NINETEENTH CONGRESS OF THE 
)
REPUBLIC OF THE PHILIPPINES 
)
First Regular Session 
)
of tiff S)'ev>ti>
23 APR 17 P2 -42
SENATE
S. No. 2072
RECEIVED BV:
Introduced by Senator Jinggoy Ejercito Estrada
AN ACT
INSTITUTIONALIZING THE LIFELONG LEARNING DEVELOPMENT 
FRAMEWORK, CREATING A LIFELONG LEARNING DEVELOPMENT 
COUNCIL, AND APPROPRIATING FUNDS THEREFOR
EXPLANATORY NOTE
In 2015, the United Nations adopted the Sustainable Development Goals 
(SDG) as a "universal call to action to end poverty, protect the planet, and ensure 
that by 2030 all people enjoy peace and prosperity".1 SDG Goal 4 promotes quality 
education and aims to "ensure inclusive and equitable quality education and promote 
lifelong learning opportunities for all".2 According to the United Nations Economic 
and Social Commission for Western Asia, "Lifelong learning may be broadly defined 
as learning that is pursued throughout life: learning that is flexible, diverse and 
available at different times and in different places. Lifelong learning crosses sectors, 
promoting learning beyond traditional schooling and throughout adult life (I.e. post- 
compulsory education)."3 This international commitment is consistent with the 
Philippine government's constitutional mandate to "protect and promote the right of 
all citizens to quality education at all levels and shall take appropriate steps to make 
such education accessible to all."
1 Sustainable Development Goals I United Nations Development ProRramme (undp.org)
2 Sustainable Development Goal 4 (SDG 4) I SDG4 Education 2030 - Global Education Cooperation Mechanism
3 lifelong learning (unescwa.org)


Lifelong learning emphasizes gaining knowledge and skills beyond classroom 
walls, outside the traditional educational system, without restrictions and 
discrimination In age, and in any location that is conducive to learning. Therefore, it 
pertains to unceasing education that is relevant to citizens in the different stages of 
their lives.
Lifelong learning is especially beneficial to our country which is considered as 
one of countries that is taking the path of "graying population" in the world. As 
stated In the study, "Ageing and Health in The Philippines" published by the 
Economic Research Institute for ASEAN and East Asia and Demographic Research 
and Development Foundation, Inc. and Demographic Research and Development 
Foundation, Inc., "As we anticipate further improvements in longevity and as 
sustained fertility decline, the demographics landscape is projected to slowly 
transition to an ageing population. From 2025 to 2030, older Filipinos aged 60 years 
and over are projected to account for at least 10% of the total population, making 
the Philippines an ageing society based on the UN definition."4 Given this trend, 
lifelong learning will enable Filipinos to gain sufficient and appropriate education in 
various stages of their lives and allow them to continue to be productive and enjoy a 
fulfilling life even in their advanced aged.
However, it is a disheartening fact that our country has yet to realize quality 
and accessible education for all. This is reflected in our poor rankings in 
international surveys pertaining to formal education such as Programme for 
International Student Assessment (PISA), Trends in International Mathematics and 
Science Study (TIMSS), and Southeast Asia Primary Learning Metrics (SEA-PLM).5 
This dismal state of education in the country calls for a more robust, comprehensive 
and holistic approach to achieve our constitutional mandate and international 
commitment. The formal education must continue to be strengthened while 
complementary endeavors will definitely prove to be worthwhile.
4 Ageing and Health in The Philippines (eria.org)
5 Philippine struggle to make the grade in STEM education I Multisectoral Regional Office in Bangkok
(unesco.org)


The 'lifelong Learning Development Framework (LLDF) Act" seeks to 
promote universal literacy through the promotion of literacy at all levels of society, 
promotion of inclusive learning in the educational system, revitalization of learning in 
families and communities, revitalization of learning for and in the workplace, 
extension of the use of modern learning technologies, enhancing the quality and 
learning, and fostering a culture of learning throughout life. The LLDF will be 
implemented in local government units, particularly in Learning Cities and 
Municipalities, under the guidance of the Lifelong Learning Development Council.
In view of the foregoing, the immediate passage of this 
recommended.
is highly
INGGOY EJERCITO ESTRADA


NINETEENTH CONGRESS OF THE 
)
REPUBLIC OF THE PHILIPPINES 
)
First Regular Session 
)
SENATE
s. No. 2072
23 APR 17 P 2 *42
RECEIVED BV:
Introduced by Senator Jinggoy Ejercito Estrada
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 assem bled:
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Section 1. Short Title. - This Act shail be known as "‘'The Lifelong Learning
1 Development Framework (LLDF) Act'.
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Sec. 2. Declaration of Policy. - It is hereby deciared the policy of the State to
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create an environment free of poverty, hunger, violence, and war; and to ensure
5 
equity, inclusion, and a healthy environment for everyone. To this end, the State
6 
shall promote lifelong learning as a 
means to achieve a more sustainable
7 
development and thus promote national security. The State shall promote universal
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literacy and prescribe the duties of the State in this regard.
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Sec. 3. Guiding Principles. - The following guiding principles shall be
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respected at all times:
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a) All citizens shall be guaranteed equal opportunities for lifelong learning;
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b) Lifelong learning shall be conducted based on the willingness of the
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learner to participate and study voluntarily; and,
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c) Lifelong learning shall not be exploited as a tool for political propaganda or
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personal prejudices.
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Sec. 4. Definition of Terms. - As used in this Act:


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a) Community Learning Center (CLC) refers to a venue outside the formal 
education system established and managed by LGUs to provide lifelong 
learning opportunities for community development and improvement of 
the quality of life;
b) Learning City or Municipaiity refers to a city or municipality which 
effectively mobilizes its resources to: (i) promote inclusive learning in all 
education levels; (ii) encourage learning in families and communities; (iii) 
facilitate learning for and in the workplace; (iv) extend the use of modern 
learning technologies; (v) enhance quality and pursuit of excellence in 
learning; and, (vi) foster a culture of learning throughout life;
c) Lifeiong Educationai Institution refers to any establishment, corporation, 
organization, or public or private educational institution established mainly 
for lifelong education or provide lifelong vocational training or offering 
supplementary education for school curricula. It shall also refer to a 
center or an office attached to an existing educational institution that 
offers lifelong education to persons other than its regular students;
d) Lifeiong Learning or Lifeiong Education 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 encompasses all modes of education and all types 
of systematic educational activities other than regular school curriculum, 
including supplementary education, graduate studies and all forms of 
continuing education, basic literacy education for adults, ability 
enhancement education, culture and art education, book reading clubs, 
and citizen's participation education;
e) Literacy Education refers to a systematic educational program designed to 
teach adults who are unable to read and write or lack of the necessary 
skills needed for early or basic literacy and other forms of media, digital, 
financial, legal and health literacy; and,
f) Tertiary Education refers to the stage of education following the secondary 
cycle which covers post-secondary nondegree diploma, technical-


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vocational education and training, and higher education programs,
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including graduate education.
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Sec. 5. Lifelong Learning Development Framework. - A Lifelong Learning
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Development Framework (LLDF), which shall describe and set standards for the
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development of action components and desirable success measures for the
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promotion and implementation of lifelong learning in cities, municipalities and
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lifelong educational institutions, shall be established by the Lifelong Learning
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Development Council created under this Act.
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The LLDF shall have the following objectives:
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a) Promote literacy at all levels of society;
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b) Promote inclusive learning in the educational system;
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c) Revitalize learning in families and communities;
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d) Revitalize learning for and in the workplace;
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e) Extend the use of modern learning technologies;
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f) Enhance the quality of learning; and,
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g) Foster a culture of learning throughout life.
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The action components and corresponding success measures shall include the
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following:
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a) Promotion of literacy at all levels of society. - This component upholds the
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importance of promoting literacy for all. The activities under this
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component shall include those that ensure for every citizen the
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opportunity to become literate and obtain basic skills. The corresponding
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success measure for this action component shall be adult literacy rate.
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b) Promotion of inclusive learning in the educational system. - No person
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regardless of ability, gender and sexuality, social background, language,
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ethnicity, religion or cuiture shall be excluded from participating in the
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educational system. The activities under this component and their
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corresponding success measures shall include the following:
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1) Expanding access to early childhood care education, with net
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enrolment rate in pre-primary education, as success measure;


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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 (25) to sixty-four (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 local government unit (LGU) authorities to support 
learners from indigenous peoples and disadvantaged backgrounds, as 
success measure; and,
5) Assigning qualified professional individuals to assist persons with 
disabilities to be able to adapt and cope while being integrated in the 
education system, with the number of learners with disabilities who re­
enroll or remain in schools, as success measure.
c) Revitalization of learning in facilities and communities. - Lifelong learning 
shall not be confined to educational or business settings, but shall include 
learning with families and local communities. This learning shall have the 
following activities and corresponding success measures:
1) Establishing community-based learning spaces and providing resources 
for learning in families and communities, with the number of functional 
barangay-based infrastructure or spaces dedicated to lifelong learning, 
as success measure; and,
2) Motivating people to participate in family and community learning, 
giving special attention to vulnerable and disadvantaged groups, such 
as families in need, migrants, people with disabilities, minorities and 
third-age learners, with the availability or presence of LGU legislation 
to support learning in families, percentage of community members 
participating in community learning activities on a regular basis, and 
percentage of community members engaging in learning activities in


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their families within twelve (12) months preceding the survey, as
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success measure.
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d) Facilitation of learning for and in the workplace. - The following activities
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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
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array of learning opportunities, with employees' participation rate in
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job-related learning opportunities, with employees' participation rate in
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job-related education and training, as success measure; and,
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2) Providing appropriate learning opportunities for unemployed youths
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and adults, with percentage of the unemployed enrolled in various
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employment and entrepreneurship training programs offered in the city
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or municipality, as success measure.
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e) Extension of the use of modern learning technologies. - Cities or
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municipalities shall enable all citizens to use the information and
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communication technologies (ICT), particularly the internet, for learning
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and self-empowerment. The activities and corresponding success
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measures under this component shall include the following:
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1) Training administrators, teachers and educators to use technologies
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that enhance learning, with the percentage of teachers or educators
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who have received ICT training in the last twelve (12) months, as
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success measure; and,
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2) City partnerships and exchanges with other learning cities or
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municipalities or lifelong educational institutions, as success measures.
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The desired success measures for each component may be amended and
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modified by the Lifelong Learning Development Council, as it may deem necessary.
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Sec. 6. Lifelong Learning Development Council. - There is hereby created a
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Lifelong Learning Development Council, hereinafter referred to as the Council, which
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shall be under the Office of the President. It shall be composed of the Secretary of
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the Department of Education (DepEd), as Chairperson, with the following as
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members:
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a) Secretary of the Department of the Interior and Local Government (DILG);
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b) Chairpersons of the Commission on Higher Education (CHED); and.


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c) Director General of the Technical Education and Skills Development
2 
Authority (TESDA).
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The Chairperson and members of the Council may designate their respective
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representatives to the Council, whose rank shall not be lower than Assistant
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Secretary or its equivalent.
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Sec. 7. Powers and Functions of the Council. - The Council shall have the
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following specific powers and functions:
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a) Formulate, implement, review, and amend the LLDF, including the action
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components and success measures for the effective implementation of this
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Act;
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b) Designate a particular city or municipality as a Learning City or
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Municipality based on its proven capacity to carry out the component
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activities and attain the success measures;
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c) Develop guidelines for using the action components to assess if a city or
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municipality will qualify for designation as a Learning City or Municipality;
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d) Formulate a master plan, in consultation with other relevant government
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agencies, for the promotion of lifelong learning and the designation of
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learning cities or municipalities, and to implement or execute the same;
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e) Review the master plan and work with the LCDs in the mandatory
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implementation and execution of the master plan;
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f) Organize a secretariat and determine the staffing pattern, qualification,
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duties and responsibilities of the secretariat, as well as the compensation
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for the positions to be created in accordance with the existing rules and
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regulations of the Civil Service Commission (CSC) and the prevailing salary
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standardization law (SSL);
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g) Submit annually to the Office of the President, the Senate of the
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Philippines, and the House of Representatives an updated report on the
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progress and accomplishments in relation to the LLDF; and,
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h) Perform such other functions that may be related to the implementation of
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the LLDF.
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Sec. 8. Council Secretariat - The Council shall organize a secretariat to be
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headed by a Chief of Office. The Council shall determine the staffing pattern.


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qualifications, duties and responsibilities of the secretariat, as well as the
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compensation for the positions to be created in accordance with the existing rules
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and regulations of the CSC and the SSL.
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The secretariat shall hold office at such place as may be determined by the
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Council. Pending the formal organization of the secretariat, the Council members
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may designate personnel from their respective offices to temporarily discharge the
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functions of the secretariat.
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Sec. 9. Lifelong Learning Master Plan. - Within six (6) months from the
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effectivity of this Act. The Council shall draw a master plan for the promotion of
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lifelong learning and the designation of Learning Cities or Municipalities.
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The master plan shall be subject to review every five (5) years and shall
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include the following:
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a) Medium and long-term policy objectives and basic direction for lifelong
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learning promotion and the establishment of Learning Cities or
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Municipalities;
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b) Implementation of lifelong learning activities and guidelines for the
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funding of lifelong educational institutions;
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c) Investment plans and budgetary requirements for the promotion and
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expansion of lifelong educational institutions and Learning Cities or
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Municipalities; and,
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d) Guidelines for the evaluation of lifelong education programs and Learning
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Cities or Municipalities.
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The Council may consult other relevant government agencies in the
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formulation of the master plan. It shall also work with the LGUs in the mandatory
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implementation and execution of the master plan.
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Sec. 10. Designation of Learning Cities or Municipalities. - The Council shall
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designate a city or municipality as a Learning City or Municipality based on its proven
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capacity to carry out the component activities and attain the success measures in
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accordance with the provisions of this Act. It shall also develop guidelines for using
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the action components to assess if a city or municipality may qualify for designation
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as a Learning City or Municipality.


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A designated Learning City or Municipality shall enjoy additional support and
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funding for the following:
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a) Establishment and operation of lifelong educational institutions and
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community learning centers (CLCs);
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b) Cultivation and posting of certified lifelong education teachers;
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c) Development of lifelong education programs; and,
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d) Other projects to be conducted for the promotion of citizens' participation
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in lifelong education.
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Sec. 11. Functions of Learning Cities or Municipaiities. - Heads of LGUs
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designated as Learning Cities or Municipalities, in coordination with the Council, shall
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be required to guide and support activities for the promotion of lifelong learning,
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whether initiated by the LGU or private lifelong learning educational institutions. If
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requested by such institutions, the LGU shall, in coordination with the Council,
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conduct trainings necessary to upgrade the capabilities of persons and institutions
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engaged in lifelong learning activities.
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The LGUs designated as Learning Cities or Municipalities are likewise
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mandated to comply with the following:
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a) Provide opportunities, counselling and information of lifelong learning;
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b) Support the operation of lifelong learning programs;
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c) Establish and operate CLCs to foster the implementation of lifelong
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educational programs and 
provide all persons, especially 
the
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underprivileged, access to information and communications technologies
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for e-learning, blended, distance or open learning; and,
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d) Provide lifelong learning opportunities for residents within their
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jurisdictions.
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Sec. 12. Literacy Education Program. - The State and the LGUs shall
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endeavor to enhance basic capabilities including literacy for adults. Literacy
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education programs for adults shall be offered in designated schools within the
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Learning Cities or Municipalities nationwide, in coordination with 
the Literacy
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Coordinating Council created under Republic Act No. 7165, as amended by Republic
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Act No. 10122 entitled, "An Act Strengthening the Literacy Coordinating Council by
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Amending Republic Act No. 7165, Otherwise Known as 'An Act Creating the Literacy


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Coordinating Council Defining its Powers and Functions', Appropriating Funds
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Therefor and for Other Purposes".
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Sec. 13. Support and Subsidy for Lifelong Educational Institutions. - The LGU
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shall appropriate an amount to ensure and guarantee that lifelong learning in its
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jurisdiction shall be free and accessible to all residents, including migrants, senior
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citizens and people with disabilities. For purposes of this Act, such amount shall be
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taken from the Special Education Fund (SEF) under Republic Act No. 7160, otherwise
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known as the "Local Government Code of 1991".
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Sec. 14. Lifelong Learning in Private Enterprises. - Private corporations,
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institutions, workplaces and other similar establishments are encouraged to provide
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lifelong learning to their employees, conduct activities for its promotion, and give
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consideration to employees who enroll in graduate studies or in any form of lifelong
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learning and continuing education by allowing revised schedules and workloads
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without necessarily sacrificing the quality of work.
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The employers are also encouraged to provide scholarships and incentives to
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their employees who wish to pursue lifelong learning activities.
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Sec. 15. Reportoriai Requirements. - The heads of educational institutions
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offering lifelong learning shall submit an annual report to the appropriate
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government agency which has jurisdiction over them, detailing the programs
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offered, number of attendees, and other relevant data necessary to assess the
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success of the lifelong learning program.
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Sec. 16. Appropriations. - The amount necessary for the implementation of
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this Act shall be included in the annual General Appropriations Act.
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Sec. 17. Implementing Rules and Regulations. - Within sixty (60) days from
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the approval of this Act, the DepEd, CHED and TESDA shall, in coordination with the
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DILG and other concerned government agencies and civil society organizations,
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formulate and issue the necessary rules and regulations to implement the provisions
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of this Act.
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Sec. 18. Separability Clause. - If any provision or part hereof is held invalid
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or unconstitutional, the remainder of the law or the provision or part not otherwise
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affected shall remain valid and subsisting.


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Sec. 19. Repealing Clause. - Section 272 of Republic Act No. 7160 shall be
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amended to include the purpose of this Act to the allocation of the SEF. Any law,
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presidential decree or issuance, executive order, letter of instruction, administrative
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order, rule, or regulation contrary to or inconsistent with the provisions of this Act
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are hereby repealed, modified, or amended accordingly.
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Sec. 20. Effectivity. - This Act shall take effect fifteen (15) days after its
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publication in the Official Gazette or in a newspaper of general circulation.
Approved,
10