The Philippines faces a significant literacy challenge, with data revealing that the vast majority of students are not reading at their expected grade level. Recent findings from the Second Congressional Commission on Education (EDCOM 2) underscore a chronic crisis that has persisted for decades.
A Widespread Problem
According to EDCOM 2’s Final Report, released January 26, 88% of students entering Grade 7 are not “grade-level ready” in reading. The commission also found that 40% to 52% of all junior high school students are reading at least two grade levels below their current enrollment. These conclusions are based on assessments conducted by the Department of Education (DepEd).
Despite high rates of school attendance and early childhood education participation, EDCOM 2 noted that the education system struggles to translate schooling into basic literacy skills. The national goal is for children to be literate by the end of Grade 3, but a recent assessment showed that nearly half – 48.76% – of students in Grades 1 to 3 were not reading at their respective grade levels at the end of the 2024-2025 school year.
The Broader Impact
The consequences of low literacy extend beyond the classroom. The Philippine Statistics Authority’s 2024 survey revealed that nearly 30% of Filipinos aged 10 to 64 are functionally illiterate, struggling with tasks like reading instructions or completing forms. EDCOM 2 Executive Director Karol Mark Yee has described the literacy crisis as “a challenge to our national survival,” linking it to malnutrition, limited opportunities, and cycles of poverty.
Looking Ahead
EDCOM 2 has proposed a 10-year National Education Plan (NatPlan) for 2026-2035 to address these long-standing problems. The plan prioritizes improving the functional literacy of early learners and includes recommendations such as addressing classroom congestion, ensuring timely delivery of textbooks, providing internet access, ending “mass promotion” of students, and reducing the administrative burden on teachers.
The Academic Recovery and Accessible Learning (ARAL) Program, established in October 2024, has already shown some positive results. At Malanday Elementary School in Marikina City, the percentage of students reading at grade level increased from 57.26% to 94.03% during the 2025-2026 school year.
The NatPlan aims to increase the percentage of Key Stage 1 learners reading at grade level to 75% by 2028, 90% by 2031, and 95% by 2035. Similar increases are targeted for Grade 10 students’ reading proficiency in both Filipino and English.
Frequently Asked Questions
What is EDCOM 2?
EDCOM 2 is the Second Congressional Commission on Education, which released a Final Report on January 26 outlining the state of education in the Philippines and proposing a 10-year plan for improvement.
What is “mass promotion”?
“Mass promotion” refers to the practice of allowing students to advance to the next grade level even if they have not mastered the required skills, as identified by EDCOM 2.
What is the ARAL Program?
The Academic Recovery and Accessible Learning (ARAL) Program, established through Republic Act No. 12028 in October 2024, provides free tutorials and resources to struggling K to 10 learners.
Will the proposed NatPlan be enough to overcome decades of challenges in the Philippine education system, and what role will sustained investment and community involvement play in achieving lasting improvements?
