Approved,
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