EXPLAINER | Language at the crossroads: Unpacking the Shift in Language Policy

The Mother Tongue-Based Multilingual Education (MTB-MLE) policy was approved by the Department of Education (DepEd) and various stakeholders under the administration of President Benigno Aquino III in 2013. Recently, Republic Act 12027, sponsored by Sen. Win Gatchalian, this policy is now reversed by discontinuing the use of mother tongues in favor of Filipino and English, rather than using the native language. This means that the medium of instruction the teachers will use inside the classroom in teaching students from Kindergarten until Grade 3 would either be English or Filipino, except for the Mother Tongue, a separate subject itself. 

One of the key components introduced in conjunction with the K-12 system was the "Mother Tongue Based-Multilingual Education" (MTB-MLE) program. Spearheaded by the Department of Education (DepEd), the program sought to address the linguistic diversity of the country, where over 180 languages are spoken. The introduction of MTB-MLE was based on research and pilot studies, which demonstrated that children learn better and grasp concepts more effectively when taught in their native language during their early years of education. These findings indicated that students exhibited improved comprehension, literacy skills, and cognitive development when taught using the language spoken at home.

The program mandates the use of regional and local languages—such as Cebuano, Hiligaynon, and Waray—as the primary medium of instruction from Kindergarten to Grade 3, transitioning to Filipino and English in later grades. This policy was intended not only to enhance academic performance but also to preserve cultural heritage and linguistic identity in different regions of the Philippines. In classrooms, this shift fostered a more inclusive and engaging learning environment, particularly in rural areas, where children previously struggled to understand lessons in Filipino or English.

The mother tongue policy, known as Mother Tongue-Based Multilingual Education (MTB-MLE), requires using a child's first language for teaching during their early school years, specifically from Kindergarten to Grade 3. The idea behind this policy is that when children learn in a language they already understand—one that they speak at home—they are more likely to grasp new concepts more easily. Subjects such as Math, Science, and Reading are taught in the child's native language, which helps them feel more comfortable and makes learning easier for them. 

This policy emphasizes recognizing and incorporating the cultural and linguistic diversity of students by using their mother tongues in the classroom. This fosters an inclusive environment where all learners feel respected and engaged as it values the background of students. Using native languages helps students understand better, making complex ideas easier to learn. This connection to their culture makes lessons more relatable and helps students see real-world applications of what they learn. When students encounter their languages and cultures in school, it boosts their confidence and strengthens their sense of identity, which is essential for academic success.

This also promotes respect and collaboration among students from different backgrounds and encourages increased family and community involvement, as parents are more likely to engage when their cultures are acknowledged.

As children advance to higher grades, they gradually transition to using national languages like Filipino and English for instruction. This process is designed to help students become proficient in these languages, which are important for communication and further education. However, even as they learn in these national languages, students continue to use their mother tongue, ensuring they retain a connection to their cultural heritage.

However, the newly lapsed law discontinues the use of mother tongues. Which refers to the practice of prohibiting the utilization of the native or first language, often called the mother tongue. This practice is being done in the Philippines' educational sector, particularly from kindergarten to grade 3. This change restricts the use of native or first languages, limiting them to auxiliary roles. In this context, mother tongues serve only as a secondary or supportive function, rather than being the primary medium of instruction. While these languages assist in learning, they are no longer central to the curriculum.

As shown in the results of The World Bank 91% of children at their late primary age are not proficient in reading. Moreover, the index of the Philippines’s learning poverty–which refers to the inability to proficiently read and comprehend age-appropriate texts–is also 56.4% higher than the East Asia and Pacific region. These results showcase the current condition of our country and its educational system. This was brought to light by President Ferdinand Marcos Jr., stressing the need for reviewing the medium employed in schools for instructions. The need for discontinuation is highlighted by many challenges in the current system. 

On the other hand experts of Mother Tongue-Based Multilingual Education (MTB-MLE), Dr. Maria Mecedes Arzadon of the University of the Philippines College of Education and Dr. Heidi Macahilig of the Philippines Normal University, state that the primary question is determining if there is solid and adequate evidence to underpin the effectiveness of shifting the modality. This is being said because the MTB-MLE system was adopted due to the efficacy seen from the report of EDCOM II Year 1. This report underlines that the MTB-MLE has its foundation based on research and theoretical evidence.

 It has been observed that the original version of this bill sought to "redefine" the MTB-MLE for monolingual sectors. However, concerns have been raised regarding the legislative process, specifically whether amendments were made without adequately consulting key stakeholders. If such oversight occurred, it could compromise the integrity of the democratic process and hinder the bill’s alignment with the educational needs of diverse linguistic communities. 

Mother tongue is not effective in enhancing educational outcomes, as demonstrated by the results of the Mother Tongue-based Multilingual Education (MTB-MLE) program in the Philippines over the past 11 years of its implementation. Though some may argue that using the mother tongue (L1) facilitates quicker learning and better comprehension, the data presents a different narrative.

In the country, 90.9% of 10-year-olds are unable to read and understand simple texts. This figure, reported by the World Bank, reveals a significant literacy crisis even before the COVID-19 pandemic, with a recorded 69.5% of children unable to read as early as 2019. 

Additionally, the Mean Percentage Score (MPS) in the Grade 6 National Achievement Test saw a decline of 5.71 points among students who received L1 instruction. This drop indicates not only a failure to enhance reading skills but also a decline in overall academic performance and English proficiency. Such a decrease undermines the foundational premise that L1 instruction would sharpen students' abilities to learn new languages, particularly English.

Now comparing public school students to their peers in private schools, the latter ones, who continued to use English as the medium of instruction, consistently outperformed public school students in both mathematics and science assessments. For instance, in the 2019 Trends in International and Science Study (TIMSS), private school students scored significantly higher than those in public schools, highlighting a substantial gap in academic achievement directly linked to the language of instruction.

The preference for English and Filipino challenges the one-size-fits-all approach of the Mother Tongue-based Multilingual Education (MTB-MLE) program, which aims to implement a uniform teaching strategy across various regions of the Philippines. Evidence from the Cordillera highlights that the assumption that L1 will benefit all students may not hold true in every situation.

Furthermore, the 2020 Population and Housing Census found that around 245 languages are spoken in the Philippines. However, the Department of Education (DepEd) only includes 19 of these languages in its Mother Tongue-based Multilingual Education (MTB-MLE) program, which is just 8% of the total languages reported.

Consultations held in different regions revealed difficulties in Key Stage 1 (Kindergarten to Grade 2), where students learn in their mother tongue for subjects like Math and Science, to Key Stage 2 (Grades 4 and 5), where they suddenly switch to English.

This abrupt change can confuse students and make it harder for them to grasp new concepts. Teachers often find themselves spending extra time explaining the same lesson in both languages, which takes away from time that could be used to teach other important topics.

Another major issue with the MTB-MLE program is the lack of teaching materials and textbooks in the mother tongue. Many students are used to learning in their native language, but when their textbooks are printed in a different language, it creates a gap. This disconnect can be challenging not only for the students but also for parents and teachers, who may struggle to help with homework or understand what is being taught.

Major supporters of this bill are Senators Win Gatchalian and Ramon Bong Revilla Jr. Gatchalian strongly believes that the MTB-MLE system is not fit for all and should instead be only prioritized in monolingual environments (Senate of the Philippines, 2024). Arguments also include how many educators are not adequately trained to teach in regional languages, which has led to compliance problems with the Mother-Tongue Based Multilingual Education (MTB-MLE) program. According to DedEd among the 305,099 educators, only 78,872 have received the appropriate training concerning this. The government aims to streamline instruction by reverting to Filipino and English as primary languages, emphasizing the need to reassess the medium of instruction in light of global competitiveness. 

However, Several teacher groups, alongside Rep. France Castro from the ATC Teacher’s party list, believe that instead of criticizing and suspending the execution of mother tongues as an instruction medium, the system should be “reviewed” instead (Peña, 2023). Moreover, she pointed out that DepEd’s drawbacks and the scarcity of resources correspondingly made it harder for the MTB-MLE to achieve its set objectives. These contrasting views have fueled ongoing debates about the effectiveness and long-term impact of MTB-MLE, especially as the country grapples with issues of educational quality and access. 

The main reason the MTB-MLE system was integrated by DepEd was because of its benefits to the Filipino student population. Moreover, this program highlights the importance of language rights, especially for indigenous and marginalized communities, in the context of education. These communities often speak regional or native languages, and their right to use and preserve these languages is protected by both the Philippine Constitution and a specific law called the Indigenous Peoples Rights Act (RA 8371). 

Furthermore, limiting the language use to only Filipino and English will cause problems for these communities, as they have the right to learn in their native languages protected by specific laws from the constitution of the Philippines. The legal framework of the news lapsed law undermines the linguistic diversity and the respect that the local languages of the Philippines deserve to hold. Subsequently, the Indigenous Peoples Rights Act warrants and gives the Indigenous groups the authority to control their educational systems and safeguard their culture. The lapsed law may contravene this Act. 

Subsequently, this decision represents a significant setback in the pursuit of quality education, undermining the foundational principles of effective learning. By discontinuing the use of mother tongues, the risk creates substantial barriers to comprehension, as students may struggle to grasp complex concepts when taught in a language that is not their own. This shift not only hampers their ability to engage with the material but also affects their overall academic performance and confidence.

As the students will be forced into learning a second language, they might lose motivation, leading to frustration and disengagement. This shift could further exacerbate educational inequalities, particularly for those from linguistically diverse backgrounds. Ultimately, prioritizing national languages at the expense of mother tongues could hinder the goal of fostering an inclusive and effective learning environment for all students.