DAVAO CITY (October 28) — Nearly half of assessed Grade 1 to 3 learners in Davao City started School Year 2026–2027 struggling to read, while almost the same proportion of Grade 11 students could not read independently, highlighting a literacy challenge that persists across basic education.
Data from the Second Congressional Commission on Education (EDCOM 2), based on Department of Education (DepEd) assessments, showed that 46% of the 83,559 early-grade learners assessed in the city fell under the two lowest reading proficiency categories. Among Grade 11 learners assessed at the end of School Year 2025–2026, 46% were classified as frustration readers.
The findings raise concerns about students’ ability to understand lessons across subjects, from mathematics and science to the increasingly complex texts they encounter as they advance through school.
Reading gaps emerge in the early grades
Of the early-grade learners assessed in Davao City, only 10,972, or 13%, were classified as “Grade Level Ready.”
Meanwhile, 38,228 learners, or 46%, fell under the “High Emerging” and “Low Emerging” categories. Of these, 29,109, or 35%, were Low Emerging, while 9,119, or 11%, were High Emerging.
These learners are still developing foundational reading skills and may recognize only a few letters or syllables without being able to read whole words. They need systematic instruction in letter recognition and phonics to build basic reading proficiency.
Another 22,319 learners, or 27%, were classified as “Transitioning,” while 12,040, or 14%, were in the “Developing” category. Both groups need further practice and guidance to improve reading accuracy, fluency and comprehension.
EDCOM 2 recommends providing Grade Level Ready learners with more reading materials to expand their vocabulary and comprehension in their mother tongue, Filipino and English.
The city’s 46% struggling-reader rate was slightly above the national rate of about 45%, based on 2,245,628 of 5,007,066 learners assessed nationwide. It was below Region XI’s rate of about 48%, or 124,388 of 258,630 learners assessed.
The challenge continues into senior high
The literacy gap remains evident among older students.
EDCOM 2 data from DepEd’s Senior High School Literacy and Numeracy Assessment, conducted at the end of School Year 2025–2026, showed that only 8,453 Grade 11 learners in Davao City, or 25% of those assessed, were classified as independent readers.
Another 10,097, or 29%, were instructional readers, while 15,914, or 46%, were frustration readers who struggle to understand texts independently.
Rey Solitario, Davao City Schools Division superintendent, described the results as both a significant achievement and an urgent call to action for the education system.
“While this figure is a cause for concern, it also highlights the importance of strengthening literacy interventions as learners move toward higher education, employment, and lifelong learning,” Solitario said.
He warned that reading difficulties could affect performance not only in English but also in mathematics, science and other subjects requiring comprehension and critical thinking.
“These figures underscore the need for more focused, sustained, and responsive interventions,” he said.
Solitario said the division would intensify literacy programs, provide targeted assistance to struggling readers and help teachers use evidence-based reading strategies.
He cited the Academic Recovery and Accessible Learning (ARAL) Program, school-based reading initiatives, differentiated instruction and collaboration among teachers, school heads, parents and external partners as key approaches to addressing learning gaps.
Davao outperforms regional, national figures in senior high
Davao City’s Grade 11 results compare favorably with regional and national figures, although nearly half of assessed students remain frustration readers.
Across Region XI, 18,181 learners, or 21%, were independent readers; 29,708, or 34%, were instructional readers; and 39,171, or 45%, were frustration readers.
Nationally, only 132,746 learners, or 13%, were independent readers. Another 296,662, or 29%, were instructional readers, while 580,721, or 58%, were classified as frustration readers.
Region XI was among only three regions—the others being Region VIII and the National Capital Region—with frustration-reader rates at or below 50%.
While Davao City’s senior high school learners performed better than their regional and national counterparts, the results still point to a substantial number of students needing additional support.
The two assessments cover different grade levels and school-year periods, so they do not establish that the same children remained struggling readers as they advanced through school. But the findings expose a critical question for DepEd Davao City: why do reading difficulties remain widespread, and how effectively are existing interventions closing the gaps?
The division has pledged to intensify literacy programs, including the ARAL Program, targeted reading support and evidence-based teaching strategies. The public, however, needs more than commitments. It needs measurable results: more children reading at grade level, fewer senior high school students unable to comprehend texts independently, and regular reporting on whether interventions are working.
With nearly half of assessed learners struggling to read in both the early grades (Grades 1–3) and senior high school (Grade 11), success must be measured not by the number of programs launched but by the number of learners who catch up. The real test of Davao City’s literacy response is whether struggling readers become proficient readers—and whether education officials can demonstrate that progress.
