- Email: [email protected]
The Philippine elementary school system
Studies in EducationalEvaluation. Vol. 14, pp. 37-45, 1988
0191-491X/88 $0.00 + .50 Copyright © 1988 Pergamon Press plc
Printed in Great Britain. All rights reserved.
THE PHILIPPINE ELEMENTARY SCHOOL SYSTEM Marcelina M. Miguel and Victor M. Ordonez Ministry of Education, Culture and Sports (MECS) Republic of the Philippines
Historical Background In t h e Philippines, free e l e m e n t a r y e d u c a t i o n is t h e right of every citizen. In fact, it c o n s t i t u t e s t h e entire e n g a g e m e n t with the formal e d u c a t i o n s y s t e m for a significant n u m b e r of Filipinos. E n r o l l m e n t in e l e m e n t a r y e d u c a t i o n h a s expanded rapidly since the 1960's a n d by 1986 a b o u t 8.8 million children, i n c l u d i n g more t h a n 80% of t h o s e in the e l e m e n t a r y age g r o u p of seven to twelve were enrolled in e l e m e n t a r y schools. The m a j o r p r o b l e m s a n d i s s u e s in e l e m e n t a r y e d u c a t i o n are easily t r a c e d to certain g o v e r n m e n t financial a n d a d m i n i s t r a t i v e policies arising from the fact t h a t the National Government carries the m a i n responsibility for financing this level of education. The total b u d g e t a r y allocation for the M i n i s t r y of E d u c a t i o n , C u l t u r e a n d Sports (MECS) h a s b e e n s t e a d i l y decreasing so t h a t in 1965 the MECS Budget was 28.5% of the National Budget; in 1975 it was down to 14% and slightly less t h a n t h a n in 1985. Of the total MECS budget, 90% goes to the elementary e d u c a t i o n sector. In a pupil cost s t u d y (EDPITAF, 1979) for example, capital e x p e n d i t u r e on e l e m e n t a r y e d u c a t i o n a m o u n t e d to a b o u t four U.S. dollars equivalent per pupil a n d r e c u r r e n t expenditure, forty two U.S. dollars per pupil. Of the r e c u r r e n t a p p r o p r i a t i o n for e l e m e n t a r y e d u c a t i o n , 98% is allocated for salaries and administration and only 2% (about eighty U.S. cents per student) is available for other i n p u t s like textbooks a n d other institutional materials, 37
38
M. M. Miguel and K 114. Ordonez
c l a s s r o o m supervision, t e a c h e r upgrading, evaluation a n d m a i n t e n a n c e of physical facilities. Certain administrative policies of the g o v e r n m e n t also tend to contribute to an u n e v e n development of elementary education. E m p h a s i s h a s been given to enrollment expansion, primarily by the opening of extension classes every y e a r to a c c o m m o d a t e first g r a d e r s a n d by the e x p a n s i o n of the t e a c h i n g force. As a result, i n a d e q u a t e a t t e n t i o n h a s been given to quality, efficiency and variations in s t u d e n t performances. The w e a k n e s s of this a d m i n i s t r a t i v e policy is reflected in the m a i n o u t c o m e s of e l e m e n t a r y e d u c a t i o n where the average s t u d e n t scored less t h a n 50% in a c h i e v e m e n t tests covering the learning objectives a n d in the fact t h a t 35% of s t u d e n t s e n t e r i n g Grade 1 never complete the six-year educational cycle. C e r t a i n p r a c t i c e s c o n c e r n i n g s t u d e n t a d m i s s i o n s a n d the policy for advancing s t u d e n t s from grade to grade also contribute to problems of pupil retention a n d progression in t h e s e grades. While the policy requires t h a t c h i l d r e n e n t e r G r a d e One at age seven, this h a s never been effectively enforced. In a r e c e n t s t u d y m a d e by EDPITAF (1979), It was s h o w n t h a t p r o m o t i o n from grade to grade requires p a s s i n g periodic t e a c h e r - d e s i g n e d e x a m i n a t i o n s a n d y e a r - e n d school tests. There was no a d e q u a t e attention given to d i a g n o s t i c t e s t i n g a n d r e m e d i a l i n s t r u c t i o n p r i o r to final e x a m i n a t i o n s a n d 8% of the pupils r e p e a t e d grades d u r i n g the mid-70's. The r e s u l t s of recent s t u d i e s f u r t h e r suggest t h a t grade repetition does not necessarily improve the performance of low achievers a n d can create moral p r o b l e m s t h a t lead to pupils dropping out (Soriano, 1971). More effective e n f o r c e m e n t of the a d m i s s i o n s policy a n d revised p r o c e d u r e s for s t u d e n t evaluation a n d progression are n e e d e d to raise a c h i e v e m e n t a n d survival rates. With t h e p e r e n n i a l p r o b l e m of a c c o m m o d a t i n g a n e v e r - i n c r e a s i n g enrollment, a n d d e m a n d for resources in the form of teachers, classrooms, d e s k s , b o o k s , a n d o t h e r m a t e r i a l s n e c e s s a r y to basic e d u c a t i o n , the Philippine g o v e r n m e n t c r e a t e d t h e P r e s i d e n t i a l C o m m i s s i o n to S u r v e y Philippine E d u c a t i o n (PCSPE, 1970) to look into t h e b a s i c w e a k n e s s i n h e r e n t in the existing e d u c a t i o n a l situation. W h a t was worrying national policy m a k e r s was the fact t h a t s u p p o r t for the educational s y s t e m which is costing the n a t i o n over two billion pesos a n n u a l l y is increasingly becoming more difficult to s u s t a i n , especially b e c a u s e the r e t u r n s are of questionable
Philippines School
39
m a g n i t u d e . S h o r t l y afterwards, the E d u c a t i o n a l Project I m p l e m e n t a t i o n T a s k Force (EDPITAF) was created in 1972 for the p u r p o s e of identifying a n d p r e p a r i n g the project s t u d i e s r e c o m m e n d e d by the PCSPE, especially those t h a t are oriented towards other countries. One of the first projects u n d e r t a k e n by EDPITAF was the Survey of the O u t c o m e s of E l e m e n t a r y Education (SOUTELE) in 1975. A growing n u m b e r of questions were being asked by the top educational policy m a k e r s (National B o a r d of E d u c a t i o n ) t h a t have to do w i t h t h e efficiency w i t h w h i c h e d u c a t i o n a l resources are being utilized at the e l e m e n t a r y level. In 1975 there was no evaluation information available at all.
Survey of the Outcomes of Elementary Education (SOUTELE)
EDPITAF l a u n c h e d Project SOUTELE in 1975. It s o u g h t answers to the following questions: 1. W h a t are the outcomes of elementary education? 2. W h a t factors affect those outcomes? 3. W h i c h of t h e s e factors c a n be modified by i n f o r m e d p l a n n i n g and decision-making? P r i n c i p a l l y , t h e s t u d y w a s u s e d to give i n f o r m a t i o n to t h o s e d e c i s i o n - m a k e r s at the n a t i o n a l level whose responsibility it is to allocate a n d to rationalize scarce resources in education. The project was designed to provide i n f o r m a t i o n w h i c h w o u l d be u s e f u l in policy f o r m u l a t i o n , educational planning, r e s t r u c t u r i n g the c u r r i c u l u m and redirecting methodology, staff a n d physical facilities development, a n d deepening the u n d e r s t a n d i n g of the problems t h a t confront elementary education. Project SOUTELE h a s as its basic i n s t r u m e n t for m e a s u r i n g th o u t c o m e s of e d u c a t i o n , a b a t t e r y of c r i t e r i o n - r e f e r e n c e d a c a d e m i c achievement tests. In a d d i t i o n to t h e s e a c h i e v e m e n t t e s t s m e a s u r i n g c o m p e t e n c y a n d general knowledge, a m e n t a l ability test w a s used. The s e c o n d type of i n s t r u m e n t was a noncognitive m e a s u r e , w h i c h was an a t t i t u d e inventory for m e a s u r i n g levels a n d types of affective l e a m i n g . The third set of i n s t r u m e n t s consisted of q u e s t i o n n a i r e s on the following: (1) p u p i l ' s i n f o r m a t i o n s h e e t , (2) p u p i l ' s h o m e b a c k g r o u n d ; (3) t e a c h e r ' s b a c k g r o u n d a n d (4) school characteristics. The major findings a b o u t the
40
M. 114.M i g u e l a n d V. M. Ordonez
s t a t u s of e l e m e n t a r y e d u c a t i o n in 1975 (SOUTELE Report ,
1976) are as
follows:
(1)
On average g r a d u a t e s of e l e m e n t a r y schools a c r o s s t he n a t i o n can only a n s w e r 50% of the t e s t i t em s correctly. If one is to u s e t he s t a n d a r d p a s s i n g r a n k for t e s t s of 75%, t h e n t he average e l e m e n t a r y school g r a d u a t e h a s l e a r n e d only t w o - t h i r d s of t h e m a t e r i a l . T he s u b j e c t a r e a s whi c h e l e m e n t a r y school g r a d u a t e s s e e m e d to have learned least a r e t h o s e t r a d i t i o n a l l y c o n s i d e r e d to f o r m t h e b a s i c c o n t e n t of e l e m e n t a r y education: Reading, M a t h e m a t i c s and Language.
(2)
M a n y t e a c h e r s ' e v a l u a t i o n s of s t u d e n t s m o t i v a t i o n are n o t c o n g r u e n t with th e s t u d e n t s ' general a s s e s s m e n t of themselves. T h e r e is strong e v i d e n c e t h a t t h e s t u d e n t s ' e v a l u a t i o n s are largely a s s o c i a t e d with levels of a c a d e m i c p e r f o r m a n c e a n d on average, t e a c h e r s feel t h a t t h e i r s t u d e n t s c a n n o t cope with t h e l e a r n i n g r e q u i r e m e n t s of t h e i r grade level. This is p r o b a b l y a n indication of the n e e d for d e t e r m i n i n g a realistically achi evabl e s e t of l e a r n i n g objectives a n d t he need for m o r e s y s t e m a t i c r e t r a i n i n g of t e a c h e r s in s t r a t e g i e s for u p g r a d i n g p u p il c o m p e t e n c i e s .
(3)
H e a d s of s c h o o l s c h o s e n for t he s t u d y r e p o r t e d t h a t , e x c e p t for i n s t r u c t i o n a l m a t e r i a l s provided by t h e m s e l v e s , t he facilities of their schools are "barely adequate". The o b s e r v a t i o n s of policy m a k e r s a b o u t th is wer e c o n f i r m e d a l t h o u g h t h e y h a d n o t realized h o w w i d e s p r e a d a n d a l l - c o m p a s s i n g was the feeling of being i n a d e q u a t e l y provided for, or t h e implication of t h e s e feelings with regard to t he level of morale t h r o u g h o u t t he system.
(4)
Teachers perceived that
changes
in t h e e d u c a t i o n a l p r o g r a m m e
o c c u r r e d f as t e r t h a n t h e y could u n d e r s t a n d t hem , som e of which t hey were n o t willing or able to i m p l e m e n t . Above all, t e a c h e r s a n d school h e a d s t h i n k t h a t t h e s e c h a n g e s a n d i n n o v a t i o n s have y e t to prove t h e m s e l v e s to be m o r e a d v a n t a g e o u s t h a n t he existing p r o g r a m m e . T h e y feel t h e y do n o t have the f r e e d o m to r e s t r u c t u r e old c u r r i c u l a r a r r a n g e m e n t s to be able to p r o p e r l y i m p l e m e n t t he new p r o g r a m m e s . T h i s m a y r e f l ect t h e o p i n i o n t h a t no m a t t e r h o w good t h e n e w p r o g r a m m e s are, if t h e y a r e b e i n g i m p l e m e n t e d in t h e t y p i c a l b u r e a u c r a t i c m a n n e r , t her e can be n o t h i n g n e w n o r good.
Philippines School
(5)
41
Project SOUTELE c a u t i o n s t h a t it is n o t feasible to m e a s u r e n o n a c a d e m i c outcomes in large scale testing situations, so evaluation by t h e t e a c h e r s h o u l d a d e q u a t e l y provide for the a s s e s s m e n t of progress in the development of habits, a t t i t u d e s a n d m a n i p u l a t i v e skills b a s i c to e l e m e n t a r y e d u c a t i o n , e.g. h e a l t h h a b i t s , desirable a t t i t u d e s towards work skills., etc.
Some t w e n t y t h r e e r e c o m m e n d a t i o n s as to possible remedies for the s i t u a t i o n s citied in t h e s e findings were given in the SOUTELE report in 1976 a n d m a y be s u m m e d up as follows: t h a t a programme of compensatory a n d remedial e d u c a t i o n s h o u l d be developed as a total package including p h y s i c a l r e s o u r c e s , specialized t e a c h e r training, a n d the s e t t i n g up of learning objectives a n d e d u c a t i o n a l processes relevant to the e d u c a t i o n of disadvantaged pupils from rural and low socio-economic backgrounds. The r e c o m m e n d e d i m p r o v e m e n t s in e l e m e n t a r y e d u c a t i o n by Project SOUTELE p r o m p t e d MECS, p a r t i c u l a r l y t h e B u r e a u of Elementary E d u c a t i o n (BEE), to draw up a d y n a m i c Ten-Year Development Programme (1981-1990) for this level of education. The availability of f u n d s from a World B a n k Loan h a s triggered the early l a u n c h i n g of the implementation of this programme. T h i s P r o g r a m m e for D e c e n t r a l i z e d E d u c a t i o n a l D e v e l o p m e n t (PRODED) was s c h e d u l e d for 1982-5. The m a i n goals of PRODED were: (1) to redress disparities in the allocation of resources and services b a s e d on the degree of educational deprivation of each region; (2) to raise the over-all quality and efficiency of e l e m e n t a r y education; and (3) to improve the m a n a g e m e n t capabilities of the s y s t e m , especially at the regional a n d sub-regional levels. Project PRODED is cognizant of the results of the survey m a d e by BEE of the m i s s i o n - a n d - v a l u e s t h r u s t s of elementary education. The basic objectives and values to be t a u g h t were mostly derived from the results of this Delphi-type survey. PRODED aims to improve pupil achievement, decrease d r o p - o u t ratio, raise retention a n d participation rates, increase the p u p i l - t e a c h e r ratio and increase the efficiency of the educational system. Performance targets have been set for the period 1981-1985 b a s e d on t h e t a r g e t s for 1989-1990. First of all, the BEE, s p e a r h e a d e d by the C u r r i c u l u m Division, developed a new e l e m e n t a r y school c u r r i c u l u m (NESC) on the basis of the try-out of the E x p e r i m e n t a l E l e m e n t a r y E d u c a t i o n a l Programme for two y e a r s (1978-80). A series of c o n s u l t a t i o n s with parents, pupils, teachers, school h e a d s and
42
114, M. M i g u e l and V. M. Ordonez
a c a d e m i c e x p e r t s in t he m i s s i ons a nd t h r u s t s of e l e m e n t a r y e d u c a t i o n led to t h e finalization of the objectives a nd c o n t e n t of the NESC w h i c h was finally i n t r o d u c e d in all s c h o o l s in 1983. O t h e r s t r a t e g i e s i n c l u d e provi di ng a d e q u a t e t e x t b o o k s a n d s u p p l e m e n t a r y i n s t r u c t i o n a l m a t e r i a l s , improving s t a f f d e v e l o p m e n t p r o g r a m m e s , p r o v i d i n g a d e q u a t e s c h o o l facilities a n d i n s t a l l i n g a n effective m o n i t o r i n g a n d e v a l u a t i o n s y s t e m a n d e d u c a t i o n a l r e s e a r c h to u n d e r p i n policy formulation. With the i m p l e m e n t a t i o n of the ne w c u r r i c u l u m now well u n d e r w a y , the need to e m p h a s i z e quality as a n i m p o r t a n t factor of e l e m e n t a r y e d u c a t i o n has b e c o m e imperative. A m oni t or i ng s y s t e m was installed by PRODED to e n s u r e t h a t th e p e r f o r m a n c e t a r get s are met, This involves a c h i e v e m e n t testing and collection of d a t a on pupils and e d u c a t i o n a l r e s o u r c e s at the beginning of the i m p l e m e n t a t i o n of P r o j e c t PRODED a n d at r e g u l a r i n t e r v a l s d u r i n g its p r o j e c t e d e x i s t e n c e , at t h e n a t i o n a l a n d local levels. Formative and s u m m a t i v e e v a l u a t i o n of i nput , p r o c e s s a n d o u t p u t is bei ng c o n d u c t e d to e n s u r e m a x i m u m a c h i e v e m e n t of objectives (Sutaria, 1982).
National Quality S t a n d a r d s
To a c h i e v e q u a l i t y , c e r t a i n e l e m e n t s t h a t are c r i t i c a l to r a i s i n g e d u c a t i o n a l s t a n d a r d s need to be considered, s u c h as (1) c u r r i c u l a r c o n t e n t a n d m a t e r i a l s ; (b) i n s t r u c t i o n a l s t r a t e g i e s a n d aids; (c) e v a l u a t i o n ; t e a c h e r quality, a nd (e) physical facilities.
(d)
The a s s e s s m e n t of e d u c a t i o n a l s t a n d a r d s begins with an e x a m i n a t i o n of the c u r r i c u l u m . T he B E E a n d MECS i s s u e d a n e w listing of w h a t is now k n o w n as th e M i n i m u m Learning C o m p e t e n c i e s (MLC) in every s u b j e c t and w h i c h is c o n s i d e r e d t h e m i n i m u m s t a n d a r d of pupi l p e r f o r m a n c e in the grade. T h e s e objectives are e x p e c t e d to be achieved at 75% m a s t e r y level for all pupils. Q u a l i t y e d u c a t i o n r e q u i r e s however, t h a t all pupils s h o u l d achieve b e y o n d this m i n i m u m s t a n d a r d . As in m a n y o t h e r countries, a form of m i n i m u m c o m p e t e n c y testing has b e e n a d o p t e d in m e a s u r i n g the p e r f o r m a n c e of pupils in e l e m e n t a r y schools. T h e MECS h a s e x e r t e d efforts to i ns t a l l an e v a l u a t i o n - f e e d b a c k s y s t e m nationwide. W i t h t h e M i n i m u m L e a r n i n g C o m p e t e n c i e s as a b a s i s ,
Philippines School
43
c r i t e r i o n - r e f e r e n c e d t e s t s were p r e p a r e d a n d a d m i n i s t e r e d at t h e n a t i o n a l a n d local levels c o n v e r i n g t he b a s i c c o n c e p t s a n d skills, t o g e t h e r with n o n c o g n i t i v e m e a s u r e s on d e s i r a b l e v a l u e s a n d a t t i t u d e s r e l a t e d to Philipinism an d h u m a n i s m . The evaluation c o m p o n e n t of this project h a s b e e n e x p a n d e d to include t h e d e v e l o p m e n t of a n item b a n k from w h i c h t e s t s of multi-level difficulty c a n be a s s e m b l e d . T hi s e v a l u a t i o n s u b p r o j e c t is called P r e p a r a t i o n of E l e m e n t a r y E d u c a t i o n M e a s u r e s (PREEM). T he p u r p o s e of PREEM is (a) to evaluate th e viability of the c u r r i c u l u m as to c o n t e n t load and difficulty (b) to g a t h e r i n f o r m a t i o n a b o u t the usability of the n e w set of t ext books and other i n s t r u c t i o n a l m a t e r i a l s p r e p a r e d for t h e 1983 NESC; (c) to d e t e r m i n e the feasibility of a d o p t i n g varied p r o g r a m m e s c h e d u l e s a n d s t u d y of d r o p - o u t s t u d e n t s a nd their r e a s o n s for so doing.
(d) to c o n d u c t a
Th e d es ign for PREEM calls for two c o n s e c u t i v e y e a r - e n d cognitive a c h i e v e m e n t t e s t s for e a c h grade w h e r e t he p r o j e c t is i m p l e m e n t e d . * The n a t i o n a l s t a n d a r d for quality is an i nc r ease of at least two p e r cent over t h a t of th e p r e v i o u s year. E a c h a d m i n i s t r a t i v e region h a s to e s t a b l i s h its own b a s e l i n e a c h i e v e m e n t level, i.e., the r e s u l t s of first y e a r - e n d tests. Besides t h e a c h i e v e m e n t test, interviews with r e p r e s e n t a t i v e s a m p l e s of t e a c h e r s reg ar d in g th e m a t e r i a l s are c o n d u c t e d . Finally, different q u e s t i o n n a i r e s for pupils, t e a c h e r s , and school h e a d s are b ein g u s e d to g a t h e r information on a n u m b e r of school a n d n o n s c h o o l v a r i a b l e s t h a t could p o s s i b l y affect learning. T he r e s u l t s of t he n a t i o n a l PREEM T e s t for G r a d e One, in y e a r one (1983), c o m p a r e d with y e a r two (1984), s h o wed an overall increase of five per cent. Th e r e s u l t s of t h e s e tests are utilized for several specific p u r p o s e s , s u c h as; (a) for m a r k i n g or g r a d i n g p u p i l s for p r o m o t i o n a l p u r p o s e s ; (b) d i a g n o s i n g s t r e n g t h s and w e a k n e s s e s of pupils as t h e y p r o g r e s s from one lesson to a n o t h e r . In a b r o a d e r sense, a c h i e v e m e n t t e s t r e s u l t s c a n be used in the d e c i s i o n - m a k i n g of e d u c a t i o n a l p l a n n e r s and c u r r i c u l u m developers. The r e s u l t s of the t r y - o u t s of new c u r r i u c u l u m materials, for example, are a n l a y s e d by objectives to det er m i ne their difficulty levels and t hese serve as
* Th e 1982 NESC is being i n t r o d u c e d grade by grade s t a r t i n g in School Year 1982-83 to 1988-89.
44
M. M. Migue/ and V. M. Ordonez
e l e m e n t s for d i s c u s s i o n in p l a n n i n g w o r k s h o p s a n d c o n f e r e n c e s in t he different s u b j e c t areas. Suggestions for F u r t h e r Study: 1.
S e v e r a l c o n f l i c t i n g o p i n i o n s c a m e u p r e g a r d i n g t h e u s e of c r i t e r i o n - r e f e r e n c e d t es t s in place of n o r m - r e f e r e n c e d t e s t s in the identification of v a r i a t i o n s in t he qual i t y of schooling. T he latter type a r e b e s t u s e d to differentiate individual differences. If t hey v a r y in p u r p o s e , and therefore also vary in development, care m u s t be t a k e n so t h a t one will not be u s e d in place of t he t he other.
.
With t h e r e q u i r e d u s e of t h e MLC, m i n i m u m c o m p e t e n c y testing h a s b e c o m e v e r y p o p u l a r to t he neglect p e r h a p s , overall learning of all types of learners.
.
of testing the
Too m u c h e m p h a s i s on m i n i m u m c o m p e t e n c y t e s t i n g m a y resul t in limited efforts to e v a l u a t e t h e q u a l i t y f a c t o r s like r e s o u r c e variables, e.g. school buildings a n d facilities w h i c h m a y be highly c o n t r o l l a b l e t h o u g h s u b j e c t to "heavy political c o n s t r a i n t s " . The a v a i l a b i l i t y of s c h o o l r e s o u r c e s a n d its r e l a t i o n s h i p w i t h the a c h i e v e m e n t of pupi l s is n o t easily d e t e r m i n e d . If one analyzes th e d i s t r i b u t i o n of r e s o u r c e s at t he level of t he individual s t u d e n t p e r h a p s t he effect can be m e a s u r e d .
4.
A c h i e v e m e n t is positively r e l a ted to t he v e r b a l skills of t eachers; a c h i e v e m e n t levels are generally rel at ed to t e a c h e r training. There are no c o m p r e h e n s i v e r e p o r t s of t he fi ndi ngs of t he DAP-ERP, P R O D E D - f u n d e d pr oj e c t u p to the p r e s e n t , to relate t h e s e act ual t e a c h e r p e r f o r m a n c e s to pupils a c h i e v e m e n t .
References B u r e a u of E l e m e n t a r y Education, MECS (i 980) E l e m e n t a r y L e a m i n~ C o n t i n u u m (1982) R e s e a r c h Design of ~roject Preem (mimeograph) (1984) M i n i m u m Learning Competencies in Different Subjects. Centre for E d u c a t i o n a l M e a s u r e m e n t (1986) Report on National Achievement Tests in Grade I Makati: Centre for E d u c a t i o n a l Measurement.
Philippines School 45
Ministry of Education, Culture and Sports (MECS) (1976) Report on the Survey of the Outcomes of Elementary_ Education (SOU'i'ELE II Makati: Educational Development Project Implementing Task Force (EDPITAF). Presidential Committee to Survey Philipine Education PCSPE Report (1970). Soriano, Liceria, B.N., (1971) Continuous Progression Scheme in Philipine Schools. Manila: JMC Press. Sutaria, Minda C. (1983) Thrusts in Elementary Education in the 80's B u r e a u of Elementary Educaton. A mimeographed copy. World Bank: (1981) International B a n k for Reconstruction and Development (IBRD) IBRD Appraisal Report on PRODED
The Authors
MARCELINA MIGUEL is chief of the C u r r i c u l u m D e v e l o p m e n t Division, B u r e a u of Elementary Education within the Ministry of Education, Culture & S p o r t s in t h e Philippines. She is c u r r e n t l y director of the c u r r i c u l u m d e v e l o p m e n t a n d e v a l u a t i o n p r o j e c t s in t h e n a t i o n a l P r o g r a m m e for Decentralized E d u c a t i o n a l Development. VICTOR M. ORDONEZ is D e p u t y Minister for the Ministry of Education, C u l t u r e & Sports and C h a i r m a n of the Board of Higher E d u c a t i o n in the Philippines. Prior to this he w a s visiting Professional L e c t u r e r at the D e p a r t m e n t of Education, University of California, Los Angeles a n d senior fellow at E a s t West Centre.
0191-491X/88 $0.00 + .50 Copyright © 1988 Pergamon Press plc
Printed in Great Britain. All rights reserved.
THE PHILIPPINE ELEMENTARY SCHOOL SYSTEM Marcelina M. Miguel and Victor M. Ordonez Ministry of Education, Culture and Sports (MECS) Republic of the Philippines
Historical Background In t h e Philippines, free e l e m e n t a r y e d u c a t i o n is t h e right of every citizen. In fact, it c o n s t i t u t e s t h e entire e n g a g e m e n t with the formal e d u c a t i o n s y s t e m for a significant n u m b e r of Filipinos. E n r o l l m e n t in e l e m e n t a r y e d u c a t i o n h a s expanded rapidly since the 1960's a n d by 1986 a b o u t 8.8 million children, i n c l u d i n g more t h a n 80% of t h o s e in the e l e m e n t a r y age g r o u p of seven to twelve were enrolled in e l e m e n t a r y schools. The m a j o r p r o b l e m s a n d i s s u e s in e l e m e n t a r y e d u c a t i o n are easily t r a c e d to certain g o v e r n m e n t financial a n d a d m i n i s t r a t i v e policies arising from the fact t h a t the National Government carries the m a i n responsibility for financing this level of education. The total b u d g e t a r y allocation for the M i n i s t r y of E d u c a t i o n , C u l t u r e a n d Sports (MECS) h a s b e e n s t e a d i l y decreasing so t h a t in 1965 the MECS Budget was 28.5% of the National Budget; in 1975 it was down to 14% and slightly less t h a n t h a n in 1985. Of the total MECS budget, 90% goes to the elementary e d u c a t i o n sector. In a pupil cost s t u d y (EDPITAF, 1979) for example, capital e x p e n d i t u r e on e l e m e n t a r y e d u c a t i o n a m o u n t e d to a b o u t four U.S. dollars equivalent per pupil a n d r e c u r r e n t expenditure, forty two U.S. dollars per pupil. Of the r e c u r r e n t a p p r o p r i a t i o n for e l e m e n t a r y e d u c a t i o n , 98% is allocated for salaries and administration and only 2% (about eighty U.S. cents per student) is available for other i n p u t s like textbooks a n d other institutional materials, 37
38
M. M. Miguel and K 114. Ordonez
c l a s s r o o m supervision, t e a c h e r upgrading, evaluation a n d m a i n t e n a n c e of physical facilities. Certain administrative policies of the g o v e r n m e n t also tend to contribute to an u n e v e n development of elementary education. E m p h a s i s h a s been given to enrollment expansion, primarily by the opening of extension classes every y e a r to a c c o m m o d a t e first g r a d e r s a n d by the e x p a n s i o n of the t e a c h i n g force. As a result, i n a d e q u a t e a t t e n t i o n h a s been given to quality, efficiency and variations in s t u d e n t performances. The w e a k n e s s of this a d m i n i s t r a t i v e policy is reflected in the m a i n o u t c o m e s of e l e m e n t a r y e d u c a t i o n where the average s t u d e n t scored less t h a n 50% in a c h i e v e m e n t tests covering the learning objectives a n d in the fact t h a t 35% of s t u d e n t s e n t e r i n g Grade 1 never complete the six-year educational cycle. C e r t a i n p r a c t i c e s c o n c e r n i n g s t u d e n t a d m i s s i o n s a n d the policy for advancing s t u d e n t s from grade to grade also contribute to problems of pupil retention a n d progression in t h e s e grades. While the policy requires t h a t c h i l d r e n e n t e r G r a d e One at age seven, this h a s never been effectively enforced. In a r e c e n t s t u d y m a d e by EDPITAF (1979), It was s h o w n t h a t p r o m o t i o n from grade to grade requires p a s s i n g periodic t e a c h e r - d e s i g n e d e x a m i n a t i o n s a n d y e a r - e n d school tests. There was no a d e q u a t e attention given to d i a g n o s t i c t e s t i n g a n d r e m e d i a l i n s t r u c t i o n p r i o r to final e x a m i n a t i o n s a n d 8% of the pupils r e p e a t e d grades d u r i n g the mid-70's. The r e s u l t s of recent s t u d i e s f u r t h e r suggest t h a t grade repetition does not necessarily improve the performance of low achievers a n d can create moral p r o b l e m s t h a t lead to pupils dropping out (Soriano, 1971). More effective e n f o r c e m e n t of the a d m i s s i o n s policy a n d revised p r o c e d u r e s for s t u d e n t evaluation a n d progression are n e e d e d to raise a c h i e v e m e n t a n d survival rates. With t h e p e r e n n i a l p r o b l e m of a c c o m m o d a t i n g a n e v e r - i n c r e a s i n g enrollment, a n d d e m a n d for resources in the form of teachers, classrooms, d e s k s , b o o k s , a n d o t h e r m a t e r i a l s n e c e s s a r y to basic e d u c a t i o n , the Philippine g o v e r n m e n t c r e a t e d t h e P r e s i d e n t i a l C o m m i s s i o n to S u r v e y Philippine E d u c a t i o n (PCSPE, 1970) to look into t h e b a s i c w e a k n e s s i n h e r e n t in the existing e d u c a t i o n a l situation. W h a t was worrying national policy m a k e r s was the fact t h a t s u p p o r t for the educational s y s t e m which is costing the n a t i o n over two billion pesos a n n u a l l y is increasingly becoming more difficult to s u s t a i n , especially b e c a u s e the r e t u r n s are of questionable
Philippines School
39
m a g n i t u d e . S h o r t l y afterwards, the E d u c a t i o n a l Project I m p l e m e n t a t i o n T a s k Force (EDPITAF) was created in 1972 for the p u r p o s e of identifying a n d p r e p a r i n g the project s t u d i e s r e c o m m e n d e d by the PCSPE, especially those t h a t are oriented towards other countries. One of the first projects u n d e r t a k e n by EDPITAF was the Survey of the O u t c o m e s of E l e m e n t a r y Education (SOUTELE) in 1975. A growing n u m b e r of questions were being asked by the top educational policy m a k e r s (National B o a r d of E d u c a t i o n ) t h a t have to do w i t h t h e efficiency w i t h w h i c h e d u c a t i o n a l resources are being utilized at the e l e m e n t a r y level. In 1975 there was no evaluation information available at all.
Survey of the Outcomes of Elementary Education (SOUTELE)
EDPITAF l a u n c h e d Project SOUTELE in 1975. It s o u g h t answers to the following questions: 1. W h a t are the outcomes of elementary education? 2. W h a t factors affect those outcomes? 3. W h i c h of t h e s e factors c a n be modified by i n f o r m e d p l a n n i n g and decision-making? P r i n c i p a l l y , t h e s t u d y w a s u s e d to give i n f o r m a t i o n to t h o s e d e c i s i o n - m a k e r s at the n a t i o n a l level whose responsibility it is to allocate a n d to rationalize scarce resources in education. The project was designed to provide i n f o r m a t i o n w h i c h w o u l d be u s e f u l in policy f o r m u l a t i o n , educational planning, r e s t r u c t u r i n g the c u r r i c u l u m and redirecting methodology, staff a n d physical facilities development, a n d deepening the u n d e r s t a n d i n g of the problems t h a t confront elementary education. Project SOUTELE h a s as its basic i n s t r u m e n t for m e a s u r i n g th o u t c o m e s of e d u c a t i o n , a b a t t e r y of c r i t e r i o n - r e f e r e n c e d a c a d e m i c achievement tests. In a d d i t i o n to t h e s e a c h i e v e m e n t t e s t s m e a s u r i n g c o m p e t e n c y a n d general knowledge, a m e n t a l ability test w a s used. The s e c o n d type of i n s t r u m e n t was a noncognitive m e a s u r e , w h i c h was an a t t i t u d e inventory for m e a s u r i n g levels a n d types of affective l e a m i n g . The third set of i n s t r u m e n t s consisted of q u e s t i o n n a i r e s on the following: (1) p u p i l ' s i n f o r m a t i o n s h e e t , (2) p u p i l ' s h o m e b a c k g r o u n d ; (3) t e a c h e r ' s b a c k g r o u n d a n d (4) school characteristics. The major findings a b o u t the
40
M. 114.M i g u e l a n d V. M. Ordonez
s t a t u s of e l e m e n t a r y e d u c a t i o n in 1975 (SOUTELE Report ,
1976) are as
follows:
(1)
On average g r a d u a t e s of e l e m e n t a r y schools a c r o s s t he n a t i o n can only a n s w e r 50% of the t e s t i t em s correctly. If one is to u s e t he s t a n d a r d p a s s i n g r a n k for t e s t s of 75%, t h e n t he average e l e m e n t a r y school g r a d u a t e h a s l e a r n e d only t w o - t h i r d s of t h e m a t e r i a l . T he s u b j e c t a r e a s whi c h e l e m e n t a r y school g r a d u a t e s s e e m e d to have learned least a r e t h o s e t r a d i t i o n a l l y c o n s i d e r e d to f o r m t h e b a s i c c o n t e n t of e l e m e n t a r y education: Reading, M a t h e m a t i c s and Language.
(2)
M a n y t e a c h e r s ' e v a l u a t i o n s of s t u d e n t s m o t i v a t i o n are n o t c o n g r u e n t with th e s t u d e n t s ' general a s s e s s m e n t of themselves. T h e r e is strong e v i d e n c e t h a t t h e s t u d e n t s ' e v a l u a t i o n s are largely a s s o c i a t e d with levels of a c a d e m i c p e r f o r m a n c e a n d on average, t e a c h e r s feel t h a t t h e i r s t u d e n t s c a n n o t cope with t h e l e a r n i n g r e q u i r e m e n t s of t h e i r grade level. This is p r o b a b l y a n indication of the n e e d for d e t e r m i n i n g a realistically achi evabl e s e t of l e a r n i n g objectives a n d t he need for m o r e s y s t e m a t i c r e t r a i n i n g of t e a c h e r s in s t r a t e g i e s for u p g r a d i n g p u p il c o m p e t e n c i e s .
(3)
H e a d s of s c h o o l s c h o s e n for t he s t u d y r e p o r t e d t h a t , e x c e p t for i n s t r u c t i o n a l m a t e r i a l s provided by t h e m s e l v e s , t he facilities of their schools are "barely adequate". The o b s e r v a t i o n s of policy m a k e r s a b o u t th is wer e c o n f i r m e d a l t h o u g h t h e y h a d n o t realized h o w w i d e s p r e a d a n d a l l - c o m p a s s i n g was the feeling of being i n a d e q u a t e l y provided for, or t h e implication of t h e s e feelings with regard to t he level of morale t h r o u g h o u t t he system.
(4)
Teachers perceived that
changes
in t h e e d u c a t i o n a l p r o g r a m m e
o c c u r r e d f as t e r t h a n t h e y could u n d e r s t a n d t hem , som e of which t hey were n o t willing or able to i m p l e m e n t . Above all, t e a c h e r s a n d school h e a d s t h i n k t h a t t h e s e c h a n g e s a n d i n n o v a t i o n s have y e t to prove t h e m s e l v e s to be m o r e a d v a n t a g e o u s t h a n t he existing p r o g r a m m e . T h e y feel t h e y do n o t have the f r e e d o m to r e s t r u c t u r e old c u r r i c u l a r a r r a n g e m e n t s to be able to p r o p e r l y i m p l e m e n t t he new p r o g r a m m e s . T h i s m a y r e f l ect t h e o p i n i o n t h a t no m a t t e r h o w good t h e n e w p r o g r a m m e s are, if t h e y a r e b e i n g i m p l e m e n t e d in t h e t y p i c a l b u r e a u c r a t i c m a n n e r , t her e can be n o t h i n g n e w n o r good.
Philippines School
(5)
41
Project SOUTELE c a u t i o n s t h a t it is n o t feasible to m e a s u r e n o n a c a d e m i c outcomes in large scale testing situations, so evaluation by t h e t e a c h e r s h o u l d a d e q u a t e l y provide for the a s s e s s m e n t of progress in the development of habits, a t t i t u d e s a n d m a n i p u l a t i v e skills b a s i c to e l e m e n t a r y e d u c a t i o n , e.g. h e a l t h h a b i t s , desirable a t t i t u d e s towards work skills., etc.
Some t w e n t y t h r e e r e c o m m e n d a t i o n s as to possible remedies for the s i t u a t i o n s citied in t h e s e findings were given in the SOUTELE report in 1976 a n d m a y be s u m m e d up as follows: t h a t a programme of compensatory a n d remedial e d u c a t i o n s h o u l d be developed as a total package including p h y s i c a l r e s o u r c e s , specialized t e a c h e r training, a n d the s e t t i n g up of learning objectives a n d e d u c a t i o n a l processes relevant to the e d u c a t i o n of disadvantaged pupils from rural and low socio-economic backgrounds. The r e c o m m e n d e d i m p r o v e m e n t s in e l e m e n t a r y e d u c a t i o n by Project SOUTELE p r o m p t e d MECS, p a r t i c u l a r l y t h e B u r e a u of Elementary E d u c a t i o n (BEE), to draw up a d y n a m i c Ten-Year Development Programme (1981-1990) for this level of education. The availability of f u n d s from a World B a n k Loan h a s triggered the early l a u n c h i n g of the implementation of this programme. T h i s P r o g r a m m e for D e c e n t r a l i z e d E d u c a t i o n a l D e v e l o p m e n t (PRODED) was s c h e d u l e d for 1982-5. The m a i n goals of PRODED were: (1) to redress disparities in the allocation of resources and services b a s e d on the degree of educational deprivation of each region; (2) to raise the over-all quality and efficiency of e l e m e n t a r y education; and (3) to improve the m a n a g e m e n t capabilities of the s y s t e m , especially at the regional a n d sub-regional levels. Project PRODED is cognizant of the results of the survey m a d e by BEE of the m i s s i o n - a n d - v a l u e s t h r u s t s of elementary education. The basic objectives and values to be t a u g h t were mostly derived from the results of this Delphi-type survey. PRODED aims to improve pupil achievement, decrease d r o p - o u t ratio, raise retention a n d participation rates, increase the p u p i l - t e a c h e r ratio and increase the efficiency of the educational system. Performance targets have been set for the period 1981-1985 b a s e d on t h e t a r g e t s for 1989-1990. First of all, the BEE, s p e a r h e a d e d by the C u r r i c u l u m Division, developed a new e l e m e n t a r y school c u r r i c u l u m (NESC) on the basis of the try-out of the E x p e r i m e n t a l E l e m e n t a r y E d u c a t i o n a l Programme for two y e a r s (1978-80). A series of c o n s u l t a t i o n s with parents, pupils, teachers, school h e a d s and
42
114, M. M i g u e l and V. M. Ordonez
a c a d e m i c e x p e r t s in t he m i s s i ons a nd t h r u s t s of e l e m e n t a r y e d u c a t i o n led to t h e finalization of the objectives a nd c o n t e n t of the NESC w h i c h was finally i n t r o d u c e d in all s c h o o l s in 1983. O t h e r s t r a t e g i e s i n c l u d e provi di ng a d e q u a t e t e x t b o o k s a n d s u p p l e m e n t a r y i n s t r u c t i o n a l m a t e r i a l s , improving s t a f f d e v e l o p m e n t p r o g r a m m e s , p r o v i d i n g a d e q u a t e s c h o o l facilities a n d i n s t a l l i n g a n effective m o n i t o r i n g a n d e v a l u a t i o n s y s t e m a n d e d u c a t i o n a l r e s e a r c h to u n d e r p i n policy formulation. With the i m p l e m e n t a t i o n of the ne w c u r r i c u l u m now well u n d e r w a y , the need to e m p h a s i z e quality as a n i m p o r t a n t factor of e l e m e n t a r y e d u c a t i o n has b e c o m e imperative. A m oni t or i ng s y s t e m was installed by PRODED to e n s u r e t h a t th e p e r f o r m a n c e t a r get s are met, This involves a c h i e v e m e n t testing and collection of d a t a on pupils and e d u c a t i o n a l r e s o u r c e s at the beginning of the i m p l e m e n t a t i o n of P r o j e c t PRODED a n d at r e g u l a r i n t e r v a l s d u r i n g its p r o j e c t e d e x i s t e n c e , at t h e n a t i o n a l a n d local levels. Formative and s u m m a t i v e e v a l u a t i o n of i nput , p r o c e s s a n d o u t p u t is bei ng c o n d u c t e d to e n s u r e m a x i m u m a c h i e v e m e n t of objectives (Sutaria, 1982).
National Quality S t a n d a r d s
To a c h i e v e q u a l i t y , c e r t a i n e l e m e n t s t h a t are c r i t i c a l to r a i s i n g e d u c a t i o n a l s t a n d a r d s need to be considered, s u c h as (1) c u r r i c u l a r c o n t e n t a n d m a t e r i a l s ; (b) i n s t r u c t i o n a l s t r a t e g i e s a n d aids; (c) e v a l u a t i o n ; t e a c h e r quality, a nd (e) physical facilities.
(d)
The a s s e s s m e n t of e d u c a t i o n a l s t a n d a r d s begins with an e x a m i n a t i o n of the c u r r i c u l u m . T he B E E a n d MECS i s s u e d a n e w listing of w h a t is now k n o w n as th e M i n i m u m Learning C o m p e t e n c i e s (MLC) in every s u b j e c t and w h i c h is c o n s i d e r e d t h e m i n i m u m s t a n d a r d of pupi l p e r f o r m a n c e in the grade. T h e s e objectives are e x p e c t e d to be achieved at 75% m a s t e r y level for all pupils. Q u a l i t y e d u c a t i o n r e q u i r e s however, t h a t all pupils s h o u l d achieve b e y o n d this m i n i m u m s t a n d a r d . As in m a n y o t h e r countries, a form of m i n i m u m c o m p e t e n c y testing has b e e n a d o p t e d in m e a s u r i n g the p e r f o r m a n c e of pupils in e l e m e n t a r y schools. T h e MECS h a s e x e r t e d efforts to i ns t a l l an e v a l u a t i o n - f e e d b a c k s y s t e m nationwide. W i t h t h e M i n i m u m L e a r n i n g C o m p e t e n c i e s as a b a s i s ,
Philippines School
43
c r i t e r i o n - r e f e r e n c e d t e s t s were p r e p a r e d a n d a d m i n i s t e r e d at t h e n a t i o n a l a n d local levels c o n v e r i n g t he b a s i c c o n c e p t s a n d skills, t o g e t h e r with n o n c o g n i t i v e m e a s u r e s on d e s i r a b l e v a l u e s a n d a t t i t u d e s r e l a t e d to Philipinism an d h u m a n i s m . The evaluation c o m p o n e n t of this project h a s b e e n e x p a n d e d to include t h e d e v e l o p m e n t of a n item b a n k from w h i c h t e s t s of multi-level difficulty c a n be a s s e m b l e d . T hi s e v a l u a t i o n s u b p r o j e c t is called P r e p a r a t i o n of E l e m e n t a r y E d u c a t i o n M e a s u r e s (PREEM). T he p u r p o s e of PREEM is (a) to evaluate th e viability of the c u r r i c u l u m as to c o n t e n t load and difficulty (b) to g a t h e r i n f o r m a t i o n a b o u t the usability of the n e w set of t ext books and other i n s t r u c t i o n a l m a t e r i a l s p r e p a r e d for t h e 1983 NESC; (c) to d e t e r m i n e the feasibility of a d o p t i n g varied p r o g r a m m e s c h e d u l e s a n d s t u d y of d r o p - o u t s t u d e n t s a nd their r e a s o n s for so doing.
(d) to c o n d u c t a
Th e d es ign for PREEM calls for two c o n s e c u t i v e y e a r - e n d cognitive a c h i e v e m e n t t e s t s for e a c h grade w h e r e t he p r o j e c t is i m p l e m e n t e d . * The n a t i o n a l s t a n d a r d for quality is an i nc r ease of at least two p e r cent over t h a t of th e p r e v i o u s year. E a c h a d m i n i s t r a t i v e region h a s to e s t a b l i s h its own b a s e l i n e a c h i e v e m e n t level, i.e., the r e s u l t s of first y e a r - e n d tests. Besides t h e a c h i e v e m e n t test, interviews with r e p r e s e n t a t i v e s a m p l e s of t e a c h e r s reg ar d in g th e m a t e r i a l s are c o n d u c t e d . Finally, different q u e s t i o n n a i r e s for pupils, t e a c h e r s , and school h e a d s are b ein g u s e d to g a t h e r information on a n u m b e r of school a n d n o n s c h o o l v a r i a b l e s t h a t could p o s s i b l y affect learning. T he r e s u l t s of t he n a t i o n a l PREEM T e s t for G r a d e One, in y e a r one (1983), c o m p a r e d with y e a r two (1984), s h o wed an overall increase of five per cent. Th e r e s u l t s of t h e s e tests are utilized for several specific p u r p o s e s , s u c h as; (a) for m a r k i n g or g r a d i n g p u p i l s for p r o m o t i o n a l p u r p o s e s ; (b) d i a g n o s i n g s t r e n g t h s and w e a k n e s s e s of pupils as t h e y p r o g r e s s from one lesson to a n o t h e r . In a b r o a d e r sense, a c h i e v e m e n t t e s t r e s u l t s c a n be used in the d e c i s i o n - m a k i n g of e d u c a t i o n a l p l a n n e r s and c u r r i c u l u m developers. The r e s u l t s of the t r y - o u t s of new c u r r i u c u l u m materials, for example, are a n l a y s e d by objectives to det er m i ne their difficulty levels and t hese serve as
* Th e 1982 NESC is being i n t r o d u c e d grade by grade s t a r t i n g in School Year 1982-83 to 1988-89.
44
M. M. Migue/ and V. M. Ordonez
e l e m e n t s for d i s c u s s i o n in p l a n n i n g w o r k s h o p s a n d c o n f e r e n c e s in t he different s u b j e c t areas. Suggestions for F u r t h e r Study: 1.
S e v e r a l c o n f l i c t i n g o p i n i o n s c a m e u p r e g a r d i n g t h e u s e of c r i t e r i o n - r e f e r e n c e d t es t s in place of n o r m - r e f e r e n c e d t e s t s in the identification of v a r i a t i o n s in t he qual i t y of schooling. T he latter type a r e b e s t u s e d to differentiate individual differences. If t hey v a r y in p u r p o s e , and therefore also vary in development, care m u s t be t a k e n so t h a t one will not be u s e d in place of t he t he other.
.
With t h e r e q u i r e d u s e of t h e MLC, m i n i m u m c o m p e t e n c y testing h a s b e c o m e v e r y p o p u l a r to t he neglect p e r h a p s , overall learning of all types of learners.
.
of testing the
Too m u c h e m p h a s i s on m i n i m u m c o m p e t e n c y t e s t i n g m a y resul t in limited efforts to e v a l u a t e t h e q u a l i t y f a c t o r s like r e s o u r c e variables, e.g. school buildings a n d facilities w h i c h m a y be highly c o n t r o l l a b l e t h o u g h s u b j e c t to "heavy political c o n s t r a i n t s " . The a v a i l a b i l i t y of s c h o o l r e s o u r c e s a n d its r e l a t i o n s h i p w i t h the a c h i e v e m e n t of pupi l s is n o t easily d e t e r m i n e d . If one analyzes th e d i s t r i b u t i o n of r e s o u r c e s at t he level of t he individual s t u d e n t p e r h a p s t he effect can be m e a s u r e d .
4.
A c h i e v e m e n t is positively r e l a ted to t he v e r b a l skills of t eachers; a c h i e v e m e n t levels are generally rel at ed to t e a c h e r training. There are no c o m p r e h e n s i v e r e p o r t s of t he fi ndi ngs of t he DAP-ERP, P R O D E D - f u n d e d pr oj e c t u p to the p r e s e n t , to relate t h e s e act ual t e a c h e r p e r f o r m a n c e s to pupils a c h i e v e m e n t .
References B u r e a u of E l e m e n t a r y Education, MECS (i 980) E l e m e n t a r y L e a m i n~ C o n t i n u u m (1982) R e s e a r c h Design of ~roject Preem (mimeograph) (1984) M i n i m u m Learning Competencies in Different Subjects. Centre for E d u c a t i o n a l M e a s u r e m e n t (1986) Report on National Achievement Tests in Grade I Makati: Centre for E d u c a t i o n a l Measurement.
Philippines School 45
Ministry of Education, Culture and Sports (MECS) (1976) Report on the Survey of the Outcomes of Elementary_ Education (SOU'i'ELE II Makati: Educational Development Project Implementing Task Force (EDPITAF). Presidential Committee to Survey Philipine Education PCSPE Report (1970). Soriano, Liceria, B.N., (1971) Continuous Progression Scheme in Philipine Schools. Manila: JMC Press. Sutaria, Minda C. (1983) Thrusts in Elementary Education in the 80's B u r e a u of Elementary Educaton. A mimeographed copy. World Bank: (1981) International B a n k for Reconstruction and Development (IBRD) IBRD Appraisal Report on PRODED
The Authors
MARCELINA MIGUEL is chief of the C u r r i c u l u m D e v e l o p m e n t Division, B u r e a u of Elementary Education within the Ministry of Education, Culture & S p o r t s in t h e Philippines. She is c u r r e n t l y director of the c u r r i c u l u m d e v e l o p m e n t a n d e v a l u a t i o n p r o j e c t s in t h e n a t i o n a l P r o g r a m m e for Decentralized E d u c a t i o n a l Development. VICTOR M. ORDONEZ is D e p u t y Minister for the Ministry of Education, C u l t u r e & Sports and C h a i r m a n of the Board of Higher E d u c a t i o n in the Philippines. Prior to this he w a s visiting Professional L e c t u r e r at the D e p a r t m e n t of Education, University of California, Los Angeles a n d senior fellow at E a s t West Centre.