REDEFINING “QUALITY” IN PHILIPPINE HIGHER EDUCATION:
POLICIES AND CHALLENGES
Christian Bryan S. Bustamante, Ph.D.
San Beda College, Manila, Philippines chrisbrye@yahoo.com/brye0811@gmail.com
following reasons: (1) to protect students and other
ABSTRACT stakeholders from low-quality provision and This paper analyzes the challenges to Philippine higher disreputable providers; and (2) to encourage the educational institutions by the education policy reforms implemented by the Philippine government. The primary development of quality cross-border education that aim of these policies is to enhance the quality of tertiary meets human, social economic and cultural needs education align with competency-based standards, outcome- [2]. The emergence of worldwide labor market based education, and international standards. These policies and the growth of cross-border higher education set higher minimum standards and redefines “quality” by give higher education no option but to improve the mandating tertiary educational institutions to shift to outcomes-based and student-centered teaching and learning, delivery of quality educational services and to giving importance on faculty research and publication, implement quality assurance systems. requiring international accreditation of programs, and Based on these global developments, the emphasizing community extension program that is relevant requirement for higher education to improve to the learning and development of students as well as social quality is not only rooted on its critical role in development of communities. As such, said policies posed great challenges to tertiary educational institutions in terms economic development or in achieving national of instruction, research, community extension, and development goals. It is not only rooted on its governance. The institutions’ talents, resources and funding positive contribution to developing countries to need to be calibrated in order to adapt to national and become “more globally competitive by international changes. developing a skilled, productive, and flexible labor force and by creating, applying, and Keywords: Education policy, Competency-based, Outcomes-based, spreading new ideas and technologies” [11]. It is rooted on its own survival and desire to excel. Quality assurance is an imperative for higher I. INTRODUCTION education to survive, to be competitive and to Quality assurance is a major concern of excel. academic institutions across the globe [14]. This In our case, Southeast Asian nations are increasing and growing concern on quality grappling to implement quality assurance systems assurance is caused by the significant changes in in higher educational system in order to achieve the global environment that have direct impact on the goal of ASEAN Community 2015 to become a the role, functions, shape and mode of operation of “single market and production base, a highly tertiary educational institutions and systems [1]. competitive economic region, a region of The World Bank identifies (1) the emergence of equitable economic development, and a region worldwide labor market, (2) increasing importance fully integrated into the global economy” [13]. of knowledge as a driver of growth, and (3) the Higher education plays a critical role in achieving information and communication revolution among this goal. In number 10, Article 1, Chapter 1 of the global phenomena that are continuously the ASEAN Charter, it states one of its main shaping and changing tertiary education [1]. purposes in the following terms: Another significant change in the global To develop human resources through closer environment that directly influenced quality cooperation in education and life-long learning, assurance is the growth of cross-border higher and in science and technology, for the empowerment of the peoples of ASEAN and for education [2]. Quality assurance is critical in the strengthening of the ASEAN Community cross-border higher education because of the [5]. Based on this provision, education plays the value and comparability of Philippine utilitarian role, for it is a means to develop human qualifications. resources, empower peoples, and strength the EO No. 83 created the PQF National Coordinating ASEAN Community. Because of this, the Committee to be chaired by the Secretary of the Blueprint for the ASEAN Socio-Cultural Department of Education (DepEd) and with the Community (ASCC) lays down certain provisions following members: a) Technical Education and on education in order to achieve the “ASEAN Skills Development Authority (TESDA); b) goal of being a people-centered and socially Commission on Higher Education (CHED); c) responsible regional community”[5]. The specific Department of Labor and Employment (DOLE); provisions that call for the improvement of the and d) Professional Regulations Commissions quality and adaptability of education (Section II, (PRC) (Section 2). The said Committee is tasked A1.ii), the promotion of education networking in to “issue the Implementing Rules and Regulations various levels of educational institutions, and the of the PQF, provide regular feedback on the support for student and staff exchanges and progress and accomplishments to the Office of the professional interactions including creating President with respect to the implementation” of research clusters among ASEAN institutions of the EO No. 83 (Section 3) and to incorporate an 8 higher learning (Section II, A1.v) directly entail level Qualifications Descriptions in the PQF the need for quality assurance [5]. defined in terms of the following: knowledge, skills and values, application, and degree of II. THE PHILIPPINE POLICY independence (Section 5). Furthermore, EO No. DIRECTIONS ON QUALITY 83 mandated the DepEd, TESDA, and CHED to ASSURANCE make “detailed descriptors for each qualification The Philippine government level based learning standards in basic education, implemented policies to address the global competency standards of training regulations, and and regional demand for quality education. the policies and standards of higher education These policies changed the quality academic programs” (Section 6). Lastly, the PRC standards set by the government. and CHED were also tasked to review the “framework and contents of the licensure A. The Philippine Qualification Framework examinations of each of the profession and align On the 1st of October 2012, the them with the PQF” (Section 7). Office of the President issued Executive Based on the “whereas portion” of EO No. Order No. 83 (EO No. 83) that established 83, the PQF is vital for the improvement of the the Philippine Qualification Framework quality of the educational system. It recognizes (PQF). In Section 1, the objectives of the the role of quality education in the achievement of PQF are stated as follows: “growth, creation of employment opportunities 1. To adopt national standards and levels for and poverty reduction.” The PQF is also critical outcomes of education; in addressing the gaps between “education and 2. To support the development and labor sectors brought about by poor information” maintenance of pathways and equivalencies and the “continuing disconnect between which provide access to qualifications and educational institutions and employment/industry assist people to move easily and readily trends which has brought about the mismatch in between the different education and training jobs and skills.” The establishment of the PQF sectors and between these sectors and the will benefit the various sectors and stakeholders labor market; and 3. To align the PQF with international of education and training by: qualifications framework to support the 1. Encouraging lifelong learning of national and international mobility of individuals; workers through increased recognition of 2. Providing employers specific training educational institutions, graduates, and standards and qualifications that are aligned professionals. to industry standards; The CMO 46 defines quality as the 3. Ensuring that training and educational “alignment and consistency of the learning institutions adhere to specific standards and environment with the institution’s vision, mission, are accountable for achieving the same; and and goals demonstrated by exceptional learning 4. Providing the government with common standards, taxonomy and typology of and service outcomes and the development of a qualifications as bases for granting culture of quality” (Article II, Section 6). This approvals to stakeholders. definition of quality requires that the academic Quality of education is defined in the PQF institution must be able to translate its vision, as conforming to national standards, achieving the mission and goals into learning outcomes, levels of educational/learning outcomes, and programs, and systems (Article II, Section 6). aligning with international qualifications and The vision, mission and goals are the reason for standards. Quality of education is not only the existence of an institution. It is its soul. It is measured in terms of employability and the source of its philosophy. As such, the vision, opportunities of graduates, performance in mission and goals make an institution distinct. It licensure examination, but also in terms of the is, therefore, essential for an institution to international mobility of students, graduates, and translate its vision, mission and goals into teaching staff as well as international recognition learning outcomes, programs, and systems. The of the programs, learning outcomes, and learning environment, interaction, and practices educational qualifications. must be anchored on the vision, mission and goals. Secondly, quality entails having B. Outcome-Based and Typology-Based Quality “exceeding very high standards” or “conformance Assurance to standards” (Article II, Section 6). The The Commission on Higher Education programs, outcomes, systems, and practices of an (CHED) issued Memorandum Order No. 46 educational institution must conform to very high (CMO 46) on the 11th of December 2012. It is national and international standards. It must entitled as “Policy-Standard to Enhance Quality measure its quality based on the requirements of Assurance (QA) in Philippine Higher Education certain standards that govern a particular Through an Outcomes-Based and Typology- discipline, profession, and system. It is important Based QA.” The “reality of an ASEAN for an institution to update itself of the national community by 2015,” Philippine government’s and international trends and to be able to adapt to commitment to the “evolving efforts to recognize these trends and changes for its continuous and develop a system of comparable existence and to sustain excellence. Lastly, qualifications, degrees, and diplomas across the quality also means “developing a culture of Asia-Pacific region,” and the “acceptance of quality” (Article II, Section 6). Quality is not a internationally-agreed-upon frameworks and means to achieve higher goals, it is in itself a goal mechanisms for the global practice of to be achieved and realized. It is an on-going professions” (Article 1, Section 5) are some of the process that educational institution deliberately reasons cited for the issuance of the new practices; and as a process, it entails innovation or Memorandum Order and for the need to focus on continuous improvement. quality and quality assurance. Quality assurance, Quality assurance is defined by CMO 46 therefore, is not only meant to improve the quality as the establishment of mechanisms, procedures of programs and graduates, improve the quality and processes in order to deliver the desired life of the Filipinos, and address the problem and quality (Article II, Section 7). Quality constitutes scandal of poverty. It is also vital in the an internal system that begins with the international standing of Philippine higher educational institution’s vision, mission and goals and “enters a quality cycle of planning, implementation, review, and enhancement” lead to those outcomes” (Article III, Section 16). (Article II, Section 8). It also constitutes external This approach assesses programs based on the system that refers to organizations or agencies existing policies, standards, and guidelines of the such as accrediting bodies and government discipline. It assesses programs “at the level at agencies (in the case of the Philippines, the which the inputs, methods, and execution produce CHED) that assist the academic institution in the desired learning competencies for the achieving quality and evaluating quality (Article graduates of that program as determined by the II, Section 9). Based on the CMO 46, the Technical Committees/Technical Panels and as approach to quality by the CHED is measured by appropriate assessments” [17]. The developmental, because of its goal to assist higher second approach is an “audit of the quality educational institutions to develop a culture of systems of an institution, to determine whether quality (Article II, Section 10). these are sufficiently robust and effective to Consistent with its definition of quality as ensure that all programs are well designed and the ability of educational institution to translate its deliver appropriate outcomes” (Article III, Section vision, mission and goals into exceptional 16). This approach ensures that the whole learning outcomes, programs and systems, CMO institutional systems are functioning properly in 46 strongly advocates a shift from a teaching- order to achieve the intended learning outcomes. centered paradigm to student-centered paradigm.1 In this approach, the “vision and mission of the It explains that in the student-centered paradigm, institution” must provide guidance to its “students are made aware of what they ought to “definition of desired outcomes, especially its know, understand and be able to do after graduates’ competencies and qualities” [17]. The completing a unit of study” [17]. Furthermore, program and institutional approaches in the student’s learning activities and assessment are outcomes-based evaluation ensure that “subsequently geared towards the acquisition of educational institutions offer programs that met appropriate knowledge and skills and the building national and international standards and equipped of student competencies” [17]. The focus of with functional and operational systems that will attention on this paradigm is the “students and the effectively and efficiently deliver the desired process that will enable the development and learning outcomes. Furthermore, these programs assessment of their learning competencies as and the systems that support the achievement of defined by disciplinal and multi-disciplinal learning outcomes are aligned with the vision, communities of scholars and professional mission and goals of educational institutions. practitioners” [17]. In this context, the Hence the evaluation of outcomes-based “development of learning competencies” is the education is not only external but also internal. “expected outcomes of higher educational Quality, in other words, is not only determined programs” [17]. Competencies refer to the externally by following standards but also identified and operationalized “outcomes that internally by crafting and implementing programs bridge the gap between education and job and systems that are aligned with the institution’s requirements” [17]. Competencies also refer to vision and mission. “thinking, attitudinal and behavioural CMO 46, consistent with its notion of competencies as well as ethical orientations” [17]. quality, also creates a typology-based quality CMO 46 adopts two approaches in the assurance. The typology based quality assurance outcomes-based evaluation. The first approach is takes into consideration the uniqueness of each a “direct assessment of educational outcomes, educational institution as evidenced by their with evaluation of the individual programs that differences in vision and mission. It enhances “quality assurance and improve higher education 1 See the Guidelines for the Implementation of CMO 46 Series system,” because it replaced the “existing one- of 2012 on the Policy-Standard to Enhance Quality Assurance (QA) in size-fits-all QA system” (Article IV, Section 18). Philippine Higher Education Through Outcomes-Based and Typology- Based QA. Please refer to “Reference 17.” The existing one-size-fits-all QA system “imposes a common set of quality indicators for all imagined/virtual community it serves” [17]. The Philippine higher educational institutions nature of the linkages and outreach programs regardless of their mission” (Article IV, Section required are also different. Program linkages in 18). Such system results to inefficiencies, crisis the Professional Institutions must be relevant to of purpose, lack of focused of higher educational the professional development of the students institutions; and it presumes that academic while outreach programs must develop in them excellence is achievable only by universities the value of service [17]. On the other hand, (Article IV, Section 18). Colleges outreach programs must be “relevant in The typology-based quality assurance is geographic or special communities towards which horizontal and vertical. The horizontal typology- the College mission is oriented” and such based is made up of three types of higher programs “allow students to contextualize their educational institutions that are differentiated knowledge within actual social and human according to “(1) the qualifications and experiences” [17]. Both institutions are required corresponding competencies of their graduates; to have a core of permanent faculty members (2) the nature of the degree programs offered; (3) which possess the relevant educational and the qualification of faculty members; (4) the types professional qualifications and to have learning of available learning resources and support resources and support structures that are structures available; and (5) the nature of linkages appropriate to the institution’s technical or and community outreach activities” (Article V, professional programs [17]. Section 22). The first type of higher educational The third type of institutions is the institution is the Professional Institutions. This Universities. Such institutions “contribute to type of institutions “contribute to nation building nation building by providing highly specialized by providing educational experiences to develop educational experiences to trains experts in the technical knowledge and skills at the graduate and various technical and disciplinal areas and by undergraduate levels which lead to professional emphasizing the development of new knowledge practice” (Article V, Section 23.1). The second and skills through research and development” type of institutions is the Colleges. These (Article V, Section 23.3). Universities are institutions “contribute to nation building by expected to train students as future professionals providing educational experiences to develop and/or researchers. Academic degree programs, adult who have the thinking, problems solving, graduate and undergraduate, must be research decision-making, communication, technical and oriented. At least twenty percent of full-time social skills to participate in various types of faculty members must be actively engaged in employment, development activities and public research. Research activities are essential discourses, particularly in response to the needs of component of linkages and outreach programs the communities they serve” (Article V, Section must allow students, faculty members, and 23.2). research staff to apply new knowledge [17]. The first two types of institutions differ in The vertical typology-based quality terms of programs offerings. Professional assurance refers to the “classification of higher institutions are expected to have at least 60% of educational institutions according to the three the academic degree program offerings are in the elements of quality: (1) the alignment and various professional areas and 70% of the consistency of the learning environment with the graduate and undergraduate enrolment is in the institution’s vision, mission, and goals; (2) said degree programs [17]. For Colleges, on the demonstration of exceptional learning and service other hand, at least 70% of undergraduate outcomes; and (3) the development of a culture of programs have a “core curriculum that develops quality” (Article VI, Section 24). There are three thinking, problem solving, decision-making, types of higher educational institutions based on communication, technical, and social skills in the vertical classification. The first type is the with its mission and vision and the geographic or autonomous higher educational institutions. These are the institutions that “demonstrate experience is required as an essential component exceptional institutional quality and enhancement of teaching pedagogy. Students must be through internal QA systems, and demonstrate introduced to higher-level reading, research, and excellent program outcomes through a high writing. proportion of accredited programs, the presence The competencies identified and defined of Centers of Excellence and/or Development, in the new curriculum will provide students a “set and/or international certification. Deregulated of learning competencies” that will enable them to higher educational institutions are the second type perform their duties and responsibilities of institutions. These institutions “demonstrate independently, and at the same time enable them very good institutional quality and enhancement to “sustain and expand capabilities and to acquire through internal QA systems, and demonstrate new knowledge and skills over time”[6]. In other very good program outcomes through a good words, it will not only make them productive in proportion of accredited programs, the presence their chosen profession but also provide them the of Centers of Excellence and/or Development, enabling knowledge and skills that will make and/or international certification.” The last type them life-long learners. For example, they have of institutions is the regulated higher educational to “understand basic concepts across the domains institutions. These are the institutions that “need of knowledge” and at the same time apply the to demonstrate good institutional quality and “different analytical modes” in “tackling program outcomes” (Article VI, Section 25). problems methodically.” That is why, it is The horizontal and vertical typology-based essential that they should possess “critical, quality assurance gives emphasis on internal analytical, and creative thinking” skills. quality assurance system, local and international Learning competencies are also called accreditation of programs, national and learning outcomes. Learning outcome is defined international linkages and outreach programs, and by Spady as “a culminating demonstration of student and faculty research and publication. learning: it is what the student should be able to These different components are vital for higher do at the end of the course”[7]. Outcome is educational institution to assure the public of its different to learning objective, because the latter commitment to quality education. refers to what the student should have learnt at the end of the course while the former refers to what C. The New General Education Curriculum and the student should have performed at the end of the K to 12 Curriculum the course [9]. The set of competencies identified On June 28, 2013, the Commission on in the curriculum include learning outcomes that Higher Education issued the Memorandum Order are observable and demonstrable. For example, Number 20 (CMO 20) Series of 2013 entitled the “proficient and effective communication (writing, “General Education Curriculum: Holistic speaking, and use of new technologies);” Understandings, Intellectual and Civic “capacity to reflect critically on shared concerns Competencies.” It contains the new General and think of innovative, creative solutions guided Education Curriculum for higher education. by ethical standards;” and “working effectively in The new progressive general curriculum is a group.” aligned with CMO 46. It is evident on the design The intellectual competencies, personal of the new curriculum which is competency- and civic responsibilities, and practical skills that based, outcome-oriented and learner-centered. It are clearly defined and identified in the new identifies the competencies that the students or curriculum are not only meant to be graduates must possess as intellectual, personal comprehended by students but also intended to be and civic, and practical responsibilities. The performed and to be observed at the end of the achievement of these outcomes is vital for the course or program. holistic development of the student. In order to One of the key features of competency- achieve these competencies, authentic learning based education is the integration of “multiple components, including knowledge, skills, and that is heavily oriented to liberal education. The attitudes” [12]. Such is very clear in the design of Commission explains its decision to adopt liberal the curriculum as “interdisciplinary” and broad education framework as a result of the enough to “accommodate range of perspectives “complexity of life” and the “massive explosion and approaches.” Furthermore, in competency- of knowledge” that require a “big-picture based education learning strategies and thinking,” and no longer a “multiple-choice assessment methods are organized around the world.”2 The Commission further explains that to competencies identified and defined in the make sense of the complex world and massive curriculum; and there is an emphasis on “directed explosion of knowledge, the perspectives of self-learning and formative assessment” [12]. In students “must be grounded in home realities and other words, the teaching and learning strategies, securely anchored on a sense of personal and approaches, and assessment of a competency- national identity and self-understanding” [16]. based and outcome-oriented curriculum is For the students to be able to adapt to the student-centered. Student-centered learning is changing conditions in a highly complex and fast “about optimizing the opportunities for our phase world, their “horizons for understanding students to learn” [8]. It means “figuring out the humanity, life and the world today in all their best possible ways to get the students to work” diversity and complexity” must be broaden [16]. [8]. It is a “learning by doing” approach. They must be able to “conceptualize, reflect, Students are actively engaged for them to analyze, and create solutions in a collaborative optimize learning. The teacher does not way” and be able to “connect developments and monopolize the classroom. He/she shares the appreciate nuances beyond tailored responses to responsibility with his/her students. Student- longstanding problems that metamorphose over centered is related to authentic learning that time into new and possibly more injurious forms “allows students to explore, discuss, and [16].” meaningfully construct concepts and relationships The Philippine government approved into in contexts that involve real-world problems and law the K to 12 curriculum under the Republic projects that are relevant to the learners” [8]. It Act No. 10533 (RA 10533) known as the uses the methods utilized in the real world such “Enhanced Basic Education of 2013.” In the as, teamwork, collaboration, technology, and Implementing Rules and Regulations of RA professional presentation processes and solutions 10533, the basic education program is defined as [8]. In order to achieve the competencies as well kindergarten education (1 year), elementary as the desired learning outcomes of the new education (6 years), and secondary education (6 curriculum, it is implied that the teaching and years) (Rule 1, Section 6). The secondary learning design must be student- or learner- education consists of four (4) years of junior high centered where students learn actively as well as school and two (2) years of senior high school. learn by doing things that will make them The 2 years senior high school prepares students productive. not only to higher education but to work after The new curriculum is not only aligned completing the 6 years senior high school. The K with CMO 46. It is designed to be aligned with to 12 curriculum redefines basic education in the the K to 12 curriculum. The CHED explains that sense that it prepares students to work. Unlike the integration of the general education courses of before, basic education was only seen as higher education in the senior high school core preparation for higher education. courses of the K to 12 curriculum paved the way The K to 12 curriculum affects higher for the crafting of the new curriculum. Since education, and requires the latter to adjust, not almost all general education courses being taught only because of the integration of higher to current higher education students are integrated education general education course in the K to 12 in the new K to 12 basic education curriculum, the 2 See Appendix B: Rationale for Change in CHED Commission decided to craft a new curriculum Memorandum Order No. 20 Series of 2013. Please see “Reference 16." curriculum, but also because of the enhanced retraining of faculty on the new pedagogical design of the basic education curriculum. The approaches as well as on conducting research that enhanced basic education curriculum as defined is publishable. by law is learner-centered, inclusive, and Governance. Governance is vital in any developmentally appropriate; relevant, responsive institution. One of the challenges to higher and research-based; gender- and culture-sensitive; educational institution is the establishment of contextualized and globalized; constructivist, international quality assurance system. Self- inquiry-based, reflective, collaborative and regulation and deep-rooted tradition are valuable integrative. Furthermore, it adheres to the to academic institutions. To preserve its identity “principles and framework of Mother Tongue- and tradition, higher educational institutions must Based Multiligual Education (MTB-MLE)” and initiate its own quality assurance system. In uses the “spiral progression approach” (Rule II, instituting its own quality assurance system, it Section 10.2). Higher education needs to fine- must have control over the central elements of tune its pedagogical approaches in order to meet academic life, and these are: admission of the expectations of the new breed of graduates of students, the curriculum, the criteria for the award the K to 12 curriculum. of degree, the selection of the new members of the professoriate, and the basic direction of the III. CHALLENGES TO PHILIPPINE HIGHER academic work of the institution [3]. Higher EDUCATIONAL INSTITUTIONS educational institutions must regularly review its Higher educational institutions in order to curriculum in the light of the PQF, CMO 46, and adapt to the national and international other existing national and international standards. developments have no choice but to calibrate its They must have strong linkage with the industries systems and practices. Higher education to help them in the evaluation of curriculum and institutions need to attune its talent, funding, and in defining competencies that are significant to governance3 as a response to changes brought the industries. The criteria for the hiring, ranking about the new policies and by globalization of and promotion of faculty must also be stringent education. and attuned with the national and international Talent. Quality professors are of course standards. The strengthening of international central and vital to higher educational institutions linkages and collaboration in the areas of student [3]. Ideally, higher educational institutions must and faculty exchange program and local and be able to attract and retain the best academic staff international accreditation of programs are some by providing favourable working conditions, of the basic directions that academic institutions security of tenure, appropriate salaries and must undertake. These are critical in the benefits [3]. Higher educational institutions must development of its talents as well as in the also provide opportunities for professors to international acceptance and recognition of its conduct research and further develop as well as graduates, faculty, and programs. Quality is built share their scholarship. Hence, “academic on reputation and perception [10]; and freedom and an atmosphere of intellectual international linkages and accreditation are best excitement” [3] are critical in higher educational means to build reputation and perception as an institutions. Practically and philosophically, excellent higher educational institution. quality professors are not only in actuality, but Funding. The main challenge to all of also in potentiality. It is a challenge to all higher these innovations and changes is funding. Higher educational institutions to hire and retain quality educational institutions need adequate funding to academic and teaching staff. Hence, higher push and implement the reforms that they desire educational institutions must also invest in faculty in order to survive, to adopt, and to excel. In the development; particularly, in the retooling and case of the Philippines, government funding for 3 State colleges and universities is not enough. This is adopted from Salmi’s “three-sets-of-factors model.” Please see “Reference 11.” Private colleges and universities rely heavily on [11] tuition fees. Much of the budget is allotted to Salmi, J. (2011). “The Road to Academic salaries of the academic and non-academic staff. Excellence: Lessons of Experience.” The Funding for research and improvement of learning Road to Academic Excellence: The Making facilities and resources is a great challenge. of World-Class Research Universities Washington, DC: The World Bank. [12] REFERENCES Swing, S. R. 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