2009-2022

INDEPENDENT REVIEW PANEL REPORT

Progressive Lifelong Learning Pathway in Technical
Education and Skills Development

Report by:
Del Carmen, Sayo, and Laserna
INDEPENDENT REVIEW PANEL 3
2009-2022

Progressive Lifelong Learning Pathway in

Technical Education and Skills Development
© 2024 by the Third Independent Review Panel
Prof. Antonio M. Del Carmen, Ph.D.
Mr. Antonio Ll. Sayo
Mr. Danilo A. Laserna, Ph.D.

All rights reserved. Any part of this publication may be used and reproduced, provided
proper acknowledgement is made.

Published by:
Technical Education and Skills Development Authority
TESDA Complex, East Service Road, South Superhighway, Taguig City
Tel No. +63 (02) 8888-5641 to 46
Email: [email protected]
 ACKNOWLEDGEMENT

As provided under Republic Act No. 7796 or the Technical Education and Skills Development Act of
1994, the Technical Education and Skills Development Authority (TESDA) has to subject itself to an
automatic performance review every five (5) years after the law has been enacted. The last review (IRP
2) was completed in 2008 and after 15 years, President Ferdinand R. Marcos Jr. has again convened
the Independent Review Panel last December 2022 and the oath of office was administered on the
following sector representatives last February 15, 2023:

Academe Sector
➢ Prof. Antonio M. Del Carmen is a seasoned entrepreneur. He has been involved in finance,
aquaculture, real estate, information technology, education and training. Currently, he is the CEO/
President of STI College Santa Rosa and President of the Center for Transformative Learning. In 2008,
Prof. Del Carmen started teaching Entrepreneurship at the Ateneo Graduate School of Business
(AGSB) where he was also the Program Director for the Master in Entrepreneurship Program from
2009 – 2017. He continues to teach Entrepreneurship and Strategic Management at AGSB and
Operations Management at ASMPH. An Economics graduate of Ateneo de Manila, he took his MBA at
the AGSB and completed his PhD in Education Leadership and Management at the De La Salle
University. His passion for education and training led him to be involved in various organizations that
advocate transformation and excellence in the Philippine education system. He is presently the
President of the Regional Technical Vocational Educators Association of Region IV-A (RTVEA) and the
Philippine Association of Private Schools, Colleges and Universities (PAPSCU) and a member of the
Board of Trustees and the Executive Committee of the Coordinating Council of Private Educators
Association (COCOPEA). He was Past President of the National ICT Confederation of the Philippines
(NICP) and President of the Laguna Industry Network for Knowledge, Innovation and Technology (LINK
IT). Other involvements include the Chairmanship of the Regional ICT Council of CALABARZON, Vice
Chairmanship of the Regional Competitiveness Council, a volunteer mentor for DTI’s Negosyo Center
and the official Philippine representative to the Asian Entrepreneurship Awards since 2011 up to the
present.

Labor Sector
➢ Mr. Danilo A. Laserna is presently the Vice President for Education and Training of the Federation of
Free Workers (FFW) and Council Member of the National Anti-Poverty Commission - Formal Labor and
Migrants Workers Sectoral Council (NAPC-FLMWSC). He has been in the labor movement as a trade
union organizer for more than 30 years. He earned his Master’s Degree in Industrial Relations (MIR) at
the School of Labor and Industrial Relations of the University of the Philippines (UP) in 1997. He is a
scholarship grantee of the Department of Labor and Employment - Workers Organization Development
Program (DOLE-WODP). He once served as Labor Representative of Technical Education and Skills
Development Committee - Pasay City. As a worker’s representative, he has shared his expertise in
various decision and policy-making bodies.

Industry Sector
➢ Mr. Antonio Ll. Sayo is a Graduate of AB Social Science at the University of the Philippines. He took
his Masters at the Center for Research and Communication. Mr. Sayo is presently the Vice President &
Member – Board of Governors of the Employers Confederation of the Philippines (ECOP) and
Chairperson of Intellectual Property Committee of the Philippine Chamber of Commerce & Industry. He
is also the Chairperson/ President of Alay Buhay Community Development Foundation, Inc. He made
various studies on Technical Vocational Education and Training such as Strategies for Chambers,
Associations Enterprises in Implementing Dual Education & Training (DET), Systemic Elements for

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DET, Cost Benefit Analysis of Food Fortification Program in the Philippines – for UNICEF. Mr. Sayo is a
dynamic partner of various TVET programs. He is currently the Chairperson of TESDA National TVET
Trainers Academy Advisory Council.

The convening of the Independent Review Panel 3 is an indication of the commitment and resolve of
this administration to address the unemployment and underemployment problems of this country. It also
reflects the President’s continuing confidence that technical and vocational education and training is a
major factor in resolving these employment issues and that the Technical Education and Skills
Development Authority (TESDA), as the lead government unit in the TVET sector, is capable of
delivering its mandate.

The IRP 3 members acknowledge the cooperation and collective efforts of the officers and staff of
TESDA and expressed confidence that they will be able to assess the agency’s performance and
undertakings objectively and comprehensively. They also acknowledge the support of academe,
industry, and labor groups and associations in the validation and gathering of pertinent data to ensure
the accuracy and relevance of information related to TVET. Accordingly, the IRP team expects to
recommend strategies that will guide and enable TESDA to contribute to the transformation of the
Philippine education landscape and eventually produce the manpower required to fuel the economic
growth and prosperity of the country

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 TABLE OF CONTENTS
Title Page i
Acknowledgment ii
Table of Contents iii

Executive Summary iv

Introduction 2
Chapter I: THE REVIEW PROJECT 2
Evaluation Framework 4
Research Design & Approach 4
The Review Setting 4
Chapter II: REVIEW OF LITERATURE 6
The Purpose Of Education In Human Capital Development 6
Progressive Learning Systems 7
Comparative Educational Systems 8
The Philippine Education System in Crisis 13
The State of TVET in the Philippines 14
Trends In Education and Training 21
Insights From Review of Literature 23
Chapter III: REVIEW AND ASSESSMENT OF TESDA OPERATIONS 27
The Perspective From The Academic Sector 27
Direction Setting 27
Standards Setting and System Development 33
Support to TVET Provision 35
Recommendations from the Academe 38
The Perspective From The Industry Sector 40
TESDA’s Current Framework 40
Proposed Expansion of TESDA's Role to Implement Tec-Voc of 41
DEDPED’s Curriculum
 Enhancing TESDA’s Role Through Regional and International Integration 44
Role of the Private Sector in Training 45
Enterprise-Based Training (EBT) Framework in the Philippines 46
Enhancing TESDA's Response to Digitalization and AI 48
Addressing the Job-Skills Mismatch 49
Departmentalization of TESDA 54
Training Program Development & Design 55
Competency Assessment 57
Enhancing TESDA’s Response to 4IR, Digitalization and AI 57
Conclusion and Way Forward 58
The Perspective From The Labor Sector 60
Job-Skills Mismatch 60
Establishment of Industry TVET Boards 60
Alignment of TVET to the Labor Code 61
EBT and Apprenticeship 61
TESDA As Cabinet-Level Department 62
Impact of Scholarship Programs 63
Recommendations From The Labor Sector 63
Chapter IV: CONCLUSIONS & CONSOLIDATED RECOMMENDATIONS 65
References 68
EXECUTIVE
SUMMARY
 EXECUTIVE SUMMARY

Under Republic Act No. 7796, also known as the Technical Education and Skills Development Act of
1994, the Technical Education and Skills Development Authority (TESDA) is mandated to undergo an
automatic performance review every five years. Section 35 of the TESDA Act specifies that an
independent review panel, appointed by the President, must evaluate TESDA's performance and
provide recommendations to the President and both Houses of Congress. In nearly 30 years of
TESDA’s operation, only three review panels have been constituted.
The first two reviews, covering the periods 1995-2000 and 2002-2008, were comprehensive and
proposed several policy and program recommendations, as well as organizational realignments.
However, many recommendations from these reviews remain partially or completely unimplemented,
limiting their potential positive impact on TESDA’s goals and objectives.
Multiple organizations have reviewed and assessed the Philippine Technical and Vocational Education
and Training (TVET) landscape and TESDA's performance relative to its mandate. These assessments
include international and local reports such as those from the ASEAN TVET Council, International
Labour Organization, Asian Development Bank, and various scholarly and sector-specific studies.
Insights from these sources were used by the independent review panelists to assess TESDA’s
performance from 2009 to 2022.
The review process involved interviews, focus group discussions, and data analysis from various TVET
stakeholders, including the academe, industry, and labor sectors. This comprehensive approach aimed
to provide TESDA and related institutions with actionable recommendations to develop a globally
competitive Filipino workforce.

The Review Project

The current independent review panel, appointed by President Ferdinand R. Marcos Jr., includes:
1. Dr. Antonio M. del Carmen: An expert in education leadership and management, Dr. del
Carmen is the President of the Philippine Association of Private Schools, Colleges, and
Universities (PAPSCU) and CEO/President of STI College Santa Rosa. He has been an
entrepreneur and educator for over 30 years and is also a professor at the Ateneo Graduate
School of Business.
2. Mr. Antonio Ll. Sayo: An industrialist/entrepreneur and Vice President & Member of the Board
of Governors of the Employers Confederation of the Philippines (ECOP), Mr. Sayo also serves
as Chairperson of the Technical, Vocational Education and Training Committee of the
Philippine Chamber of Commerce & Industry.
3. Mr. Danilo A. Laserna: Vice President for Education and Training of the Federation of Free
Workers (FFW) and Council Member of the National Anti-Poverty Commission-Formal Labor
and Migrant Workers Sectoral Council (NAPC-FLMWSC), Mr. Laserna has over 30 years of
experience in the labor movement.
Originally intended to cover 2009-2018, the review period was extended to 2022 to ensure relevance
and applicability, especially considering the impacts of the COVID-19 pandemic on the education and

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training sector. The extended review aimed to provide more timely and actionable recommendations for
TESDA’s continued development and alignment with Philippine development goals.
The evaluation framework, developed by the independent review panel in collaboration with TESDA’s
Planning Office, headed by Executive Director Charlyn B. Justimbaste, aims to review TESDA's
operations over the past 14 years. This framework will assess TESDA’s performance based on three
major key performance indicators:
1. Addressing Skills Mismatch and Employability: Evaluating how TESDA sets the direction to
mitigate skills mismatches and enhance the employability of TVET graduates.
2. Quality of Education and Training: Ensuring TESDA programs provide high-quality education
and training to learners.
3. Efficient, Inclusive, and Equitable TVET Delivery: Assessing the organizational support,
scholarships, and resource allocation and mobilization for effective TVET delivery.
The methodology includes focus group discussions, interviews with key informants, data collection
through surveys, and data analysis using both quantitative and qualitative approaches.
A descriptive research design is employed to outline the evolution, goals, objectives, accomplishments,
challenges, and problems of TVET in the Philippines under TESDA's supervision. This analysis will
enhance the panelists' understanding of TESDA’s policies, strategies, and programs, providing a
broader perspective for improving TVET and aligning it with Sustainable Development Goal #4 (Quality
Education).
The study also uses qualitative archival research by gathering information from published reports and
documents from archives and relevant websites. The analysis of these narratives will help the panelists
identify gaps and opportunities in TESDA's operations and future direction.
The review of TESDA's operations from 2009 to 2022 occurs amidst a complex and evolving
environment. Spanning four presidential administrations—Gloria Macapagal-Arroyo, Benigno Aquino III,
Rodrigo Duterte, and Ferdinand R. Marcos Jr.—and involving eight changes in TESDA's Director
General, the period witnessed shifts in policies, programs, and priorities. These changes significantly
influenced TESDA's Programs, Activities, and Projects (PAPs), although the review panel focuses
solely on assessing overall performance rather than detailing the impacts of leadership transitions.
Beyond leadership changes, socio-economic factors like economic fluctuations and technological
advancements shaped labor market demands, influencing TESDA's programs to address evolving
industry needs. Reforms in education, such as K-12 implementation and TVET enhancements, along
with policy recommendations from EDCOM II, further guided TESDA's strategic directions and
priorities. Fluctuations in government budget allocations posed additional challenges and opportunities
for expanding program reach and improving quality.
Public-private partnerships played a crucial role in aligning TESDA's training programs with industry
standards, fostering work-based learning, and enhancing job placement outcomes. Despite efforts,
enterprise-based training did not become the preferred delivery channel, contributing to challenges in
job placement for TVET graduates.
Moreover, demographic changes including population growth, urbanization, and migration patterns
influenced demand for skills training and accessibility to TESDA's services nationwide.

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In conclusion, TESDA's operations from 2009 to 2022 navigated a dynamic landscape shaped by
diverse socio-economic factors. Adaptability and forward-thinking strategies were essential for TESDA
to fulfill its mandate of delivering quality technical education and skills development aligned with
Philippine development goals.
Perspectives from Academe (Dr. Del Carmen):
Education and training have always been a progressive learning process that is characterized by
continuous growth, development, and adaptation of skills, knowledge, and understanding over time.
There are various pathways that individuals can take in order to acquire foundational knowledge that
can build up to the attainment of intermediate and more advanced competencies and skills. The
process does not have to be a linear progression but a robust framework for continuous learning. The
key component is the alignment or the articulation of the different stages of learning into a seamless
process that provides lifelong learning.
The tri-focalization of the Philippine education system in 1994 aimed at making the Philippine Education
Sector more responsive, efficient, equitable, competent, and effective. However, the structure also
created silos among the three government agencies making it more challenging to have a seamless
progression of learning. The PQF Law was passed in 2017 with the objective of supporting lifelong
learning and the mobility of workers and learners by aligning domestic qualification standards with
international qualifications frameworks. It also defined the eight levels of qualifications and which
among the three agencies of the trifocalized system are responsible for the delivery of each level.
TESDA’s mandate covers Levels 1 to 5 but there are overlaps with DepEd and CHED which not only
resulted in misalignments in the learning progression but also created problems in preparing the
learners for industry integration.
A critical issue is the persistent jobs-skills mismatch exacerbated by rapid technological changes.
TESDA's role in skills training and development includes formulating competency-based programs. It
manages over 17,500 registered programs, categorized into those with Training Regulations (WTR)
and those without (NTR). The development of WTR programs involves extensive processes led by
Technical Working Groups (TWGs), often resulting in lengthy timelines that struggle to keep pace with
industry demands.
As of December 2022, TESDA had promulgated 315 Training Regulations, most concentrated in
sectors like Construction, Automotive, and Agriculture. Recommendations emphasize industry-led
program development to enhance responsiveness. The establishment of Industry TVET Boards (ITBs)
aims to bolster this approach, fostering closer ties with industry to align training content with current
needs. Industry participation in assessment and certification processes is advocated to ensure
relevance and quality, potentially replacing TESDA's National Certification with industry certifications.
Under industry partnerships, TESDA collaborates with stakeholders to identify skill gaps and develop
tailored training programs. Successful initiatives include partnerships with industry associations like
Philippine Software Industry Association (PSIA) and IT and Business Process Association of the
Philippines (IBPAP), which have significantly boosted employment rates for graduates in sectors such
as IT and manufacturing.
Promoting TVET as a viable career path remains crucial amid misconceptions about its value compared
to traditional academic routes. Efforts are needed to enhance public perception and emphasize the
immediate employability of TVET graduates. Special programs target disadvantaged groups, offering
them access to skills training and employment opportunities, thus broadening TESDA's societal impact.

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Rebranding TVET as Technical Education and Skills Development (TESD) aims to enhance its image
and align with global educational trends, emphasizing lifelong learning and industry relevance. This
shift intends to mitigate negative perceptions on vocational training and highlight the sector's integral
role in economic development.
In standards setting and system development, TESDA oversees accreditation and regulation of TVET
providers and programs under the Unified TVET Program Registration and Accreditation System
(UTPRAS). Challenges include slow registration processes and inconsistencies in evaluation,
necessitating streamlined procedures and enhanced regulatory clarity.
To address these issues comprehensively, TESDA advocates for closer alignment with DepEd and
CHED curricula, and the adoption of industry-led competency assessments. This approach seeks to
ensure that TVET programs meet evolving industry needs and enhance graduates' employability.
In support of TVET provision, TESDA administers various scholarship programs aimed at expanding
access to quality training. These initiatives underscore TESDA's commitment to bridging the skills gap
and promoting inclusive economic growth through technical education and skills development.
The IRP3 suggests conducting a thorough review of scholarship beneficiaries to prevent politicization
and ensure equitable distribution among TVET providers. It proposes assigning an independent unit or
a third-party organization, possibly leveraging the Private Education Assistance Committee's (PEAC)
expertise. This approach aims to enhance transparency, mitigate corruption risks, and improve the
management of scholarship funds, similar to their efficient handling of Education Service Contracting
and vouchers for DepEd's Senior High School program.
To effectively deliver its mandate, TESDA's organizational structure requires strengthening, particularly
in its Certification Office, Qualification and Standards Office, provincial offices, and Scholarship
Management Division. These areas face bottlenecks in program development, training regulations,
TVET provider accreditation, and scholarship distribution. Moreover, a marketing unit or department
can be organized to handle the rebranding of TVET in order to make it more relevant and attractive to
students or trainees as well as to the industry. A permanent high-level coordinating body is likewise
necessary to streamline TESDA's operations with DepEd and CHED, addressing a long-standing lack
of coordination among education agencies since the 1990s. While departmentalization may enhance
TESDA's effectiveness, coordination among the three agencies remains essential.
Skill-based training is increasingly preferred by students and educators for career development, and
industries are recognizing its value over traditional college degrees. TESDA should adapt its strategy to
encourage technical skills training as a pathway for lifelong learning. Currently, most TVET graduates
hold low-level competencies (NC I and II), whereas industries need higher-level skills (NC III to V).
TESDA should focus on advanced skills training and intensify partnerships with industries to develop
relevant, technology-based programs. Adopting a marketing strategy to promote technical skills training
and creating a framework for micro-credentialing and ladderization is essential. Implementing a
comprehensive tracer study to monitor TVET graduates' career progress will further enhance the value
and image of technical education.

Perspective from Industry (Mr. A. Sayo):

There is a significant skills mismatch in the Philippines between the skills provided by training
institutions and those demanded by employers. While 90% of training institutions believe their
graduates are prepared for entry-level positions, only 55% of employers agree. This discrepancy
extends to job-specific skills, with 88% of training institutions confident in their graduates' abilities,

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compared to only 59% of employers. Reports show that many TVET graduates are either under-skilled
for higher-level jobs or over-skilled for lower-level positions, with a high mismatch rate in recent years.
Only about one-third of employed TVET graduates work in fields aligned with their training.
Several factors contribute to this mismatch, including deficiencies in both soft and technical skills
among graduates and a lack of employer recognition of TVET certifications. Despite enterprise-based
training (EBT) being effective, its utilization is low and declining, unlike institution-based training (IBT).
Demographic data reveals a large young dependent population and a rising median age, highlighting
the need for better healthcare and social security investments. To leverage its demographic advantage,
the Philippines must address skill mismatches and engage more with industries in setting standards
and curricula that include both technical and core skills. Embedding TVET within industry clusters can
aid in innovation and technology transfer, but this requires strong industry linkages, policy support, and
capacity development. Finally, prioritizing the inclusion of soft skills in all occupational qualifications is
essential for a more effective workforce.
In addition to mismatches in skills and qualifications, the Department of Labor and Employment-
Bureau of Local Employment (DOLE-BLE) highlights regional and sectoral mismatches, where job
vacancies do not align with the locations or economic sectors of potential employees. This issue can be
exacerbated by the costs of relocating. TESDA has made significant strides in technical education and
skills development, especially for marginalized sectors, but faces challenges in adapting to Industry 4.0.
These challenges include resource limitations, a need for updated facilities and trained personnel,
shortages of technology competency assessors, lengthy processes for developing standards, and
insufficient engagement with industry stakeholders, which hampers TESDA's ability to meet the
evolving demands of the labor market.
The Quality Management System Manual outlines that TESDA's national training regulations consist of
competency standards, qualifications, training standards, and assessment arrangements, forming the
basis for curriculum development, instructional materials, and training program delivery. These
regulations are developed with input from private sector representatives and industry experts to ensure
they meet labor market needs and are periodically reviewed for updates. However, the process to
update these standards can take up to eight months. Despite developing 264 Training Regulations,
there is a significant gap between their creation and practical use. For example, in 2015, only eight of
the 254 regulations were widely utilized, with the majority seeing very limited application.
The Philippine TVET Competency Assessment and Certification System (PTCACS) assesses and
certifies the competencies of middle-level skilled workers to ensure they meet workplace standards.
Accredited assessors conduct these evaluations through various methods, including demonstrations,
written tests, and interviews. Certification can be obtained at TESDA-accredited centers and offices.
However, there is a shrinking pool of qualified assessors due to many transferring to the Department of
Education for better salaries and job security following the K to 12 reform. Additionally, there is a need
for assessors to upgrade their qualifications .
In response to the transformative impact of the Fourth Industrial Revolution (4IR), digitalization, and AI
on the workforce, TESDA's organizational framework needs a strategic overhaul. A thorough review is
essential to adapt to the changing landscape, focusing on incorporating digital literacy and AI
competencies into the curriculum. Key changes include updating the Planning Office, National Institute
for Technical Education and Skills Development, and Certification Office, and creating an Innovation
and Technology Division.
To stay competitive, TESDA must update its curriculum to include essential digital and AI skills,
collaborating with industry leaders, academic institutions, and technology experts. Priority areas should

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include data analytics, AI, cybersecurity, and digital marketing. Expanding online and blended learning
platforms is crucial to enhance accessibility, especially for remote or underserved areas.
AI can improve TESDA's assessment and certification processes by personalizing learning pathways,
identifying gaps, and providing targeted interventions. AI-powered tools can automate evaluations,
ensuring consistency and reducing bias, while AI-enabled credentialing can enhance the recognition of
TESDA certifications globally.
Collaboration with technology sector stakeholders and industry is vital for aligning TESDA's initiatives
with market trends and technological advancements. Strategic partnerships with tech companies,
startups, and industry associations can help co-create relevant training programs. Additionally, working
with academic institutions and research centers can drive innovation in educational technologies.
By strategically restructuring its framework, curriculum, assessment processes, and industry
collaborations, TESDA can equip the Filipino workforce with the necessary skills for a technology-driven
economy, promoting inclusive growth and sustainable development.

Perspectives from Labor (Mr. D. Laserna)

Job skills mismatch is a significant issue in the Philippines, occurring when the skills of the workforce
do not align with the skills demanded by employers. This mismatch results in many available jobs
remaining unfilled while job seekers struggle to find employment due to either a lack of necessary skills
or being overqualified.
Several factors contribute to this mismatch, including changing industry requirements, outdated
educational curricula, and inadequate training programs. Although TESDA has implemented various
initiatives to address these issues—such as curriculum reforms, industry partnerships, and skills
training programs—mismatch rates among TVET graduates remain high, ranging from 42% to 81%
according to a 2021 Asian Development Bank study. This mismatch negatively impacts job satisfaction
and productivity.
To address these challenges, President Ferdinand “Bongbong” Marcos, Jr. signed Republic Act No.
11962, known as the Trabaho Para sa Bayan Act. This law aims to tackle various labor market issues,
including low-quality jobs, skills mismatch, and underemployment, and is expected to improve
alignment between education and industry needs.
Industry involvement is crucial to ensure that the skills taught align with labor market demands.
Partnerships with industries help TESDA tailor its training programs to current and emerging skill
requirements. The TESDA Act of 1994 (Republic Act No. 7796) mandates the establishment of Industry
Boards (IBs) to facilitate employer and worker participation in skills development and certification.
TESDA has established IBs in various provinces and regions, composed of industry associations,
worker unions, learning institutions, and government bodies. However, TESDA Circular No. 38, Series
of 2023, redefines these boards as Industry TVET Boards (ITBs), mainly represented by employer
groups, limiting worker and academic participation.
Currently, several national ITBs exist, such as the Philippine Constructors Association (PCA) for
construction, the Tourism Industry Board Foundation Inc. (TIBFI) for tourism, and the IT & Business
Process Association of the Philippines (IBPAP) for ICT. This shift contradicts the original mandate that
IBs be established independently by TESDA and includes equal representation from employers and

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labor. Under the new policy, participation of labor unions, academic associations, and government
agencies is discretionary, potentially reducing their influence.
Aligning Technical and Vocational Education and Training (TVET) with the Labor Code of the
Philippines ensures that training programs comply with legal requirements related to contracts,
remuneration, working conditions, and occupational safety and health standards. This alignment
promotes adherence to labor laws and safeguards the rights of trainees as workers.
For example, provisions regarding apprenticeship and enterprise-based training (EBT) can be tailored
to meet industry needs. The Tripartite Industry Board, which includes mandatory representation from
the labor sector, addresses concerns such as training duration and remuneration to prevent
exploitation.
The process for determining industry standards involves recommendations from the law-mandated
Industry Board (IB) to the Industrial Peace Council (IPC), and ultimately to the National Tripartite
Industrial Peace Council (NTIPC). This structure supports the State's tripartism policy, ensuring
balanced input from employers, workers, and the government.
Enterprise-Based Training (EBT) and Apprenticeship Programs are consistently the least popular
modalities within Technical and Vocational Education and Training (TVET). Data spanning from 2014 to
2022 consistently show that EBT has the lowest number of graduates compared to Community-Based
Training (CBT) and Institution-Based Training (IBT).
Elevating TESDA to a cabinet-level department could significantly strengthen technical education and
skills development in the Philippines. This move would enhance workforce development, spur
economic growth, and promote social progress by prioritizing TVET initiatives. Concerns include the
abolition of the TESDA Board, but a proposed Department of Technical Education and Skills
Development (DTESD) could establish a national consultative body akin to existing councils under
other departments. This body could include representatives from government, industry, academe, and
workers to advise on TVET policies. Another concern is ensuring that top officials are appointed based
on qualifications rather than political considerations to effectively handle TVET concerns.
The impact of various TESDA scholarship programs on employment and earnings shows mixed results.
The Training for Work Scholarship Program (TWSP) has a positive impact on employment, with a rate
of 72.9%, but it does not significantly affect earnings, with participants earning an average of PHP
12,747 per month. In comparison, trainees from the Special Training for Employment Program (STEP)
and Private Education Student Financial Assistance (PESFA) earn average monthly incomes of PHP
11,270 and PHP 10,241, respectively. Despite TESDA reporting an 84.72% employment rate in 2022,
previous reports indicate that TESDA graduates earned only PHP 10,000 per month on average from
2010 to 2014. Senator Joel Villanueva has raised concerns that many TESDA graduates earn below
minimum wage, potentially perpetuating poverty among them. The situation highlights the significant
number of Filipinos seeking additional income opportunities.

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RECOMMENDATIONS:
Academe:
DIRECTION SETTING & STANDARDS AND SYSTEM DEVELOPMENT
1. Industry-led development of training regulations and competency standards to address
job-skills mismatch as designed through Industry TESD Boards.
2. Enhance course delivery that will lead to industry assessment and certification equivalent to
TESDA's NCs and recognized globally through the PQF and AQRF.
3. Strengthening academe-industry-government collaboration through Industry TESD Boards.
4. Simplifying enterprise-related training modalities tailored to industry requirements. Developing
Enterprise-Based Training in partnership with TVIs.
5. Enhancing coordination with DepEd and CHED, potentially through departmentalization of
TESDA
6. Adopting a lifelong learning pathway through the alignment of TESDA programs with DepEd
and CHED.
7. Empower private TVIs in the delivery of TESD through reasonable and equitable regulation and
evaluation and the provision of more scholarship grants including a joint delivery program in
JHS and SHS
B. SUPPORT TO TVET PROVISION
1. Devolving scholarship grant management to an independent unit or centralized office to ensure
equitable and apolitical distribution.
2. Increasing staffing in critical offices like Certification, Qualification and Standards, provincial
offices, and Scholarship Management.
3. Establishing a marketing and placement office to rebrand TESDA as TESD, enhance its image,
and implement a tracer study for career tracking of graduates.
4. Departmentalize TESDA and appoint an educator as head.
These recommendations aim to harmonize and align technical education and skills development with
the foundational knowledge acquired from basic education as well as prepare the learner for advanced
competencies in higher and professional education. By providing adequate and accessible quality skills
training that is both relevant and responsive to industry needs, the learner can have more opportunities
for a productive and progressive career, both locally and globally.

Industry:
The 2020 census data reveals a demographic structure in the Philippines characterized by a sizable
young dependent population (30.7% under 15 years old) and a majority working-age population
(63.9%). The median age is 25.3 years, indicating a youthful demographic that poses opportunities for
economic growth but also highlights the need for investments in healthcare and social security to
prepare for an aging population.

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To leverage this demographic advantage effectively, TESDA can enhance its role in upskilling and
reskilling. Addressing the skills mismatch is crucial, necessitating industry-led development of training
standards that include core work skills and transversal skills. Integrating soft skills alongside technical
education is essential, aligning curriculum with industry needs through industry-linked TVET boards.
Recognition of prior learning (RPL) within the Philippine Qualifications Framework facilitates skills
validation gained through non-formal or informal means. Micro-credentialing complements RPL by
recognizing smaller units of learning that can stack into larger qualifications, enhancing flexibility for
learners, especially Senior High School graduates seeking employment.
Encouraging enterprises, particularly MSMEs, to adopt micro-credentialing in EBT programs can
address specific skill gaps and boost productivity. EBT, emphasizing on-the-job training and
apprenticeships, helps enterprises align training with industry demands, fostering a skilled workforce
ready for dynamic business environments.
Overall, these strategies aim to enhance workforce readiness, promote economic competitiveness, and
support sustainable growth in the Philippines.
The integration of TESDA within DOLE allows for strategic alignment of vocational training with national
labor market dynamics, ensuring responsiveness to current and future industry needs. This
collaboration facilitates effective policy implementation and quick adaptation of training programs to
urgent industry demands.
Proposals to elevate TESDA to an independent department warrant careful consideration, balancing
potential benefits like increased autonomy and focused mission delivery against challenges such as
financial sustainability and potential isolation from key agencies. A detailed cost-benefit analysis is
crucial to inform this decision, emphasizing the need for strong collaborative ties with other education
and labor agencies to maintain a cohesive approach to workforce development.
A thorough review of the current organizational setup is essential, with a key emphasis on adapting to
the changing landscape. It is crucial to identify areas where adjustments are needed, particularly within
the Planning Office, National Institute for Technical Education and Skills Development, and Certification
Office, to smoothly incorporate digital literacy and AI competencies into the existing curriculum and
programs. Additionally, creating a dedicated Innovation and Technology Division is vital to spearhead
technological progress and ensure that TESDA remains flexible and responsive to the evolving needs
of industry needs.

Elevating TESDA to a department status could enhance its effectiveness and responsiveness to
technical education and skills demands by securing larger budgets and restructuring units. This
transformation would support a decentralized approach, enabling tailored interventions across diverse
regions and provinces, thereby promoting inclusive economic advancement and elevating the prestige
of vocational training in national development.
The process of developing and updating standards and assessment tools in technical education faces
challenges, particularly with the rapid evolution of technology. To address these issues, the following
recommendations are proposed:
1. Streamline Processes: Simplify the procedures for consultation, review, and approval of
standards. Introduce efficient digital tools and establish clear timelines with specific milestones
to ensure timely updates that keep pace with technological advancements and industry needs.
2. Strengthen Collaboration: Enhance partnerships with industry stakeholders, including private
sector representatives and experts from TVET Industry Boards. Ensure consistent engagement

iv
 and awareness of timelines to prevent delays that could render standards obsolete quickly.
Regular consultations will help maintain relevance and alignment with current labor market
demands.
3. Raise Awareness and Utilization: Conduct outreach and training programs to educate TVET
institutions, trainers, and the public about training regulations. Offer incentives or recognition for
compliance to encourage broader adoption of standardized programs that meet industry needs.
4. Focus on High-Demand Sectors: Prioritize the development of training programs tailored to
sectors experiencing significant skills gaps or labor shortages. Conduct market analyses to
identify these areas and allocate resources accordingly to maximize impact.
5. Enhance Monitoring and Evaluation: Improve mechanisms to monitor and evaluate the
implementation and impact of training regulations and TVI accreditation and evaluation.
Establish key performance indicators (KPIs) to measure program uptake and effectiveness.
Regular evaluations will identify areas for improvement and guide future initiatives to ensure
TESDA's efforts effectively address skills gaps and meet industry demands.
Enhancing industries' participation in competency assessment, supported by Industry Boards, is critical
for fostering collaboration among stakeholders. Revising incentive structures is necessary to encourage
greater industry engagement in TVET, aiming to align workforce skills with industry requirements and
boost economic growth. Increased industry involvement in assessment will help address skills
mismatch, improve skill matching, and enhance overall workforce effectiveness. Moreover, ensuring
assessors stay updated on industry-relevant competencies is crucial due to rapid technological
advancements.
The TVET landscape in the Philippines faces a significant challenge: a persistent skills gap hindering
both individual employment and national economic growth. Addressing this requires aligning TVET with
industry needs, improving collaboration, and streamlining processes. Key strategies include enhancing
industry engagement to set relevant standards, integrating soft skills into occupational qualifications,
and adopting micro-credentialing for flexible skills recognition. Encouraging Micro, Small and Medium
Enterprises (MSMEs) to adopt micro-credentialing and enterprise-based training is crucial for workforce
specialization and productivity. Elevating TESDA to a departmental status could enhance its capacity to
address skills mismatches, integrate digital literacy and AI competencies, and promote inclusive
economic growth through targeted reforms and strategic restructuring.
To maximize TESDA's potential, it is recommended that TESDA transition into a regulatory and
development body, divesting its direct training functions to the private sector over a period of 3 to 5
years. This strategic shift will allow TESDA to concentrate on high-level strategic planning, regulation,
and development of technical education. By fostering public-private partnerships and incentivizing
private sector participation in training provision, TESDA can leverage the agility and expertise of the
private sector to deliver innovative and specialized training programs.

The proposal to expand TESDA's role to incorporate to the maximum the Technical-Vocational
(Tec-Voc) and Livelihood education components from the Department of Education (DepEd) presents a
transformative opportunity for the Philippine educational landscape. This expansion is poised at a
crucial juncture, promising to harness TESDA's specialized expertise in vocational training to address
current industry demands and future workforce needs. By integrating Tec-Voc and Livelihood education
into its purview, TESDA stands to streamline the transition from education to employment, creating a
workforce that is both skilled and adaptable to the evolving job market.

iv
Labor:
On Employability:
1. Enhance Filipino workforce employability by aligning educational goals across basic, TVET,
higher education, and professional development with labor market needs.
2. Update training standards and curricula to include emerging and hard-to-fill occupations in key
employment sectors.
3. Emphasize core employability skills in basic and higher education as well as TVET.
4. Develop modern TVET, apprenticeships, and professional development programs aligned with
industry demands, including green skills and jobs.
5. Establish skills assessment and certification programs to recognize prior learning.

On Shared Labor Governance:

1. Forecast industry needs and formulate employment roadmaps in key sectors to help workers
and employers adapt to technological and climate changes.
2. Advocate for skills development programs that promote sustainability and a "just transition."
3. Integrate gender and green competencies into training standards, modules, and curricula.
4. Ensure genuine and inclusive representation in tripartite mechanisms, including the Philippine
Qualification Framework and Philippine Skills Framework bodies.
On Effective Participation in Social Dialogue and Tripartite Processes:
1. Ensure competent representation of workers and employers in policy and decision-making
bodies, following TESDA Circular No. 38, Series of 2023, and Section 26 of the TESDA Act of
1994.
2. Consider converting the TESDA Board into a national advisory board similar to DOLE’s
National Tripartite Industrial Peace Council (NTIPC) pending the passage of relevant bills.
3. Strengthen capacity-building programs for employers’ and workers’ representatives involved in
TESDA’s policy and decision-making bodies.
This summary condenses the main points regarding enhancing employability, promoting shared labor
governance, and improving participation in social dialogue within TESDA's framework.
Convergence of Recommendations:
The perspectives from academia, industry, and labor sectors converge on several key
recommendations for TESDA's action:
1. Addressing job-skills mismatch through industry-led course development, delivery and
assessment.
2. Establishing Industry TESD Boards for collaborative and streamlined competency standards
and training regulations development.

iv
 3. Mandating worker representatives' participation in Industry TESD Boards, as per TESDA Act
provisions.
4. Implementing a progressive lifelong learning pathway integrating micro-credentialing,
recognition of prior learning, and enterprise-based training.
5. Developing comprehensive labor market information systems to monitor job market dynamics
and skill demands.
6. Proposing TESDA's elevation to a department level for enhanced status, funding, and strategic
autonomy.
7. Reorganizing TESDA to increase regional presence, manage scholarship grants effectively,
and ensure program quality and relevance.
8. Development of green skills in preparation for emergence of green economy and
implementation of Green Jobs Act of 2016.
These recommendations aim to strengthen TESDA's role in workforce development, aligning
educational programs with industry needs and fostering economic growth in the Philippines

iv
THE REVIEW
PROJECT
 INTRODUCTION

Under Republic Act No. 7796 or the Technical Education and Skills Development Act of 1994, the
Technical Education and Skills Development Authority (TESDA) has to subject itself to an automatic
performance review. This is specifically provided in Section 35 of the TESDA Act which states that
“Every five (5) years, after the effectivity of this Act, an independent review panel composed of three (3)
persons appointed by the President shall review the performance of the Authority and shall make
recommendations, based on its findings, to the President and to both Houses of Congress”. After
almost 30 years, however, only three review panels have been constituted.

The conduct of the first two reviews (IRP 1 covering the period 1995 to 2000 and IRP 2 covering the
period 2002 to 2008) were very comprehensive and several policy and program recommendations as
well as organizational realignments were proposed. However, several recommendations remain
partially or completely unimplemented as will be discussed in this report. Consequently, the potential
positive impact of these recommendations to TESDA’s goals and objectives remain unattained.

Over the years, there are other organizations that reviewed and assessed the Philippine TVET situation
in general and TESDA’s performance, in particular, vis-à-vis its mandate, which is to provide relevant,
accessible, high quality and efficient technical education and skills development and to develop high
quality Filipino middle-level manpower that is responsive to and in accordance with Philippine
development goals and priorities. Some of these reviews and literature include international articles like
the ASEAN TVET Council (March 2021), the International Labour Organization World Employment and
Social outlook 2021, the Asian Development Bank Report in 2009 and March 2021, The State of
Student Success & Engagement in Higher Education 2023 by Instructure (the Maker of Canvas) and
TVET as Viewed From the Education Sector by JICA. Locally, there were also similar articles such as
the PCCI ETF: Reform Our Education, Transform Our Future, Aug 8, 2022, the Inception Report -
TESDA Review by Lucita A. Lazo and Napoleon B. Imperial, and, of course, the EDCOM II Year One
Report. Furthermore, primary and secondary data from TESDA’s printed and online official reports were
utilized in tandem with published special studies by the Asian Development Bank (ADB), scholarly
journal articles, Handbooks on International Standards, and documents of other organizations involved
with TVET in the Philippines. These include the National Technical Education and Skills Development
Plan (NTESDP) 2023-2028 which was recently released by TESDA.

The insights from these reference materials served as a guide to the independent review panelists in
their task of assessing the performance of TESDA from 2009 to 2022. A validation process that
involved interviews, focused group discussions, gathering and analyzing data from the different
stakeholders of TVET were likewise undertaken. Perspectives from the academe, industry and the
labor sectors were triangulated in order to come up with a holistic and comprehensive report that would
aid TESDA, and all other related government and private institutions involved in TVET, to attain its
vision of developing a skilled Filipino workforce that is not only reliable, trustworthy and productive but
also globally competitive.

I. THE REVIEW PROJECT

The three (3) independent review panelists who were appointed by President Ferdinand R. Marcos Jr.
are respected resource persons and experts from the academe, industry and labor sectors. Dr. Antonio
M. del Carmen, who is a doctorate degree holder in education leadership and management, is the
President of the Philippine Association of Private Schools, Colleges and Universities (PAPSCU) and is

2
a Director of Unified TVET of the Philippines (UniTVET) and the Coordinating Council of Private
Education Associations (COCOPEA) which is the umbrella arm of all private educational institutions in
the country. Dr. Del Carmen is also the CEO / President of STI College Santa Rosa. The second
panelist representing the industry sector is Mr. Antonio Ll. Sayo. He is an Industrialist/Entrepreneur
having established his own Dehydration Facilties and worked for the Soft Drinks and Coconut
Manufacturing and Export Industries. He is a product of the Center for Research & Communication /
University of Asia & the Pacific. He is presently the Vice President & Member – Board of Governors of
the Employers Confederation of the Philippines (ECOP) and Chairperson of AMY Innovation Awards
Committee and the Technical ,Vocational Education and Training Committee of the Philippine Chamber
of Commerce & Industry. He is also the Chairperson/ President of Alay Buhay Community Development
Foundation, Inc.The third panelist representing the labor sector is Mr. Danilo A. Laserna who is
presently the Vice President for Education and Training of the Federation of Free Workers (FFW) and
concurrent Council Member National Anti-Poverty Commission - Formal Labor and Migrant Workers
Sectoral Council (NAPC-FLMWSC). He has been in the labor movement as a trade union organizer for
more than 30 years. He earned his Master’s Degree in Industrial Relations (MIR) at the School of Labor
and Industrial Relations of the University of the Philippines (UP) in 1997.

Based on the Terms of Reference of the IRP 3 Appointments, the review is supposed to cover the years
2009 to 2018. However, since the appointments were only completed in February 2023, the panelists
decided to extend the coverage of their review until 2022 in order to make the analysis and
recommendations more relevant and implementable. This is also considering the fact that the country,
and the whole world for that matter, is just recently recovering from the effects of the COVID pandemic
which has also greatly affected the education and training sector.

A. Evaluation Framework

As developed by the panelist in collaboration with TESDA’s Planning Office headed by

Executive Director Charlyn B. Justimbaste, an evaluation framework will be used in reviewing
the last fourteen (14) years of operations of TESDA. The framework will assess TESDA’s
performance in achieving its mandate in three major key performance indicators, namely: (1)
Setting the direction towards addressing the skills mismatch and the employability of TVET
graduates, (2) Ensuring that TESDA programs provide quality education and training to
learners and (3) Efficient, inclusive and equitable delivery of TVET through organizational
support, scholarships and timely resource allocation and mobilization.

The methodology that the panelists will use in conducting the review will include focused group
discussion and interviews of key informants or groups, gathering and validation of relevant data
through surveys and the analyses of these data through the mixed use of quantitative and
qualitative approaches.

Below is the framework which includes the areas that will be covered by the review:

3
B. Research Design and Approach

The descriptive research design was used to briefly describe TVET’s evolution, goals,
objectives, accomplishments/outcomes in the past years, as well as its challenges and
problems in the Philippines as managed and supervised by TESDA. This analysis will provide
the panelists with a deeper appreciation of TESDA’s policies, strategies and programs in the
delivery of TVET and allow them to have a wider perspective on how to improve TVET and
align its future direction with the Sustainable Development Goal #4 which pertains to Quality
Education.

The qualitative archival research will be used in this scholarly inquiry by collecting the needed
information from published reports and documents available from the archives and the
websites of concerned institutions and interpreting the narratives from these sources. Insights
from this review of literature will guide the panelist in identifying gaps as well as opportunities in
the operations and directions of TESDA.

C. The Review Setting

The timing and the environment with which this review is being undertaken is very complex.
The years covered by the review spans four (4) administrations from Pres. Gloria
Macapagal-Arroyo whose term ended in June 30, 2010, Pres. Benigno Aquino III until June 30,
2026, Pres. Rodrigo Duterte until June 30, 2022 and the current administration under Pres.
Ferdinand R. Marcos Jr. whose term started on June 30, 2022. Similarly, the Director Generals
of TESDA appointed during these four administrations have also changed and, in fact, during
the period 2009 to 2022, the DG of TESDA changed hands eight (8) times, not counting the
current DG, Sec. Suharto Mangudadatu who assumed office on June 7, 2023.

4
With the change of leadership came changes in directions, policies, programs, priorities and
even appointments in departments, units and regional and provincial offices. These changes
have definitely affected the delivery of TESDA’s PAPs (Programs, Activities, Projects). The
review panel will, however, not dwell anymore on how PAPs were affected by the change in
leaderships but would rather just concentrate on assessing the overall performance of TESDA
in the attainment of its mandate.

Besides the change in leadership, TESDA has also been affected by other socio-economic
factors that occurred during the review period. For example, economic growth or fluctuations
have affected labor market demands which subsequently affected skills requirements of
industry. TESDA's programs and initiatives are shaped by labor market trends, demands, and
skill gaps across various industries and sectors. Changes in technology, globalization, and
industry structures influence the demand for specific technical skills and competencies,
requiring TESDA to review, revise and adapt its training programs and curricula to meet
evolving industry needs. It is TESDA’s mandate, in the first place, to prioritize programs that
can enhance employability, job placement, and entrepreneurship among Filipino workers.

The recent and ongoing reforms in the education sector, such as the implementation of the
K-12 program, the enhancement of TVET programs, the alignment of skills training with
industry needs and the potential policy recommendations from the Second Congressional
Commission on Education (EDCOM II), will influence TESDA's strategic direction and program
priorities. Similarly, fluctuations in government budgetary allocations for education and training
programs will affect TESDA's ability to expand its reach, improve program quality, and invest in
infrastructure, equipment, and human resources.

Public-Private Partnerships with the private companies, industry associations, employers,

and other stakeholders can also help TESDA align its training programs with industry
standards, facilitate work-based learning opportunities, and enhance job placement and
retention outcomes for graduates. This can also enhance or fast-track the adaption of
technological advancements, digitalization, and automation trends that are transforming the
nature of work and skills requirements. TESDA‘s training programs should incorporate
emerging technologies, digital literacy skills, and ICT-enabled learning modalities to prepare
learners for the demands of the digital economy. While TESDA has adopted an Area Based
Demand Driven TVET, it’s disheartening to note that enterprise-based training, despite its
perceived effectiveness, has not been the preferred channel of delivery and TVET graduates
continue to end up in low paying jobs.

Finally, the period of the review is also characterized by social and demographic changes
including population growth, urbanization, migration patterns, and changes in family structures.
These factors influenced demand for skills training, access to education and training services,
and the geographic distribution of TESDA programs and facilities.

Overall, TESDA's operations from 2009 to 2022 were influenced by a complex interplay of
socio-economic factors that reshaped the landscape of and the demand for technical
education and skills development in the Philippines. Adapting to these dynamic factors required
TESDA to adopt flexible, responsive, and forward-thinking strategies to fulfill its mandate of
promoting and delivering quality TVET for Filipino learners.

5
REVIEW OF
LITERATURE
II. REVIEW OF LITERATURE

A. The Purpose of Education in Human Capital Development

Education is a basic human right and this fundamental right has been globally accepted and legislated
in the primary and secondary levels with the United Nations Universal Declaration on Human Rights,
promulgated in 1948. It is the first internationally accepted document to enunciate the value of
education as a basic human right directed to the full development of the human personality (Russo,
2010). Thus, by accessing this right to be educated, individuals become involved in the primary process
of developing and enhancing human capital which, in turn, is the critical success factor in the
development and growth of a country (Seng, 2012). This pronouncement was echoed by President
Ferdinand R. Marcos, Jr. during his keynote address in the National Higher Education Summit held last
May 15, 2024.

The principal goal of education and training, therefore, is to prepare individuals to be responsible
citizens and to embark on productive undertakings such as employment, the practice of a profession or
craft, an entrepreneurial activity or involvement in any livelihood opportunity. Regardless of age, gender,
physique or stature in life, researches have pointed to an individual’s need to acquire knowledge, ability,
competence or skill in order to contribute (albeit its level of significance) to any social, economic,
political, ecological, technological or spiritual undertaking. Oak (2008) wrote that education is
responsible for the cultivation of a civilized and progressive society. It not only aims at making the
individuals of society self-sufficient but also lays the foundation for the fulfillment of a person's dreams
and aspirations. He further opined that education helps in imbibing moral and ethical values in the
individuals and their education, in turn, helps in the creation of a healthy society that bears a deep
understanding of principles and the philosophy of life.

Societies, according to Oak (2008), see the process of education beyond gaining knowledge but also in
inculcating forms of proper conduct and acquiring technical competency. It involves the cultivation of
an innocent mind, the instilling of values and principles in the minds of individuals. It also includes the
development of skills along with the achievement of one's physical, mental and social development.
To put it in technical terms, education consists of defined phases starting from formal education that
consists of primary, secondary and higher education and ideally it never ends— the process of
education that is believed to begin in the womb continues throughout life. Individuals have,
therefore, continuously sought education and training, whether formal or informal, institutional or
in-plant, structured or purely experiential and in any instance or occasion that these may be made
available and accessible to them. This is the framework of lifelong learning.

Contextualizing the Vision, Mission of Education

As earlier pointed out, education directly affects a country’s economic and social development.
Researches also concluded that the type, length and mode of delivery of education as well as the
profile of the student, the teacher and the environment where learning is transmitted affect the level of
attainment of the purpose for the education (Garcia, Cuello 2010). By increasing an individual’s ability
to transform knowledge, skills and attitudes into productive endeavors, investment in education is
translated to higher productivity, employment and compensation levels which further enhance the
human capital development of a society (Gupta, 2011). Educational institutions, whether public or
private, should, therefore, aim to bring their students to this state of transformation— from being
learners to becoming employable and productive members of society.

6
Bago (2008) cites Sadovnik, Cookson and Semel in discussing four dimensions that are included in the
transformative role of educational institutions. These are the cognitive, political, social and economic
goals. As defined by Bago, “cognitive goals refer to the development of the basic intellectual skills of
literacy (reading, writing, speaking), numeracy and thinking skills (analysis, problem solving, synthesis
and evaluation). Political goals, on the other hand, pertain to loyalty to the political order, obedience of
the laws and participation in political debates and exercises. Social goals include citizens’ involvement
in solving social problems in order to ensure social cohesion and stability of society. Finally, economic
goals pertain to the training and preparation of citizens for productive work”.

These goals can be embedded (“hidden”) in the curriculum design of schools and are meant to transmit
the necessary values of society, social consensus, and integration in primary schooling while later
schooling has the task of differentiating, recruiting, selecting, and grooming students for adult
occupational roles. The differences in goals and level or types of delivery as well as the profile of the
students being accepted in the institution affect the curricula, instructional approach and organizational
structures of schools. With this operational characteristic, schools are able to regulate their internal
processes in response to changes that occur in the environment.

Considering these, we can conclude that the purpose of education and training is multifaceted. At its
core, education aims to empower individuals with knowledge, skills, and values that enable them to
lead fulfilling lives, contribute to society, and adapt to a constantly changing world. It is a progressive
process and a lifelong journey that begins from the early stages of life and continues throughout
one's existence (The Process of Education, Jerome Bruner, 1960). The stages of learning can be
broadly categorized into foundational (early childhood and elementary education), intermediate
(secondary education and skill development), and advanced levels (higher education and professional
training).

Progressive Learning Systems

Progressive learning is an educational approach that emphasizes continuous growth, development, and
adaptation of skills, knowledge, and understanding over time. Unlike traditional learning models that
often follow a rigid, linear structure, progressive learning acknowledges that individuals have diverse
learning needs, interests, and paces of learning (Dewey, 1904). While progressive learning can involve
linear progression in some aspects, such as building upon foundational knowledge to grasp
intermediate and more advanced concepts, it typically embraces a more dynamic and flexible
approach. This can involve non-linear pathways, allowing learners to explore topics in different orders
or depths based on their interests and readiness. Additionally, progressive learning often incorporates
interdisciplinary connections, real-world applications, and collaborative experiences to provide a holistic
understanding of subjects.

A holistic experience in progressive learning means addressing not only cognitive development but also
emotional, social, and practical aspects of learning. This could involve fostering critical thinking skills,
promoting creativity and innovation, nurturing emotional intelligence, and encouraging collaboration and
communication.

Pathways available in progressive learning can vary depending on the context and goals of the
educational experience. Some common pathways include:
1. Personalized Learning: Tailoring the learning experience to individual needs, interests, and
abilities. This may involve adaptive learning technologies, differentiated instruction, or
project-based learning where students have autonomy to choose topics and methods of study.

7
 2. Inquiry-Based Learning: Encouraging exploration, questioning, and investigation to foster deep
understanding and problem-solving skills. Students may engage in research projects,
experiments, or case studies to explore topics in depth.

3. Experiential Learning: Providing hands-on experiences and real-world applications to reinforce

learning. This could include internships, field trips, simulations, or service-learning projects
where students apply theoretical knowledge in practical contexts.

4. Collaborative Learning: Emphasizing teamwork, communication, and cooperation among

students to facilitate learning. Group projects, peer teaching, and cooperative learning activities
promote collaboration and social skills while reinforcing academic content.

5. Competency-Based Learning: Focusing on mastery of specific skills or competencies rather

than time-based progression. Students advance as they demonstrate proficiency, allowing for
personalized pacing and targeted support.

6. Outcome-based education: Begins with clearly defined learning outcomes or objectives that
articulate the knowledge, skills, and dispositions students are expected to acquire. Progressive
learning principles inform the development of comprehensive and learner-centered outcomes
that emphasize not only content mastery but also higher-order thinking skills, creativity, and
problem-solving abilities.

7. Integrative Learning: Connecting diverse disciplines and perspectives to provide a

comprehensive understanding of complex issues. Interdisciplinary projects, thematic units, and
cross-curricular approaches encourage synthesis and application of knowledge across subject
areas.

Overall, progressive learning recognizes the multifaceted nature of education and seeks to cultivate
learners who are adaptable, critical thinkers, and engaged citizens in an ever-changing world. It
provides a robust framework for lifelong learning, supporting individuals in their journey of personal
and professional development throughout their lives. By embracing the principles of flexibility,
personalization, self-direction, continuous improvement, and integration, lifelong learners can thrive in
an ever-evolving world and contribute meaningfully to their communities and professions. The key
component to a progressive learning system is the alignment or the articulation of the different
stages of learning into a seamless process that provides lifelong learning.

In the Philippines, several policy directives, memoranda and even laws have been passed to pursue
lifelong learning strategies. These include the Alternative Learning System, Apprenticeship Law, Dual
Training System, the Expanded Tertiary Education Equivalency and Accreditation and the Ladderized
Education Act.

Comparative Educational Systems

The stages of learning, however, may have variations in terms of structure and level durations for
different countries and in most instances, have overlaps in terms of contents and curriculum design.
Based on the performance evaluation of students administered by the Program for International
Student Assessment (PISA) in 2022, some of the top performing education systems in the world
include that of Singapore, Canada and Australia. Many countries have centralized education systems,
while others may distribute responsibilities across different levels of government. Below are examples
of the general structure of these education systems:

8
Singapore Education System:
● Ministry of Education (MOE):
○ Preschool Education: Early Childhood Development Agency (ECDA) oversees
preschool education.
○ School Education: MOE manages primary and secondary education.
○ Post-Secondary Education: Tertiary institutions such as universities, junior college,
polytechnics, and the Institute of Technical Education (ITE).

9
Australia Education System:
● Department or Ministry of Education in Each State/Territory:
○ Preschool and Primary Education: Administered by state or territory education
departments.
○ Secondary Education: Administered by state or territory education departments.
○ Post-Secondary Education: Universities, TAFE institutes, and other higher education
institutions. Each state/territory has its education department overseeing these
institutions.

10
Canada Education System:
● Department or Ministry of Education in Each Province/Territory:
○ Preschool and Primary Education: Administered by provincial or territorial education
departments.
○ Secondary Education: Administered by provincial or territorial education departments.
○ Post-Secondary Education: Universities, colleges, and technical institutes. Each
province/territory has its education department overseeing these institutions.

In the Philippines, the First Congressional Commission on Education, in its 1991 report entitled Making
Education Work, An Agenda for Reform, paved the way for the tri-focalization of the Philippine
education system where the Department of Education was given oversight function over basic
education; the Commission on Higher Education for higher education; and the Technical Education and
Skills Development Authority for technical and vocational education and training. Thus, institutions,
whether public or private, offering kindergarten, elementary and secondary (which now includes junior
and senior high school) programs are under the supervision of the DepEd and are broadly classified as
basic education under the foundational stage. Skill development, which primarily falls under the
intermediate stage, is under the supervision of the TESDA and is classified as Technical Vocational
Education and Training (TVET). And, lastly, CHED is in charge of institutions offering higher education
(or degree programs) and professional training which are under the advanced level or stage. While the
objective of EdCom I was to make the Philippine Education Sector more responsive, efficient, equitable,

11
competent, and effective, the structure also created silos among the three government agencies. A
fourth Agency, the Professional Regulation Commission (PRC), grants registration and licenses to
graduates of tertiary education and a few non-baccalaureate programs.

In 2017, Republic Act 10968, also known as the Philippine Qualifications Framework (PQF) law, was
passed in response to the ASEAN Qualification Reference Framework (AQRF) that aims to support
lifelong learning and the mobility of workers and learners by aligning domestic qualification standards
with international qualifications frameworks. The framework also defined the eight levels of
qualifications and which among the three agencies of the trifocalized system are responsible for the
delivery of each level. The PQF, as revised, is shown below with the integration of the supervising
government agencies:

While the framework was able to establish national standards and levels for outcomes of education and
training, skills and competencies and support the development and maintenance of pathways and
equivalencies that are aligned with international qualifications framework, “the tri-focalization of
education has led to unclear jurisdictional boundaries and a lack of coordination among the three
agencies, thereby weakening the resolve and efforts to attain lifelong learning and a seamless
education system” (PCCI ETF: Reform Our Education, Transform Our Future, Aug 8, 2022). Note that
in the diagram above, there are overlaps between DepEd and TESDA as well as between TESDA
and CHED (black circles).

The TVL track in Senior High School is aimed at making the students employable after completing
Grade 12 with a National Certification (NC) level 1 and 2, which are supposed to be earned by SHS
graduates. These TVL tracks are being handled by DepEd whose teachers have no certification to
teach the skills and where schools do not have the appropriate laboratories or equipment for hands-on
training. Consequently, data has shown that SHS graduates do not have sufficient skills to qualify for an
NC and, much less, to be employable upon graduation. Similarly, the overlap between TESDA and
CHED is in the TESDA 2-3 year Diploma programs and CHED’s associate degree programs. While

12
completers of the associate programs can seamlessly move to degree programs, Diploma programs in
TESDA need to be ladderized for equivalency or articulated prior to its crediting to degree programs.
These areas of overlaps need to be resolved in order to have a clear and seamless pathway to learning
and eventually to employment or livelihood.

Last June 27-28, 2024, TESDA, in collaboration with the United States Agency for International
Development (USAID), organized the PQF National Coordinating Council (PQF-NCC) Interagency
Strategic Planning Workshop in order to clarify the Mission Vision Values (MVV) and Strategic Priorities
of the council and develop a roadmap that would harmonize the pathways towards lifelong learning as
well as the internationalization of education and learning in the Philippines.

B. The Philippine Education System in Crisis

The Philippine Chamber of Commerce and Industry (PCCI), the country’s largest business organization,
believes that the country must adopt new models and paradigms in our education system that will fit the
needs of the present and the future and that the value of lifelong learning should be inculcated in
every Filipino. There is a need to innovate in order to meet the requirements of rapidly changing times
more so with emerging issues brought about by Industry 4.0. In an increasingly globalized and digitized
world, the Philippines must give highest priority in educating and up-skilling its people. (PCCI ETF:
Reform Our Education, Transform Our Future, Aug 8, 2022).

Over the years, there have been several indicators that point to the inefficiencies and inability of the
Philippine education system to provide the level and quality of education and training that would
develop and enhance the human capital of the country— a system that would prepare individuals to be
responsible citizens who embark on productive undertakings such as employment, the practice of a
profession or craft, an entrepreneurial activity or involvement in any livelihood opportunity. Instead, the
current system has resulted to an unemployment rate ranging from a high 7.8% in 2021 to a low 3.6%
in 2023, an underemployment rate ranging from 11.2% to 15.9% (Philippine Statistics Authority, Feb 7,
2024) and poverty incidence of 23.5% in 2015 and 18.1% in 2021. And in spite of having one of the
highest literacy rates in the developing world (literacy rate reached 99.27% in 2021), many Filipino
students still struggle with reading comprehension, vocabulary development, and critical thinking skills
(PSA, October 12, 2023).

The dismal performance of 15-year-old Philippine students in the 2022 Programme for International
Student Assessment (PISA) has prompted stakeholders and advocates to declare a crisis in Philippine
education. In the Second Congressional Commission on Education (EDCOM II) Year One Report
(2024), which was aptly entitled “Miseducation: The Failed System of Philippine Education”,
vulnerabilities in the education sector that are already long-standing, became even more pronounced.
“The crisis is felt in the very bones of the nation—by parents, by educators, by employers, and by
students themselves.”

Each of the three government agencies that comprise the trifocalized education system of the
Philippines were diagnosed, scrutinized and assessed not only to confirm the existence of the crisis,
but more importantly, to discover exactly how such a crisis came to be, and why it has persisted. The
Technical Education and Skills Development Authority (TESDA) is one of those agencies that was
evaluated.

The foundational level of education (early childhood and elementary education) is beset with several
challenges. Implementation of nutrition-specific interventions has been fragmented, coverage remains
low and targeting of interventions has been weak resulting in a 26.7% under-5 years old stunting

13
(versus the global average of 22.3%). Early childhood education is not equally accessible throughout
the country. Basic Education, despite improvements in enrollment rates over the past decade, was only
able to achieve low student proficiencies in Math (41%), English (44%), Araling Panlipunan (44%), and
Science (44%).

In Higher Education, more learners are enrolling, particularly in public institutions, but a large number of
students are dropping out before completing their degrees. Attrition rates have more than doubled
within only 3 years, from 20% in 2019 to 41% in 2020. And while some progress in providing fair access
to higher education has been made, quality higher education remains elusive.

Educated Unemployed Phenomenon (OECD, Nov.2, 2017)

The Philippine labor force is highly educated. The portion of the unemployed who are educated, namely
those with secondary, post-secondary and tertiary education, has increased from 74.2% in 1995 to 86%
in 2010 (ILO, 2012). This situation continues to be reflected in the current labor statistics of October
2015. About 89% of the total population of unemployed people are graduates of secondary and tertiary
education. One contributing factor may be the easy access to education. The country has 2,080 higher
education institutions, of which 607 are state-run colleges and universities and 1,573 are private
institutions. College education is subsidized or even free in state-run colleges and universities.
However, many of these institutions are often referred to as “diploma mills.” This may explain why
400,000 young people who graduate from college every year are unable to find jobs.

C. The State of TVET in the Philippines

The Philippine TVET sector is facing a growing demand as more students are looking for skill-based
learning opportunities that are aligned with the current needs of industries. This poses a big challenge
to TESDA who is mandated to provide “relevant, accessible, high quality and efficient technical
education and skills development for Filipino middle-level manpower”. Pursuant to this mandate,
TESDA exercises leadership roles in the areas of policies and direction, developing systems and
setting standards, supporting TVET provision and building the capacity and capability of providers in
delivering relevant TVET programs (Investing in the 21st Century Skilled Filipino Workforce, September
2011).

In order to achieve this mandate, the TVET system elements must ensure that resource inputs are
efficiently used to produce outputs and these outputs result to the desired outcomes. Below is a
summary of the elements comprising the TVET system. The indicators are the processes and systems
that are used by the inputs to produce the desired Outputs and Outcomes. The Indicator Elements are
basically the measures that are used to determine the efficiency and the effectiveness of the processes
and systems.

14
 T V E T System Elements
Input Output Outcome Impact
Indicator Institutions operative Programs registered Certification Rate Employment Rate
Trainers trained Training regulations
Resources mobilized promulgated
Training seats available
Curriculum exemplars
developed
Assessment tools
developed
Persons enrolled &
graduated
Persons assessed &
certified
Students assisted via
scholarships
Indicator Adequacy Access Quality Relevance
Elements Proportionality Equity Responsiveness
Indicator
Internal Efficiency Effectiveness External Efficiency
Typology
SUPPLY DEMAND

The effectiveness and efficiency of TESDA as the TVET authority can, therefore, be measured through
the indicators of (1) adequacy and proportionality, (2) access and equity, (3) quality and (4) relevance
and responsiveness.

Adequacy and proportionality refer to the capability of the system to deliver the required TVET to the
increasing number of potential enrollees across all program offerings and regional and provincial
channels. As reported by TESDA, TVET providers reached over 4,600 private (91%) and public (9%)
institutions offering 17,889 registered programs as of December 2022 (15,871 With Training Regulation
and 2,018 NTRs).

In order to have a more accurate assessment of the adequacy of the TVET providers as well as the
program offerings, TESDA will have to match the demand for skilled manpower with the supply of TVET
graduates using the area-based demand-driven approach. A more detailed matrix that will show the
location of the TVET providers, their course offerings and the number of enrollees should be prepared
and compare this with the job opportunities or skill requirements in the area where these providers are
located. While a Qualifications Map (QM) is prepared based on the Scholarship Allocation Plan (SAP),
it is not clear how scholarships are actually distributed per course, per TVI, per province or region.
Based on information gathered, the process is highly subjective and is often allegedly associated with
political undertones and corruption. In some interviews, it was gathered that a certain “cashback”
ranging from 25% to 30% of the scholarship is given back to the Regional or Provincial Offices while
those TVIs who are not willing to provide “cashbacks” are not allocated scholarship grants.

15
In terms of access, an increasing trend was noted in TVET enrollment for the period 2010 (1.57 Million)
to 2018 (2.3 Million) and number of graduates (1.3 Million in 2010 and 2.2 Million in 2018). The COVID
pandemic has substantially reduced these figures and for 2022, total enrollment reached only 1.26
Million and graduates of 1.23 Million.

The EDCOM II Report has provided a breakdown of enrollment and graduates in terms of delivery
mode as shown below. It will be noted that more than 50% of enrollees still go to Institution-based
providers (mostly private) while 40% are enrolled in Community-based centers (mostly public) and less
than 9% are enterprise-based (private) training. Those enrolling in private TVIs are mostly dependent
on scholarships from TESDA, some grants from LGUs and local politicians and a few company
scholars.

16
These enrollment levels, however, represent only 35% of the estimated potential clientele of TESDA in
the last five years (2019 to 2023) as provided in the NTESDP Report 2023-2028. The limited access to
TVET has been attributed the high dependence of TVET enrollees to scholarship grants and the limited
share of TESDA in the government budget which averaged only 2.06% from 2018 to 2023. It is,
likewise, noticeable that only a small percentage enroll in enterprise-based training which is perceived
to have a higher level of learning effectiveness. Details are shown below:

The above data would show the inability of TESDA to provide access to the growing TVET clientele as
well as an imbalance in the proportion or distribution of enrollees in terms of types of delivery modes.
TESDA would not only need a strategy to increase its budget allocation for scholarships but also
develop systems that would equitably and proportionately distribute and monitor these scholarships in
terms of supply and demand conditions and delivery modes per region and province.

In terms of equity, since TVET is mostly accessed through scholarships, a detailed matrix should be
prepared by TESDA to show how the scholarships were distributed in terms of courses and scholarship
grants per region, province, and TVET provider. There are currently eight (8) scholarship programs:
UAQTEA, TWSP, PESFA, STEP, TTSP, BKSTP, CFSP and Tsuper Iskolar. Available data from TESDA
only showed the distribution of scholarship grants to TVET graduates of 2020 as follows:

17
As of December 2022, the total scholarship output for the continuing and current appropriation in terms
of enrollees is reported at 492,587 with a completion rate of 81.70% or 402,425 graduates. A large
proportion of graduates reportedly do not undergo assessment certification (45% in 2021 and 26% in
2022), although passing rates are high for those who do (about 93%).

Furthermore, based on a recent study conducted by Philippine Institute For Development Studies
(PIDS) and incorporated in the EDCOM II Report, only “a modest percentage, ranging from 14% to 18%
of students, were able to avail themselves of these (scholarship) programs between 2015 and 2019”.

Also, based on a 2023 report by the Philippine Business for Education (PBED), equitable access to
quality education remains elusive throughout the years of formal education. In 2019, while 82.4% of
Filipinos aged 25 and over have reported completing primary education, completion rate for secondary
education significantly drops to 30.5% for the said cohort. Completion rate for a Bachelor's or
equivalent degree, including TVET, decreased even further to 24.4%. Additionally, while 49% of the
richest decile attend tertiary education, only 17% from the poorest decile can do so.

In terms of quality, TESDA implements a Quality Management System (QMS) through the mandatory
registration of all TVET programs through the UTPRAS to help maintain the training standards of TVET.
The development and promulgation of competency-based training regulations (TRs) developed by
industry experts have also contributed to the quality of the training that TVET providers deliver.
However, the timeliness of the release of these TRs has been questioned as it takes one to two years
for a TR to be promulgated which may render the TR irrelevant or unaligned with the needs of industry.
Ultimately, the real measure of quality should be based on the employability of the TVET graduate as
well as the salary levels upon employment.

Data presented by TESDA in the NTESDP Report 2023 showed a relatively high employment rate of
TVET graduates from 2017 to 2020 as shown below:

18
Based on delivery mode and scholarship grants, below are the employment rates for 2017-2021:

While these data point to a high employability rate of TVET graduates, EDCOM II reported that “the
ability of (TESDA) skilling programs and certifications to actually translate to upward mobility in career
occupations for their graduates remains debatable and evidence on its ability to increase income is
mixed”. This can be attributed to the fact that 63.81% of TESDA’s TRs are at lower levels programs of
NC I and II. This can lead us to conclude that TESDA has been providing TVET for entry-level jobs
instead of focusing on high quality Filipino middle-level manpower as was mandated in its
vision-mission.

An Employers’’ Satisfaction Survey (ESS) conducted in 2014 by an outsourced research institution

highlighted the following findings:
a) Employers rated the workers “very satisfactory” in the following aspects: (1) theoretical and
practical knowledge in delivering tasks and responsibilities, (2) trainability on the skills
needed for the job, (3) work attitude such as teamwork, confidence, self-motivation, etc.
b) Satisfactory rating given to workers in communicating skills, which was the common
weakness observed among TVET graduates.
c) In terms of 21st century skills, the “above average” ratings were given to the following
specific skills: (1) creativity and innovation, (2) flexibility and adaptability, (3) initiative and
self-direction, (4) social and cross-cultural skills, (5) productivity and accountability, (6)
activity to handle tools, machines, and equipment, and (7) technical skills.

19
Finally, in terms of relevance and responsiveness of TVET programs, these can likewise be measured
through the alignment of these programs with the needs of industry. The internal analysis conducted by
Bayan Academy and JP Morgan in 2020 four (4) major findings:

1. TVET provision is largely supply-driven resulting in gaps.

2. Inadequate content/curriculum of programs to address emerging and changing skill

requirements of priority industries.

3. Inadequate efforts to build partnerships with firms and industry associations for program
development and implementation.

4. The existing gaps and challenges in TESDA’s current structure and processes deterring its
agility to meet the needs of industry.

TESDA has been organizationally designed and was expected to be a Development Authority as its
name implies, in the sphere of middle-level skilled manpower. It was not envisioned to be constituted
and to function like the usual line agencies. Therefore, as an Authority, TESDA was envisioned to
perform the following generic functions of:

1. Policy formulation – of timely and responsive policies to address the needs of students,
institutions, industry and society;

2. Quality assurance and standard setting – formulation of institutional, program and procedural
standards and policies that are at par with global and best practices which should also enhance
TESDA’s function as a national certifying body;

3. Resource allocation – to be the national agency for the authoritative and equitable distribution
of resources across programs, institutions, regions and local government units as incentives for
growth and development; and

4. Development planning, monitoring and sectoral coordination – preparation of short and

long-term development plans to guide and direct the development and delivery of TVET,
ensuring execution of the plans by purposive and regular monitoring and coordination among
agencies and institutions. It may well be noted that the micro-management of institutions and
actual delivery of education and training were not EDCOM-mandated functions.

As declared by the United Nations Education, Scientific and Cultural Organization (UNESCO) and the
International Labour Organization (ILO), technical and vocational education should be a significant
component of the education process in all countries, serving as a mechanism to develop one’s potential
for them to continuously improve their professional skills and knowledge (UNESCO and ILO 2002).

20
D. Trends In Education and Training

Higher education is shifting to a skills-first approach.

A striking 77% of students are influenced to pursue skills-based education to learn new skills, with
career advancement as another significant motivator. Students and educators value the practical
application of knowledge, peer collaboration, and performance feedback (The State of Student Success
& Engagement in Higher Education 2023 Instructure, The Maker of Canvas).

Notably, both students and educators value various aspects of skills-based learning, including
collaboration with peers and professionals in the community (75%), receiving feedback on progress and
performance (80%), and practical application of knowledge and skills (84%). These figures clearly
indicate that the demand for skills-based learning is on the rise among students in the Philippines.
Hence, every Higher Education Institution (HEI) needs to offer comprehensive skill development and
work readiness programs.

Most Students opt for Practical Skills Training with Recognized Certificates

When questioned about the types of skills-based learning opportunities available for upskilling and
reskilling, students consistently highlight certificates, apprenticeships, micro-credentials, badges, and
trade programs. This underscores a wide range of options now accessible within Philippine HEIs to

21
enhance students’ career readiness. Moreover, it reflects a significant dedication to preparing
graduates for success in the job market.

Educators within the Philippine Higher Education system express even greater confidence in the
positive impact of apprenticeships and certificates on students’ future success. When asked about the
influence of factors outside the classroom on overall student enrollment, most educators rate these
skills-based learning activities highly (92% for certificates and 88% for apprenticeship programs).

It’s worth noting that the majority of Philippine HEIs prioritize certificates, with 66% of them offering
such programs. Apprenticeships are also highly valued, with 33% of HEIs providing these opportunities.
Notably, these are the skills-based learning pathways that students are most inclined to pursue for
career advancement, with 60% opting for certificates and 49% for apprenticeships — learning
pathways that are under the purview and authority of TESDA.

The Education for Sustainable Development (ESD) reported in 2014 that institution-based training
accounted for 51% of TVET enrollment. A close second (46%) was community-based training, while
enterprise-based programs accounted for only a very small proportion (3%) of total training programs
implemented (Orbeta, 2016). The post-secondary TVET has a higher labor market relevance and
adaptability than the universities. Despite this development, TVET graduates in the Philippines still
need relevant technologically advanced fields; are of varying quality; and often TVET graduates need
retraining (World Bank, 2017). Although in the past there was a high demand for low skills TVET
graduates for Filipino service workers (POEA, 2008-2012), the current situation demands that the
Philippines should produce more high-end skilled graduates to enhance its global competitiveness in
order to reverse the situation where the majority of OFWs are employed in jobs requiring low-ed skills.

An Asian Development Bank (ADB) study found mismatches in these delivery modes. The same ADB
study revealed that only about 1/3 are aligned with the targeted post-training work tasks of their
program (ADB, 2021). These skills-job misalignments restrict the graduates’ acceptance in the job
market and show that TVET curricular programs and training facilities do not fit the specific industry
requirements and standards. Overall, there still persists the lower employment situation of TVET
graduates since the majority of them (74%) were without a job prior to entering TVET training (ADB,
2021).

It is also worth noting that there is also a shifting composition of TVET graduates. The traditional target
of TVET are high school graduates who do not intend to go to college (Orbeta and Paqueo, 2022).
There is also a public perception that enrolling in TVET is the last choice of students who cannot afford
university expenses (TESDA, 2010). However, this is no longer the case in recent years. In 2020,
nearly a third of TVET graduates are college graduates, followed only by high school graduates and
college undergraduates.

22
E. Insights From Review of Literature

The various articles, reports and data that were used in the review of literature have provided the IRP3
with insights which will serve as a guide on which operational issues and concerns it should focus on in
relation to its assessment of TESDA’s performance. A revalidation of these findings and conclusions
were undertaken to partly served as the basis for the IRP recommendations.

The major insights are listed below:

1. Education involves a process of progressive learning that is lifelong — from foundational to

intermediate to advanced levels.

As was seen in the education systems of Singapore, Australia and Canada as well as the PQF
of the Philippines, technical skills development is situated in the intermediate level (between
the foundational and advanced levels). Considering this, TVET should not be viewed as a
separate and dead-end pathway to skills acquisition and human capital development. It should
in fact be considered as a necessary stage in a progressive learning process and not just
an alternative pathway towards employment or higher education or college degree programs.

A student aspiring to be a civil engineer can initially pursue technical skills training in
draftsmanship, masonry, plumbing, electrician training or even welding. These skills will lay the
foundation for a deeper understanding of how structures are constructed or built prior to
engaging in engineering design or the study of materials handling. Similarly, a student who
wants to be an accountant can initially pursue technical skills training in bookkeeping, data
encoding or use of specific programs or software such as Quickbooks, Microsoft Accounting
System or POS Dashboard. These skills development trainings will hone the competencies of

23
 the student prior to engaging in financial planning or auditing or cash flow management. The
same line of progressive learning approach should be applied to most, if not all degree
programs including healthcare, tourism and hotel management, business administration,
maritime, criminology, to name a few.

The advantage of embedding technical skills training prior to pursuing college degrees include
a deeper understanding of theories and higher order thinking that is grounded on experiential
and industry-related learning activities. In addition, a student who, for any reason, had to stop
schooling after acquiring a technical skill can immediately be employable or able to pursue a
livelihood. He/she can then pursue a college degree at a later time when conditions will already
allow him/her. Finally, exposure to experiential application of skills can develop the proper
attitude, discipline and behavior of the learner that will enable them to be self-directed and
industrious college students.

A progressive learning framework adopted by the three trifocalized units in the Philippine
education system can enhance collaboration among these government agencies and thereby
creating a seamless framework for lifelong learning. This, all the more, makes it necessary to
immediately convene the PQF National Coordinating Council.

2. While learning is progressive, the pathway towards learning is diverse — whether formal or
informal, institutional or in-plant, structured or purely experiential and in any instance or
occasion that these may be made available and accessible to learners. Therefore, the
education system should not put any limitations on the ways and avenues by which any citizen
may need or want to learn.

Following the framework of lifelong learning as discussed in the different literature above,
technical skills can be acquired through various channels. Formal training can be pursued in
TVET institutions or individuals can learn while on the job or by being an apprentice to a skilled
worker. Even college graduates (and data shows that this is already currently happening) who
wish to deepen his/her skills or shift to a totally different career can opt to pursue technical
skills training through any of the available channels. What is necessary is for our education
system to have a framework or a process where prior learning or training can be
recognized and given credits.

The principles of Alternative Learning Systems and Ladderized Education have been in place
for some time but its full implementation is hampered by the inadequate coordination among
the trifocalized units in our education system. The PQF can be reviewed to incorporate
processes of micro-credentialing or recognition and articulation of prior learning and/or
additional training.

3. The Philippine education system is in crisis because it has failed to provide the level and quality
of education and training that would develop and enhance the human capital of the country —
a system that would prepare individuals to be responsible citizens who embark on productive
undertakings such as employment, the practice of a profession or craft, an entrepreneurial
activity or involvement in any livelihood opportunity. These are the ultimate indicators of an
efficient and relevant education system.

Unfortunately, in spite of the enactment of several major education reforms including, among
others, the K-12, the Universal Access to Quality Tertiary Education Act, and the PQF, our
unemployment, underemployment rates and even poverty levels continue to be high as seen

24
 above. Even with a high literacy rate, our Filipino students performed poorly in the PISA
assessment ranking 77th out of 81 countries, and as EDCOM II aptly put it, our failed education
system is mostly to blame for these dismal conditions. The Organisation for Economic
Co-operation and Development (OECD) described our condition as the educated unemployed
phenomenon. And comparing the Philippines with our progressive ASEAN neighbors like
Malaysia, Thailand, Australia and especially Singapore, the quality and relevance of their
education systems enabled their people to contribute to the overall growth of their economies.

EDCOM II identified several reasons for our poor education system beginning from the low
investment that our country puts in education to the poor coordination of our trifocalized
agencies resulting in the poor utilization of limited resources including corrupt practices.
Accordingly, EDCOM II recommends that it’s time to take drastic measures to retool the
entire education system.

4. Educational institutions, whether public or private, should focus on bringing their students to a
state of transformation — from being learners to becoming employable and productive
members of society.

As discussed above, the ultimate goal of education and training is to equip learners with the
necessary skills needed by industry or the society to become employable or productive and
responsible citizens. For this reason, educational institutions, particularly TVET providers,
should have the flexibility, agility and innovativeness to develop curricula and create learning
structures that would provide opportunities for learners to acquire the necessary skills or hone
their inherent talents. To this end, TESDA should accordingly promulgate policies, standards,
projects or programs and develop linkages with industries that would allow these institutions to
deliver quality and relevant education for all learners by adopting to industry needs in an
expeditious manner.

From the literature above, we have seen that several efforts and recommendations have been
put forward in the past that could have enable TESDA to develop and create such an
ecosystem that would allow the different TVET elements to work seamlessly and in sync in
order to attain the desired outputs and outcomes of technical skills training. Its mandate “to
provide relevant, accessible, high quality and efficient technical education and skills
development” has not been substantially met and instead, what we have today is a TVET
sector that provides low-skilled and low paying job opportunities, programs that offers skills
training that are not matched with what industry needs, scholarships that are not equitably
distributed and insufficient to the demands of potential clientele.

Collaboration among government, industry and academe has been a long-standing policy
recommendation but as PCCI, the largest industry association, has pointed out, the job-skills
mismatch continues to cause unemployment, majority of TVET graduates are engaged in low
level employment (NC I-II skill levels) while there is a huge unmet demand for higher level skills
(NC 3-5). And while skills-first training is the trend, many students and even enterprises
continue to prefer college education primarily because of the negative perception that TVET is
only for high school graduates who cannot afford a college education and that it is a dead-end
career pathway.

TESDA needs to undertake initiatives to enhance the effectiveness, transparency and

sustainability of the different elements of the TVET system and, at the same time, maintaining

25
 proper coordination with DepEd and CHED to ensure that pathways for lifelong learning are
available for all TVET learners.

5. The shifting trend in education is pointing to an increasing role of skills-based education in the
progressive or lifelong learning process. And while most of these learning pathways are
under the purview and authority of TESDA, there are several questions that needs to be
addressed since these remain unresolved. Some of these questions include:
- Why does TVET continue to have a negative perception or low preference from
students, parents and even industry?
- Why does EBT continue to account for a small portion of enrollment in spite of its
responsiveness to industry needs?
- Why has the ICT sector, which held the top position in enrollment a decade ago,
shifted to the 10th place in course preference despite the importance of digital skills in
the job market?

These insights from the review of literature served as the review panel’s guide in assessing the
performance of TESDA in the last 14 years. Many of these insights have been the subject of various
strategy formulation, process evaluation and even legislation. But these key challenges remain and
persist as clearly pointed out in the EDCOM II Report.

We acknowledge the important role that technical education and skills development play in the
education system but it has to be within an ecosystem that would enable it to complement other factors
that would lead to the progressive learning of individuals thereby promoting the lifelong learning
process.

26
REVIEW AND
ASSESSMENT
OF TESDA
OPERATIONS
III. REVIEW AND ASSESSMENT OF TESDA OPERATIONS
Juxtaposing the insights from the review of literature with the current socio-economic environment, the
review panel assessed the policies, strategies, and programs of TESDA in order to determine their
effectiveness in carrying out TESDA’s mandate as the TVET Authority of the country and identify
factors that deterred the agency from fully achieving the desired outputs and outcomes.

The review provides three different perspectives coming from the academe, the industry and from the
labor sector. These will primarily focus on three (3) areas: Direction Setting, Standards Setting and
System Development and Support to TVET Provision and will consider the indicators of an efficient
TVET system, namely: Adequacy and Proportionality, Access and Equity, Quality and, finally,
Relevance and Responsiveness.

THE PERSPECTIVE FROM THE ACADEMIC SECTOR (Dr. Antonio M. del Carmen)

A. Direction Setting

In terms of direction setting, several critical factors have been identified that hindered TESDA
from fully achieving its mandate. The first one is the jobs-skills mismatch which has been a
prevailing concern since the establishment of TESDA and which has worsened over time and
aggravated by the changing work environment. TESDA as the TVET Authority in the
Philippines has several principal functions that could address this mismatch:

1. Skills Training and Development which involves formulating and implementing

technical education and skills development programs, including competency-based
training. The TESDA offices involved in this function includes the Qualifications and
Standards Office, the Certification Office and the National Institute of Technical
Education and Skills Development.

Currently TESDA has two major classifications: (1) Program offerings with Training
Regulations (WTR) and (2) Programs with No Training Regulation (NTR). There are 17,577
registered programs of which 15,711 are WTR and 1,866 NTR. TVET providers, whether
public or private, can offer programs in any or both of these classifications for as long as
they register and accredit their program offering under the Unified TVET Program
Registration and Accreditation System (UTPRAS).

The process of designing and developing training regulations is started by a TR Developer

Facilitator / Coordinator who identifies and selects a committee of occupational experts
who will form the technical working group (TWG). Prior to this, a labor market assessment
is conducted to determine the demand and the employment opportunities for such trade or
skill set. Once convened, the TWG undertakes research that will guide them in developing
the basic, common and core competencies of the occupation using the DACUM research
process and incorporated into a set of JOB GUIDE called PROGUIDE (Procedure Guides).
This is a very extensive process and TR development could take from 6 months to 2
years, making it difficult for training programs to be nimble enough to respond to the
rapidly changing needs of industry especially where technology adoption is concerned. A
training regulation may already be outdated, irrelevant or even obsolete by the time it is
promulgated. A quick review of some of the 15,711 programs with TR revealed a number of
the programs need updating. Programs under NTR are often more updated since most of

27
these came from industry and did not go through the tedious process of promulgating a
training regulation. Vendor-based training program and materials can also be utilized in
developing courses for emerging technologies.

As of December 2022, there were a total of 315 Promulgated Training Regulations in

effect. The Construction sector has the highest number of Training Regulations with 43,
followed by Automotive and Land Transportation with 40, Agriculture Forestry and Fishery
with 38, and Metals and Engineering with 34. There are also ten (10) newly developed
Competency Standards under this sectors Agriculture, Forestry, and Fishery Sector,
Electrical & Electronics, Information and Communication Technology (ICT), and
Technical-Vocational Education and Training (TVET) sector.

It is in this regard that most of the studies and assessment reports have recommended that
training regulations be developed directly by industry and be given a stamp of approval by
TESDA in order to fast track its roll out. Thus, in terms of developing skills training and
programs, the direction that TESDA should pursue is industry-based, industry-led and
industry-assessed course offerings. The establishment of Industry Boards (recently
renamed as Industry TVET Boards or ITBs) is a critical component of this strategy. Since
the Recognition of Industry Bodies (RIBS) in 2019, there have been several MOAs signed
between TESDA and various industry associations and private enterprises.

In order for these ITBs to be effective, the roles, as defined in TESDA Circular No. 017
Series of 2021, should be expanded to include the following:

a. Gather regular labor market information and update job openings from industry
members. Develop a tracking system for TVET graduates who are hired by
industry and share data with TESDA.

b. Design and develop Competency Standards based on the current and future
skill requirements of the industry. Immediately use these CS as NTR programs
to be offered through TVET providers (EBTs, TVIs & TTIs) that are duly
accredited by TESDA. Subsequently, develop these CS into Diploma
programs with the corresponding TRs.

c. Provide assessment kits and conduct assessment of completers through

industry partners who are the potential employers of the TVET graduate.

Directly related to program development is assessment and certification. One of EDCOM

II’s findings revealed that students are not assessed because there are no assessors for
the program or assessment tools. Industry should be given the responsibility to conduct
the assessment of the trainees since they will eventually be the ones to employ these
graduates. A recognition of industry-based assessment and certification can be
incorporated in the Quality Assured Philippine Technical Education System. Accordingly,
the National Certification (NC) of TESDA can be replaced with an industry certification.

Other major ingredients in program development are the training facilities and qualified
trainers. Again, the fast-changing industry environment particularly technology
advancements have made many training equipment outdated. TVET providers, whether
public or private, cannot keep pace with the technology requirements of industry. Similarly,
trainers have to be upskilled with these new technologies in order to make them

28
competent trainers. Thus, engaging industry in providing the needed training equipment as
well as the experienced personnel to train the trainers can help address these concerns so
as to narrow the gap or, eventually, eliminate in the jobs-skills mismatch. Addressing
these questions through an intensified and structured academe-industry collaborations
can eventually narrow this gap.

2. Industry Partnerships that promotes collaboration with industry stakeholders,

employers, and associations to identify skills needs, develop relevant training
programs, and facilitate industry participation in skills development initiatives.

With regards to Industry Partnerships, this function is being handled by the Partnership
and Linkages Office (PLO). One of the major objectives of the NTESDP 2011-2016 is to
improve the responsiveness and relevance of training through a closer linkage between
the world of learning and the world of work. Among the major strategies to be pursued are:
a. Develop public-private partnerships in TVET, especially in TVET
development, financing, labor market information, standards setting,
assessment and certification;

b. Expand enterprise-based training by strengthening enterprise-based training

schemes such as apprenticeship and dual training systems and workplace
training for skills upgrading, retooling and multi-skilling.

c. Strengthen linkages with employers to hire TVET graduates and recognize

the importance of OJT and certification.

d. Provisions for creative incentives and rewards to generate wider industry

support such as technical assistance and capability building interventions.
e. Expand and purposively direct scholarships and other training assistance to
critical and hard-to-find skills and higher technologies and use the program to
incentivize the TVIs.

Based on data gathered from industry, TESDA has been successful in promoting industry
partnerships which has led to the employment of TVET graduates. For example, the
Philippine Software Industry Association (PSIA) noted that the scholarship program TWSP
was an effective response to a shortage of skills in the IT sector in 2006. Similarly, the IT &
Business Processing Association of the Philippines (IBPAP) noted that the TWSP “did a lot
for the industry” particularly in addressing the shortage of call center agents. The
government provided PHP 500 billion (USD 10.65 million) for remedial training which
produced 40,000 call agents and 30,000 graduates in other skills needed by the ICT
sector, including animation, medical transcription and computer hardware servicing.
According to IBPAP, the employment rate for all the graduates averaged 70%. The training
center of the Philippine Society of Plumbing Engineers (PSPE) had produced almost a
thousand plumbers since 2009, thus addressing the need for certified plumbers in the
booming construction industry. In 2014, Semiconductor and Electronics Industry in the
Philippines (SEIPI) conducted training for 3,400 operators urgently needed by the
semiconductor industry. This was done through five companies which registered as TVIs.
The SEIPI representative stated that 95% of the graduates were employed. In 2015, SEIPI
has been granted 7,000 scholarships in five newly approved training regulations for the
industry.

29
These are just some of the manifestations that underscores the importance of an
industry-academe-government linkage in TVET. Recently, an updated circular on the
creation of Industry Boards was released by TESDA which aims to further strengthen
partnerships with industry. The progress of this initiative, however, has been slow
considering the multi-sectoral nature and composition of these boards. This direction can
be further promoted in tandem with other TESDA projects such as the Area-Based
Demand-Driven TVET and the continuous development of Competency Standards.

On the other hand, according to EDCOM II, there are policies related to enterprise-based
training (EBT) that are confusing and need to be clarified and streamlined. Only 9% of
total TVET enrollment is completed through enterprise-based programs. Stakeholders
expressed the need to simplify and tailor-fit the programs to the unique needs of different
industries and learners that could benefit from the program.

EDCOM II adopted HB 7370 by Representative Go, creating a Tripartite Council.

The Tripartite Council introduced in the bill shall formulate policies and programs to
address the job–skills mismatch in the country. It shall be a coordinating body among the
government, academe, and industry sectors to primarily monitor economic trends in the
global and domestic markets.

3. Promotion of TVET by underscoring the value and importance of technical vocational

education and training (TVET) as a viable career pathway and encouraging
participation in TVET programs among students and workers. Currently, there is no
specific office handling this function. Presumably, the Public Information and
Assistance Division (PIAD) as well as the Regional Office and the Partnership and
Linkage Office (PLO) are handling the communication and “marketing” of TVET to the
different stakeholders.

The promotion of TVET as a viable career pathway are beleaguered with some
misconceptions including the belief that it is meant only for students who are not
academically inclined or that it leads to low-paying, dead-end jobs. And while TVET
programs actually provide practical skills and immediate employability, many enterprises
continue to view college degrees as offering broader educational experiences and
opportunities for personal and intellectual growth and which some students value in their
long-term career goals. TESDA will need to exert more effort in advocating the benefits of
TVET not only to students but more especially to industry.

Currently, TVET graduates receive low compensation primarily because most TVET
graduates in the Philippines are only in the Level 1 and 2 competency levels of the PQF.
Sixty-four percent of programs with training regulations are lower-skill (NC I and NC II).
This is concerning given the analysis that shows that improvements in income before and
after training are substantial only for those completing NCs 3 and 4.

There are few TESDA programs that are for Level 3 and higher and which are the more
in-demand and high paying jobs. While some industry associations like IBPAP, SEIPI,
PSIA have already seen and experienced the efficiencies of TVET graduates, there are
many more industries that relegate TVET graduates to entry level, low paying jobs. This
can be seen in the retail, food and beverage, garments and manufacturing industries.

30
The increasing involvement of industry boards can potentially reverse this perception on
TVET as more employers experience satisfactory performance ratings from TVET
graduates. Industry-led training programs can fast-track the development of higher level
skills training. The stigma or negative connotation of “vocational” training in TVET can
eventually be removed by dropping the word and simply using technical education and
skills development (TESD).

4. Special Programs targeting specific sectors or groups, such as disadvantaged youth,

indigenous peoples, persons with disabilities, and returning overseas Filipino workers,
to provide them with access to skills training and employment opportunities.

In terms of Special training programs, TESDA has been able to successfully develop
and implement various programs that are focused on specific industry needs. Some
examples of these are the driver training program, Special Training for Employment for
Persons with Disabilities (PWDs) and for Indigenous Peoples (IPs), the Reintegration
Program for Returning OFWs (RPO). In recent years, the focus on entrepreneurship has
also helped in the establishment of several micro and small enterprises. Furthermore, one
of the ten-point agenda of the Director General / Secretary Mangudadatu, is the TESDA
sa Barangay, which is a massive skills training program for the communities at the local
level, targeting the poor and the marginalized. It is designed to catalyze the creation of
livelihood enterprises that shall be implemented by the trainees immediately after the
training.

These special programs have enabled TESDA to expand its reach to the marginalized
sectors of the society and has allowed more people to be employed or engaged in
livelihood projects.

5. Departmentalization of TESDA

With regards to the proposed departmentalization of TESDA, various perspectives have

been gathered and all these options are aimed at strengthening the technical education
and skills training in order to generate more employment for the Filipino workforce. The
merging of the National Manpower and Youth Council (NMYC) of the Department of Labor
and Employment (DOLE) with the Bureau of Technical and Vocational Education (BTVE)
of the Department of Education, Culture and Sports (DECS), and the Apprenticeship
Program of the Bureau of Local Employment (BLE) of the DOLE gave birth to TESDA in
1994 under DOLE. In 2018, former president Duterte transferred the supervision of
TESDA to the DTI only to be transferred back to DOLE in 2022 by Pres. Marcos Jr. as an
attached agency.

EDCOM II is also reviewing the possibility of the unification of the three units into one
department of education. This can, however, pose a more difficult problem considering the
size of DepEd which is handling basic education. An alternative proposal is the
departmentalization of TESDA as a co-equal branch with the DepEd. This will provide
TESDA the much-needed funds to develop and promote micro-credentialing and
ladderization and support the establishment of Industry Boards across the country that can
address the job-skills mismatch. Pathways can be developed to align acquired skills with
basic education as well as degree units in higher education courses. In fact, some
technical skills training can be considered as pre-requisites or required units leading to
degree programs in engineering, accountancy and tourism or hotel and restaurant

31
management. This will also remove the stigma on TVET as a dead-end course and give
technical training the recognition and importance that it plays in a progressive learning
system.

6. Rebranding the TVET Sector

Various reviews and studies have pointed to TVET as a dead-end career or learning
pathway. Students, parents and even industry have expressed their preference for college
education as this is perceived to provide the graduate with more opportunities and higher
paying jobs. While this might not be totally correct, the present structure of TVET and the
job-skills mismatch are the main reasons for this negative image of TVET. The proliferation
of low-skill training programs (NC I and II), the low salary rate for TVET graduates and the
mindset that TVET is primarily for those students who cannot afford a college education
are contributors to this negative image of TVET.

In a recent higher education summit sponsored by the USAID and the Philippine Business
for Education (PBED), the need to rebrand the TVET Sector was discussed as a
necessary step towards making the sector more responsive to the skill requirements of
industry. Benchmarking with the Utah System of Higher Education, a model where
technical skills training is seamlessly aligned with degree programs and industry
requirements can be adopted as a strategy to remove the negative stigma of TVET in the
Philippines.

To start off the rebranding strategy, the review panelist proposes changing the name of the
sector from technical and vocational education and training (TVET) to technical education
and skills development (TESD). Dropping the word vocational can substantially improve
the image of technical education since there has been a perception that vocational training
is associated with low-paying and low-skilled occupations.

Renaming TVET to TESD could help reshape perceptions and highlight the focus on both
technical education and skills development. Here are several potential benefits of adopting
the term TESD:

a. Clarity and Focus: The term TESD clearly communicates the dual emphasis on
technical education and skills development, underscoring the importance of both
theoretical knowledge and practical competencies. This can help stakeholders
better understand the purpose and objectives of vocational education and training
programs.

b. Positive Connotations: By emphasizing skills development alongside technical

education, the term TESD may carry more positive connotations and be
perceived as more inclusive and forward-thinking. It can convey the message that
vocational training is not solely about acquiring low-level skills but also about
building valuable competencies that are essential for success in various
industries and occupations.

c. Alignment with Global Trends: The use of terms such as "skills development"
aligns with global trends in education and workforce development, where there is
increasing recognition of the importance of developing a skilled and adaptable
workforce to meet the demands of the modern economy. This can enhance the

32
 relevance and competitiveness of vocational education and training programs in
the international context.

d. Promotion of Lifelong Learning: Reframing vocational education and training

as skills development highlights its role in promoting lifelong learning and
continuous professional development. It emphasizes the importance of acquiring
new skills, adapting to changing technologies and job requirements, and staying
competitive in the labor market throughout one's career.

e. Stakeholder Engagement: Adopting the term TESD can facilitate greater

engagement and collaboration among stakeholders, including government
agencies, educational institutions, industry partners, and the workforce. It can
provide a common language and framework for discussions, planning, and policy
development related to technical education and skills development initiatives.

While renaming TVET to TESD may help shift perceptions and promote a more positive
image of vocational education and training, it is important to accompany this change with
efforts to enhance the quality, relevance, and accessibility of TESD programs. Addressing
underlying challenges such as skills mismatches, inadequate infrastructure, and limited
awareness and appreciation of vocational careers will be essential to realizing the full
potential of TESD in supporting individual career success and national economic
development.

B. Standards Setting and System Development

The second area of concern of IRP 3 is the standard setting function of TESDA. The processes
of registration, evaluation and monitoring are critical functions of TESDA that are aimed at
ensuring the delivery of quality TVET to the community. The Certification Office in tandem with
the Regional Office are the focal units handling this function.

1. TVET Regulation and Accreditation of TVET providers and programs are required
under the Unified TVET Program Registration and Accreditation System (UTPRAS) to
ensure that quality standards are met in training delivery and assessment.

Currently there are over 4,200 private and public institutions offering 17,889 registered
programs as of December 2022 (15,871 With Training Regulation and 2,018 NTRs).
Registering, accrediting and monitoring these many programs and TVET institutions
requires not only a systematic and preferably an automated process but it will require a big
number of manpower so that timely and equitable evaluations and assessments are made.
This process is under the management of the Certification Office while the interface with
TVET providers is handled by the provincial and regional offices of TESDA.

Some of the issues and concerns that were brought forward during the review were the
slow registration process, the tedious requirements for registration and the inconsistencies
in evaluation and monitoring of TVET providers. These have not only made it difficult and
costly for TVET providers, particularly private TVIs to comply with the TR requirements
and/or the deficiencies given by the assessors or inspectors. A possible cause of the
inconsistencies is the different interpretations of regulations and directives by the provincial
and regional offices. While the CO conducts a briefing and training on the directives and
TRs issued at the Central Office, there remains some inconsistencies in the

33
implementation of these directives. Several private TVIs have mentioned the need to
maintain a “close” relationship with Provincial Directors (PDs) and Regional Directors
(RDs) in order to ensure quick and favorable approvals of their registration and
accreditation.

In order to ensure fast processing and unbiased evaluation, certification and accreditation
should be a separate function from monitoring and evaluation. This would, however,
require the hiring of additional personnel and an increase in operating budget which
TESDA currently does not have.

2. Skills Standards Development of competencies and qualifications aligned with

industry needs to ensure that training programs meet the demands of the labor market.

The ADB study (2021) found discrepancies in the employment rates of graduates from the
different training channels or delivery mode. Adopting a work-based model, the same ADB
study revealed that only about one-third (⅓) are aligned with the targeted post-training
work tasks of their program (ADB, 2021). These skills-job misalignments restrict the
graduates’ acceptance in the job market and show that TVET curricular programs and
training facilities do not fit the specific industry requirements and standards.

Findings suggest that the TVET, as designed in the PQF for Levels 1-5 and intended “to
provide a formal certification that a person has successfully achieved specific learning
outcomes relevant to the identified academic, industry or community requirements”, failed
to confer an “official recognition of value in the labor market and in further education and
training” (TESDA Website).

As discussed in Section A.1 above (Skills Training and Development), the design of
training programs should be industry-led in order to ensure alignment of training content
with industry needs. But while TESDA has organized TWGs to develop training programs,
the process takes too long so much so that when the program is eventually rolled out, it
has become either outdated, irrelevant or maybe even obsolete. Consequently, the
graduates would still need reskilling and upskilling in order for their competencies to qualify
for the job openings.

Furthermore, the training facilities and teachers or trainers needed to deliver the relevant
training have to also be aligned with the current technologies and skill competencies
required by industry. Only a limited number of TVIs and TTIs are able to keep up with the
fast-changing technology requirements of specific occupations. More so, trainers from
TVET providers also need to update their skills and teaching methodologies in order to
provide trainees with the relevant skills. This is where programs like internship,
apprenticeship, on-the-job-training and especially dual training can be very helpful in
developing the trainees’ competencies. Unfortunately, due to the limited industry-academe
partnerships as discussed in Section A.2, many TVET graduates remain unqualified for the
job opportunities. While course offerings and programs require job exposures, the different
modalities available for trainees confuses TVET providers as well as private enterprises as
to which training pathway should be adopted. A comprehensive apprenticeship program
(as currently being deliberated in the Senate) must be institutionalized so as to provide a
uniform job-related exposure program.

34
 The facility and teacher requirements for TVET are also deficiencies that are evident in the
TVL track of DepEd’s Senior High School Program. These deficiencies and the limited 80
to 200 OJT hours in Grade 12 have resulted in the unemployability of SHS graduates.
While the current Director General has expressed willingness to retrain SHS teachers in
the TVL track, a more comprehensive strategy should be adapted in order to make SHS
graduates technically competent to pass the certification requirements and eventually be
qualified for employment.

3. Interface and Alignment with DepEd and CHED

As discussed in the previous section, there is an urgent need to re-align the TESDA course
contents and training methodologies with the curricula of Senior High School of DepEd and
the college degree programs of CHED.

In order to minimize capital expenditure, TVL tracks can be delegated to accredited TVET
providers on a twinning arrangement. Partnerships between DepEd schools with TVIs
or TTIs can be institutionalized while private SHS can register in UTPRAS for specific
TVET programs that they will provide in their TVL tracks.

As far as CHED programs are concerned, while there is a ladderized program, portability
of training certificates can still be a hindrance for students to pursue higher education. A
micro-credentialing process should be put in place in order to seamlessly credit prior
training and learnings as units in specific degree programs. Another possible approach is
to make technical skills training a prerequisite for certain degree programs such as
engineering, accountancy, tourism, hotel and restaurant management and even nursing.

4. Competency Assessment and Certification

In Section A.1 paragraph 5 above, EDCOM II has pointed out certain limitations of TESDA
to conduct assessment of TVET graduates. Even accredited assessment centers need to
upgrade their capabilities to align with the technology competency requirements of industry.
These scenarios have led to the recommendation for an industry-led and
industry-administered assessment process. For this purpose, industry associations can
spearhead the establishment of assessment centers or specific companies can be
recognized as assessment providers. Since the ultimate objective of TVET is employment
or a livelihood for the learners, industry assessment should be sufficient to give
certifications to graduates.

This approach can provide better opportunities for TVET graduates since an industry
certification can be a better credential than a generic national certification. Nonetheless, it
is important to still have TSEDA’s imprimatur on the industry certification in order to ensure
that it has gone through a process of quality control.

C. Support to TVET Provision

In order to ensure the delivery of quality TVET, TESDA’s current organization has been
structured to incorporate various functions and projects that include the following:

35
1. TESDA Scholarship Programs
TVET has been mainly delivered through scholarships either directly to TTIs or through a
voucher system to private TVIs. Below is a summary of the scholarship programs of
TESDA:

Below is a summary of scholarship grants from 2010 to 2022:

36
The above data shows that from 2010 to 2015, scholarship appropriations increased by
almost 300% (from Php900 Million to Php2.64 Billion. This increase was accompanied by a
202% increase in enrollment while the average cost of training has remained within the
Php 900.00 per student. However, with the adoption of the K-12 system, the appropriation
increased by over 300% (from Php3.5 Billion in 2017 to almost Php11 Billion in 2022).
Enrollment, however, increased by only 19% during the period considering that the average
cost of training jumped from Php 910 per student in 2017 to Php2,345 per student in 2022.

While TESDA’s Seek-Find-Train-Assess-Certify-Employ Framework describes the

processes and strategies which are observed during the course of planning, implementing,
monitoring, and evaluating TESDA Scholarship Programs, actual implementation has been
characterized by political undertones, inequitable distribution of grants among TVET
providers as well as regional and provincial beneficiaries. Furthermore, some TVI’s have
complained about the delays in the release of scholarship funds and based on unverified
sources, a certain percentage of the grant (up to 25%) is “paid back” to the provincial or
regional offices.

A more in-depth review of the scholarship beneficiaries must be undertaken in order to

ensure that grants are not politicized and distribution among TVET providers are equitable.
It is recommended that an independent unit or a third party organization process the
applications, approval and disbursement of the scholarship grants in order to mitigate
politicization and corruption in the management of the scholarship funds. The Private
Education Assistance Committee (PEAC) can be tapped to provide this service since they
have been efficient in handling the Education Service Contracting and the voucher system
for the Senior High School program of DepEd.

2. Institutional Capacity Building

As described above, TESDA’s organizational structure needs to be strengthened in order

for it to effectively deliver its mandate. This deficiency in manpower is evident in the
Certification Office, Qualification and Standards Office, the provincial offices and the
Scholarship Management Division. These offices are where some of the bottlenecks have
been identified such as development of programs and training regulations, accreditation
and monitoring of TVET providers and timely and equitable distribution of scholarship
grants.

Another important organizational requirement is the need to have a permanent high-level

coordinating body as envisioned by EDCOM I to streamline the operations of TESDA with
DepEd and CHED. This deficiency was likewise pointed out in the EDCOM II report as
having resulted in a long-standing lack of effective coordination between the education
agencies since tri-focalization took place in the 1990s. The departmentalization of TESDA

37
 may enable it to be more effective in its operations but the need for coordination among
the three government agencies still needs to be in place.

3. Career Guidance and Placement Programs

In the review of literature, it was pointed out that skill-based training is notably becoming
the preference of students as well as educators as a pathway for career development.
Industries are slowly accepting the value of technical skills instead of simply looking for
college graduates. As such, TESDA should also make an effort to change its strategic
approach in encouraging learners to pursue technical skills training.

While TESDA’s objective is to provide employability and livelihood to its graduates, it

should also take on an educator’s hat and focus on how technical skills training can be a
pathway for lifelong learning. Currently, the majority of TVET graduates have competencies
in Level 1 and 2 of the PQF and are holders of NC I and II which qualifies them for low
salaried occupations. However, the needs of industry are for higher level competencies
with NC III to V certificates. TESDA should, therefore, focus on programs that will provide
skills training at these levels.

An intensified partnership with industry will not only enable TESDA to develop more
relevant and technology-based courses and programs but it will also open up more
opportunities for employment and livelihood for TVET graduates. In this regard, TESDA
should adopt a marketing strategy that will encourage more learners to pursue technical
skills training and for educational institutions to develop a framework of micro-credentialing,
ladderization or crediting training hours to degree units.

Furthermore, a comprehensive tracer study or mechanism should be in place to monitor

the career progress of TVET graduates. Such a study will also improve the image of TVET
graduates and encourage more students, parents, educational institutions and industry to
put more value in technical education.

RECOMMENDATIONS FROM THE ACADEME

After the extensive review and assessment of operations of TESDA by the IRP 3, the following
recommendations are being proposed:

A. DIRECTION SETTING & STANDARDS SETTING AND SYSTEM DEVELOPMENT

1. In order to address the jobs-skills mismatch, the design and development of training
regulations and competency standards should be industry-led through industry
associations and/or the Industry TVET Boards. Competency Standards designed by
industry should be accepted by TESDA as NTR courses or programs which can later
be the bases for the TR for specific occupations.

2. The industry-designed courses and programs should also lead to industry

assessment. Graduates shall be assessed by industry or industry-recognized
assessors and shall accordingly be given industry certifications. These certifications
shall be equivalent to the NCs of TESDA.

38
 3. Intensify and strengthen academe-industry-government collaboration through the
creation of more industry TESD boards that includes the labor sector. Additional
functions of the ITB, as proposed above, should be incorporated in the implementing
rules and regulations of the ITB.

4. Empower private TVIs in the delivery of TVET by (a) reviewing the implementation of
UTPRAS to ensure reasonable and equitable regulation and supervision and (b)
providing more scholarship grants including the joint delivery of TVET in JHS and
SHS.

5. The ITBs can simplify enterprise-related training modalities such as apprenticeship,

internship, dual training and OJT in order to suit the industry’s requirements. The
length of enterprise-related training should not be “one-size-fits-all” and should
therefore be designed according to the skill competencies that need to be acquired. A
closer cooperation or coordination between academe and industry should be
structured in order to ensure the delivery of the required skills training.

6. Strengthen the coordination and alignment of the functions of TESDA with DepEd and
CHED by pursuing the departmentalization of TESDA and the establishment of a
coordinating council for the three government agencies. Technical skills training can
also be prerequisites to degree programs while the TVL track of DepEd’s SHS
program shall be handled by TESDA through the public TTIs or private TVIs.

7. Adopt a progressive lifelong learning pathway that will create a holistic, flexible and
multi-facetted technical education and skills development program and streamline and
align TESDA programs or courses with DepEd and CHED.

B. SUPPORT TO TVET PROVISION

1. The processing, approval and releases of scholarship grants shall be devolved to an

independent unit or centralized with ROMO-SMD in order to reduce the potential
politicization of the grants as well as its equitable distribution in the regions and
among TVET providers. An alternative is to tap PEAC to handle the management and
administration of TESDA scholarship programs.

2. Expanding the plantilla of the Certification Office, Qualification and Standards Office,
the provincial offices and the Scholarship Management Division in order to address
the bottlenecks in the operations of these offices.

3. Set up a marketing and placement office that will work on changing the image of
TESDA, rebrand TVET to be TESD and develop a tracer study that will track the
career development of TESD graduates. Promote TESD as an integral part of higher
education by developing programs and policies that will adopt micro-credentialing,
recognition of prior learning and ladderization strategies.

39
THE PERSPECTIVE FROM THE INDUSTRY SECTOR (Antonio L. Sayo)

TESDA’s Current Framework

Strategic Advantages of TESDA's Integration with DOLE

TESDA's strategic integration within DOLE offers a unique advantage in aligning vocational training
with the national labor market's dynamics. This alignment ensures that training programs are not only
responsive to current industry needs but are also forward-looking, anticipating future skills demands.
The collaboration between TESDA and DOLE facilitates a seamless policy implementation process,
ensuring that vocational training initiatives contribute effectively to broader employment and economic
development goals.

However, for TESDA to fully leverage these advantages, it must continuously evolve its strategies to
adapt to global trends, such as digital transformation and the increasing importance of sustainable
practices in industries. For instance, incorporating digital literacy and green skills into its curricula
could position the Philippine workforce advantageously in the global job market.

Operational Challenges and Solutions

The bureaucratic complexity within TESDA, while ensuring structured decision-making, can impede
agility. To mitigate this, TESDA could explore adopting more agile project management methodologies
within its operational framework, allowing for quicker adaptation of training programs to meet urgent
industry needs.
The constrained flexibility and responsiveness, particularly in rapidly changing sectors, highlight the
need for TESDA to develop a more proactive approach to skills forecasting and curriculum
development. Partnering with technology firms and industry think tanks could enhance TESDA’s ability
to anticipate and prepare for future skills requirements.
The skills mismatch issue remains a significant challenge, underscoring the need for a tighter
integration between education output and industry needs. A potential solution could involve
developing a more dynamic, data-driven approach to tracking labor market trends and adjusting
training programs accordingly. This could include the use of artificial intelligence and machine learning
to analyze job market data and predict emerging skills gaps.

Notable Achievements and Areas for Expansion

TESDA's achievements in enhancing accessibility and outreach, particularly through online learning
platforms and community-based training centers, represent significant strides in democratizing access
to vocational education. Expanding these initiatives, possibly through greater investments in mobile
training units and further development of online learning resources, could help address geographic and
access disparities more effectively.
The engagement with industry and stakeholder-driven curriculum development has been instrumental
in ensuring the relevance of TESDA’s programs. To build on this success, TESDA could establish
more formalized industry advisory boards, involving a wider range of stakeholders, including startups,
tech companies, and representatives from emerging sectors, to ensure curricula remain at the cutting
edge of industry developments.

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Elevation to an Independent Department: Prospects and Considerations
The proposition of elevating TESDA to an independent department warrants a detailed examination,
balancing the potential for increased autonomy and focused mission delivery against the challenges of
financial sustainability and the risk of isolation from other key agencies. A detailed cost-benefit
analysis, considering both operational efficiencies and the potential for enhanced responsiveness to
industry trends, could inform this decision.
In transitioning to an independent status, TESDA would need to ensure it maintains strong
collaborative ties with other education and labor agencies to preserve a cohesive approach to
workforce development. Establishing cross-agency advisory committees and joint initiatives could
mitigate the risks associated with operating in a more siloed manner.

Proposed Expansion of TESDA's Role to Implement Tec-Voc of DEDPED’s Curriculum

The proposal to expand TESDA's role to incorporate the Technical-Vocational (Tec-Voc) and
Livelihood education components from the Department of Education (DEPED) presents a
transformative opportunity for the Philippine educational landscape. This expansion is poised at a
crucial juncture, promising to harness TESDA's specialized expertise in vocational training to address
current industry demands and future workforce needs. By integrating Tec-Voc and Livelihood
education into its purview, TESDA stands to streamline the transition from education to employment,
creating a workforce that is both skilled and adaptable to the evolving job market.

Advantages and Challenges of TESDA’s Expanded Role

The integration of Tec-Voc and Livelihood education under TESDA’s jurisdiction offers several
advantages. Primarily, TESDA's close ties with industry stakeholders enable the development of
curricula that are directly aligned with current and emerging skill requirements, ensuring that graduates
are immediately employable and capable of meeting the demands of the modern workplace.
Furthermore, centralizing vocational training under TESDA could lead to more standardized education
and training processes across the country, promoting uniformity in skill levels and competencies among
graduates.

However, this proposed shift also introduces significant challenges. The foremost concern is the
potential for educational fragmentation, where the division of responsibilities between TESDA and
DEPED could lead to gaps in the educational continuum for students. To mitigate this, robust
coordination mechanisms and clear lines of communication between TESDA and DEPED are
imperative. Additionally, the success of this initiative hinges on the careful management of resources,
the strategic planning of the transition period to avoid disruptions, and the comprehensive training of
educators to competently deliver the expanded curriculum.

TESDA’s Infrastructure and Alignment with Educational Objectives

A critical assessment of TESDA’s readiness to assume this expanded role reveals the necessity for
substantial infrastructure, personnel, and administrative enhancements. Ensuring a seamless
integration that does not compromise the quality of education requires TESDA to bolster its
capabilities in these areas. Moreover, aligning this expansion with the broader educational goals of the
Philippines is crucial for maintaining the integrity of the educational system and ensuring that learners
are equipped with relevant skills that transcend mere vocational training.

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Navigating Through Challenges to Seize Opportunities
The transition towards an expanded role for TESDA is fraught with challenges, notably in adapting to
change and the required capacity building for educators and administrators. Nevertheless, this
initiative also presents unique opportunities for innovation in teaching methodologies and the
promotion of lifelong learning principles. Embracing these opportunities can significantly enhance the
quality and relevance of vocational education in the Philippines, making it a more integral part of the
national education system.
Considering the analysis, it becomes evident that while TESDA's expertise in vocational training is
invaluable, it should not act as the sole implementor of Tec-Voc and Livelihood education within the
DEPED curriculum. This recommendation aligns with a strategic approach that advocates for a
collaborative model, leveraging the strengths of both TESDA and DEPED. Such a partnership
ensures a comprehensive educational framework that avoids the pitfalls of fragmentation, providing
students with a well-rounded curriculum that marries academic rigor with practical skills. Emphasizing
DEPED's continued lead in the broader educational strategy, with TESDA supplementing through its
vocational expertise, offers a balanced path forward.
Reinforcing the collaborative efforts between TESDA and DEPED, rather than transitioning the role of
Tec-Voc implementor solely to TESDA, is essential for maintaining the integrity and effectiveness of
the Philippine educational system. This approach not only preserves the strengths of each entity but
also addresses the holistic needs of the learners, preparing them adequately for both academic
achievements and vocational success.

Evaluation of Local Resource Alignment

One of the key challenges in technical vocational education and training (TVET) is to ensure that the
skills taught are relevant and responsive to the needs and conditions of the local labor market. This
entails aligning training programs with the available resources and employment opportunities in each
region. The Technical Education and Skills Development Authority (TESDA) is the primary agency
responsible for TVET in the Philippines. This paper aims to evaluate TESDA’s ability to adapt its
curriculum to regional needs and conditions, and to determine the extent to which it aligns its training
programs with local resources and employment opportunities.
The concept of aligning training programs with local resources and employment opportunities is based
on the premise that TVET should be demand-driven and area-based. This means that TVET should
reflect the actual and potential skills requirements of the local economy, and that it should utilize the
existing resources and infrastructure in each area. By doing so, TVET can enhance the employability
and productivity of the workforce, and contribute to the economic and social development of the
regions.
TESDA employs various practices and strategies to align its training programs with local resources
and employment opportunities. These include:
● Conducting Labor Market Intelligence (LMI): TESDA conducts regular LMI studies to
gather and analyze data on the current and emerging skills demands and supply in the local
and international labor markets. TESDA uses LMI to identify priority skills and sectors, and to
inform the development and revision of training regulations and standards.

● Establishing Industry boards: TESDA establishes industry boards as independent

organizations that have an active role in the governance of TVET. These boards are

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 composed of representatives from employers, labor, learning institutions, and government.
They provide inputs and feedback on the development and implementation of training
programs, and ensure their alignment with industry needs and standards.

● Forging partnerships and cooperation: TESDA forges partnerships and cooperation with
various stakeholders, such as local government units, industry associations, private sector,
academe, and development partners. These partnerships aim to enhance the coordination,
resource mobilization, and delivery of TVET programs. They also facilitate the exchange of
information and best practices, and the benchmarking of TVET standards.
These practices and strategies have resulted in positive outcomes in terms of fostering employment
opportunities for TVET graduates.
However, TESDA also faces some challenges and limitations in adapting its curriculum to regional
needs and conditions. These include:
● TESDA’s LMI studies are often outdated or incomplete, due to the lack of data sources,
methodologies, and capacities. This hampers TESDA’s ability to identify and respond to the
changing skills demands and supply in the local labor market.

● TESDA’s budget and resources are often insufficient to meet the demand and quality of TVET
programs. TESDA relies heavily on external funding and donations, which may not be
sustainable or aligned with its priorities. TESDA also faces challenges in maintaining and
upgrading its facilities, equipment, and trainers.

● TESDA’s coverage and accessibility vary across regions and communities. Some areas face
a shortage or mismatch of TVET programs, while others have an oversupply or duplication.
Moreover, some groups, such as women, youth, and indigenous peoples, face barriers and
discrimination in accessing TVET programs.
To address these challenges and limitations, TESDA needs to enhance its capability to adapt its
curriculum to regional needs and conditions. Some of the possible actions that TESDA can take are:
● TESDA should improve its LMI systems and capacities, by developing and adopting
standardized and innovative data collection and analysis methods, tools, and indicators.
TESDA should also establish and maintain a comprehensive and updated database of LMI,
and disseminate it to relevant stakeholders.

● TESDA should increase and diversify its funding and resources, by advocating for higher
budget allocation, exploring alternative and innovative financing mechanisms, and mobilizing
private sector and development partners’ support. TESDA should also optimize and allocate
its resources based on evidence and priorities.

● TESDA should enhance its coverage and equity, by expanding and diversifying its TVET
programs, especially in underserved and emerging sectors and areas. TESDA should also
implement inclusive and gender-responsive policies and strategies, and provide support and
incentives to marginalized groups.
TESDA needs to enhance its capability and responsiveness, by implementing the suggested actions
and by collaborating with other stakeholders. By doing so, TESDA can contribute to the development
of a skilled, employable, and productive workforce for the Philippines.

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Enhancing TESDA’s Role Through Regional and International Integration

Identifying Common Themes and Best Practices

TESDA should conduct a comprehensive study on common themes and successful models within the
ASEAN region, including South Korea. This study can provide insights into shared challenges and
effective strategies, enabling TESDA to adopt best practices and innovate its TVET programs.

For instance, the South Korea's industry-driven approach and Singapore’s emphasis on lifelong
learning can offer valuable lessons for improving the responsiveness and relevance of TESDA's
initiatives. Conducting regional studies to identify these common themes and successful TVET models
will help TESDA adopt best practices from South Korea and ASEAN countries, enhancing its
programs effectively.

Analyzing Regional Strengths and Weaknesses in NSTVET

Evaluating the strengths and weaknesses of National Systems of Technical Vocational Education and
Training (NSTVET) across the ASEAN region can help TESDA identify areas for improvement and
collaboration. Strengths such as Thailand’s robust industry partnerships and Malaysia’s
comprehensive vocational frameworks can serve as benchmarks, while common weaknesses like
resource constraints and skills mismatches highlight areas for strategic interventions. Analyzing these
regional strengths and identifying common weaknesses like resource constraints and skills
mismatches will allow TESDA to address these issues and improve its TVET programs.

Assessing Threats, Opportunities, and Best Practices in NSTVET

Understanding the threats and opportunities within NSTVET systems is crucial for strategic planning.
Potential threats include rapid technological changes and economic fluctuations, while opportunities
lie in regional cooperation and the adoption of digital technologies. Best practices from Germany’s
dual system and Australia’s competency-based training can provide frameworks for mitigating threats
and capitalizing on opportunities. Identifying these threats and leveraging opportunities through
regional cooperation and digital technology adoption, as well as benchmarking against best practices
from Germany and Australia, will enable TESDA to navigate the challenges and take advantage of
emerging opportunities.

Examining Structures and Responsibilities of Qualification Authorities in ASEAN

Exploring the structure and responsibilities of different qualification authorities in ASEAN can help
TESDA refine its own frameworks. Understanding how countries like Singapore and Vietnam manage
their qualification authorities can offer insights into effective governance and operational efficiency,
aiding TESDA in optimizing its certification processes. By studying the structure and responsibilities of
qualification authorities in these countries, TESDA can implement these insights to refine its
governance and certification processes.
Enhancing National Qualification Frameworks

Examining the national qualification frameworks (NQFs) within ASEAN countries can assist TESDA in
enhancing its own framework. By aligning with regional standards and learning from countries with
advanced NQFs, TESDA can improve the portability and recognition of its qualifications, both
nationally and internationally. Analyzing and aligning with advanced NQFs from ASEAN countries will
help TESDA enhance the portability and recognition of its qualifications.

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Improving Recognition, Validation, and Accreditation Processes

Focusing on the recognition, validation, and accreditation (RVA) of learning processes is essential for
ensuring the quality and credibility of TVET programs. Learning from ASEAN countries that have
robust RVA systems can help TESDA implement more rigorous and transparent accreditation
processes, thereby increasing trust in its certifications. Implementing best practices in RVA from
ASEAN countries will ensure rigorous and transparent accreditation processes for TESDA programs.

Expanding TESDA's Role in the ASEAN TVET Council

TESDA, with the support of the Regional Cooperation for Technical and Vocational Education and
Training in ASEAN (RECOTVET) established by the Deutsche Gesellschaft für Internationale
Zusammenarbeit (GIZ), played a pivotal role in setting up the ASEAN TVET Council. This initiative
aimed to foster regional cooperation and enhance the quality and relevance of technical and
vocational education and training (TVET) across ASEAN countries. However, over time, the
momentum of this initiative has waned. To revive and sustain its impact, TESDA should consider
advocating for a rotational leadership model among ASEAN states. This approach would ensure
shared responsibility and continuous engagement from all member countries, fostering a collaborative
environment for innovation and best practice sharing in TVET.

Role of the Private Sector in Training

Innovating Vocational Training through Private Sector Expertise

The private sector's agility and innovative capacity are unparalleled, especially in sectors driven by
rapid technological advancements. By integrating these strengths into vocational training, the
Philippines can enhance the relevance and contemporary appeal of its programs. This involves not just
adopting new technologies but also embracing innovative pedagogical approaches that cater to diverse
learning styles and needs. For example, gamification and virtual reality could revolutionize how
technical skills are taught, making learning more engaging and effective.

Beyond Efficiency - Creating Value with Industry-Specific Training

Direct industry involvement in vocational training goes beyond making training efficient; it embeds
value into the curriculum by ensuring it's closely aligned with real-world job requirements. This
alignment not only boosts employability but also addresses the skills mismatch by tailoring training
programs to specific industry needs. A closer partnership between TESDA and industry leaders could
lead to apprenticeship models where students gain hands-on experience, further bridging the gap
between education and employment.

Resource Optimization and Sustainability

Leveraging private sector resources for vocational training introduces a model of sustainability that
relieves pressure on public funds. This model, however, requires careful balancing to ensure that it
doesn't compromise the inclusivity and accessibility of education. A potential strategy could involve
public-private partnerships that stipulate a baseline of accessible training opportunities as part of the
collaboration, ensuring that private sector engagement contributes to broad-based skills development
without widening existing educational disparities.

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Addressing Equity and Accessibility
The concern that private sector-driven training might exacerbate access disparities necessitates a
dual approach. On one hand, regulatory frameworks should incentivize private entities to invest in
wide-reaching, inclusive training programs. On the other hand, TESDA could play a pivotal role in
facilitating access to these programs, perhaps through scholarships, grants, or online platforms that
make high-quality training accessible to underserved populations.

Quality Assurance in a Diverse Training Ecosystem

As private sector involvement in vocational training grows, so does the challenge of maintaining
consistent quality and standards. Establishing a national framework for vocational training quality,
possibly overseen by TESDA, could ensure that all training programs, regardless of provider, meet
certain standards. This framework could include accreditation processes for private training providers,
regular audits, and a feedback mechanism for continuous improvement.

Realigning Training with National Development Goals

Ensuring that private sector training initiatives align with national development goals requires a
strategic framework that integrates workforce development with economic planning. This might involve
identifying key growth sectors and tailoring training programs to support these areas, thereby not only
providing individuals with job opportunities but also driving national economic development.

Towards a More Inclusive and Dynamic Vocational Training System

The path forward for enhancing vocational training in the Philippines through private sector
engagement is complex and multifaceted. It involves balancing innovation with inclusivity, optimizing
resources while ensuring quality, and aligning training with both immediate industry needs and
long-term national development goals. A collaborative, strategic approach that leverages the strengths
of both the private sector and public institutions like TESDA can create a vocational training
ecosystem that is responsive, inclusive, and effective, ultimately contributing to the nation's
competitive edge on the global stage.

Enterprise-Based Training (EBT) Framework in the Philippines

The Philippine workforce is at a crossroads, needing to remain competitive in a rapidly changing
global economy while upholding the rights and welfare of workers. The concept of Enterprise- Based
Training (EBT) offers a promising avenue to address this challenge.

Advantages of EBT

1. Industry-Specific Training
- EBT facilitates the development of bespoke training programs, ensuring learners
acquire skills that precisely match industry requirements.
- With the agility to adapt to technological advancements and market trends, EBT
ensures the training is contemporaneously relevant.

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 2. Efficiency and Innovation
- By utilizing existing corporate facilities and expertise, EBT presents a cost-effective
solution to skills development.
- The private sector’s drive for competitiveness introduces innovative training
methodologies and cutting-edge technologies into the EBT framework.

3. Boosting Employability and Productivity

- EBT graduates emerge as highly employable individuals, equipped with the latest skills
demanded by the market.
- Employers benefit from a skilled workforce, enhancing productivity, while trainees gain
valuable, industry-aligned education.

Addressing Challenges

1. Labor Protection Legislation

- The challenge lies in fostering private sector training initiatives without compromising
the protective mantle of labor laws.
- Encouraging investments in training requires assurances that such efforts won't
precipitate job insecurity.

2. Ensuring Equity and Accessibility

- A critical examination is needed to ensure EBT doesn’t widen access disparities,
particularly for those outside the purview of large corporations.
- Strategies must ensure that EBT reaches informal sector workers, rural dwellers, and
other vulnerable populations.

3. Guaranteeing Quality and Standards

- Establishing a uniform quality benchmark across EBT programs is vital to maintain the
integrity of training outcomes.
- Ensuring that certifications awarded are both credible and recognized across industries
necessitates stringent quality controls.

Strategic Recommendations for Implementing EBT

1. Government Oversight and Collaborative Regulation

- Framework for Public-Private Collaboration: Establishing clear, transparent guidelines
that define the roles and expectations for all stakeholders involved in EBT.
- Incentives for Private Sector Participation: Crafting incentives, such as tax reliefs and
grants, to motivate companies to invest in comprehensive training programs.

2. Creating a Collaborative Ecosystem

- Forge Strong Public-Private Partnerships (PPPs): Encourage the development of
PPPs to design and implement EBT programs that are mutually beneficial.
- Engagement of Local and Industry Stakeholders: Involve local government units,
industry associations, and community organizations in the planning and execution of
EBT initiatives to ensure they are aligned with local needs and capabilities.

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EBT presents a formidable opportunity to synchronize the training of the Philippine workforce with the
actual needs of the industry, provided it is implemented with a keen eye on protecting labor rights and
ensuring equitable access. A judicious approach, blending the strengths of both the public and private
sectors, can pave the way for a training ecosystem that not only enhances the employability of Filipino
workers but also contributes to the nation's competitive edge in the global market.

Enhancing TESDA's Response to Digitalization and AI

Strategic Restructuring of TESDA's Organizational Framework

In light of the transformative impact of digitalization and AI on the workforce landscape, TESDA's
organizational framework requires a strategic overhaul to effectively address emerging challenges and
opportunities. A meticulous audit of the current structure is indispensable, with a focus on identifying
and restructuring directorates to accommodate the integration of digital literacy and AI competencies.
Specifically, the Planning, Training, and Certification Directorates must be reconfigured to seamlessly
embed these critical skills into existing programs. Moreover, the establishment of a dedicated
Innovation and Technology Directorate is imperative to serve as the focal point for driving technological
advancements and ensuring the agility of TESDA's training initiatives in response to evolving industry
needs.

Integration of Digital Skills and AI in Training Programs

To remain competitive in the digital era, TESDA must undertake a robust initiative to update its
curriculum and training programs to encompass essential digital and AI skills. This endeavor requires
collaboration with industry leaders, academic institutions, and technology experts to develop modular
courses tailored to the demands of the digital economy. Areas such as data analytics, artificial
intelligence, cybersecurity, and digital marketing should be prioritized to equip learners with the
competencies needed to thrive in technology-driven industries. Furthermore, the expansion of online
and blended learning platforms is crucial to enhance the accessibility and flexibility of training
programs, particularly for individuals in remote or underserved areas.

Leveraging AI in Assessment and Certification Processes

The integration of AI into TESDA's assessment and certification processes holds immense potential to
enhance the efficiency, accuracy, and relevance of skills evaluation. By leveraging AI- driven analytics,
TESDA can personalize learning pathways, identify individual learning gaps, and provide targeted
interventions to optimize learning outcomes. Additionally, AI-powered assessment tools can automate
the evaluation process, ensuring consistency and objectivity while minimizing human bias. Moreover,
AI-enabled credentialing mechanisms can enhance the portability and recognition of TESDA
certifications both nationally and internationally, thereby boosting the employability of graduates in a
globalized labor market.

Collaboration with Industry and Technological Partners

Effective collaboration with key stakeholders in the technology sector and industry is paramount to
ensure the alignment of TESDA's initiatives with emerging market trends and technological
advancements. Strategic partnerships with leading tech companies, startups, and industry associations

48
can provide valuable insights into evolving skills requirements and facilitate the co- creation of training
programs that meet industry needs. Moreover, collaboration with academic institutions and research
centers can foster innovation in educational technologies and pedagogical approaches, enabling
TESDA to stay at the forefront of skills development in the digital age.
In conclusion, strategic restructuring of TESDA's organizational framework, curriculum, assessment
processes, and industry collaboration is imperative to position the organization as a catalyst for
workforce development in the digital era. By embracing digitalization and AI, TESDA can play a pivotal
role in equipping the Filipino workforce with the skills and competencies needed to thrive in a
technology-driven economy, thereby fostering inclusive growth and sustainable development across the
nation.

A. Addressing the Job-Skills Mismatch

Current Landscape

Skills mismatch is the lack of matching between the skills that are available in (or supplied to)
the labor market and the skills that are in demand in the labor market (Palmer, 2018).

Challenges to skills learning as per survey:

Challenges Key Findings

Limited awareness of reskilling 48% of Filipino workers stated that they did not know
opportunities what courses to take

46% of business leaders felt there were no suitable

training programs to take
Limited resources to pursue Largest barrier to retraining cited by both business
reskilling leaders and workers: high costs of training and
reskilling programs
Lack of effective lifelong learning Training rates are low: 4% more employers would hire
models new permanent staff versus those who were willing to
retrain existing workers to attain required skills
Stronger emphasis on educational Strong emphasis placed on traditional qualifications
qualifications over skills attained through education system versus past work
experiences and skills gained through them
Social protection exists for jobs, not On-demand workers lack social protection (designed for
people regular employees)

92% Filipino freelancers cited job security as a key

concern (PayPal survey)

58% of freelancers in 4 ASEAN markets have

experience not being paid
(Asian Development Bank, 2021)

In a survey conducted to training institutions and employers in the Philippines, training

institutions are much more optimistic about the preparedness of graduates for work than what
employers report. 90% of training institutions believe that their graduates are adequately
prepared for entry-level positions whereas only 55% of the employers believe the same.

49
Further, 88% of the training institutions believe that their graduates have the appropriate
“job-specific” skills whereas only 59% of the employers believe the same.

In an ADB Report (Asian Development Bank, 2021), there is a high mismatch between the
TVET trainees and their occupations in years 2013, 2014, and 2017. The largest share of
mismatched occupations is in occupations requiring higher skills than graduates were trained
for, suggesting a shortage of skills in these occupations relative to market demand.

- 2013: 38%
- 2014: 45.1%
- 2017: 42,7%

There is also a share of over-skilled trainees in occupations requiring lower skills than what
they are trained for.

- 2013: 29.6%
- 2014: 19.4%
- 2017: 21.3%

The study reveals that just around one-third of employed TVET graduates are effectively
placed in occupations aligned with their training programs. Completion of the program does not
notably enhance employment prospects for young TVET graduates. One potential factor
contributing to this trend is the deficiency in both soft and technical skills among TVET
graduates, alongside the lack of recognition of certifications by employers, which could be a
primary barrier to employment (Asian Development Bank, 2021).

Moreover, according to the NTESDP 2018-2022, although enterprise-based trainings (EBTs)

were highlighted as the most effective mode of training, their utilization remained low and
continued to decline over the years. Unlike institution-based trainings, EBTs failed to attract
sufficient participation from industry players.

Industry Insights and Recommendations

The 2020 census data on the population structure of the Philippines paints a picture of
significant demographics, revealing a large young dependent population, with 30.7% of the
total population under the age of 15. Meanwhile, the economically-active population, or the
working-age population, constitutes 63.9% of the total population, with old dependents making
up only 5.4%. The median age of the Philippine population continues to rise, reaching 25.3% in
2020. This trend underscores the pressing need for increased investment in healthcare and
social security programs to prepare for an aging population. While the Philippines stands
poised to capitalize on its demographic dividend, certain socioeconomic preconditions must be
addressed before this window of opportunity closes.

To leverage this demographic advantage effectively, TESDA can play a pivotal role by
proactively enhancing its upskilling and reskilling capabilities.

The mismatch between skill supply and rapidly evolving demand poses a significant challenge,
exacerbating existing disparities.

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Intensifying industry engagement in setting occupational/competency standards is paramount.
These standards and curricula should not only align with technical skills but also encompass a
broader set, including core work skills and transversal skills. Strengthening industry
involvement in this process is critical to enhancing the relevance and quality of Technical and
Vocational Education and Training (TVET). Moreover, adapting occupational/competency
standard development to a more flexible approach is essential to ensure timely updates
reflecting changing technological requirements.

Embedding TVET institutes within local and regional industry clusters serves multiple purposes,
not only fulfilling their primary mandate of preparing youth for employment but also aiding
enterprises in innovation, technology transfer, and upskilling of staff. Establishing robust
industry linkages requires not only policy support but also capacity development. Teachers,
managers of TVET institutes, and industry representatives must enhance their abilities to
communicate effectively, understand each other's needs, and forge strong partnerships.
Long-term support is essential to foster understanding and trust for successful collaboration.

Soft skills are as vital as technical education, and a clear strategy is needed to prioritize the
inclusion of core skills in all occupational qualifications. This includes basic digital skills, social
and emotional skills, cognitive and metacognitive skills, and basic skills for green jobs.

Recommendation to Adapt Micro-Credentialing and Induce Recognition of Prior Learning

Recognition of prior learning (RPL) has recently been integrated into the Philippine
Qualifications Framework (PQF), further emphasizing its importance in the country's skills
development landscape. By incorporating RPL into the PQF, individuals who have gained skills
and knowledge through non-formal or informal means can now have their qualifications
recognized and validated within a standardized system. The integration of RPL into the PQF
also highlights the need for a more efficient and streamlined process. With the majority of
Senior High School (SHS) students going to Technical and Vocational Education and Training
(TVET) and at the same time taking short-term courses, with most taking odd jobs, the RPL
process can provide a vocation or some direction in their lives.

However, while RPL is a valuable process, it can also be quite complex and time-consuming.
That's why there is a need to streamline the process and make it more efficient. This is where
micro-credentialing comes in. Micro-credentialing is a solution to this problem. It recognizes
smaller units of learning that can be stacked to form larger qualifications or certifications. This
approach provides a more flexible and accessible way to gain qualifications, which can be
particularly useful for SHS graduates who want to have their skills and knowledge recognized
and validated without necessarily pursuing a full degree program. This can open up more
opportunities for them to gain employment or advance in their careers, without necessarily
pursuing a full degree program.

By incorporating micro-credentialing into the RPL process, individuals can have their skills and
knowledge recognized and validated more efficiently. It can also provide a more flexible and
accessible way for individuals to gain new skills and qualifications. Micro-credentialing provides
a solution to this need, as it allows for smaller units of learning to be recognized and validated
more quickly and efficiently. By breaking down larger qualifications into smaller, more
manageable units, individuals can gain recognition for their skills and knowledge more quickly,
without the need for a lengthy assessment process.

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To encourage enterprises to get more involved with Enterprise-Based Training (EBT) and
recognize the value of Prior Learning, micro-credentialing can be adopted in addition to the
current Assessment and Certification practiced in some industries. Micro-credentialing has
been effective in other countries and is a new method of RPL. Here are some
recommendations that can be implemented to encourage enterprises to adopt
micro-credentialing and EBT:

● Create a National Framework for Micro-Credentialing, a standardized approach to the

development, assessment, and certification of micro-credentials. The framework should
ensure the integrity and consistency of micro-credentials.

● Work closely with industry and other stakeholders to identify skills gaps and emerging
trends in the labor market. Partnerships can help to create a demand-driven approach to
micro-credentialing that aligns with the needs of employers.

● Encourage enterprises, particularly MSMEs, to set up EBT programs for their employees
that include micro-credentialing. Provide incentives for enterprises that adopt
micro-credentialing and EBT, such as tax breaks or access to funding.

● Explore the use of digital technology to deliver the academic portion of training online,
while EBT can be based on actual exposure in the enterprise or operational areas. The use
of digital technology can reduce the time and cost associated with traditional
classroom-based training and make it more convenient for learners. To equip learners for
an economy that is rapidly advancing in technology and increasingly based on knowledge,
the integration of ICT is a must.

Justifying MSMEs’ Interest in Micro-Credentialing under the current EBT

It is a response to the fast-paced learning demands of enterprises that want to remain

innovative and competitive in the market. By adapting micro-credentialing as an additional
mode of EBT in the Philippines, MSMEs can address their specific skills gaps and tailor their
training programs to meet their business needs. This can lead to a more efficient and
specialized workforce that can increase productivity and profitability. Micro, Small and
Medium-sized Enterprises (MSMEs) may be enticed with this approach, as they can now
create their own "brand" or do this together with an academic institution that can handle the soft
skills portion of the curriculum to be jointly developed also with a Chamber.

Additionally, micro-credentialing can provide a flexible and accessible way for enterprises to
offer training and development opportunities to their employees. With the rise of digital learning
platforms and online education, micro-credentials can be earned through a variety of
non-formal and informal learning sources, such as online courses, workshops, and on-the-job
training. This can help enterprises to provide training and development opportunities to a larger
number of employees, regardless of their location or work schedule.

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Making EBT a Reality

In the ever-evolving landscape of the Philippine workforce, Enterprise-Based Training (EBT)

emerges as a dynamic and essential strategy for businesses to thrive. By encouraging
enterprises to establish EBT programs for their employees, as well as their direct and indirect
suppliers and systems, a robust ecosystem of upskilling and reskilling takes shape.

Enterprises play a pivotal role in identifying the gaps in skills within their workforce. Conducting
a comprehensive needs assessment is the first step towards understanding the specific skill
requirements of the industry and the enterprise. It lays the foundation for tailoring training
programs to address these gaps effectively.

The development of training programs is a collaborative effort, bringing together industry

associations, training institutions, and enterprises. These programs are finely tuned to cater to
the unique needs of the enterprise and the industry. This tailored approach ensures that the
training is directly relevant to the challenges and opportunities faced by the workforce.

EBT embraces a flexible approach to training delivery. While the academic portion of training
can be delivered online, the heart of EBT lies in on-the-job training and apprenticeships. This
practical, hands-on experience in the workplace provides trainees with real-world skills and
enhances their readiness for the job market.

Why should enterprises actively engage in EBT initiatives? The compelling reasons are
multifaceted:

1. EBT serves as a powerful tool for enterprises to fulfill their corporate social
responsibility by providing opportunities for employees to upskill and reskill. It aligns
with the broader societal goal of enhancing employability and fostering career growth.

2. Forward-thinking enterprises view EBT as an integral component of their long-term

manpower planning. It facilitates a proactive approach to talent development, ensuring
a pipeline of skilled employees ready to meet evolving industry needs.

3. EBT allows enterprises to remain agile and adaptive in a rapidly changing business
landscape. By continuously updating and upgrading their workforce's skills, they can
stay ahead of industry trends and maintain a competitive edge.

4. Developing specialized skills in-house not only increases efficiency but also reduces
costs. EBT empowers enterprises to harness their workforce's potential fully, reducing
the reliance on external hires and costly recruitment processes.

5. EBT ensures that employees meet not only regulatory requirements but also
industry-specific standards. Compliance with these standards enhances the
enterprise's credibility and market positioning.

Enterprise-Based Training is not merely a strategic choice but a vital imperative for enterprises
in the Philippines. By embracing EBT, businesses can create a skilled and adaptable
workforce, foster innovation, and contribute to the broader goals of economic growth and
workforce development.

53
B. Departmentalization of TESDA

Current Landscape

In addition to skills and qualifications mismatches, which broadly correspond to the criteria
outlined, the DOLE-BLE also identifies another type of discrepancy: the alignment of potential
employees' locations and economic sectors with available job vacancies. While qualification
and education mismatches stem from variations between the outputs of educational and
training systems and the requirements of the labor market, as well as information disparities,
regional and sectoral mismatches can also be linked to the expenses associated with
relocating from one geographic area or industry to another (Asian Development Bank, 2021).

Despite TESDA's commendable advancements over the years, doubts persist regarding its
appropriate role, inherent resource limitations, and organizational capacity to effectively
navigate the challenges posed by Industry 4.0. Over the past quarter-century, TESDA has
undergone a significant evolution, expanding its scope to encompass diverse technical
education and skills development initiatives, particularly aimed at uplifting the marginalized
sectors of Philippine society. Nonetheless, obstacles remain. The unresolved issue of devolving
its direct training function looms large. Resource constraints, especially concerning capital
outlay, curtail its ability to furnish cutting-edge facilities and adequately trained personnel.
Shortages of technology competency assessors, coupled with prolonged processes for
developing standards and assessment tools, impede its agility in delivering updated services.
Additionally, insufficient engagement with industry stakeholders undermines its adaptability to
the changing demands of the private sector for skilled labor (Asian Development Bank, 2021).

Industry Insights and Recommendations

TESDA's current strategic integration within DOLE offers a unique advantage in aligning
vocational training with the national labor market's dynamics. This alignment ensures that
training programs are not only responsive to current industry needs but are also
forward-looking, anticipating future skills demands. The collaboration between DOLE and
TESDA facilitates a seamless policy implementation process, ensuring that vocational training
initiatives contribute effectively to broader employment and economic development goals . This
has methodologies within its operational framework, allowing for quicker adaptation of training
programs to meet urgent industry needs.

The proposition of elevating TESDA to an independent department warrants a detailed

examination, balancing the potential for increased autonomy and focused mission delivery
against the challenges of financial sustainability and the risk of isolation from other key
agencies. A detailed cost-benefit analysis, considering both operational efficiencies and the
potential for enhanced responsiveness to industry trends, could inform this decision. In
transitioning to an independent status, TESDA would need to ensure it maintains strong
collaborative ties with other education and labor agencies to preserve a cohesive approach to
workforce development. Establishing cross-agency advisory committees and joint initiatives
could mitigate the risks associated with operating in a more siloed manner.

Considering the importance and criticalness of its mandate, elevating TESDA as a full
department instead of just being an attached agency or Authority will make it more effective

54
and responsive to the increasing demand and relevance of technical education and skills. This
will also allow it to get a bigger budget from the national government and consequently enable
it to restructure the units and offices and provide more plantilla personnel in these offices.
Under the trifocalized education system in our country, the three units (DepEd, TESDA and
CHED) should be co-equal units so that each can fully support and supervise the education
sectors that they are mandated to serve. This will, however, require a closer coordination
among the departments so that silos will not make the progressive nature of education more
bureaucratic.

Significantly, we are suggesting that TESDA being a Full Fledge Department be made
contingent on them being a Regulatory Body i.e. sans the Training Function which is a Sine
Qua Non of them being a Department in the Medium Term.

Amidst the challenges at hand, the transition of TESDA into a fully-fledged department stands
as a pivotal solution. This transformation would grant TESDA the autonomy and financial
resources necessary to effectively address the prevalent issues of skills mismatch and the
underutilization of enterprise-based trainings by MSMEs. With expanded capabilities, TESDA
can spearhead innovative approaches to align workforce skills with industry demands, fostering
a more seamless integration of education and employment realms.

Furthermore, the elevation of TESDA to department status promises a decentralized approach,

enabling tailored interventions across diverse regions and provinces. By extending its reach to
underserved areas, TESDA can democratize access to both job opportunities and training
programs, thereby catalyzing inclusive economic advancement. Additionally, formal recognition
as a department would elevate the prestige of technical education and skills development,
positioning it as a co-equal partner alongside traditional educational institutions such as DepEd
and CHED. This parity would not only reshape societal perceptions but also underscore the
intrinsic value of vocational training in driving national progress and prosperity.

C. Training Program Development & Design

Current Landscape

According to the Quality Management System Manual, the national training regulations are
composed of competency standards, qualifications, training standards, and assessment
arrangements. These regulations, promulgated by the TESDA Board, serve as the foundation
for developing curricula, instructional materials, and the registration and delivery processes of
training programs. Private sector representatives and industry experts actively participate in the
development of these regulations to guarantee their relevance and alignment with the dynamic
needs of the labor market. Periodic review and enhancement of training regulations occur to
ensure they remain up-to-date in response to evolving industry requirements.

The processes involved in updating standards can extend up to a duration of 8 months (Asian
Development Bank, 2021). Despite TESDA's development of 264 Training Regulations, a
significant gap exists between their creation and their practical utilization. While these
regulations undergo a meticulous process of prioritization and development in collaboration
with industry experts, only a fraction of them are actively offered by educational institutions and
utilized by the public. In 2015, for instance, out of the 254 regulations in place, only eight were

55
utilized to assess individuals exceeding 40,000, whereas 122 regulations saw assessments of
less than 5,000 individuals per year (NTESDP 2018-2022).

Industry Insights and Recommendations

A slow process of developing or updating standards and assessment tools means that with
new and emerging technology, standards quickly become obsolete. Here are some
recommendations:

1. Address the slow pace of standard development and updates by streamlining the
processes involved. Implement more efficient procedures for consultation, review,
and approval, leveraging digital tools to expedite the process. Establish clear
timelines with specific milestones to ensure timely updates, keeping pace with
evolving technologies and industry needs.

2. Strengthen collaboration with industry stakeholders especially now that there are
TVET Industry Boards, including private sector representatives and industry
experts, in the development and updating of competency standards and training
regulations. Despite consultations, ensure awareness of the timeline, as the
process can become slow in reality, leading to standards becoming obsolete
quickly. Involve stakeholders in regular consultations to ensure that standards
remain relevant and aligned with current labor market demands. Encourage
industry-led initiatives, such as those by local chambers of commerce and industry,
to identify specific industry needs and tailor standards accordingly.

3. Implement strategies to raise awareness and utilization of training regulations

among TVET institutions, trainers, and the public. Conduct outreach and training
programs to familiarize stakeholders with available regulations and their benefits.
Provide incentives or recognition for institutions that comply with and offer
programs based on training regulations to encourage broader adoption.

4. Focus on developing and promoting training programs aligned with high-demand

sectors and emerging industries. Conduct market analyses to identify areas with
significant skills gaps or labor shortages and direct resources towards developing
corresponding training regulations. By prioritizing programs with greater demand,
TESDA can maximize its impact and better address the needs of the labor market.

5. Enhance monitoring and evaluation mechanisms to track the implementation and

impact of training regulations more effectively. Establish key performance
indicators (KPIs) to measure the uptake and effectiveness of programs based on
training regulations. Regular evaluations will help identify areas for improvement
and guide future initiatives to ensure TESDA's efforts yield tangible results in
addressing skills gaps and meeting industry needs.

56
D. Competency Assessment

Current Landscape

The assessment and certification of middle-level skilled workers' competencies are carried out
through the Philippine TVET Competency Assessment and Certification (CAC) System. This
assessment aims to ascertain whether graduates or workers can meet workplace standards
based on predefined competency criteria. Accredited assessors, recognized by TESDA,
conduct assessments using various methods such as demonstration/observation with oral
questioning, written tests, interviews, third-party reports, portfolios, and submission of work
projects. Individuals seeking certification can apply at private TESDA-accredited assessment
centers, TESDA regional and provincial offices, as well as assessment centers within TESDA
technology institutions.

There is a pressing concern regarding the diminishing pool of qualified assessors, attributed to
the transfer of assessors to the Department of Education following the implementation of the K
to 12 reform. Additionally, there is a need for assessors to upgrade their qualifications. The
introduction of the technical-vocational and livelihood (TVL) track in senior high school has led
to a significant number of assessors leaving TESDA to join the faculty of the Department of
Education, enticed by the prospect of higher salaries and the assurance of regular employment
(Asian Development Bank, 2021).
Industry Insights and Recommendations

The enhancement of industries' involvement in competency assessment is crucial, leveraging

the backing of established Industry Boards. Reassessing incentive mechanisms is essential to
stimulate increased participation from industries in TVET. Such measures cultivate a
collaborative environment among key stakeholders, ensuring the provision of a skilled
workforce that aligns with industries' needs and bolsters their economic growth. Moreover,
increased industry involvement in assessment will significantly contribute to the improvement of
skill matching, addressing the prevalent issue of skills mismatch and enhancing overall
workforce effectiveness.

Further, the rapid change of technology requires assessors who remain abreast of
industry-relevant competencies

E. Enhancing TESDA’s Response to 4IR, Digitalization and AI

Strategic Restructuring of TESDA's Organizational Framework

In light of the transformative impact of 4IR, digitalization and AI on the workforce landscape,
TESDA's organizational framework requires a strategic overhaul to effectively address
emerging challenges and opportunities.

A thorough review of the current organizational setup is essential, with a key emphasis on
adapting to the changing landscape. It is crucial to identify areas where adjustments are
needed, particularly within the Planning Office, National Institute for Technical Education and
Skills Development, and Certification Office, to smoothly incorporate digital literacy and AI
competencies into the existing curriculum and programs. Additionally, creating a dedicated

57
Innovation and Technology Division is vital to spearhead technological progress and ensure
that TESDA remains flexible and responsive to the evolving needs of industry needs.

Integration of Digital Skills and AI in Training Programs

To remain competitive in the digital era, TESDA must undertake a robust initiative to update its
curriculum and training programs to encompass essential digital and AI skills. This endeavor
requires collaboration with industry leaders, academic institutions, and technology experts to
develop modular courses tailored to the demands of the digital economy. Areas such as data
analytics, artificial intelligence, cybersecurity, and digital marketing should be prioritized to
equip learners with the competencies needed to thrive in technology-driven industries.
Furthermore, the expansion of online and blended learning platforms is crucial to enhance the
accessibility and flexibility of training programs, particularly for individuals in remote or
underserved areas.

Leveraging AI in Assessment and Certification Processes

The integration of AI into TESDA's assessment and certification processes holds immense
potential to enhance the efficiency, accuracy, and relevance of skills evaluation. By leveraging
AI-driven analytics, TESDA can personalize learning pathways, identify individual learning
gaps, and provide targeted interventions to optimize learning outcomes. Additionally,
AI-powered assessment tools can automate the evaluation process, ensuring consistency and
objectivity while minimizing human bias. Moreover, AI-enabled credentialing mechanisms can
enhance the portability and recognition of TESDA certifications both nationally and
internationally, thereby boosting the employability of graduates in a globalized labor market.

Collaboration with Industry and Technological Partners

Effective collaboration with key stakeholders in the technology sector and industry is
paramount to ensure the alignment of TESDA's initiatives with emerging market trends and
technological advancements. Strategic partnerships with leading tech companies, startups, and
industry associations can provide valuable insights into evolving skills requirements and
facilitate the co-creation of training programs that meet industry needs. Moreover, collaboration
with academic institutions and research centers can foster innovation in educational
technologies and pedagogical approaches, enabling TESDA to stay at the forefront of skills
development in the digital age.

Strategic restructuring of TESDA's organizational framework, curriculum, assessment

processes, and industry collaboration is imperative to position the organization as a catalyst for
workforce development in the digital era. By embracing digitalization and AI, TESDA can play a
pivotal role in equipping the Filipino workforce with the skills and competencies needed to
thrive in a technology-driven economy, thereby fostering inclusive growth and sustainable
development across the nation.

F. Conclusion and Way Forward

The current landscape of technical and vocational education and training (TVET) in the
Philippines reveals a significant challenge: the persistent gap between the skills possessed by
the workforce and those demanded by the rapidly evolving job market. This mismatch not only

58
hampers individual employment prospects but also undermines the nation's economic growth
potential. To address this issue comprehensively, concerted efforts must be made to realign
TVET initiatives with industry needs, streamline processes, and enhance stakeholder
collaboration.

First and foremost, intensifying industry engagement is paramount. Industry involvement in

setting occupational standards and curricula ensures that TVET programs are not only
technically sound but also responsive to emerging trends and technological advancements.
Strengthening partnerships between TVET institutes and local enterprises fosters mutual
understanding and trust, paving the way for more effective collaboration in skills development.

Moreover, recognizing the importance of soft skills alongside technical education is essential. A
clear strategy should prioritize the inclusion of core skills in all occupational qualifications,
ensuring that graduates are equipped with the holistic skill set demanded by employers in the
modern workplace.

The adoption of micro-credentialing presents a promising avenue to enhance skills recognition

and validation. By recognizing smaller units of learning, micro-credentialing offers a flexible and
accessible pathway for individuals to gain qualifications, particularly beneficial for senior high
school graduates and those seeking to upskill or reskill without committing to a full degree
program.

Encouraging enterprises, especially MSMEs, to embrace micro-credentialing and

enterprise-based training (EBT) is crucial. By tailoring training programs to address specific
skills gaps and business needs, MSMEs can cultivate a more efficient and specialized
workforce, ultimately driving productivity and competitiveness.

Furthermore, the proposed departmentalization of TESDA represents a pivotal opportunity to

bolster its capacity and autonomy in addressing skills mismatches. Elevating TESDA to
department status would enable it to better navigate the challenges posed by Industry 4.0 and
extend its reach to underserved regions, thereby promoting inclusive economic growth and
workforce development.

Strategic restructuring of TESDA's organizational framework to integrate digital literacy and AI

competencies is paramount. A thorough review of the current setup, with a focus on adapting to
the changing landscape, should guide the reconfiguration of key directorates to seamlessly
embed these critical skills into existing programs. This includes the Planning, Training, and
Certification Directorates, which must be restructured to accommodate digital literacy and AI
competencies. Additionally, the establishment of a dedicated Innovation and Technology
Division is imperative to spearhead technological progress and ensure TESDA's agility in
responding to evolving industry needs.

Overcoming the skills mismatch challenge requires a multifaceted approach that encompasses
industry collaboration, skills recognition reforms, and institutional strengthening. By embracing
innovation, fostering partnerships, and prioritizing the needs of both learners and employers,
the Philippines can harness its demographic advantage and unlock the full potential of its
workforce in the evolving global economy. Through sustained commitment and collective
action, the nation can build a future where every individual has the opportunity to thrive and
contribute to a prosperous society.

59
THE PERSPECTIVE FROM THE LABOR SECTOR (Danilo A. Laserna)

JOB-SKILLS MISMATCH

Job skills mismatch has been a recognized issue in the Philippines. This phenomenon occurs
when there is a misalignment between the skills possessed by the workforce and the skills
demanded by employers. In other words, it is a situation where there are plenty of available
jobs that could not be filled up by existing manpower while there are jobless people who can’t
find jobs due to lack of skills, or over-qualified1.

Several factors contribute to job skills mismatch, including changes in industry requirements,
outdated educational curricula, and inadequate training programs.

While the Technical Education and Skills Development Authority (TESDA) has implemented
various programs to address skills mismatch. These initiatives include curriculum reforms,
industry partnerships, and skills training programs aimed at aligning education with industry
needs. However, according to a 2021 Asian Development Bank study, TVET graduates have
been recording very high mismatch rates ranging from 42%-81%2. Mismatches consequently
affects negatively the employee’s job satisfaction and work productivity3.

With the signing of Republic Act No. 11962 or Trabaho Para sa Bayan Act4 by President
Ferdinand “Bongbong” Marcos, Jr., it hopefully addresses the problems plaguing the labor
market. The law will help us solve the various challenges plaguing our labor sector, such as
low-quality jobs, skills mismatch, and underemployment, among others,” President Marcos said
in his speech during the ceremonial signing of the Trabaho Para sa Bayan Act at the
Malacañang Palace.

ESTABLISHMENT OF INDUSTRY TVET BOARDS

It is highly recognized the involvement of industry in order to ensure that the skills being taught
align with the demands of the labor market. Such partnership identifies the current and
emerging skills required by various sectors thus training programs offered by TESDA are
relevant and timely with industry needs.

In fact, Republic Act No. 7796 (TESDA Act of 1994) specifically mandated to establish Industry
Boards, to wit:

“Section 26. Industry Boards. – The Authority shall establish effective and
efficient institutional arrangements with industry boards and such other bodies
or associations to provide direct participation of employers and workers in the
design and implementation of skills development schemes, trade skills
standardization and certification and such other functions in the fulfillment of the
Authority’s objectives.”

1
Job or skills mismatches can come in the form of either a horizontal or vertical.
2
Technical and Vocational Education and Training in the Philippines in the Age of Industry 4.0, March 2021, page xxiv
3
Belinda de Castro, Yiqiaochu Cheng, Jolina Lae Montenegro, Jyanne Pelmonte: The consequences of education mismatch and skills mismatch on
employee’s work productivity, December 2015.
4
27 September 2023

60
 Accordingly, TESDA established IBs in 20 provinces, 6 regions and 2 at the national level. 10
IBs are quadripartite in form of with membership from the Industry Associations, Workers
Unions/Group, Learning Institutions/Academe, and Government while 18 recognized IBs are
composed mainly of Industry Associations only5.

However, the recently-issued General Policies under TESDA Circular 38, Series of 2023, states
that Industry Board , now called Industry TVET Board (ITB), shall be represented by Industry
Association/Council/Foundation whose scope covers majority of its subsectors. Meaning, IBs,
shall be mainly composed of employers’ groups that practically deny the equal opportunity of
the workers’ union or association the space created to fully participate.

As of present, Philippine Constructors Association, Inc. (PCA) represents the national Industry
TVET Board for the construction sector; Tourism Industry Board Foundation, Inc. (TIBFI) for the
tourism sector and IT & Business Process Association of the Philippines (IBPAP) for the
information and communications technology (ICT) sector.

Further, Semiconductor and Electronic Industries in the Philippines Foundation, Inc. (SEIPI), a
national Industry TVET Board for the manufacturing of semiconductor and electronic
subsectors and Philippine Cacao Industry Association (PCIA) for the agriculture sector – cacao
subsector.

This is contrary to the provision that (1) TESDA shall be the one who will ESTABLISH an
independent IB and not merely entering an agreement with an industry association that will
ultimately become an ITB; and (2) ITB must be composed of employers and labor on equal
footing. With the new issuance, participation of other groups such as labor group/union,
academe association and concerned national government agencies will be subject to
the discretion of the Board or will be on the need basis only.

ALIGNMENT OF TVET TO THE LABOR CODE

Aligning TVET with the Labor Code of the Philippines ensures that training programs adhere to
legal requirements regarding contracts, remuneration, working conditions, occupational safety
and health standards, and other relevant labor regulations. This alignment promotes
compliance with labor laws and protects the rights of the trainees acting as workers.

For instance, the provisions on apprenticeship, or any form of EBTs, can be further clarified
through the issuance of an advisory on the following provision:

“Art. 281. Probationary employment. Probationary employment shall not exceed six
(6) months from the date the employee started working, unless it is covered by an
apprenticeship agreement stipulating a longer period. The services of an
employee who has been engaged on a probationary basis may be terminated for a just
cause or when he fails to qualify as a regular employee in accordance with reasonable
standards made known by the employer to the employee at the time of his
engagement. An employee who is allowed to work after a probationary period shall be
considered a regular employee”.

5
TESDA Circular 38, Series of 2023

61
Should a learner require a longer period of training, this can be done in agreement with the
stakeholders based on the requirements needed by the industry. This is precisely one of the
functions of the Tripartite Industry Boards in which the mandatory presence of labor sector
representatives is highly recommended. Such representation freely expresses its concerns on
the length of training, remuneration, among others, to prevent exploitation.

Scanning the tripartism policy of the state, Industry Board (IB) is the only body that can hold the
responsibility for the final determination of industry standards. It is suggested therefore the
law-mandated IB shall recommend it to the Industrial Peace Council (ITC) then ultimately to the
National Tripartite Industrial Peace Council (NTIPC) for policy issuances.

EBT AND APPRENTICESHIP

Further to the discussion of Enterprise-Based Training and Apprenticeship Program, it remains

the least popular modality in TVET.

Based on available data, it consistently has the lowest graduates as compared to

community-based training (CBT) and institution-based training (IBT) from 2014 to 2022.

TESDA AS CABINET-LEVEL DEPARTMENT

Based on various available readings, elevating TESDA to a cabinet-level department has the
potential to strengthen the institutional framework for technical education and skills
development in the country, leading to improved outcomes in terms of workforce development,
economic growth, and social progress. This signals the greater government’s recognition of the
importance of technical education and skills development in the national development agenda.
This elevation would likely lead to increased attention, resources, and priority being given to
TVET initiatives, ensuring that they receive the necessary support for their effective
implementation and expansion.

Just a few concerns, however. First, the proposed bill/s calls for the abolition of the TESDA
Board. While it may be true that regular line departments have no stakeholders’ boards
presence in their organizational structure, the proposed DTESD can create a national
consultative body just like in the mold of National Tripartite Industrial Peace Council (NTIPC) of
the Department of Labor and Employment (DOLE) and Advisory Board in the case of
Department of Migrant Workers (DMW). Since it already has Industry Boards (regional and
industry), a national quadripartite body represented by the government, industry, academe, and
workers, is justifiable. This body, as long as it will be represented by experienced sectoral
representatives, it could provide expertise, guidance, and feedback to the DTESD on matters
related to technical education and skills development.

TESDA as a cabinet-level department, it further strengthens the government's recognition of

the importance of technical education and skills development as reflected in all national
development agendas. This elevation would likely lead to increased attention, resources, and
priority being given to TVET initiatives, ensuring that they receive the necessary support for
their effective implementation and expansion.

62
 And second, the qualifications of undersecretaries and assistant secretaries should be clearly
outlined in the law. For a start, top executive officials must be appointed based on their
expertise and qualifications to handle TVET concerns and not due to political consideration.

IMPACT OF SCHOLARSHIP PROGRAMS

Reading on the impact of scholarships on employment and earnings6, the undersigned took
note that Training for Work Scholarship Program (TWSP) has a positive impact on employment
with 72.9%. However, the same also stated that TWSP has no impact on earnings. According
to the said study, it only earns an average of PhP12,747 a month.

On the other hand, the average earnings for trainees of Special Training for Employment
Program (STEP) and Private Education Student Financial Assistance (PESFA) are averaging
PhP11,270 a month and PhP 10,241 a month, respectively.

While TESDA boasted that TVET sector posted an employment rate of 84.72%7 in 2022, the
NTESDP 2018-2022 report shows however that from 2010 to 2014, TESDA graduates earned
only PhP10,000 per month on average8.

NTESDP 2023-2028 on the other hand offered no latest figures data on monthly average salary
for TESDA graduates from 2015-2022.

Senator Joel Villanueva, an EDCOM 2 Commissioner, observed that most of the TESDA
graduates are earning below minimum wage. "If this trend will continue to go on, we're only
allowing them to land jobs below minimum wage and there's no way that we can help them to
get out of poverty", Villanueva said during the hearing of the Senate committee on finance on
TESDA's proposed 2024 budget9.

It is not surprising that there are 5.11 million Filipinos are looking additional income10.

RECOMMENDATIONS FROM THE LABOR SECTOR

On Employability:

1. Increased employability of Filipino workforce by aligning developmental objectives for

basic, TVET, higher education and professional development based on labor market
requirements;

2. Innovate contents of training standards, modules and curricula based on emerging

in-demand, and hard to fill occupations in identified key employment growth sectors
(Labor and Employment Plan);

3. Constantly reinforce core employability skills in basic and higher education and TVET;

6
Page 200, Technical and Vocational Education and Training in the Philippines in the Age of Industry 4.0 (March 2021)
7
2022 Study on Employment of TVET graduates (SETG), January 6, 2023
8
Page 35, NTESDP 2018-2022
9
Press Release, September 13, 2023
10
September 2023, Philippine Statistics Authority

63
 4. Develop modern and responsive TVET and apprenticeships and professional
development interventions aligned with emerging trends or demands from the industry,
including green skills and green jobs;

5. Establish skills assessment mechanisms and certification programs to recognize prior

learning;

On Shared Labor Governance:

1. Forecast areas of industries, including the formulation of employment roadmaps in key

employment growth sectors, to enable the workers and employers to strategically
adapt to the effects of technological change, climate change, green technologies and
situations of conflict;

2. Intensify advocacy support of government and social partners through skills

development programs to promote a sustainable environment and just transition’

3. Mainstream gender and green competencies in training standards, modules, and

curricula;

4. Ensure representation and participation in tripartite mechanisms are genuine, inclusive

and gender-responsive, including representation to the Philippine Qualification
Framework and Philippine Skills Framework bodies.

On Effective Participation in Social Dialogue and Tripartite Processes Toward Better Informed,
Consensus-Driven Policies and Decisions:

1. Ensure genuine and competency-based representation of workers and employers in

policy- and decision-making bodies like the Industry Boards. Thus, recall the TESDA
Circular 38, Series of 2023, and strictly implement of Section 26 of TESDA Act of 1994;

2. Should the bills passed into law, convert TESDA Board into a national advisory board
in the mold of DOLE’s National Tripartite Industrial Peace Council (NTIPC) and DMW’s
Advisory Board;

3. Provide and enhance capacity-building programs for employers’ and workers’

representatives in policy- and decision-making bodies within TESDA.

64
 CONCLUSIONS
AND CONSOLIDATED
RECOMMENDATIONS
IV. CONCLUSIONS AND CONSOLIDATED RECOMMENDATIONS
The perspectives and findings from the academe, industry and labor sectors show many commonalities
which led to several similar recommendations. The imperative for TESDA to navigate the evolving
landscape of digitalization and artificial intelligence is clear. This review has meticulously examined
TESDA's current framework, identifying both its strategic alignment with DOLE and the inherent
operational challenges it faces. The recommendations put forth—ranging from organizational
restructuring to embracing digital and AI technologies in training programs—underscore a holistic
approach to reform. These are consolidated below as action points that TESDA can adopt and
implement:

In terms of direction setting, the perennial problem of jobs-skills mismatch can be resolved by adopting
an industry-led course development and assessment strategy. An intensified and structured
academe-industry-government collaboration or partnership through the creation of Industry TVET
Boards can fast-track the development and updating of competency standards and training regulations
that are area-based and demand-driven. This will also allow industry to innovate and adopt technology
especially for emerging skills and industries.

On the intermediate, TESDA must recall Circular 38, Series of 2023 and issue a new issuance
mandating the same to ensure the participation of workers’ representatives in the ITBs based on the
provisions of TESDA Act. Only TESDA can convene the ITBs and invite representatives from industry
associations, workers’ union or associations, academe, and other stakeholders, as board members.

Board members shall be appointed by TESDA Director General with a certain term limit and must be
nominated by their respective sectors. Since TESDA is currently an attached agency of the Department
of Labor and Employment (DOLE), the Secretary, being the Chairperson of TESDA Board, may call for
a request to nominate Industry TVET Board members from appropriate industry associations and
industry workers’ associations or unions.

TESDA should adopt a progressive lifelong learning pathway for learners that will create a holistic,
flexible and multi-facetted technical education and skills development program and streamline and align
TESDA programs or courses with DepEd and CHED. The pathway should incorporate policies on
micro-credentialing, recognition of prior learning, ladderization as well as the rationalization and
adoption of enterprise-based or related training such as apprenticeship, internship, dual training
and OJT that would clearly define the length of training, remuneration, among others, to prevent
exploitation. Furthermore, training contents should not only be limited to competency-based core skills
development but a more holistic outcomes-based education that will include soft skills and 4IR
competencies in digital skills, AI and other emerging technologies.

Furthermore, in compliance with the Philippine Development Plan and National Climate Action Plan,
TESDA can fast track the development and roll out of training regulations of green skills as industries
shift to more sustainable practices and a growing demand for workers skilled in green technologies,
renewable energy, sustainable agriculture, and eco-friendly construction. TESDA needs to ensure that
the workforce is equipped with these skills to meet market demands and support economic growth.

Green skills training can create new job opportunities, particularly in emerging sectors like renewable
energy, waste management, and sustainable tourism. These sectors often offer inclusive opportunities
for marginalized communities, helping to reduce poverty and improve social equity.

By accelerating green skills training, TESDA can help the Philippines remain competitive by fostering
innovation and ensuring that its labor force is ready to participate in the green economy.

65
Building on that, TESDA must continue its program on promoting gender equality in technical and
vocational education and training (TVET). This includes ensuring that women have access to
scholarships and training programs that can help them enter and succeed in the fields where they are
underrepresented, such as engineering, construction, information and communication technology (ICT),
and other technical fields. These are often high-demand but hard-to-fill jobs due to the lack of skilled
workers.

To further ensure that progression of lifelong learning is achieved, a comprehensive labor market
information should be put in place with the objective of consistently updating and monitoring the job
market (both local and international), the evolving and emerging skill requirements of industries, the
absorptive capacities of TESD providers and most importantly the employability and compensation
rates of TESD graduates in relation to their training programs.

These directions can be better achieved by TESDA if it were upgraded to a department level instead of
just being an attached agency of DOLE. Such an upgrade will not only elevate its status to be at par
with DepEd but will also enable it to access more funds from the national government and allocate a
bigger budget for reorganization and scholarship grants. Accordingly, TESDA can rebrand TESD as an
integrated program of higher education and not merely a training program that leads to a dead-end
low-paying career.

Additionally, TESDA’s elevation to department status will enhance TESDA's capacity to support the
integration of the informal sector into the formal economy through targeted upskilling and reskilling
programs. By becoming a full-fledged department, TESDA will be better positioned to address the
comprehensive needs of the workforce and prepare the Filipino labor market for the 5th Industrial
Revolution, ensuring inclusive and sustainable economic growth.

Adapting to digital transformation is not merely about updating technical curricula; it involves a
paradigm shift in how vocational education is conceptualized, delivered, and assessed. This entails a
significant enhancement of TESDA's organizational agility, enabling it to rapidly respond to emerging
industry demands and technological advancements. Moreover, fostering robust partnerships with
industry stakeholders and leveraging AI for more sophisticated assessment and certification processes
are pivotal strategies for ensuring that Filipino workers remain competitive in the global job market.

Part of its reorganization strategy can also include an increase in plantilla positions in the provincial
and regional offices in order to constantly monitor the delivery of quality TESD by providers and the
updating of the area-based and demand-driven TESD requirements. The rebranding strategy can
also be delegated to a marketing unit which can be created to also manage the labor market
information.

To maximize TESDA's potential, it is recommended that TESDA transition into a regulatory and
development body, divesting its direct training functions to the private sector. This strategic shift will
allow TESDA to concentrate on high-level strategic planning, regulation, and development of technical
education. By fostering public-private partnerships and incentivizing private sector participation in
training provision, TESDA can leverage the agility and expertise of the private sector to deliver
innovative and specialized training programs. Furthermore, the processing and monitoring of
scholarship grants can be devolved to a third party provider such as PEAC in order to mitigate
possible politicization and corruption in the distribution of these grants as well as the equitable access
to qualified and deserving learners.

66
In the area of internationalization, TESDA should study common themes and successful models in the
ASEAN region to adopt best practices and innovate its TVET programs. Evaluating strengths and
weaknesses of the NSTVET across ASEAN will help identify areas for improvement and collaboration
as understanding threats and opportunities within NSTVET systems is crucial for strategic planning.
Exploring the structure and responsibilities of qualification authorities in ASEAN can refine TESDA’s
frameworks, while examining national qualification frameworks can enhance its own. Focusing on
recognition, validation, and accreditation of learning processes ensures quality and credibility.
Additionally, TESDA should advocate for a rotational leadership model within the ASEAN TVET Council
to foster shared responsibility and a collaborative environment for innovation and best practice sharing.
Given the complexity and scope of these initiatives, elevating TESDA to a full- fledged executive
department would enhance its capacity to effectively coordinate and implement these strategic actions,
ensuring a more integrated and responsive approach to workforce development.

These recommendations can be incorporated in a roadmap that can ensure that all the elements of an
effective and efficient TESD program will be in place and TESDA can achieve its mandate of
developing a workforce that can fuel the economic growth and prosperity of the country. As we look
ahead, the successful implementation of these recommendations will require not only visionary
leadership and commitment from TESDA but also concerted support from governmental and
non-governmental partners. Together, these efforts will forge a pathway towards a future-ready
workforce capable of driving sustainable economic growth and innovation in the Philippines. By
embracing innovation, fostering partnerships, and prioritizing the needs of both learners and employers,
the Philippines can harness its demographic advantage and unlock the full potential of its workforce in
the evolving global economy. Through sustained commitment and collective action, the nation can build
a future where every individual has the opportunity to thrive and contribute to a prosperous society

67
REFERENCES
 REFERENCES

Oak, M. (2008). Beliefs about the Purpose of Education. Retrieved from

http://www.buzzle.com/articles/beliefs-about-the-purpose-of-education.html

Garcia, A.M.D., Cuello, R.O. (2010). Educational Technology Research and Development. Washington:
Dec. 2010. Vol. 58, Iss. 6; pg.781, 10 pgs.

Gupta, D. R. (2011). Education and Employability. Copyright 2011 Elets Technomedia Pvt. Ltd.,
distributed by Contify.com. Noida: Mar 2011. Retrieved April 4, 2011, from ProQuest Digital
Learning (Document ID: 2292358411).

Bago, A.L. (2008). Social Dimensions in Philippine Education. Valenzuela City: Bookchoice Publishing.

Bago, A.L. (2005). Supervision of Instruction: The Philippine Perspective. Manila: De La Salle
University Press, Inc.

Dewey, John. Theory & Impact | What is John Dewey's Philosophy of Education? Retrieved from
https://study.com/academy/lesson/john-dewey-on-education-impact-theory.html

PBED, The State of Philippine Education Report 2023

MISEDUCATION: The Failed System of Philippine Education, EDCOM II YEAR ONE REPORT 2023

NATIONAL TECHNICAL EDUCATION AND SKILLS DEVELOPMENT PLAN NTESDP 2023- 2028

NATIONAL TECHNICAL EDUCATION AND SKILLS DEVELOPMENT PLAN NTESDP 2018-2022

Asian Development Bank. (2021). Technical and Vocational Education and Training in the Philippines in
the Age of Industry 4.0.

Palmer, R. (2018). Job and Skills Mismatch in the Informal Economy. Geneva: International Labor
Office.

Technical Education and Skills Development Authority. (2018). National Technical Education and Skills
Development Plan 2018-2022. Taguig City.

Technical and Vocational Education and Training in the Philippines in the Age of Industry 4.0, March
2021

TESDA Circular 38, Series of 2023

Belinda de Castro, Yiqiaochu Cheng, Jolina Lae Montenegro, Jyanne Pelmonte: The consequences of
education mismatch and skills mismatch on employee’s work productivity, December 2015.

2022 Study on Employment of TVET graduates (SETG), January 6, 2023

September 2023, Philippine Statistics Authority

68
 PHOTO
DOCUMENTATIONS
 PHOTO DOCUMENTATIONS

MEETINGS BETWEEN TESDA AND THE PANEL MEMBERS

● Independent Review Panel (IRP) 3 Oathtaking with DG Danilo P. Cruz

15 February 2023
ODG Conference Room, 7th Floor, TESDA Main Building

● Technical Briefing with Planning Office on the Roles & Responsibilities of the IRP 3
Members
22 February 2023
Via Zoom Conference

● Technical Meeting with Planning Office on the Scope of Review and Formulation of
Design of Framework
17 March 2023
Planning Office OED Conference Room, 6th Floor, TESDA Main Building and Via Zoom
Conference
● Technical Meeting with Planning Office on the Finalization of the Design of the
Framework of Review
03 April 2023
Planning Office OED Conference Room, 6th Floor, TESDA Main Building
● Courtesy Call and Presentation of Evaluation Framework and Work Plan to Secretary
Suharto T. Mangudadatu and to the DDGs
04 July 2023
OSEC Function Room, 7th Floor, TESDA Main Building

● Pre-Focus Group Discussion with Labor Sector Members convened by RP Member Mr.
Danilo Laserna
20 July 2023
Planning Office OED Conference Room, 6th Floor, TESDA Main Building
● Interview with the Regional Operations Management Office (ROMO) regarding the
process of scholarship provisions convened by RP Member Dr. Antonio Del Carmen
21 July 2023
Planning Office OED Conference Room, 6th Floor, TESDA Main Building

● Technical Meeting with Planning Office: Revisiting TESDA’s Programs, Activities and
Projects (PAPs) Matrix
21 July 2023
Via Zoom Conference

● Technical Meeting with Planning Office: Distribution of Tasks based on the identified
PAPs of all TESDA Offices
10 August 2023
Via Zoom Conference

● Conduct of Online FGD with selected Labor Group Representatives convened by RP

Member Mr. Danilo Laserna
18 September 2023
Via Zoom Conference

● Focus Group Discussion with TESDA Central Office Representatives from Partnership
and Linkages Office (PLO) and Certification Office (CO) convened by RP Member Dr.
Antonio Del Carmen
10 November 2023
Planning Office OED Conference Room, 6th Floor, TESDA Main Building
● Presentation of Initial Findings and Recommendations by Sector
28 February 2024
Planning Office OED Conference Room, 6th Floor, TESDA Main Building
● Presentation of Draft Report to Secretary Mangudadatu and DDGs
19 June 2024
OSEC Function Room 2, 7th Floor, TESDA Main Building
● Technical Meeting with Planning Office on the Finalization of the Report based on the
previous Meeting
03 July 2024
Via Zoom Conference
● Technical Meeting with the Planning Office on the Finalization of the Review Report
15 August 2024
Via Zoom Conference
MEETINGS CONDUCTED BY THE REVIEW PANEL MEMBERS

● IGNITE AsiaPacific Conference: Bridging the TechVoc Skills Gap for Future-Ready
Workforce
11 April 2024
PLDT Hall, 4F APEC Communications Building University of Asia and the Pacific
● PCCI Education Committee Meetings
● Education Summit 2024 in Bacolod

● Education Summit in Cagayan De Oro (CDO)

● Meeting with UNITVET and private TVIs