Department of Education - Autonomous Region in Muslim Mindanao (ARMM) By: Atty. Maisara C.

Dandamun-Latiph1

The preparation of youth for work and life is very low Education opportunities must be made more relevant to the needs of all young people as learners and future workers, parents, and citizens.

2007 World Development Report

1 Currently member of DepEd ARMM, Oversight Reform Team for Educational Quality and Programming and more recently as Assistant Secretary on secondment from the Office of the Solicitor General (OSG) 1

Brief History of ARMM The Autonomous Region of Muslim Mindanao (ARMM), the only autonomous region in the Philippines, is composed of the Philippines predominantly Muslim Provinces - Basilan, Lanao del Sur, Maguindanao, Sulu, Tawi-Tawi, and the Islamic City of Marawi.2 Legally it was created on August 1, 1989 under Republic Act No. 6734, entitled AN ACT PROVIDING FOR AN ORGANIC ACT FOR THE AUTONOMOUS REGION IN MUSLIM MINDANAO, which was later amended by Republic Act No. 9054 in March 31, 2001.3 The Region began operating autonomously in July 1990. Despite its autonomy, the ARMM continues to experience a high incidence of poverty pegged at 55.3% in the 2006 Official Poverty Statistics, a 9.9% increase from the 45.4% in 2003, which is more than twice the national average of 26.9%. 4 In 2006 three of the six poorest provinces in the Philippines were in the ARMM and ARMM registered the lowest average annual family income (173,000 pesos) of any Region in the country. This situation is exacerbated by a long-history of armed conflict between a number of different elements. With the assistance of various international donors and the national government, significant programs have been undertaken to reduce poverty and promote peace. The focus of much of this assistance has been on increasing access to basic services such as health care, quality water and education. An important factor for improving the social and economic
2http://deped.armm.gov.ph/index.php?option=com_content&view=article&id=19&I temid=27 (accessed March 24, 2012) 3 http://www.congress.gov.ph/download/index.php?d=ra_results&ra_title=6734 (accessed on March 24, 2012) 4 id at footnote 1 2

situation of the people of ARMM is education. Education has been identified as a critical intervention mechanism for not only achieving poverty reduction but also for promoting peace initiatives. Legal Creation, Mandate and Structure of DepEd ARMM With the powers of autonomy vested in the Regional Legislative Assembly, the law-making department of the Regional Government, it passed into law Muslim Mindanao Act No. 14, entitled AN ACT PROVIDING FOR A SYSTEM OF EDUCATION FOR THE AUTONOMOUS REGION IN MUSLIM MINDANAO, CREATING A REGIONAL DEPARTMENT OF EDUCATION, CULTURE AND SPORTS, APPROPRIATING FUNDS THEREOF, AND FOR OTHER PURPOSES. This was recently amended by Muslim Mindanao Autonomy Act No. 279 on August 3, 2010, which restructured the DepEd ARMM. Section 18, of MMAA No. 279 provides for the legal mandate of DepEd-ARMM, it provides:
Sec. 18. Powers and Functions. The DepEd-ARMM shall perform the following powers and functions: a) Formulate general basic education objectives and policies and adopt educational plans based on the educational framework articulated in Section 3; b) Ensure the high standards of all basic educational institutions in the Region. c) Develop appropriate curricula, quality textbooks, and teaching materials; 3

d) Establish linkages with institutions with track record of excellence to provide pre-service and in-service training for teachers and training courses for non-teaching staff. e) Formulate the annual budget of DepEd-ARMM in consultation with Division field offices and Local Government Units, and in coordination with the Regional Planning and Development Office to ensure support for the implementation of the regional and division educational plans and the school improvement plans; f) Receive, allocate, and disburse funds for basic education, including those for the Divisions subject to nationally and internationally accepted accounting and auditing standards for transparent, effective and efficient implementation of plans and programs; g) Approve and support the establishment and operation of public and private elementary and high schools and learning centers; h) Exercise the powers of selection, recruitment, appointment, and promotion of teaching and non- teaching personnel of the DepEd-ARMM; i) Determine the organizational components and approve staffing patterns of the divisions, districts and schools; j) Promulgate rules and regulations or such guidelines as may be required for efficient and effective administration, control and supervision and regulation of basic educational institutions including the Madaris; k) Delegate to Divisions such powers, functions and responsibilities as are appropriate including powers of selection, recruitment, appointment, and promotion of teaching and non- teaching personnel; l) Monitor and evaluate the performance and compliance with DepEd-ARMM standards of those bodies to which it 4

has delegated powers, functions or responsibilities; m) Evaluate all schools division superintendents and assistant division superintendents in the region; n) Adopt and implement programs and projects in coordination with various stakeholders for the promotion and advancement of both formal and informal education; o) Propose and recommend measures on basic education for enactment into laws; and p) Establish, promote and foster linkages and conduits with national as well as international academic, research, and Islamic-oriented educational and cultural institutions whose objectives are consistent with this Act; q) Perform such other functions and powers as may be provided by law.

Section 19 and 20 of the same law provides the departments structure and organization, viz:
Sec. 19. Basic Education Structure. The Basic Education Structure in ARMM shall involve ten years of formal elementary and secondary education, including early childhood education, public and private madaris, alternative learning system, and informal education.5 Sec. 20. Organization of the DepEd-ARMM. The DepEd-ARMM shall consist of the Regional Office, Office of the Schools Divisions, District Offices and Schools. Sec. 21. Regional Office. The Regional Office of the 5 As amended by K-12 which provides for 12 years of Basic Education in contrast to 10 years. 5

Department shall consist of the Office of the Secretary; Office of the Undersecretary for Finance and Administration; Office of the Undersecretary for Programs and Field Operations; Office of the Assistant Regional Secretary, Office of the Assistant Secretary for Madaris; Office of the Bureau Directors for Elementary, Secondary, Alternative Learning System, Physical Education and Sports Development, Madrasah Education, Planning Services, Administrative, Finance and Other Support Services Bureau including Chiefs of Medical and Dental Services, Legal Services, Curriculum and Textbook Development Services, Management Information System, and Sub-Regional Office.

Illustration of DepEd-ARMM Current Educational Structure6

6 The illustration is the current structure adopted by DepEd ARMM still under MMAA No. 14 6

GENERAL APPROPRIATION ACT FY 2012 DepEd-ARMM Budget7

Offices/Division Personal Services MOOE Total

Regional Office Sulu : Elementary Secondary Tawi-Tawi :

51,849,000 852,404,000 113,307,000 593,375,000 75,913,000 1,706,633,000 464,441,000 1,109,875,000 243,351,000 353,873,000 41,608,000 404,142,000 87,293,000 18,897,000 6,116,961,000

50,347,000 30,927,000 12,427,000 26,256,000 10,591,000 72,333,000 34,448,000 40,429,000 14,878,000 18,627,000 4,136,000 25,597,000 10,056,000
351,052,000

102,196,000 883,331,000 125,734,000 619,613,000 86,504,000 1,778,966,000 498,889,000 1,150,304,000 258,229,000 372,500,000 45,744,000 429,739,000 97,349,000 18,897,000 6,467,995,000

Elementary Secondary Lanao del Sur :

Elementary Secondary Maguindanao :

Elementary Secondary Marawi City :

Elementary Secondary Basilan :

Elementary Secondary Pre-School Grand Total

Source : R.A. No. 10155 7 vis--vis the total ARMM Budget of Php 11.717.07 Billion Pesos, DepEd ARMM has 55. 20% of the total appropriations for ARMM. 7

Total Number of Schools, Students and Teachers for Elementary as of 20108

No. 1 2 3 4 5 6 7 8 9 10 11 12 Total

Division Basilan Lamitan City Lanao del Sur - IA Lanao del Sur - IB Lanao del Sur - IIA Lanao del Sur - IIB Maguindanao II Maguindanao-I Marawi City Sulu I Sulu II Tawi-Tawi Grand Total

No. of Schools 131 40 181 218 204 128 268 276 69 213 195 250 2,173

Total Enrolment 32,671 14,471 64,819 61,246 48,672 38,621 80,742 105,876 50,960 62,500 46,670 78,776 686,024

Total No. of Teachers 595 453 1,305 1,415 1,311 873 1,514 1,423 947 1,464 807 943 13,050

8 DepEd-ARMM Office of Planning Services 8

Total Number of Schools, Students and Teachers for Secondary as of 20109

No. 1 2 3 4 5 6 7 8 9 10 11 12 Total

Division Basilan Lamitan City Lanao del Sur - IA Lanao del Sur - IB Lanao del Sur - IIA Lanao del Sur - IIB Maguindanao II Maguindanao-I Marawi City Sulu I Sulu II Tawi-Tawi

No. of Schools 19 5 29 27 34 40 32 41 7 21 18 25 298

Total Enrolment 6,167 3,617 21,201 20,664 23,294 22,778 14,773 20,401 5,496 14,790 5,229 16,072 174,482

Total Teachers 166 105 291 263 476 499 279 384 136 310 152 112 3,173

9 DepEd-ARMM Office of Planning Services 9

Total Number of Regional and Division Employees for DepEd-ARMM as of 201010

Office/Division/Province/Level Regional Office Lanao Del Sur I Elementary Lanao Del Sur I Secondary Lanao Del Sur II Elementary Lanao Del Sur II Secondary Maguindanao Elementary Maguindanao Secondary Basilan Elementary Basilan Secondary Sulu Elementary Sulu Secondary Grand Total
10 DepEd-ARMM Office of Planning Services 10

No. of Employees/Teachers 94 3314 656 2801 1093 3893 910 1564 332 3319 674 19,971

Current Situation of ARMM Education

With the dismal economic and development state of the region for more than twenty (20) years since its creation, it is small wonder that its basic education lack in quality, access and equity. As reflected by the departments data11 on its assessment of both public and private education sectors involving the Enrolment, Participation, Cohort Survival Rates, NAT performance and more recently RAMSE results as follows: Enrollment Initial entry to basic education reflected through Grade 1 enrolment registered a decreasing trend over a three-year period, from SY 2003-2004 at 160,736 onwards to SY 2004-2005 with 156,055 and finally, SY 2005-2006 with 152,870. This decline is surprising
11 2007 Regional DepEd-ARMM Consolidated Data by division 11

given that the Regions growing annual population rate registered 3.73% in 1995-2000 then jumped to a high of 5.46% from 2000-2007. Factors contributing to this decreasing trend may not only be related to more economic-based considerations but may be partly influenced by ongoing conflict-related issues including displacement of families. Participation Participation rates in ARMM for both elementary and secondary schools (78.12% and 41.91%, respectively) are low compared to Mindanaos overall participation rate of 94.12% for elementary schools and 54.15% for secondary schools. Division figures from SY 2003-2004 to SY 2005-2006 further reveal that participation rates are lower in some divisions with elementary enrolment in Maguindanao, Lanao del Sur I and Lanao del Sur II experiencing a decline while Basilan and Lanao del Sur II showed lower enrolment rates for secondary schools. Thus, participation rates in ARMM are not only low but also decreasing. Cohort Survival Rates For proxy cohort survival rates, ARMM showed a lower performance compared with the overall Philippine figures. For instance, the proxy cohort survival rate for Grade 6 is only 31.5% compared with 67% for the Philippines as a whole. This implies that more than half of our Grade 1 pupils in ARMM do not reach Grade 6. On a division level, Sulu 1 and Tawi-Tawi showed the highest survival rates at 44% while Lanao Sur 1 and 2 had the lowest rates at 27%. This reflects the proxy cohort survival rate to Grade 6 based on a three-year average enrolment.

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 At the secondary school level, the survival rate to 4th year high school for our Region is only 13% compared to 41% for the Philippines overall. Among the divisions, Lanao Sur II reflects the highest survival rate at 24% with Marawi City and Sulu II showing the lowest at 7%. Considering its strategic urban location, it is surprising that the major Islamic City of Marawi has one of the lowest survival rates for high school. Reasons for dropping out of school were identified in the 2003 Functional Literacy, Education, and Mass Media Survey (FLEMMS) as lack of personal interest (39.6%), need for employment (13.9%) and high cost of education (13.8%). Other reasons include distance to schools, lack of schools within barangays, lack of regular transportation, illness/disability and other demands of community life. Additional factors that may aggravate the drop-out problem include high poverty levels, ideologically-based and clan conflicts (rido), and lack of complete schools (incomplete and/or multi-grade schools have been attributed with lower quality performance). The fourth annual Region-Wide Assessment in Math, Science, and English (RAMSE) 2007 Survey conducted by BEAM revealed that 33% of the students often missed classes because of poverty-related concerns which include sickness, the need to help parents, family related problems, lack of food, and having no uniform, among others. At the same time, sporadic wars and clan vendettas (rido) have been identified as major variables why students drop out or completely withdraw from school and even for schools closing.
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ARMM NAT performance The National Achievement Test (NAT) has been used as the only universal student assessment measure in the country. Overall, Grade 6 student competencies measured through their NAT school performance have generally been poor for the Philippines. Only 8.3% passed the overall 75% mastery level in SY 2005-2006, yet reflecting a 5% increase from the percentage of schools achieving the accepted minimum standard in SY 2002-2003. In terms of subjects, 13.5%, 2.5%, and 10.3% of Grade 6 Filipino pupils achieved 75% Mastery level in Math, Science and English, respectively, while 38.6% 18.4%, and 37.5% achieved 60% near- mastery in these three subjects in SY 2005-2006. Ranked against all the other schools in the country in SY 2005- 2006, the ARMM elementary schools were, on the average, in the 27th percentile: i.e., 73% of the schools that took the examination ranked higher than schools in ARMM. An exception was Marawi City which garnered the highest overall average percentile ranking of 60 among all the division clusters in the country. While the average ranking of Tawi-Tawi was relatively low, it was the same as NCR and only slightly lower than Iloilo, the least poor of the division clusters. Notably for ARMM, only Basilan (0.8%), Lanao del Sur I (0.9%) and Marawi City (3.6%) had schools whose Grade 6 pupils achieved a 75% Mastery level. However, very low competence in science pulled down ARMMs overall achievement of the 75% Mastery level. In Mathematics and Science, Marawi City performed well in terms of percentile ranking while in English, it surpassed the
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performance of all other division clusters sharing with Aklan the highest percentage score of those making the 60% grade. However, ARMMs high school NAT performance reflected a 21% average.12 No high school reached the 75% mark and on the average, none gained more than 60%. For SY 2005-2006, ARMM had the lowest overall Mean Percentage Score across all subjects (Table 3). However, 16.7% of Basilans schools achieved near-mastery which is more than that of NCR. Additionally, 25% of Marawi Citys high schools achieved more than 60% in Mathematics and in English. High school NAT mean percentage scores by subject & by division clusters, SY 2005-200613
division araling overall math science english filipino cluster panlipunan teep 48.3 54.2 42.2 51.2 42.3 51.6 aklan+ 48.3 54.7 41.8 50.5 42.4 52.1 cagayan + 46.9 52.7 39.9 49.3 42.1 50.4 iloilo 43.4 46.3 36.5 46.1 40.5 47.6 pampanga 45.1 50.0 38.5 48.1 40.5 48.4 ncr 43.6 45.0 35.5 48.1 41.5 47.6 armm 34.3 36.9 29.8 37.6 31.5 35.7 total 45.9 50.9 39.3 48.7 41.2 49.4 12 However, its limitations have to be noted including the fact that it was initially self-administered i.e. the teachers were also the NAT proctors in their own schools in their own classes. This was corrected in the NAT 2005-06 when teachers from adjacent districts proctored each others students. Moreover, the NAT results are not comparable because the examinations were administered to Grade 4 in SY 2002-2003, Grade 5 in SY 2003-2004, Grade 6 in SY 2004-2005, and Grade 6 in SY 2005-2006. Therefore, they were not test-equivalent. Also, the NAT was given to the same cohort of pupils: in 2002-03 when the cohort was in Grade 4, in 2003-04 when the cohort was in Grade 5 and finally in 2004-05 when the cohort was in Grade 6. Under the circumstances, the change in percentile ranks is the more valid measure of academic improvement or decline (RBEDP 2007:41). 13 Source: NERTC data 15

Region-wide Assessment in Mathematics, Science and English (RAMSE) PERFORMANCE The Region-wide Assessment in Mathematics, Science and English, was initiated and developed under the BEAM Project.14 The first, RAMSE in SY 2004-2005 assessed the different learning competencies in Mathematics, Science, and English in the Basic Education Curriculum. These competencies are grouped according to thinking skills based on TIMSS (Trends in Mathematics and Science Study) and PISA (Program for International Assessment) for English. The test has been administered yearly to Grade 4 students and to Year 2 High School students in Regions XI, XII and ARMM. The Grade 4 test includes competencies from Grade 1 to Grade 4 except for Science which only includes competencies from Grades 3 to second year high school. Prior to implementation, a student assessment team was trained on assessment practices. In particular, the team with several school heads, district supervisors and teachers participated in workshops on test construction focusing on higher order thinking skills (HOTS). Since RAMSE was initiated, a total of 1,826 school heads and district supervisors, and 235 teachers have been trained on student assessment processes. From SY 2004-2007, RAMSE results show an increasing trend. This means that on a yearly basis, there is
14 The test is composed of multiple choices, close constructed and open-ended types which are arranged in unspecified pattern. The test is in continuum, focusing on items that assess higher order thinking skills. For RAMSE analysis, a combination of quantitative and qualitative research was used. Aside from using the item analysis using SPSS, which is the quantitative portion, the qualitative research method was used through direct observation of classes of students who took the RAMSE aside from doing focused group interviews and key informant interviews for teachers and supervisors. 16

an improvement in the learning performance of the students in the three major subject areas. At the elementary level from 2004 to 2007 Science posted the highest mean percentage score (MPS) increase at +28 followed by English, +15 and finally, Mathematics with +10. At the Division level, Basilan registered the highest performance for both Math (56.26) and English (65.66) while Shariff Kabunsuan scored lowest for Math (34.58), Maguindanao for Science (37.34) and Sulu 1 for English (37.03). Overall, Basilan had the best performance averaging 58.16 while Maguindanao was lowest at 37.6. ARMM RAMSE Results, SY 2004 - 2007 Trends in Mean Percentage Scores by Subject, Grade 4
G4 Subjects Math Science English Composite Scores 2004 Baseline 31 17 34 27 2005 41 46 44 44 2006 41 40 39 40 2007 41 45 49 45 Change in 2007 from baseline +10 +28 +15 +18

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ARMM RAMSE Results, SY 2004 - 2007 Trends in Mean Percentage Scores by Subject, High School Year 2

Y2 Subjects Math Science English Composite Scores

2004 Baseline 27 16 32 25

2005 31 33 34 33

2006 32 32 39 34

2007 30 30 35 32

Change in 2007 from Baseline +3 +14 +3 +7

Other Issues and Challenges Teacher shortages and deployment Latest figures based on the 2007-2008 BEIS Data Bulletin indicate that there are 13, 675 national teachers (elementary level) in ARMM with a total reported shortage of 2,130 teachers, or about 15.57%. Maguindanao has the biggest shortage (32%), followed by Basilan and Sulu 2 (20%). Lanao Sur II had the lowest at 4%. For the secondary schools in the same year, the reported number of national teachers is 2,568 with a reported shortage of 1,266. In ARMM, Marawi City showed a shortage of teachers with 149 corresponding to 107.5 pupils per teacher. The biggest shortages
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of teachers were in Lanao del Sur I (279) and II (618). Data on teacher surpluses is not available. It is interesting to note that in the BEIS 2007-2008, it appeared that there seemed to be less shortage of national elementary school teachers in ARMM. The region had more teachers compared to the actual need. This is possibly due to non-optimal deployment of teachers (RBEDP 2007). Re-deployment of teachers to address the situation is partly constrained by the existing Magna Carta which protects rights of teachers. Teacher-Pupil Ratios The 2007-08 BEIS reflected 45.3 elementary school pupils per national teacher in ARMM (619,471 pupils and 13,675 national teachers) compared with 35.2 pupils per teacher (12.096 million pupils and 343,646 national teachers) in other regions. In Mindanao (without ARMM), there were 37 pupils per national teacher (2.66 million pupils and 72,548 national teachers). Teacher competencies The low performance of Filipino students in the NAT and RAMSE is partly reflective of the traditional view of teaching that sees it more as a technical process, with the teacher transmitting technical knowledge and expecting students to simply repeat this knowledge in examinations. Thus, it is important not only to address the lack of basic competencies of teachers but more so, to apply a paradigm shift that will view teaching as facilitating learning and work more towards developing the analytical skills of students so they can apply their technical knowledge in their actual contexts. This is already a priority under DepEds National Competency-based

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Teacher Standards (NCBTS) which requires a shift to a more learner- centered paradigm. Teachers in ARMM have other practical and human resource management concerns that tend to distract them from the acquisition of basic competencies and lessen their motivation to embrace change. These include: delayed releases of fringe benefits and incentives, low salaries, delayed payment of salaries, strong political pressures on matters of selection and promotion of teachers and administrators, and non-observance of civil service rules on merit and fitness. Sources of Funding In terms of fund sourcing and management, DepEd ARMM funds are generated from the national budget. In the 2007 GAA, 94% of the education budget was mostly spent for personnel services (PS) and the remaining 6% allocated to maintenance, overheads, and operating expenses (MOOE). Education is clearly under-funded with very limited funds directed for actual school operations and maintenance. Capital outlays are limited and dependent on the submission of specific requirements before these are approved and released from the national budget. In spite of ARMMs autonomy, the Department of Budget and Management (DBM) proposes the education budget with Congress providing approval, with both units not recognizing the different contexts in ARMM especially between the mainland and island division units which affect operational requirements.

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Summary'of'BEIS-

Major Challenges affecting Educational Quality of ARMM Underinvestment in Education Poor Performance in Basic Education Indicators

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 Low Participation Rates-lack of interest, no available school, difficulties in coping with school work, high and direct opportunity costs; Low preparedness for School-only 14% attend ECE Low Elementary School Completion and High Drop-out Rates Low Secondary School Completion and High Drop-out Rates Lagging Behind International comparisons Low Learning Achievement Gender Disparities in favour of girls Insufficient Day Care Centers and Preschools Insufficient Classrooms Lack of science labs, computer rooms, libraries and materials Inadequate water and health facilities ELSA-USAID study on access barriers to ARMM Education

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Strategies to address Issues and Challenges To simplify and focus the support needed and address the identified issues and challenges, an ARMM Six Year Basic Education Strategic Plan (2009-2014) has been developed from the ARMM Regional Basic Education Development Plan (RBEDP) The three components of the RBEDP are: a) Governance b) Learning environments c) Infrastructure Governance The focus on Governance is to strengthen and improve the management capability in DepEd ARMM and this is to be achieved by: Improving policy formulation, review and implementation; Establishing responsive organizational structures; Strengthening management systems and facilities; Strengthening management processes and practices. Learning Environment Learning Environment is to improve the instructional capability of teachers and provide sufficient and appropriate resource materials to improve teaching and learning outcomes and this is to be achieved by supporting: Systems for effective and efficient teaching and supervisory processes in public schools thereby contributing to improved student learning outcomes;

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 The integration of Madaris as a private sector strategy for basic education and as partner in the attainment of education for all- policy; Providing an adequate alternative learning strategies system thereby contributing to improved access to education and student learning outcomes. Infrastructure Infrastructure is about upgrading the Regional and Divisional offices to facilitate efficient and decentralized management as well as provide adequate school facilities with the focus being on:. Constructing new regional and divisional offices. Providing learning support facilities and equipment to complete in-complete schools (libraries, science lab, TLE/HE, & ICT, water system, clinic, toilet and sports facilities ); Constructing and repairing classrooms and providing adequate classroom facilities (e.g. chairs, desks, blackboards, cabinet & etc.) new and existing schools / madaris; Establishing specialized schools in all divisions catering to disadvantaged groups. Conclusion In sum, with the bleak scenario presented by the data before us, the author hopes that the strategic direction taken by the current ARMM Reform Leadership will be able to mitigate the problem caused by lack of political will, corruption and neglect from the previous administrations.
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REFERENCES: DEPED-ARMM (2009), Six Years Basic Education Strategic Plan DEPED-ARMM (2012), Office of Planning Services DEPED-ARMM, PISOP (2010) BEAM-ARMM (2012), Master Plan BEAM 2, Program (2012-2016) USAID-EQUALLS, ELSA, (2007), Policy Research on Access to Quality Education of Muslim Learners, Final Report. http://deped.armm.gov.ph/index.php?option=com_content&view=art icle&id=19&Itemid=27 (accessed March 24, 2012)1 http://www.congress.gov.ph/download/index.php?d=ra_results&ra_t itle=6734 (accessed on March 24, 2012) Department of Budget and Management (2012), General Appropriations Act of 2012 NERTC, NAT (2004-2006), ARMM Results for Grades 3 and High School

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