# Who Decides What in DepEd? RA 9155's Five Levels

RA 9155 splits authority among the Secretary, Regional Director, Superintendent, District Supervisor and School Head. Who decides what, with an explorer.

This is the Markdown copy of [Who Decides What in DepEd? RA 9155's Five Levels](https://nash.com.ph/blog/deped-governance-levels-who-decides), an article on the NASH Reviewer Blog by Mark Anthony Llego, published Nov 12, 2026, updated Nov 13, 2026. Topics: School leadership, Aspiring school heads. NASH Reviewer is an independent practice platform not affiliated with DepEd, BHROD, or NEAP.

[Republic Act No. 9155](https://www.officialgazette.gov.ph/2001/08/11/republic-act-no-9155/), the Governance of Basic Education Act of 2001, divides authority over public basic education among five levels. The Secretary of Education sets national policies, plans and standards. The Regional Director adapts them to the region, approves the establishment of schools, evaluates superintendents and disciplines teachers. The Schools Division Superintendent appoints and supervises: every teacher and school head in the division is hired at this level. The Schools District Supervisor advises school heads and teachers, supervises curricula, and has no administrative supervision over school heads. The School Head runs the school (Sec. 7; DO 1, s. 2003, Secs. 4.3 and 5.1).

The law gives each level its own work. Shared governance, it says, "recognizes that every unit in the education bureaucracy has a particular role, task and responsibility inherent in the office and for which it is principally accountable for outcomes" (Sec. 5(a)). Knowing which level holds a decision tells a school head whom to ask, what to recommend, and what is the school's own to decide.

The five levels have stood since 2001. The implementing rules are [DepEd Order No. 1, s. 2003](https://www.deped.gov.ph/2003/01/06/do-1-s-2003-promulgating-the-implementing-rules-and-regulations-irr-of-republic-act-no-9155-otherwise-known-as-the-governance-of-basic-education-act-of-2001/), which the Supreme Court upheld in 2006 except on one point about donations. As of November 12, 2026, no law has amended Section 7. House Bill No. 9358, which would amend the Act and allow additional division offices and school districts, passed the House on third reading on June 3, 2026 ([Philippine News Agency, June 4, 2026](https://ptvnews.ph/house-approves-3-key-education-measures-on-third-reading/)).

## Key findings

- **Five levels, four in the line of authority.** National, regional, division and school form the line. The schools district is the fifth level, and its supervisor "shall primarily perform staff functions and shall not exercise administrative supervision over school principals, unless specifically authorized by the proper authorities" (DO 1, s. 2003, Sec. 5.1).
- **Every level below the Secretary acts within national policy.** "Consistent with the national educational policies, plans and standards" are the words that open the list of powers of the Regional Director, the superintendent and the school head (RA 9155, Sec. 7(B), (C) and (E)).
- **The superintendent is the appointing authority for schools.** The Schools Division Superintendent hires, places and evaluates all division employees, teaching and non-teaching, "including school heads" (RA 9155, Sec. 7(C)(3); DO 1, s. 2003, Sec. 4.3). The school head recommends the staffing complement (Sec. 7(E)(8)).
- **The Regional Director disciplines teachers; the superintendent, non-teaching personnel only.** The Regional Director exercises disciplinary authority over teaching personnel covered by the Magna Carta for Public School Teachers (DO 1, s. 2003, Sec. 4.3).
- **The Regional Director approves the establishment of schools,** public and private, under standards the Secretary sets (RA 9155, Sec. 7(B)(13); DO 1, s. 2003, Sec. 3.2(13)).
- **A school head who accepts a donation reports it to two offices:** the district supervisor and the division superintendent (RA 9155, Sec. 7(E)(11); *Public Schools District Supervisors Association v. De Jesus*, G.R. No. 157286, June 16, 2006).
- **EDCOM II's researchers found that the levels repeat one another.** "Generally, the lower level replicates or duplicates the functions of the higher level but on a smaller scale, possibly leading to inefficiency" (Laguda et al., 2025, p. 25).

## The five levels of governance in RA 9155

The Act begins from the school. "The school shall be the heart of the formal education system", it declares, and governance "shall begin at the national level" while the field offices, the regions, divisions, schools and learning centers, translate policy into programs, projects and services "to fit local needs" (Sec. 2).

Section 7 then sets out the powers, duties and functions of each level in five lettered parts.

| Level | Who holds its authority | How many | RA 9155 | Implementing rules |
|---|---|---|---|---|
| National | Secretary of Education | One Central Office | Sec. 7(A) | Rule II |
| Regional | Regional Director | 17 regions, and the Bangsamoro region, whose own education ministry governs its schools (Sec. 13) | Sec. 7(B) | Rule III |
| Division | Schools Division Superintendent | 228 schools divisions | Sec. 7(C) | Rule IV |
| Schools district | Schools District Supervisor | 2,665 school districts | Sec. 7(D) | Rule V |
| School | School Head | 47,814 public schools with learners | Sec. 7(E) | Rule VI |

The 17 regions are those in DepEd's school allocation list for FY 2026. The counts of divisions, districts and schools are from DepEd's school data for School Year 2023-2024, set out in [DepEd Schools per District Supervisor](https://nash.com.ph/blog/deped-schools-per-district-supervisor-sy-2023-2024). They include the Bangsamoro region's 10 divisions, 188 districts and 2,155 schools.

Two of the general rules at the end of Section 7 matter here. Regional directors, assistant regional directors, superintendents and assistant superintendents must be career executive service officers. And the promotion of school heads "shall be based on educational qualification, merit and performance rather than on the number of teachers/learning facilitators and learners in the school".

**Explorer.** On the page, an explorer sets the five levels of governance in Section 7 of Republic Act No. 9155 on one ladder, compares what each level holds in six areas of decision, and asks twelve decisions to place at their level. What each level holds, in the words of the implementing rules (DepEd Order No. 1, s. 2003):

**National level: Secretary of Education** (RA 9155, Sec. 7(A); IRR, Rule II). Overall authority and supervision over the Department.

- Policy and plans: Formulating national educational policies (IRR, Sec. 2.1(1); RA 9155, Sec. 7(A)(1))
- Policy and plans: Formulating a national basic education plan (IRR, Sec. 2.1(2); RA 9155, Sec. 7(A)(2))
- Policy and plans: Undertaking national educational researches and studies (IRR, Sec. 2.1(5); RA 9155, Sec. 7(A)(5))
- Standards and results: Promulgating national educational standards (IRR, Sec. 2.1(3); RA 9155, Sec. 7(A)(3))
- Standards and results: Monitoring and assessing national learning outcomes (IRR, Sec. 2.1(4); RA 9155, Sec. 7(A)(4))
- Curriculum and instruction: Enhancing the total development of learners through local and national programs and/or projects (IRR, Sec. 2.1(7); RA 9155, Sec. 7(A)(7))
- People: Enhancing the employment status, professional competence, welfare, working conditions of all personnel and executing provisions on legal services of the Department (IRR, Sec. 2.1(6); RA 9155, Sec. 7(A)(6))
- People: Exercising disciplinary authority subject to civil service laws, rules and regulations and procedure (IRR, Sec. 2.1(8))

**Regional level: Regional Director** (RA 9155, Sec. 7(B); IRR, Rule III). Acts consistent with national policies, plans and standards.

- Policy and plans: Defining a regional educational policy framework which reflects the values, needs and expectations of the communities they serve (IRR, Sec. 3.2(1); RA 9155, Sec. 7(B)(1))
- Policy and plans: Developing a regional basic education plan (IRR, Sec. 3.2(2); RA 9155, Sec. 7(B)(2))
- Policy and plans: Undertaking research projects and developing and managing regionwide projects which may be funded through official development assistance and/or funding agencies (IRR, Sec. 3.2(5); RA 9155, Sec. 7(B)(5))
- Policy and plans: Managing the database and management information system of the region (IRR, Sec. 3.2(12); RA 9155, Sec. 7(B)(12))
- Standards and results: Developing regional educational standards with a view towards benchmarking for international competitiveness (IRR, Sec. 3.2(3); RA 9155, Sec. 7(B)(3))
- Standards and results: Monitoring, evaluating and assessing regional learning outcomes (IRR, Sec. 3.2(4); RA 9155, Sec. 7(B)(4))
- Standards and results: Performing oversight functions in the implementation of laws, policies, programs, rules and regulations within the responsibility of the Department of Education in the region (IRR, Sec. 3.2(14))
- People: Ensuring strict compliance with prescribed national criteria for the recruitment, selection and training of all staff in the region and divisions (IRR, Sec. 3.2(6); RA 9155, Sec. 7(B)(6))
- People: Determining the organizational structure of the divisions and districts and approving the proposed staffing pattern of all employees in the divisions and districts (IRR, Sec. 3.2(8); RA 9155, Sec. 7(B)(8))
- People: Hiring, placing and evaluating all employees in the regional office, except for the position of assistant director (IRR, Sec. 3.2(9); RA 9155, Sec. 7(B)(9))
- People: Evaluating all schools division superintendents and assistant division superintendents in the region (IRR, Sec. 3.2(10); RA 9155, Sec. 7(B)(10))
- People: The Regional Director shall continue exercising disciplinary authority over the teaching personnel insofar as the latter are covered by specific and exclusive disciplinary provisions under the Magna Carta for Public School Teachers (R.A. No. 4670) (IRR, Sec. 4.3)
- Money and resources: Formulating in coordination with the regional development council, the budget, including utilization of fiscal resources, based on the identified priorities in the implementation of the regional educational plan which shall take into account the educational plans of the divisions and districts/schools (IRR, Sec. 3.2(7); RA 9155, Sec. 7(B)(7))
- Money and resources: Planning and managing the effective and efficient use of all personnel, physical and fiscal resources of the regional office, development and establishment of procedures in monitoring and supervision of divisions/schools physical and fiscal resources, including professional staff development (IRR, Sec. 3.2(11); RA 9155, Sec. 7(B)(11))
- Schools and community: Approving the establishment of public and private elementary and secondary schools and learning centers, subject to the set of standards and guidelines formulated by the Secretary of Education for this purpose (IRR, Sec. 3.2(13); RA 9155, Sec. 7(B)(13))
- Schools and community: an additional school district may be established by the regional director based on criteria set by the Secretary and on the recommendation of the schools division superintendent (IRR, Sec. 5.2; RA 9155, Sec. 7(D))

**Division level: Schools Division Superintendent** (RA 9155, Sec. 7(C); IRR, Rule IV). A province or a city. Supervises its schools and appoints their staff.

- Policy and plans: Developing and implementing division education development plans (IRR, Sec. 4.2(1); RA 9155, Sec. 7(C)(1))
- Standards and results: Ensuring compliance of quality standards for basic education programs and for this purpose strengthening the role of division supervisors as subject area specialists (IRR, Sec. 4.2(5); RA 9155, Sec. 7(C)(5))
- Standards and results: Promoting awareness of and adherence by all schools and learning centers to accreditation standards prescribed by the Secretary of Education (IRR, Sec. 4.2(6); RA 9155, Sec. 7(C)(6))
- People: Hiring, placing and evaluating all division supervisors and schools district supervisors as well as all employees in the division, both teaching and non-teaching personnel, including school heads, except for the assistant division superintendents (IRR, Sec. 4.2(3); RA 9155, Sec. 7(C)(3))
- People: The schools division superintendent shall have disciplinary authority only over the non-teaching personnel under his jurisdiction (IRR, Sec. 4.3)
- Money and resources: Planning and managing the effective and efficient performance of all personnel, physical and fiscal resources of the division, including professional staff development (IRR, Sec. 4.2(2); RA 9155, Sec. 7(C)(2))
- Money and resources: Monitoring the utilization of funds provided by the national government and the local government units to the schools and learning centers (IRR, Sec. 4.2(4); RA 9155, Sec. 7(C)(4))
- Schools and community: Supervising the operations of all public and private elementary, secondary and integrated schools, and learning centers (IRR, Sec. 4.2(7); RA 9155, Sec. 7(C)(7))

**Schools district level: Schools District Supervisor** (RA 9155, Sec. 7(D); IRR, Rule V). Staff, not line: advises school heads and has no administrative supervision over them unless specifically authorized.

- Curriculum and instruction: Providing professional and instructional advice and support to the school heads and teachers/facilitators of schools and learning centers in the district or cluster thereof (IRR, Sec. 5.1(1); RA 9155, Sec. 7(D)(1))
- Curriculum and instruction: Curricula supervision (IRR, Sec. 5.1(2); RA 9155, Sec. 7(D)(2))

**School level: School Head** (RA 9155, Sec. 7(E); IRR, Rule VI). Instructional leader and administrative manager of the school.

- Policy and plans: Setting the mission, vision, goals and objectives of the school (IRR, Sec. 6.2(1); RA 9155, Sec. 7(E)(1))
- Policy and plans: Developing the school education program and school improvement plan (IRR, Sec. 6.2(4); RA 9155, Sec. 7(E)(4))
- Curriculum and instruction: Implementing, monitoring and assessing the school curriculum and being accountable for higher learning outcomes (IRR, Sec. 6.2(3); RA 9155, Sec. 7(E)(3))
- Curriculum and instruction: Offering educational programs, projects and services which provide equitable opportunities for all learners in the community (IRR, Sec. 6.2(5); RA 9155, Sec. 7(E)(5))
- Curriculum and instruction: Introducing new and innovative modes of instruction to achieve higher learning outcomes (IRR, Sec. 6.2(6); RA 9155, Sec. 7(E)(6))
- People: Recommending the staffing complement of the school based on its needs (IRR, Sec. 6.2(8); RA 9155, Sec. 7(E)(8))
- People: Encouraging and enhancing staff development (IRR, Sec. 6.2(9); RA 9155, Sec. 7(E)(9))
- Money and resources: Administering and managing all personnel, physical and fiscal resources of the school (IRR, Sec. 6.2(7); RA 9155, Sec. 7(E)(7))
- Money and resources: Accepting donations, gifts, bequests and grants in accordance with existing laws and policy of the Department for the purpose of upgrading teachers/learning facilitators' competencies, improving and expanding school facilities and providing instructional materials and equipment (IRR, Sec. 6.2(11); RA 9155, Sec. 7(E)(11))
- Schools and community: Creating an environment within the school that is conducive to teaching and learning (IRR, Sec. 6.2(2); RA 9155, Sec. 7(E)(2))
- Schools and community: Establishing school and community networks and encouraging the active participation of teacher organizations, non-academic personnel of public schools, and parents-teachers-community associations (IRR, Sec. 6.2(10); RA 9155, Sec. 7(E)(10))

The twelve questions and the level that holds each power:

1. A growing barangay asks for a public high school of its own. Who approves the establishment of a new school? **The Regional Director.** The Regional Director approves the establishment of public and private schools and learning centers, under standards and guidelines the Secretary sets. The division office evaluates and recommends. (IRR, Sec. 3.2(13); RA 9155, Sec. 7(B)(13))
2. Enrollment has grown and the school needs two more teachers. Who recommends the school's staffing complement? **The School Head.** The School Head recommends the staffing complement based on the school's needs. Recommending is not appointing: the superintendent hires. (IRR, Sec. 6.2(8); RA 9155, Sec. 7(E)(8))
3. Who hires, places and evaluates the teachers and the school heads of the division's schools? **The Schools Division Superintendent.** The Schools Division Superintendent hires, places and evaluates all employees in the division, teaching and non-teaching, school heads included, and is their appointing authority (IRR, Sec. 4.3). (IRR, Sec. 4.2(3); RA 9155, Sec. 7(C)(3))
4. Who evaluates the Schools Division Superintendents and their assistants? **The Regional Director.** The Regional Director evaluates all schools division superintendents and assistant division superintendents in the region. (IRR, Sec. 3.2(10); RA 9155, Sec. 7(B)(10))
5. A parent files an administrative complaint against a teacher. Below the Secretary, who holds disciplinary authority over teaching personnel? **The Regional Director.** The Regional Director holds disciplinary authority over teaching personnel covered by the Magna Carta for Public School Teachers. The superintendent disciplines non-teaching personnel only, and a school head is not a disciplining authority. (IRR, Sec. 4.3)
6. Who promulgates the national educational standards that every region, division and school must follow? **The Secretary of Education.** The Secretary of Education promulgates national educational standards. Every level below acts consistent with national policies, plans and standards. (IRR, Sec. 2.1(3); RA 9155, Sec. 7(A)(3))
7. Who develops the school education program and the School Improvement Plan? **The School Head.** The School Head develops the school education program and the school improvement plan. The division office appraises the plan and, under a 2018 procedure, the superintendent approves it. (IRR, Sec. 6.2(4); RA 9155, Sec. 7(E)(4))
8. The school receives funds from the national government and from the city. Who monitors how schools use them? **The Schools Division Superintendent.** The Schools Division Superintendent monitors the utilization of funds that the national government and local government units provide to schools and learning centers. (IRR, Sec. 4.2(4); RA 9155, Sec. 7(C)(4))
9. A division's largest district has grown too big to supervise. Who may establish an additional schools district? **The Regional Director.** The Regional Director may establish an additional schools district, on criteria set by the Secretary and on the recommendation of the Schools Division Superintendent. Since August 2021 redistricting requests have been on hold pending a new policy (DepEd Memorandum No. 057, s. 2021). (IRR, Sec. 5.2; RA 9155, Sec. 7(D))
10. Who gives school heads and teachers professional and instructional advice and support, without administrative supervision over the school heads? **The Schools District Supervisor.** The Schools District Supervisor advises and supports school heads and teachers and supervises curricula. The supervisor performs staff functions and has no administrative supervision over school heads unless specifically authorized. (IRR, Sec. 5.1(1); RA 9155, Sec. 7(D)(1))
11. A company offers the school thirty tablets for its reading program. Who has the authority to accept the donation? **The School Head.** The School Head accepts donations for three purposes: teachers' competencies, school facilities, and instructional materials and equipment. The donation must be reported to the district supervisor and the division superintendent. (IRR, Sec. 6.2(11); RA 9155, Sec. 7(E)(11))
12. Who supervises the operations of all public and private elementary, secondary and integrated schools in a province or city? **The Schools Division Superintendent.** The Schools Division Superintendent supervises the operations of all public and private schools and learning centers in the division. (IRR, Sec. 4.2(7); RA 9155, Sec. 7(C)(7))

## National level: the Secretary of Education

The Secretary "shall exercise overall authority and supervision over the operations of the Department" (Sec. 7). The Act lists seven areas of the Secretary's authority, accountability and responsibility (Sec. 7(A)):

1. formulating national educational policies;
2. formulating a national basic education plan;
3. promulgating national educational standards;
4. monitoring and assessing national learning outcomes;
5. undertaking national educational research and studies;
6. enhancing the employment status, professional competence, welfare and working conditions of all personnel; and
7. enhancing the total development of learners through local and national programs and projects.

The implementing rules add an eighth: "Exercising disciplinary authority subject to civil service laws, rules and regulations and procedure" (DO 1, s. 2003, Sec. 2.1(8)).

The Secretary delegates the supervision of field offices. The 2015 structure gave it "to the Undersecretary supervising the Governance and Operations strand" ([DepEd Order No. 52, s. 2015](https://www.deped.gov.ph/2015/10/30/do-52-s-2015-new-organizational-structures-of-the-central-regional-and-schools-division-offices-of-the-department-of-education/), par. 7(d)). The 2024 designation order calls the strand Operations, with Field Operations as one of its areas ([DepEd Order No. 015, s. 2024](https://www.deped.gov.ph/2024/10/18/october-18-2024-do-015-s-2024-revised-designation-of-undersecretaries-and-assistant-secretaries-to-the-strands-and-functional-areas-of-responsibilities-and-revised-signing-authorities-on/)). DepEd's orders of 2026 again name an Office of the Undersecretary for Governance and Operations ([DepEd Order No. 013, s. 2026](https://www.deped.gov.ph/2026/06/04/june-4-2026-do-013-s-2026-institutional-guidelines-on-the-implementation-of-the-school-based-feeding-program/)); [DepEd Central Office Functions](https://nash.com.ph/blog/deped-central-office-functions) follows the strands' names and where each office now sits.

## Regional level: the Regional Director

The Regional Director's list is the longest in the Act: thirteen named powers and a general clause (Sec. 7(B)). They fall into four groups.

| Group | What the Regional Director does | RA 9155, Sec. 7(B) |
|---|---|---|
| Policy, plans and standards | Defines a regional educational policy framework; develops a regional basic education plan and regional standards; monitors, evaluates and assesses regional learning outcomes; undertakes research and manages regionwide projects; manages the region's database and information system | (1) to (5), (12) |
| People and organization | Ensures compliance with national criteria for recruiting, selecting and training staff; determines the organization of divisions and districts and approves their staffing pattern; hires, places and evaluates regional office employees; evaluates all superintendents and assistant superintendents | (6), (8), (9), (10) |
| Money and resources | Formulates the budget in coordination with the regional development council; plans and manages the regional office's personnel, physical and fiscal resources | (7), (11) |
| Schools | Approves the establishment of public and private elementary and high schools and learning centers | (13) |

The implementing rules add to the list. Three additions matter most. The Regional Director performs "oversight functions in the implementation of laws, policies, programs, rules and regulations" of DepEd in the region (Sec. 3.2(14)). The approval of schools is "subject to the set of standards and guidelines formulated by the Secretary of Education" (Sec. 3.2(13)). And the Regional Director holds disciplinary authority over teaching personnel, discussed below.

The Regional Director also decides the map of districts. An additional school district "may be established by the regional director based on criteria set by the Secretary and on the recommendation of the schools division superintendent" (DO 1, s. 2003, Sec. 5.2; RA 9155, Sec. 7(D)). Since August 18, 2021, however, DepEd has held all redistricting requests until a new policy is issued ([DepEd Memorandum No. 057, s. 2021](https://www.deped.gov.ph/2021/08/18/august-18-2021-dm-057-s-2021-moratorium-on-the-request-for-school-redistricting-and-schools-division-reclassification/)).

How a new school is approved shows the levels at work. Under [DepEd Order No. 40, s. 2014](https://www.deped.gov.ph/2014/08/26/do-40-s-2014-establishment-merging-conversion-and-naming-renaming-of-public-schools-and-separation-of-public-school-annexes-in-basic-education/), a committee organized by the superintendent evaluates the request, a regional inspectorate team validates the committee's favorable recommendation, and the Regional Director approves. The Regional Director then presents the proposals to the national management committee for the next year's budget, and the Secretary confirms the new schools and their School IDs (DO 40, s. 2014, Part VI).

## Division level: the Schools Division Superintendent

A division is a province or a city. Its superintendent has seven named powers and a general clause (Sec. 7(C)):

1. developing and implementing division education development plans;
2. planning and managing all personnel, physical and fiscal resources of the division, including professional staff development;
3. hiring, placing and evaluating all division supervisors and schools district supervisors and all employees in the division, teaching and non-teaching, including school heads, except the assistant superintendent;
4. monitoring the use of funds that the national government and local government units provide to schools and learning centers;
5. ensuring compliance with quality standards for basic education programs, and for this purpose strengthening the role of division supervisors as subject area specialists;
6. promoting awareness of and adherence to the accreditation standards the Secretary prescribes; and
7. supervising the operations of all public and private elementary, secondary and integrated schools and learning centers.

This is the level closest to a school with real command over it. The superintendent appoints its teachers and its head, supervises its operations and watches its funds.

### Appointing and disciplining: two different authorities

The implementing rules separate two powers that are easily confused (DO 1, s. 2003, Sec. 4.3).

| Power | Who holds it | Over whom |
|---|---|---|
| Appointing authority | Schools Division Superintendent | Division and district supervisors and all employees in the division, teaching and non-teaching, including school heads, except the assistant superintendent |
| Disciplinary authority | Schools Division Superintendent | "only over the non-teaching personnel" under the superintendent's jurisdiction |
| Disciplinary authority | Regional Director | Teaching personnel covered by the Magna Carta for Public School Teachers (Republic Act No. 4670) |

So the official who appoints a teacher is not the official who decides an administrative case against that teacher. A school head counts as teaching personnel for this purpose (Republic Act No. 4670, Sec. 2). [Who Disciplines DepEd Teachers and School Heads?](https://nash.com.ph/blog/deped-disciplining-authority-teachers-school-heads) follows the rule through [DepEd Order No. 49, s. 2006](https://www.deped.gov.ph/2006/12/12/do-49-s-2006-revised-rules-of-procedure-of-the-department-of-education-in-administrative-cases-amended-by/) and the cases.

### One structure for divisions of every size

The Act gives every division the same office: a superintendent, at least one assistant superintendent and "an office staff for programs promotion, planning, administrative, fiscal, legal, ancillary and other support services" (Sec. 7(C)). The EDCOM II Final Report counts the cost. "Davao City SDO supervises 542 schools while some SDOs oversee as few as two", a 271-fold difference under one staffing framework (p. 37). Elsewhere the report's example is Leyte's 1,363 schools against Isabela City's 74 (p. 370). The 228 division offices have 22,356 staff, and the Central and Regional Offices 3,011 (p. 370). The Commission recommends amending the Act "to allow differentiated SDO configurations based on actual supervisory load" (p. 37).

## Schools district level: staff, not line

The Act gives the Schools District Supervisor three responsibilities (Sec. 7(D)):

1. "Providing professional and instructional advice and support to the school heads and teachers/facilitators of schools and learning centers in the district or cluster thereof";
2. "Curricula supervision"; and
3. other functions assigned by proper authorities.

The implementing rules state what follows from so short a list. The supervisor "shall primarily perform staff functions and shall not exercise administrative supervision over school principals, unless specifically authorized by the proper authorities. The main focus of his/her functions shall be instructional and curricula supervision aimed at raising academic standards at the school level" (DO 1, s. 2003, Sec. 5.1).

The district supervisors' association challenged this rule before the Supreme Court and lost. In [*Public Schools District Supervisors Association v. De Jesus*](https://elibrary.judiciary.gov.ph/assets/dtSearch/dtSearch_system_files/dtisapi6.dll?cmd=getdoc&DocId=49724&Index=%2a4aeb4dbdcceeda9b59b85ae3fb22cec0) (G.R. No. 157286, June 16, 2006, En Banc), the Court held: "A plain reading of the law will show that the schools district supervisors have no administrative supervision over the school heads; their responsibility is limited to those enumerated in Section 7(D) of R.A. No. 9155". The Court defined administrative supervision as "overseeing or the power or authority of an officer to see that their subordinate officers perform their duties". It noted that the Act gives the supervision of school operations to the superintendent.

The association won one point. The implementing rules required a school head to report donations to the division superintendent alone. The Act says they "must be reported to the appropriate district supervisors and division superintendents" (Sec. 7(E)(11)). The Court declared the rules valid except on this point: donations "must also be reported to the appropriate school district supervisors".

### What a district supervisor may be assigned to do

[DepEd Order No. 24, s. 2005](https://www.deped.gov.ph/2005/05/24/do-24-s-2005-rationalizing-the-roles-and-functions-of-district-supervisors/) told superintendents to recommend the best role for each district supervisor, in a deployment plan sent to the Regional Office, and listed five options (par. 2(c)):

- subject area or grade level specialist for a geographical area;
- principal of a school whose principal position is about to be vacated;
- temporary principal of a cluster of schools without a principal or head teacher, by designation of the superintendent;
- mentor of newly appointed principals or head teachers, for at most one year; or
- staff of the superintendent in the municipality, leading municipal planning and representing the schools in the Local School Board, "but without any administrative supervisory authority over schools".

In the 2015 structure, district supervision sits inside a division of the superintendent's office: District Instructional Supervision is one of the sections of the Curriculum Implementation Division (DO 52, s. 2015, General Functions: Schools Division Office, item 2.40).

The load is uneven. The median school district had 17 public schools in School Year 2023-2024, and a third of districts had more than 20. In 2021 DepEd formed a national technical working group to review school districting and "determine the functions and delineation of positions in the schools division offices and schools, including but not limited to Public Schools District Supervisors, Education Supervisors, and School Heads" ([DepEd Memorandum No. 026, s. 2021](https://www.deped.gov.ph/2021/05/12/may-12-2021-dm-026-s-2021-national-technical-working-group-to-review-and-revise-school-districting-policies/)). Three months later it put all redistricting requests on hold "until an updated policy and guidelines related to school redistricting have been issued" (DM 057, s. 2021, par. 3). As of November 12, 2026, no DepEd order or memorandum has lifted the hold.

> **Important**
>
> A district supervisor supervises instruction and the curriculum and advises the school head on both. The supervisor gives no administrative direction to a school unless specifically authorized, for example by a designation from the superintendent. DO 1, s. 2003 does not say how far instructional supervision binds a school head; administrative directions come from the superintendent.

## School level: the School Head

The school head "shall be both an instructional leader and administrative manager" (Sec. 7(E)). The Act lists eleven named powers and a general clause. In short, the school head:

- sets the school's mission, vision, goals and objectives, and develops the school education program and the School Improvement Plan;
- creates an environment conducive to teaching and learning;
- implements the curriculum, is accountable for higher learning outcomes, offers programs that give all learners equitable opportunities, and introduces new modes of instruction;
- administers and manages all personnel, physical and fiscal resources of the school;
- recommends the school's staffing complement and encourages staff development;
- builds school and community networks; and
- accepts donations for three purposes, and reports them.

Two limits define the office. The school head recommends staff and does not appoint them. And the school head forwards complaints against teachers and does not decide them. [RA 9155 Duties of DepEd School Heads](https://nash.com.ph/blog/ra-9155-school-head-duties) takes the twelve areas one by one, and [Principal, Head Teacher or Teacher-in-Charge in DepEd](https://nash.com.ph/blog/principal-head-teacher-teacher-in-charge) covers who counts as a school head.

## Who does what, side by side

The table sets the five levels beside one another in six areas of decision, under the Act and its implementing rules. A dash means Section 7 lists no function of that kind for the level. Outside Section 7, the Act has the Secretary of Education and the Secretary of Budget and Management set the guidelines for allocating resources to field offices (Sec. 10).

| Area | Secretary | Regional Director | Superintendent | District Supervisor | School Head |
|---|---|---|---|---|---|
| Policy and plans | National policies and the national basic education plan | Regional policy framework and regional basic education plan | Division education development plans | — | Mission, vision, goals and objectives; School Improvement Plan |
| Standards and results | National standards; national learning outcomes | Regional standards; regional learning outcomes; oversight of laws and policies in the region | Compliance with quality standards, with division supervisors as subject area specialists; accreditation standards | — | Accountable for higher learning outcomes |
| Curriculum and instruction | Programs for the total development of learners | — | — | Instructional advice and support; curricula supervision | Implements the curriculum; new modes of instruction; programs for all learners |
| People | Welfare and competence of all personnel; disciplinary authority | Staffing pattern of divisions and districts; evaluates superintendents; disciplines teachers | Hires, places and evaluates division employees, including school heads; disciplines non-teaching personnel | — | Recommends staffing; staff development |
| Money and resources | — | Regional budget; regional office resources | Division resources; monitors schools' use of national and local funds | — | Manages the school's resources; accepts donations |
| Schools and community | — | Approves the establishment of schools; may add school districts | Supervises the operations of public and private schools | — | Learning environment; school and community networks |

Read across a row and one pattern shows: plans and standards appear at every level of the line, each time for a smaller territory. Read down the district column and the opposite shows: one area only.

## Twelve powers and the level that holds each

| Power | Who holds it | Provision |
|---|---|---|
| Promulgating national educational standards | Secretary | RA 9155, Sec. 7(A)(3) |
| Approving the establishment of a new public or private school | Regional Director | Sec. 7(B)(13) |
| Evaluating superintendents and assistant superintendents | Regional Director | Sec. 7(B)(10) |
| Deciding an administrative case against a teacher or school head | Regional Director, or the Secretary | DO 1, s. 2003, Secs. 2.1(8) and 4.3 |
| Establishing an additional school district | Regional Director, on the superintendent's recommendation | Sec. 7(D); DO 1, s. 2003, Sec. 5.2 |
| Hiring and appointing teachers and school heads | Superintendent | Sec. 7(C)(3); DO 1, s. 2003, Sec. 4.3 |
| Monitoring how schools use national and local funds | Superintendent | Sec. 7(C)(4) |
| Supervising the operations of public and private schools | Superintendent | Sec. 7(C)(7) |
| Giving school heads and teachers instructional advice and support | District Supervisor | Sec. 7(D)(1) |
| Recommending the school's staffing complement | School Head | Sec. 7(E)(8) |
| Developing the School Improvement Plan | School Head | Sec. 7(E)(4) |
| Accepting a donation to the school | School Head, who reports it to the district supervisor and the superintendent | Sec. 7(E)(11) |

## The offices behind each level

Each level is an office with divisions of its own. The current structure dates from the DepEd Rationalization Plan, which the Department of Budget and Management approved on November 15, 2013 (DO 52, s. 2015, par. 4).

| Level | Offices |
|---|---|
| Regional Office | Office of the Regional Director, with the Legal, Information and Communication Technology, and Public Affairs units; Curriculum and Learning Management Division; Education Support Services Division; Field Technical Assistance Division; Quality Assurance Division; Policy, Planning and Research Division; Human Resource Development Division; Administrative Division; Finance Division |
| Schools Division Office | Office of the Schools Division Superintendent, with legal, information and communication technology, administrative and finance services; Curriculum Implementation Division; School Governance and Operations Division |

On May 5, 2023, the Undersecretary for Human Resource and Organizational Development released Version 3 of the office functions of the regional and division offices ([Memorandum DM-HROD-2023-0617](https://region8.deped.gov.ph/2023/05/05/may-05-2023-memorandum-dm-hrod-2023-0617-deped-ro-sdo-office-functions-version-3/)). The memorandum says these documents "will form part of the QMS Operations Manual" and guide each office's operational plan. They describe the work of each office; they do not change who holds a power under the Act. Each level's sheets, in full and searchable, are in [DepEd Central Office Functions](https://nash.com.ph/blog/deped-central-office-functions), [DepEd Regional Office Functions](https://nash.com.ph/blog/deped-regional-office-functions) and [Schools Division Office Functions](https://nash.com.ph/blog/deped-schools-division-office-functions).

Three of them matter most to a school:

- **The Curriculum Implementation Division** "continuously improves the management of curriculum implementation in the schools and learning centers towards the achievement of quality basic education". This is where a school's questions on instruction, assessment and learning resources go.
- **The School Governance and Operations Division** supports schools on planning, school-based management, partnerships, health, facilities and staff development.
- **The Quality Assurance Division of the Regional Office** "monitors and evaluates the performance of RO units and SDOs on the compliance to statutory and regulatory policy standards and requirements". Its work includes regulatory services to schools, such as permits and recognition of private schools.

## What EDCOM II and its researchers found

The levels were meant to decentralize. Researchers for the Second Congressional Commission on Education found that they mostly reproduce a hierarchy.

- **The design is older than the law.** The relationship between the levels "mirrors those in the Education Act of 1982", and "decision-making appears to be concentrated at the Central Office" (Laguda et al., 2025, p. 25). [How Philippine Education Became Centralized, 1901-2001](https://nash.com.ph/blog/how-philippine-education-became-centralized) traces the five levels back to Act No. 74 of 1901, one law at a time.
- **Each level duplicates the one above.** "Generally, the lower level replicates or duplicates the functions of the higher level but on a smaller scale" (p. 25).
- **Field offices carry out; they do not design.** "With the Central Office retaining most of the decision-making on programs and resources, field offices operate mainly as implementers" (p. 28).
- **The system runs on memoranda.** DepEd "continues to function through highly centralized, memo-driven decision-making that limits initiative across regions, divisions, and schools" (EDCOM II Final Report, p. 369).

The implementing rules foresaw part of this. They ordered a study "on the specific delineation of roles and responsibilities between and among district/division/regional supervisors" (DO 1, s. 2003, Sec. 7.2(b)). [RA 9155 at 25: Why Shared Governance Has Not Happened](https://nash.com.ph/blog/ra-9155-shared-governance-decentralization) covers the findings, the remedies EDCOM II proposes and the bills in Congress.

## What this means for school heads

**Send each request to the level that can grant it.** The table gives the usual cases.

| The school needs | The level that decides | What the school head does |
|---|---|---|
| A teacher for a vacant or new item | Superintendent, who appoints | Recommends the staffing complement, with the enrollment and class data behind it |
| A decision on a complaint against a teacher | Regional Director | Forwards the complaint to the Regional Director, within 48 hours when it is a child-protection complaint ([DepEd Order No. 40, s. 2012](https://www.deped.gov.ph/2012/05/14/do-40-s-2012-deped-child-protection-policy/), Sec. 16(A)); does not decide it or order a preventive suspension |
| A new school, a separated annex or an integrated school | Regional Director, on the superintendent's recommendation | Prepares the request and the school's data for the division's evaluation |
| Advice on instruction, assessment or the curriculum | District Supervisor and the Curriculum Implementation Division | Asks, and acts on it as part of instructional supervision |
| Appraisal of the School Improvement Plan | The division office: a Division Appraisal Committee appraises it and the superintendent approves it, under a 2018 Central Office procedure that divisions may adapt | Develops the plan with the school planning team and submits it; see the [SIP guide](https://nash.com.ph/blog/deped-school-improvement-plan) |
| Acceptance of a donation | The School Head | Accepts it for one of the three lawful purposes and reports it to the district supervisor and the superintendent |

**Know what is yours.** Section 7(E) gives the school head the school's goals and objectives, its education program and improvement plan, its programs, its ways of teaching and the management of its resources. Each is exercised within national policies, plans and standards: a school adopts the DepEd vision, mission and core values and no other ([DepEd Order No. 36, s. 2013](https://www.deped.gov.ph/2013/09/04/do-36-s-2013-our-department-of-education-vision-mission-and-core-values-deped-vmv/)), and the division appraises the School Improvement Plan.

**Recommend with evidence.** Where the law gives the school head a recommending power, the recommendation is the school's voice in a decision made elsewhere. A staffing recommendation backed by enrollment, class sizes and teaching loads is harder to set aside.

**Keep instruction and administration apart.** Work with the district supervisor on instruction and the curriculum, which are the supervisor's by law. Ask for the written authority when an instruction is administrative.

**Report upward what the law says to report.** Donations go to the district supervisor and the superintendent. The use of funds is monitored by the superintendent.

These duties fall under the Philippine Professional Standards for School Heads: [Domain 1, Leading Strategically](https://nash.com.ph/blog/ppssh-domain-1-leading-strategically), for policy implementation and school planning, and [Domain 2, Managing School Operations and Resources](https://nash.com.ph/blog/ppssh-domain-2-managing-school-operations), for staff and resources.

## Frequently asked questions

### What are the levels of governance in RA 9155?

Five: the national level under the Secretary of Education, the regional level under the Regional Director, the division level under the Schools Division Superintendent, the schools district level under the Schools District Supervisor, and the school level under the School Head (RA 9155, Sec. 7(A) to (E)). Four are in the line of authority; the district supervisor performs staff functions (DO 1, s. 2003, Sec. 5.1).

### Does a district supervisor have authority over a school principal?

Not administrative authority. The district supervisor gives professional and instructional advice and supervises curricula, and "shall not exercise administrative supervision over school principals, unless specifically authorized by the proper authorities" (DO 1, s. 2003, Sec. 5.1). The Supreme Court upheld this in *Public Schools District Supervisors Association v. De Jesus* (2006).

### Who appoints teachers and school heads in DepEd?

The Schools Division Superintendent, who hires, places and evaluates all employees in the division, teaching and non-teaching, including school heads (RA 9155, Sec. 7(C)(3); DO 1, s. 2003, Sec. 4.3). The school head recommends the staffing complement of the school.

### Who approves the establishment of a new public school?

The Regional Director (RA 9155, Sec. 7(B)(13)), under standards and guidelines the Secretary sets. The division office evaluates the request and recommends, and the Secretary confirms the new school and its School ID (DO 40, s. 2014, Part VI).

### Can a school head discipline a teacher?

No. The Regional Director and the Secretary are the disciplining authorities for teaching personnel, and the superintendent for non-teaching personnel only (DO 1, s. 2003, Secs. 2.1(8) and 4.3). The school head forwards complaints and recommends.

## Sources

**Laws and court decisions**

- [Republic Act No. 9155](https://www.officialgazette.gov.ph/2001/08/11/republic-act-no-9155/), Governance of Basic Education Act of 2001 (August 11, 2001), Secs. 2, 5, 7, 10 and 13.
- Republic Act No. 4670, Magna Carta for Public School Teachers (June 18, 1966), Sec. 2.
- [*Public Schools District Supervisors Association v. De Jesus*](https://elibrary.judiciary.gov.ph/assets/dtSearch/dtSearch_system_files/dtisapi6.dll?cmd=getdoc&DocId=49724&Index=%2a4aeb4dbdcceeda9b59b85ae3fb22cec0), G.R. No. 157286, June 16, 2006, En Banc.

**DepEd issuances**

- [DepEd Order No. 1, s. 2003](https://www.deped.gov.ph/2003/01/06/do-1-s-2003-promulgating-the-implementing-rules-and-regulations-irr-of-republic-act-no-9155-otherwise-known-as-the-governance-of-basic-education-act-of-2001/), Promulgating the Implementing Rules and Regulations of Republic Act No. 9155 (January 6, 2003), Rules II to VII.
- [DepEd Order No. 24, s. 2005](https://www.deped.gov.ph/2005/05/24/do-24-s-2005-rationalizing-the-roles-and-functions-of-district-supervisors/), Rationalizing the Roles and Functions of District Supervisors (May 24, 2005), par. 2(c).
- [DepEd Order No. 49, s. 2006](https://www.deped.gov.ph/2006/12/12/do-49-s-2006-revised-rules-of-procedure-of-the-department-of-education-in-administrative-cases-amended-by/), Revised Rules of Procedure of the Department of Education in Administrative Cases (December 12, 2006), Sec. 1.
- [DepEd Order No. 40, s. 2012](https://www.deped.gov.ph/2012/05/14/do-40-s-2012-deped-child-protection-policy/), DepEd Child Protection Policy (May 14, 2012), Sec. 16(A).
- [DepEd Order No. 36, s. 2013](https://www.deped.gov.ph/2013/09/04/do-36-s-2013-our-department-of-education-vision-mission-and-core-values-deped-vmv/), Our Department of Education Vision, Mission and Core Values (September 4, 2013), par. 2.
- [DepEd Order No. 40, s. 2014](https://www.deped.gov.ph/2014/08/26/do-40-s-2014-establishment-merging-conversion-and-naming-renaming-of-public-schools-and-separation-of-public-school-annexes-in-basic-education/), Establishment, Merging, Conversion, and Naming/Renaming of Public Schools, and Separation of Public School Annexes in Basic Education (August 26, 2014).
- [DepEd Order No. 52, s. 2015](https://www.deped.gov.ph/2015/10/30/do-52-s-2015-new-organizational-structures-of-the-central-regional-and-schools-division-offices-of-the-department-of-education/), New Organizational Structures of the Central, Regional, and Schools Division Offices of the Department of Education (October 30, 2015), pars. 4 and 7 and the Enclosure's general functions.
- [DepEd Order No. 44, s. 2015](https://www.deped.gov.ph/2015/09/29/do-44-s-2015-guidelines-on-the-enhanced-school-improvement-planning-sip-process-and-the-school-report-card-src/), Guidelines on the Enhanced School Improvement Planning (SIP) Process and the School Report Card (SRC) (September 29, 2015).
- [DepEd Order No. 015, s. 2024](https://www.deped.gov.ph/2024/10/18/october-18-2024-do-015-s-2024-revised-designation-of-undersecretaries-and-assistant-secretaries-to-the-strands-and-functional-areas-of-responsibilities-and-revised-signing-authorities-on/), Revised Designation of Undersecretaries and Assistant Secretaries to the Strands and Functional Areas of Responsibilities (October 18, 2024).
- [DepEd Memorandum No. 026, s. 2021](https://www.deped.gov.ph/2021/05/12/may-12-2021-dm-026-s-2021-national-technical-working-group-to-review-and-revise-school-districting-policies/), National Technical Working Group to Review and Revise School Districting Policies (May 12, 2021).
- [DepEd Memorandum No. 057, s. 2021](https://www.deped.gov.ph/2021/08/18/august-18-2021-dm-057-s-2021-moratorium-on-the-request-for-school-redistricting-and-schools-division-reclassification/), Moratorium on the Request for School Redistricting and Schools Division Reclassification (August 18, 2021), par. 3.
- [Memorandum DM-HROD-2023-0617](https://region8.deped.gov.ph/2023/05/05/may-05-2023-memorandum-dm-hrod-2023-0617-deped-ro-sdo-office-functions-version-3/), DepEd RO & SDO Office Functions Version 3 (May 5, 2023), with the office functions of the Quality Assurance Division, the Curriculum Implementation Division and the School Governance and Operations Division.

**News reports**

- De Layola, Z. (2026, June 4). [House approves 3 key education measures on third reading](https://ptvnews.ph/house-approves-3-key-education-measures-on-third-reading/). Philippine News Agency.

**Reports and data**

- Laguda, R., Aquino, G., Cangayao, L., and Tagle, R. (2025). [*Realizing Shared Governance: Decentralization of Philippine Basic Education*](https://asiafoundation.org/wp-content/uploads/2025/11/27_LAGUDA-et-al-Realizing-Shared-Governance-Decentralization.pdf). The Asia Foundation and EDCOM II. Chapter 3, Section 2 and Table 2 (pp. 25-29).
- Second Congressional Commission on Education (2026). [*Turning Point: A Decade of Necessary Reform (2026-2035)*](https://edcom2.gov.ph/media/2026/01/EDCOM-II-Y03-for-web-012626_final.pdf), EDCOM II Final Report, pp. 37, 369 and 370.
- DepEd school-level data for School Year 2023-2024 (the cleaned files are in [Download Cleaned DepEd School Data](https://nash.com.ph/blog/download-cleaned-deped-school-data)), and DepEd, [School MOOE Allocation, FY 2026](https://www.deped.gov.ph/transparency/deped-school-mooe-allocation-fy-2026/).

*This guide explains DepEd rules and a Supreme Court decision for study and professional awareness. It is not legal advice; for a specific case, consult a lawyer or your Schools Division Office's legal unit.*

*Written by Mark Anthony Llego for NASH Reviewer. Sources: Republic Act No. 9155; DepEd Orders No. 1, s. 2003, No. 24, s. 2005, No. 49, s. 2006, No. 40, s. 2014 and No. 52, s. 2015; DepEd Memoranda No. 026 and No. 057, s. 2021; Memorandum DM-HROD-2023-0617; Public Schools District Supervisors Association v. De Jesus (2006); Laguda et al. (2025); the EDCOM II Final Report.*

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© 2026 Mark Anthony Llego, NASH Reviewer. All rights reserved. You may quote up to 100 words from this article with the author's name, its title and a link. In research, cite it as: Llego, M. A. (2026, November 12). *Who Decides What in DepEd? RA 9155's Five Levels*. NASH Reviewer. https://nash.com.ph/blog/deped-governance-levels-who-decides. Any other reuse of the article, its charts or its data needs written permission: email support@nash.com.ph. Terms of Service: https://nash.com.ph/terms#website-content-and-data