Capitol launching literacy plan: 31,600 pupils read poorly

CEBU, Philippines — The growing number of pupils struggling to read has prompted the Cebu provincial government to pursue a province-wide literacy plan, with more than 31,600 Grade 1 to 3 learners identified as falling below expected reading levels.

The proposed initiative seeks to address le arning gaps among pupils in Grades 1 to 3 through targeted interventions, measurable reading improvement goals, and stronger coordination among government agencies, schools, and other institutions.

The move followed the approval of Resolution No. 3684-2026 by the Sangguniang Panlalawigan (SP) on October 26, urging the formulation of a Cebu Provincial Early Literacy and Learning Recovery Action Plan.

Authored by Provincial Board Member Malcolm Sanchez, the measure calls on Governor Pamela Baricuatro to lead the development of the plan through the Provincial Planning and Development Office, in coordination with the Department of Education-Central Visayas (DepEd 7), concerned Schools Division Offices and local government units (LGUs).

The proposal stems from the data of the Second Congressional Commission on Education (EDCOM 2), which highlighted the extent of reading difficulties among early-grade learners in the province.

During the Ramon Aboitiz Foundation's ECCD Convergence 2026 in Cebu, EDCOM 2 Executive Director Dr. Karol Mark Yee presented figures showing that more than 31,600 Grade 1 to 3 pupils in Cebu had not attained their expected reading proficiency by the close of the school year.

The data, drawn from the Department of Education's Comprehensive Rapid Literacy Assessment, also placed the Cebu Schools Division Office third among school divisions nationwide in terms of the number of struggling readers.

Approximately 13,300 Key Stage 1 learners, or around 11 percent of the division's pupils in that category, were classified as struggling readers.

During the presentation, it was emphasized that a child’s ability to learn to read is influenced by their health and nutritional condition even before they enter school.

Based on the National Nutrition Council’s 2025 Operation Timbang Plus report, around 25,000 children below five years old in Cebu Province are affected by stunting.

Research cited by the Commission showed that children who experience stunting are 16 percent more likely to fail a grade level. It also warned that cognitive damage caused by stunting beyond 24 months of age is irreversible, underscoring the importance of proper nutrition during early childhood.

“If these are our national targets, what targets will Cebu as a province set in terms of reducing stunting, improving access to early childhood education, and also addressing illiteracy at Grade 3? Is it improving by 5 or 10 percent? Whichever the number is, it is important to quantify so that we know how much effort and resources we all need to bring together, to ensure that no Cebuano child is left behind,” said Dr. Yee.

Areas with most struggling readers

At the local level, Talisay City recorded the highest number of pupils struggling with reading at 2,933, followed by Toledo City with 1,331.

Consolacion ranked third with 1,211, while Liloan had 1,111 and Balamban recorded 865 struggling readers.

Other localities identified in the report were Minglanilla with 752, Daanbantayan with 642, Carcar City with 609, Naga City with 607, and Barili with 560.

The figures underscore the need to identify communities with the most significant learning gaps and direct appropriate interventions to pupils who need additional reading support.

Proposed learning interventions

Under the proposed action plan, the provincial government intends to establish a baseline of literacy performance across Cebu and set specific targets to measure improvements in pupils' reading abilities.

It will also identify priority communities, review existing literacy programs, and determine gaps in resources and services that may be addressed through provincial assistance.

Among the proposals are the provision of learning materials, greater involvement of parents and communities, and partnerships with higher education institutions to identify and refer potential volunteer tutors to DepEd.

The plan also proposes closer coordination with health, nutrition, and social welfare programs, recognizing that learning support may require interventions beyond the classroom.

Monitoring mechanisms will likewise be established to track improvements in learners' reading abilities, the reach of interventions, and reductions in the number and proportion of pupils classified as struggling readers.

The resolution cautioned that difficulties in reading during the early grades could become more pronounced as pupils move to higher levels if these are not addressed through timely and sustained interventions.

However, the proposed provincial initiative is not intended to replace existing DepEd programs. The education department will still have authority over curriculum implementation, learner assessment, instructional standards, and teaching methods.

The proposed recovery plan will build on the provincial government's existing literacy efforts, including the Basa Ta, Cebu campaign in August.

The campaign aims to encourage children to read more frequently and develop stronger reading habits. As part of the initiative, the Capitol, through the Provincial School Board, plans to acquire a mobile library under the Provincial Information Office.

The mobile library is expected to visit a school in the province once a week, in coordination with the concerned LGU information officer and the Provincial Youth Development Office, to conduct reading activities and encourage pupils to develop an interest in books.

Baricuatro said improving reading habits could also help equip residents with the ability to assess information and become less vulnerable to misinformation.

“A Cebu that reads is a Cebu that thinks. And a Cebu that thinks is much harder to deceive,” the governor said during the campaign's launch.