Addressing Learning Loss in the Philippines: A Comprehensive Analysis of the National Learning Recovery Program

The global COVID-19 pandemic has precipitated an unprecedented crisis in education systems worldwide. School closures, implemented as a measure to curb the spread of the virus, have resulted in substantial learning losses across various countries. The Philippines, where schools remained closed for over a year, has faced particularly severe challenges in maintaining educational continuity and quality. In response to these difficulties, the Department of Education (DepEd) has introduced the National Learning Recovery Program (NLRP). This article provides a thorough examination of the NLRP’s components, implementation challenges, and potential improvements, drawing on findings from the Second Congressional Commission on Education (EDCOM II) and relevant DepEd orders.

The Impact of COVID-19 on Philippine Education: A Multifaceted Crisis

The extended school closures in the Philippines, lasting more than a year, have intensified pre-existing educational challenges and created new ones. To fully appreciate the context in which the NLRP operates, it is essential to examine the multifaceted nature of this educational crisis.

Widening Learning Gaps

A World Bank study has revealed alarming statistics about the state of education in the Philippines. According to the research, 9 out of 10 Filipino children aged 10 are unable to read and understand a simple text appropriate for their age. This finding indicates a significant deficiency in basic literacy skills, which are fundamental to all further learning. Moreover, the study estimates the learning gap at 5.5 years, suggesting that many students are substantially behind where they should be in terms of educational attainment for their age group.

Poor Performance in International Assessments

The Philippines has consistently ranked among the lowest in international large-scale assessments, highlighting systemic issues in the country’s education system. These assessments include:

1. Programme for International Student Assessment (PISA): This assessment evaluates 15-year-old students’ skills in reading, mathematics, and science literacy. The Philippines’ low ranking in PISA indicates significant challenges in developing these crucial skills among its student population.
2. Southeast Asia Primary Learning Metrics (SEA-PLM): This assessment measures the learning achievements of Grade 5 students in reading, writing, and mathematics. The Philippines’ performance in SEA-PLM further underscores the difficulties faced in ensuring basic educational competencies at the primary level.
3. Trends in International Mathematics and Science Study (TIMSS): This study assesses the mathematics and science achievements of Grade 4 students. The Philippines’ results in TIMSS point to specific weaknesses in these critical STEM subjects, which are increasingly important in the global knowledge economy.

Exacerbation of Existing Inequalities

The shift to remote learning during the pandemic has highlighted and exacerbated existing educational inequalities in the Philippines. Students from low-income families, rural areas, and marginalized communities have faced significant challenges in accessing online learning resources and maintaining engagement with their studies. Factors contributing to these disparities include:

• Limited access to technology and internet connectivity
• Lack of quiet study spaces at home
• Reduced parental support due to economic pressures
• Increased responsibilities at home, particularly for older siblings

These factors have combined to create a situation where the most vulnerable students are at the greatest risk of falling behind academically, potentially widening the achievement gap between different socioeconomic groups.

The National Learning Recovery Program (NLRP): A Comprehensive Response

In recognition of these challenges, DepEd launched the NLRP through DepEd Order No. 13, s. 2023. The program represents a multi-pronged approach to addressing learning loss and improving educational outcomes across the Philippines. The NLRP consists of five key subprograms, each designed to target specific aspects of the learning recovery process:

1. National Learning Camp (NLC)
2. National Reading Program (NRP)
3. National Mathematics Program (NMP)
4. National Science and Technology Program (NSciTP)
5. Other programs implemented by the Central Office and field offices

Let’s examine each of these subprograms in detail to understand their objectives, implementation strategies, and potential impact on learning recovery.

National Learning Camp (NLC)

The NLC is a voluntary end-of-school-year break program designed with two primary objectives:

1. To improve learning outcomes for K to 12 learners
2. To enhance teacher capacity

The NLC offers three distinct types of camps, each tailored to meet the needs of different learner groups:

1. Enhancement Camp: This camp is designed for advanced learners who have demonstrated proficiency in grade-level competencies. The goal is to enrich their knowledge and skills by providing opportunities for deeper exploration of concepts and more complex problem-solving activities. This approach aims to challenge high-performing students and prevent boredom or disengagement.
2. Consolidation Camp: This camp caters to learners who have shown proficiency in grade-level competencies but would benefit from additional practice and application. The focus is on reinforcing understanding, making connections between concepts, and further developing skills across different areas. This approach aims to solidify learning and prepare students for more advanced concepts in the upcoming school year.
3. Intervention Camp: This camp is specifically designed for high-need learners who require support in foundational Mathematics and/or English skills. The goal is to provide targeted interventions to help these students bridge gaps in their understanding and build a stronger foundation for future learning.

The NLC is implemented during the end-of-school-year break for a duration of five weeks. The program has adopted a phased implementation approach, starting in the 2022-2023 school year with Grades 7 and 8. This gradual rollout allows for adjustments and improvements based on initial experiences and feedback.

Key features of the NLC implementation include:

• Maximum class size of 35 learners
• Flexibility for school heads to organize classes based on teacher and classroom availability
• Three days per week dedicated to structured teaching-learning activities
• Two days per week allocated for collaborative sessions among teachers
• Provision of teaching-learning materials developed at the central office level with assistance from external partners

National Reading Program (NRP)

The NRP is a comprehensive reading literacy development program implemented during the regular school year. It is integrated into the literacy, language, and text curriculum and replaces the mother tongue subject for Key Stage 1 (Kindergarten to Grade 3). The program covers all grade levels, recognizing the critical importance of reading skills across the entire educational journey.

Key aspects of the NRP include:

• Focus on developing foundational reading skills in the early grades
• Emphasis on reading comprehension and critical thinking skills in higher grades
• Integration of reading activities across various subject areas
• Use of the Comprehensive Rapid Literacy Assessment (CRLA) to evaluate student progress

The NRP aims to address the significant challenges in reading proficiency highlighted by international assessments and to build a strong foundation for learning across all subjects.

National Mathematics Program (NMP)

As of December 31, 2023, DepEd has not yet released specific policies on the implementation of the NMP. However, the program’s overarching goal is to improve numeracy and mathematics learning for all grade levels. Based on the available information, the NMP is expected to focus on:

• Developing a shared understanding of numeracy and its connections to real-world applications
• Increasing system-wide capacity to implement key principles in developing numeracy and mathematics skills
• Improving the availability of reliable data on numeracy and mathematics progress and achievement

The NMP represents a critical component of the NLRP, given the Philippines’ poor performance in mathematics on international assessments like PISA and TIMSS.

National Science and Technology Program (NSciTP)

Similar to the NMP, detailed policies for the NSciTP have not yet been released by DepEd as of December 31, 2023. The program is designed to focus on developing scientific and technological literacy for students in Grades 4-10. Expected key elements of the NSciTP include:

• Strengthening scientific and technological literacy among learners
• Igniting interest in scientific investigation among young learners
• Promoting innovation and creativity through exploration activities
• Fostering early appreciation for STEM (Science, Technology, Engineering, and Mathematics) subjects

The NSciTP aims to address the Philippines’ challenges in science education, as evidenced by its performance in international assessments, and to prepare students for an increasingly technology-driven world.

Implementation Challenges: Insights from EDCOM II Findings

The Second Congressional Commission on Education (EDCOM II) conducted observations in three schools that implemented learning camps, revealing several significant challenges in the NLRP’s implementation. These challenges provide valuable insights into areas that require attention and improvement:

1. Voluntary Participation and Its Consequences

The voluntary nature of the NLC has emerged as a significant obstacle to its effectiveness. This approach may result in low participation rates, especially among learners who need remediation the most. A striking example of this issue was observed at Taguig National High School, where the intervention camp failed to proceed because parents did not permit learners with grades below 75 in Math and/or English to participate.

This situation highlights a critical paradox: the students who would benefit most from additional support are often the least likely to receive it due to the program’s voluntary nature. Factors contributing to this issue may include:

• Stigma associated with remedial education
• Lack of understanding among parents about the importance of additional support
• Competing priorities for students’ time during school breaks

2. Resource Constraints and Socioeconomic Factors

Families with limited resources often refrain from allowing their children to participate in learning camps due to associated expenses. These costs may include:

• Transportation to and from the school
• Meals during the camp sessions
• Additional school supplies or materials

This financial barrier exacerbates existing educational inequalities, as students from lower-income families – who are often already at an educational disadvantage – are less likely to benefit from the additional support offered by the NLC.

3. Assessment Challenges

The absence of timely and effective assessment results has created significant difficulties in implementing the NLC. Specifically:

• Lack of baseline assessments: Without initial assessments, it is challenging to accurately group learners according to their needs and abilities.
• Delayed posttest results: The absence of prompt posttest results makes it difficult to evaluate the effectiveness of the interventions and determine whether learners are adequately prepared for the upcoming school year.

These assessment challenges hinder the program’s ability to provide targeted instruction and monitor learners’ progress effectively.

4. Incomplete Policy Framework

As of December 31, 2023, DepEd has not released comprehensive policies detailing the implementation of the NMP and NSciTP components of the NLRP. This lack of clear guidelines can lead to:

• Inconsistent implementation across different schools and regions
• Difficulty in allocating resources effectively
• Challenges in monitoring and evaluating program effectiveness

The absence of a complete policy framework for all NLRP components limits the program’s potential impact and makes it difficult for schools and teachers to plan and execute interventions effectively.

Recommendations for Enhancing the NLRP

Based on EDCOM II’s findings and consultations with groups that conducted learning loss recovery initiatives during the COVID-19 pandemic, the following recommendations are proposed to improve the effectiveness of the NLRP:

1. Implement Regular and Timely Assessments

Develop and implement a robust assessment system that provides:

• Baseline assessments at the beginning of each school year or learning camp
• Ongoing formative assessments throughout the intervention period
• Summative assessments at the end of each intervention or school year

These assessments should yield granular data on learner progress, allowing for informed instructional decisions and effective monitoring of improvement.

2. Adopt Proficiency-Based Grouping

Instead of grouping learners solely by grade level, implement a system that groups students according to their level of proficiency in specific subject areas. This approach allows for:

• More targeted instruction tailored to learners’ actual needs
• Opportunities for accelerated learning for advanced students
• Focused support for students struggling with particular concepts or skills

3. Prioritize Foundational Skills

Place a strong emphasis on developing and strengthening foundational skills across all NLRP components, including:

• Reading and writing proficiency
• Basic numeracy and mathematical reasoning
• Critical thinking and problem-solving skills
• Socioemotional learning and resilience

By focusing on these fundamental skills, the NLRP can help build a strong base for future learning across all subject areas.

4. Enhance Community Engagement

Develop strategies to mobilize parents, community members, and local organizations to support the NLRP. This could include:

• Parent education programs to increase understanding of the importance of learning recovery
• Community volunteer programs to provide additional tutoring or mentoring support
• Partnerships with local businesses or organizations to provide resources or funding for NLRP activities

5. Incentivize Participation

To address the challenges of voluntary participation, consider implementing incentives such as:

• Providing transportation allowances for students attending learning camps
• Offering meals or snacks during camp sessions
• Developing a recognition system for students who show significant improvement or consistent participation

6. Explore Mandatory Participation Options

Investigate the possibility of integrating learning recovery activities into the regular school schedule. This approach could:

• Ensure that all students who need support receive it
• Reduce stigma associated with remedial programs
• Alleviate logistical challenges for families

7. Develop Comprehensive Policies

Expedite the development and release of detailed policies for all components of the NLRP, including the NMP and NSciTP. These policies should provide:

• Clear implementation guidelines for schools and teachers
• Specific learning objectives and assessment criteria
• Resource allocation recommendations
• Monitoring and evaluation frameworks

8. Enhance Teacher Support and Professional Development

Strengthen teacher training and support systems to ensure effective implementation of the NLRP. This could include:

• Intensive professional development programs focused on learning recovery strategies
• Ongoing coaching and mentoring for teachers
• Provision of high-quality teaching resources and materials
• Creation of professional learning communities for teachers to share best practices

9. Foster Positive Learning Environments

Support teachers in creating and maintaining positive classroom environments. Based on PISA 2022 data, which suggests that learners who attain minimum proficiency levels often come from classes with positive disciplinary climates, strategies could include:

• Training in effective classroom management techniques
• Support for implementing social-emotional learning programs
• Resources for creating engaging and inclusive learning spaces

10. Promote Higher Educational Aspirations

Develop programs and initiatives that encourage students to aspire to higher levels of educational attainment. Drawing from PISA 2022 data, which indicates that learners who attain minimum proficiency levels often express aspirations for higher educational attainment, consider:

• Career exploration programs
• Mentoring initiatives connecting students with successful professionals
• Information campaigns about higher education opportunities and pathways

Conclusion

The National Learning Recovery Program represents a significant and multifaceted effort by the Department of Education to address learning losses and improve educational outcomes in the Philippines. While the program demonstrates a commitment to tackling the educational challenges exacerbated by the COVID-19 pandemic, it faces several implementation hurdles, particularly related to voluntary participation, resource constraints, assessment difficulties, and incomplete policy frameworks.

By adopting the recommendations proposed by EDCOM II and other education stakeholders, DepEd can enhance the effectiveness of the NLRP. Key areas for improvement include implementing regular and timely assessments, focusing on foundational skills, engaging communities, providing comprehensive support for teachers, and creating positive learning environments that foster high educational aspirations.

As the Philippines continues to grapple with the long-term effects of the COVID-19 pandemic on education, it is crucial to refine and strengthen the NLRP. The program’s success will depend on its ability to reach and support all learners, especially those most in need of intervention. By addressing the identified challenges and implementing targeted improvements, the NLRP has the potential to significantly contribute to bridging learning gaps, improving academic performance, and ultimately enhancing the quality of education across the Philippines.

The path to educational recovery will require sustained effort, resources, and collaboration among all stakeholders in the Philippine education system. As the NLRP evolves and adapts to meet the ongoing challenges, continuous evaluation and refinement of its strategies will be essential to ensure its effectiveness in supporting the academic growth and success of all Filipino students.

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