Footnote here and the utilization of lands for profitable ventures is now a more lucrative option for landowners. A third reason was the lack Coalitions for Change (CfC) of a clear set of policies and procedures to is a program of the Australian govern the purchase of land, even as it is one of the options indicated in the school Embassy and The Asia Foundation facilities manual. Partnership in the Philippines. MARI CHRYS PABLO, THE ASIA FOUNDATION To ease school congestion, DepEd CfC strategically supports the principals and staff have developed and development, introduction, adoption, implemented a range of stop-gap solutions. Overcrowded classrooms, a prevalent Coalitions for Change. This story outlines These include: splitting classrooms into and implementation of key policies problem for the Philippines, have a negative the process and challenges of achieving this two using wall dividers; splitting the classes consistent with the government’s impact on students’ learning. Almost four breakthrough reform. into morning, afternoon, and evening agenda on economic growth, million students (about 18 percent of the shifts; convincing students and parents to student population) attend congested take distance-learning classes or enroll in improved governance, public schools. In urban areas, some classes alternative learning schools that would and social development. hold as many as 100 students – well beyond not require daily class attendance. While the Department of Education’s (DepEd) there is currently no analysis on the impact prescribed 45 students per class. In those of these options on student learning in CfC creates spaces for collaboration, schools, students compete for space inside School congestion is primarily an urban the country, congestion adversely affects and outside the classroom. phenomenon. Many in DepEd recognize student learning and performance. strengthening coalitions and that the best solution is for DepEd to networks, civil society, private sector, In 2014, Coalitions for Change (CfC) began purchase land to establish new schools In 2014, CfC began an effort to find a more an effort to introduce institutional changes or expand existing ones. However, this permanent solution to school congestion. the government, academia, to improve the learning environment. solution to congestion had never been CfC met with a broad range of stakeholders and others to bring about In the first quarter of 2016, DepEd, with pursued for several reasons. One is to better understand the problem. These assistance from CfC, achieved a major DepEd’s focus. Classroom shortage has include meetings with DepEd staff, transformative change. breakthrough --- DepEd developed an been prevalent for so long that most of local government officials, civil society analytical system and procedures and DepEd’s attention and resources were organizations, parents, teachers, and issued guidelines to purchase a land parcel focused on this problem. In fact, it was only students. Working with these motivated to establish a new school. Previous efforts when the budget for classrooms increased groups and individuals, and significantly under President Benigno At one pivotal meeting, a high-ranking at purchasing land for new schools had armed with technical and political been ad hoc and arbitrary. By the end of Aquino III in 2011 did the lack of land DepEd official disclosed that a significant 2016, DepEd successfully purchased seven prominently surface. portion of DepEd’s budget for school analysis, CfC ushers in reforms that buildings and classrooms was not being parcels expected to accommodate about lead to sustainable and inclusive 28,000 students from congested schools. Another reason was the long-held belief utilized due to the lack of buildable space. In 2017 and 2018, DepEd continued to by some in DepEd that school properties Through succeeding consultations, CfC was development, improving the lives should not be purchased and rather acquire three and four parcels respectively able to pinpoint land shortage as the major of Filipinos. that can accommodate approximately donated by either the local government and prevalent issue for congested schools 16,380 and 12,700 students apiece. The or private individuals and organizations. in urban areas, especially in Metro Manila. purchase of these additional parcels However, the likelihood of private land represents the institutionalization of owners donating lands to DepEd has a reform, one of the principal goals of decreased with increasing land values, 1 Research on overcrowded schools in urban setting for developed countries indicate that congestion negatively affects student concentration as proximity (both with pupils and classrooms) invites more distractions. School congestion also limit the students’ access to non-class- room facilities such as laboratories, gymnasiums, and media centers critical for learning. CfC REFORM STORY NO. 4 | PAGE 04

to cases filed against then DepEd Secretary advantage of having developed an informal to address school congestion. CfC also Armin Luistro. These legal risks included coalition within DepEd, with civil society, met with then Finance Committee Chair the purchase of land that have questionable and in Congress to support DepEd’s land Senator Francis Escudero at the Senate. With the lack of land verified as the ownership or adverse claims. Lastly and as purchase option to decongest public major problem, the solution seemed earlier mentioned, there was a lack of policy schools. CfC focused on briefing key people The hard work of DepEd, CfC, and partners simple and straightforward: DepEd could and procedures for purchasing land to in Congress to understand the nature of paid off. The 2015 national budget included purchase land in areas where schools were guide DepEd staff, as such were done on an the problem and garner support for the a special provision for DepEd to acquire congested. But the number of offices ad hoc basis. Added to this policy gap, there reform. The CfC team worked with several land for new schools. The previous 2014 involved to make the land purchase made is a lack of clarity as to which DepEd office legislators including Representatives Oscar budget included a modest Php 65 million availing the solution more complex in would be responsible for managing the land Rodriguez (3rd district of Pampanga), Yeng (AUD 1.9 million) for land-related issues, reality. Follow up consultations on DepEd’s acquisition process. Guiao (1st district of Pampanga), Rufus traditionally used to cover the costs of fees land purchase surfaced that some believe it Rodriguez (2nd district of Cagayan de Oro), and title transfers of donated lands. The is the role of local governments to provide Ronaldo Zamora (lone district of San Juan), 2015 national budget gave DepEd Php 411 land to establish new schools. There was Isidro Ungab (3rd district of Davao City), million (AUD 12.2 million), a remarkable also an issue on budget ---- while there was and Kaka Bag-ao (lone district of Dinagat 532 percent increase from 2014, with a a line item for classroom construction, Fortunately, there were also strong Islands). The message communicated to specific earmark on the purchase of land for there was no line item for land acquisition supporters within DepEd including the these Congress allies was simple and two- DepEd-identified congested schools. for new schools. Third, some within DepEd Undersecretaries for Legal Affairs and fold: support the increase of allocation for also argued that this solution carried Regional Affairs and the Planning Office land in the DepEd 2015 budget and make considerable legal risks, which could lead of the land purchase solution. CfC had the land purchase for schools a viable solution CfC REFORM STORY NO. 4 | PAGE 06 CfC REFORM STORY NO. 4 | PAGE 04

Now armed with the special budget provision, the next challenge was to develop and issue rules that would guide the DepEd staff and safeguard the process. Towards this end, CfC assisted DepEd in organizing a series of meetings and consultations with its Sites Titling Office, Office of the Undersecretary for Regional Operations, and School Division Office of Quezon City. This led to the crafting and DepEd’s issuance of the Guidelines on the Acquisition of New School Sites in June 16, 2015.

To eliminate opportunities for discretionary decision-making by schools qualified to access the land purchase option, the rules outlined an objective and evidence- based process that primarily establishes a school’s need for land. Two key criteria were established. The first is the number of students per classroom and the second is the ratio of the number of students per square meter of land to determine if there was buildable space. Only schools that had 1) over 56 students per classroom and 2) land area ratio of three square meters (sqm) per student would be eligible for land purchase.

To help move away from the dominant donation-dependent practice, the order also further defined what constitutes a negotiated sale or purchase on school site acquisition. The other modes of acquisition Footnote here still include donation and expropriation, in accordance with Republic Act 8974, the law governing the Acquisition of Right-of-Way, Site, or Location for National Government Infrastructure Projects and for Other Purposes. CfC REFORM STORY NO. 4 | PAGE 08

With the rules issued, the next step was Based on DepEd estimates, the acquired to test the process and procedures. The school site can hold 60 new classrooms Quezon City Schools Division Office (QC to accommodate 2,700 students. The SDO) was selected to test the process of acquisition of the Novaliches property will site acquisition, having the most congested significantly reduce congestion in the two schools in the country. nearby schools of San Bartolome and Sta. Lucia High Schools. From March to August 2015, CfC assisted the QC SDO, visited potential school In November 2016, the acquired sites, compiled reports on the congestion school site was assigned a six-digit situation of the public schools, and gathered school identification (ID). This school ID documents required for the purchase. From is significant as the DepEd system now an initial list of 12 properties, QC SDO was acknowledges the Novaliches property able to successfully acquire a 2,500 sqm as a school and is included in the property in Novaliches, Quezon City for Department’s database. With the School Php 16.9 million (AUD 502,235) in January ID, the property is now eligible to receive 2016. programmed funds for school buildings, desks and chairs, and school personnel. The quarter hectare property is located near two highly congested public high DepEd’s Planning and Programming schools: San Bartolome and Sta. Lucia Division is currently preparing the school’s High Schools. These schools have student- development and improvement plan, and classroom ratios of 66 and 119 respectively, the corresponding budgetary requirements with a combined estimate of 7,181 for it to be fully operational in 2018. students, clearly over capacity and in need of decongestion. CfC REFORM STORY NO. 4 | PAGE 10 CfC REFORM STORY NO. 4 | PAGE 11

Over a two-year period, DepEd and CfC, successfully purchase land for new schools, with the support of education stakeholders, CfC’s modus operandi appears to have conceptualized, tested, and successfully worked. Instead of providing a ready made implemented a breakthrough solution to solution based on external analysis, CfC One of the goals of CfC is to introduce accommodate over 20,000 new students reduce school congestion in urban areas – worked with various partners to identify a reforms that can be sustained and from nearby crowded schools in 2016. the purchase of land to establish a critical development problem that had been institutionalized. There are strong Furthermore, 2017 and 2018 showed that new public school. missed or ignored by most development indications that CfC is making significant DepEd continued to acquire land to build partners, provided clear policy analysis and progress towards this goal. Armed with the public schools on. To-date, there are a total With nearly four million students recommendations to key constituents, and experience of purchasing the first parcel of 14 parcels purchased, which can serve nationwide and with more expected and the clear procedural guidelines, DepEd 57,080 students (Table 1). with the full implementation of senior and CfC conducted workshops with the high school under the K-12 program, the most congested School Divisions. What is worth highlighting is that DepEd challenge for DepEd to provide adequate did bulk of the work to acquire these facilities is likely to intensify. These efforts led to the successful properties, with CfC providing technical acquisition of seven parcels that can and legal advice. This land acquisition proof of concept achieved through CfC provides DepEd with the policy, knowledge, and financial resources to expand existing schools or build new schools, a modest contribution Table 1. DepEd purchased properties for new schools 2016-2018 towards improving the learning environment for elementary and high school students in urban areas. established constructive relationships with School Year Parcels Purchased Students to be Accommodated a broad range of stakeholders in and out Governance and development challenges of government. Further, CfC encouraged 2015-2016 7 28,000 are complex and often opaque with these stakeholders to spend their valuable 2016-2017 3 16,380 numerous issues that require attention. and limited political capital to introduce To deal with uncertainty and complexity, a sustainable high-impact policy reform 2017-2018 4 12,700 CfC is designed to encourage learning by that promises to improve the learning TOTAL 57,080 doing through an iterative process, while environment for millions of students in maintaining a clear focus on transformative the country. change.

In the case of the reform to help DepEd establish rules and procedures to FOR MORE INFORMATION

DEVELOPMENT SECTION (GOVERNANCE) The Australian Embassy – The Philippines Tel: +63 (2) 757 8100 Email: [email protected] Website: www.philippines.embassy.gov.au

THE ASIA FOUNDATION - PHILIPPINES Tel: +63 (2) 722 9999 Email: [email protected] Website: www.asiafoundation.org