If a school is refusing to release a report card, Form 137, clearance, diploma, or other student record because of unpaid “contributions,” the first question is: what kind of amount is unpaid? In Philippine basic education, unpaid voluntary contributions—such as PTA dues, class funds, school project donations, membership fees, or similar charges—should not be used to block enrollment, promotion, clearance, or the release of records. The answer can be more complicated when the balance is actual private school tuition, an approved school fee, or a real property accountability such as lost books or equipment. This guide explains the difference, the legal basis, and the practical steps parents and students can take.

Quick Answer: Can a School Withhold Records for Unpaid Contributions?

In general:

Public schools cannot withhold student records, clearance, enrollment, or promotion because of unpaid voluntary contributions or membership fees.
Voluntary contributions are not the same as tuition or legally approved school fees.
Private schools may have enforceable financial obligations for tuition or authorized fees, but they should not disguise voluntary contributions as mandatory charges.
Form 137/SF10 is usually requested school-to-school, not hand-carried by the parent or student.
If the school refuses without a valid basis, the matter can be raised to the school head, Schools Division Office, SGOD, Legal Unit, Regional Office, or DepEd Action Center.

DepEd’s policy on learner records is clear that the release and transfer of school records should be accessible, timely, secure, and should avoid inconveniencing learners and parents. DepEd Order No. 54, s. 2016 specifically states that non-payment of voluntary school contributions or membership fees shall not be a basis for non-admission, non-promotion, or non-issuance of clearance.

What Student Records Are Usually Involved?

Parents often say “records” generally, but schools handle different documents differently. Knowing the exact document helps you ask for the right remedy.

Document	Also called	What it is used for	Important note
Report Card	Form 138 or SF9	Shows grades for a school year or grading period; commonly required for enrollment in the next grade level	Usually issued to the learner or parent at the end of the grading period, semester, or school year
Permanent Record	Form 137 or SF10	Complete academic record used by the receiving school to verify grades and history	Usually transferred school-to-school, not hand-carried by the parent
Certificate of Good Moral Character	Good moral certificate	Often required for transfer, college admission, scholarships, or employment screening	Schools may have procedures, but should not use voluntary contributions as leverage
Diploma or Certificate of Completion/Graduation	Diploma, completion certificate	Proof of completion of elementary, junior high, senior high, or other program	May be needed for work, college, or overseas processing
CAV documents	Certification, Authentication, and Verification	Used when school records need authentication for foreign use	May involve DepEd, CHED, TESDA, or DFA depending on the level and document

DepEd Order No. 54 defines Form 137 as the learner’s permanent school record and Form 138 as the report card showing academic performance in a school year. It also provides that Form 138 is required for enrollment in the next grade level because it indicates the learner’s promotion status.

Legal Basis: Why Unpaid Voluntary Contributions Should Not Block Records

The Constitution Protects Access to Education

The 1987 Philippine Constitution requires the State to protect and promote the right of all citizens to quality education and to make education accessible. It also requires a system of free public education in elementary and high school, while recognizing that the State may reasonably supervise and regulate educational institutions. (Lawphil)

This matters because school records are not ordinary pieces of paper. A withheld report card or permanent record can prevent a child from enrolling, transferring, graduating, applying for scholarships, or continuing studies abroad.

DepEd Rules Prohibit Using Voluntary Contributions as Leverage

DepEd Order No. 54, s. 2016 is one of the most important rules for this issue. It states:

learner records should be released and transferred efficiently;
the process should not inconvenience learners or parents;
Form 137/SF10 is generally transferred between schools;
non-payment of voluntary school contributions or membership fees cannot be used as a basis for non-admission, non-promotion, or non-issuance of clearance.

DepEd Order No. 03, s. 2018 also states that no fees shall be collected during enrollment in public schools, that voluntary membership fees and contributions may be collected only after enrollment and subject to DepEd rules, and that non-payment of voluntary contributions shall not prohibit enrollment. (Supreme Court E-Library)

Private School Tuition Is a Different Issue

A private school contract is not the same as a voluntary contribution. Under Article 1159 of the Civil Code, obligations arising from contracts have the force of law between the parties and must be complied with in good faith. (Lawphil)

This means a private school may have a legitimate claim for unpaid tuition or authorized school fees. However, that does not automatically mean every requested amount is legally mandatory. Parents should ask:

Is this charge part of the approved tuition or school fees?
Was it disclosed in writing before or during enrollment?
Is it a voluntary contribution, donation, PTA amount, or class fund?
Is there an itemized statement of account?
Is the child’s record being withheld because of a genuine contractual balance, or because of a voluntary contribution?

Even when a school has a valid claim, collection should still be done in good faith. Civil Code Articles 19, 20, and 21 require people and institutions to act with justice, give everyone their due, and observe honesty and good faith. Acts contrary to law, morals, good customs, public order, or public policy may create liability. (Supreme Court E-Library)

Public School vs Private School: The Practical Difference

Situation	Can the school withhold records?	What you should do
Public school asks for unpaid PTA contribution	No, if it is voluntary	Request release in writing and cite DepEd Order No. 54, s. 2016
Public school refuses clearance because of unpaid class fund, school project, scouting, Red Cross, or similar contribution	Generally no	Ask for written basis and elevate to the school head or SDO
Public school has a real property accountability, such as unreturned books	It may require accountability settlement, but should not confuse this with voluntary contributions	Ask for an itemized list and replacement basis
Private school has unpaid tuition or approved fees	More complicated; there may be a contractual obligation	Ask for the enrollment contract, statement of account, and written policy
Private school demands unpaid “contribution” or donation	It should not be treated like mandatory tuition	Ask whether the charge is voluntary or officially approved
Records are needed for transfer abroad	The request may go through the SDO and later CAV/apostille procedures	Prepare IDs, authorization documents, certified copies, and school details

Step-by-Step: What to Do If a School Is Withholding Student Records

1. Identify the Exact Record Being Withheld

Do not just say “records.” Ask specifically for the document you need:

SF9/Form 138 report card
SF10/Form 137 permanent record
certificate of good moral character
diploma or certificate of completion
certification of enrollment
certification of grades
CAV-related certified true copies

This matters because Form 137/SF10 normally follows a school-to-school process, while the report card is usually given to the learner or parent.

2. Ask for the Exact Reason in Writing

Politely ask the school to identify:

the amount allegedly unpaid;
whether it is tuition, approved school fee, property accountability, or voluntary contribution;
the written policy or legal basis for withholding the record;
the office or person responsible for approving release.

A written explanation prevents the issue from becoming a vague conversation at the registrar’s window. It also gives you something to attach if you need to file a complaint.

3. Classify the Unpaid Amount

Use this simple test:

Type of amount	Examples	Legal treatment
Voluntary contribution	PTA donation, class fund, school project contribution, graduation donation, organization contribution	Should not block enrollment, promotion, clearance, or release of records
Membership fee	PTA membership, club membership, organization fee	Non-payment should not be used as basis for non-admission, non-promotion, or non-issuance of clearance
Tuition or approved school fee	Private school tuition, miscellaneous fee approved and disclosed under school policy	May create a contractual obligation
Property accountability	Lost books, damaged equipment, unreturned school property	Ask for itemized proof and replacement basis
Processing/authentication cost	CAV or document certification expense	Check the Citizen’s Charter or official fee schedule; ordinary DepEd learner record processing should not be used to impose unauthorized charges

4. Send a Short Written Request to the School Head or Registrar

A calm written request often solves the problem faster than an argument.

You can write:

I respectfully request the release of my child’s school record, specifically the [SF9/Form 138/Form 137/good moral certificate/diploma]. We were informed that release is being withheld due to unpaid [state the contribution or amount]. Kindly confirm in writing whether this amount is a voluntary contribution, membership fee, tuition, approved school fee, or property accountability, and the legal or policy basis for withholding the record.

If the amount is a voluntary school contribution or membership fee, we respectfully request release of the record in accordance with DepEd Order No. 54, s. 2016, which provides that non-payment of voluntary school contributions or membership fees shall not be a basis for non-admission, non-promotion, or non-issuance of clearance.

Keep a copy with proof of receipt. If you submit by email, save the sent email and any reply.

5. If the Student Is Transferring, Let the Receiving School Request Form 137/SF10

For transfers, DepEd’s process is designed so the receiving school requests the learner’s Form 137/SF10 from the originating school, usually through the Learner Information System or LIS. DepEd Order No. 54 says learners and parents are not allowed to hand-carry Form 137 to preserve the confidentiality and integrity of the record.

In practice:

Enroll or apply at the receiving school.
Submit the report card/SF9 or other minimum enrollment documents.
Ask the receiving school to request SF10/Form 137 from the previous school.
Follow up with the registrar or records officer.
If the previous school does not respond, ask the receiving school to escalate through the proper DepEd process.

DepEd’s transfer procedure expects the receiving school to secure Form 137 before the end of the first grading period. For learners who transfer mid-year, the documents should be secured within 30 days from the first day of attendance.

6. If the Previous School Still Does Not Release the Record, Escalate Through DepEd Channels

DepEd Order No. 54 provides escalation steps when records are not received. If no document is received after one month, the receiving school may use the follow-up mechanism in the LIS. If records are still not received after the first grading period, the matter may be referred to the School Governance and Operations Division or SGOD. For mid-year transfers, if no document is received 30 days after LIS notification, the SGOD may also be informed.

A practical escalation path is:

Class adviser or registrar
School head/principal
District supervisor, if applicable
Schools Division Office
SGOD or Legal Unit
Regional Office
DepEd Action Center or other government feedback channels

When escalating, attach documents. Do not rely only on verbal narration.

7. Use Temporary Enrollment Rules When Records Are Delayed

If a transferee cannot immediately submit the required report card or school record, DepEd enrollment rules allow temporary enrollment in certain situations using documents such as an affidavit of undertaking. However, if required documents remain incomplete, the learner may not be officially promoted or graduated, and official documents may not be released. This rule addresses missing documentary requirements, not unpaid voluntary contributions. (Supreme Court E-Library)

This distinction is important. A child should not be penalized because a former school is improperly withholding records over voluntary contributions.

Documents to Prepare Before Complaining or Following Up

Document or information	Why it helps
Student’s full name, grade level, school year, and Learner Reference Number or LRN	Helps the school and SDO locate the record
Parent or guardian’s valid ID	Confirms authority to request or follow up
Student’s previous school details	Needed for school-to-school record requests
Copy of report card, enrollment form, or proof of transfer	Shows why the record is needed
Written refusal, email, message, or screenshot	Proves the school is withholding the document
Statement of account or list of unpaid charges	Helps determine whether the amount is voluntary or contractual
Receipts or proof of payment	Shows what has already been paid
Authorization letter or Special Power of Attorney	Needed if a representative will transact
For overseas use: certified true copies, CAV forms, passport photo, PSA birth certificate, and authorization documents	May be required for CAV and apostille processing

For documents used abroad, the Department of Foreign Affairs generally requires an appointment for apostille/authentication services. A representative may apply with proper authorization, and for minors or parents abroad, a Special Power of Attorney or consularized document may be required depending on the situation. (DFA Appointment System)

Typical Timelines and Bottlenecks

Step	Typical timing	Common bottleneck
Release of report card/SF9	End of grading period, semester, or school year	Teacher or registrar delays due to clearance practice
School-to-school request for Form 137/SF10	Before end of first grading period	Originating school does not respond
Mid-year transfer record request	Within 30 days from first day of attendance	LIS request not monitored
Follow-up if no Form 137 is received	After one month or relevant DepEd timeline	Receiving school does not escalate
Complaint intake at SDO/Legal Unit	Often received the same day, depending on office	Incomplete attachments or unclear request
CAV or authentication processing	Varies by office and completeness of documents	Missing certified true copies, Special Order, PSA record, authorization, or DFA appointment

Some DepEd Citizen’s Charters list very short processing times for receiving or processing complete CAV-related requests, but actual timelines vary depending on the document, school verification, division office workload, and whether the record is old, archived, or from a closed school. (DepEd Region VIII)

Common Real-Life Scenarios

“The teacher said no PTA contribution, no report card.”

For a public school, that is usually improper if the amount is truly a voluntary PTA contribution. Ask for the report card in writing and cite DepEd Order No. 54, s. 2016. If the teacher refuses, elevate to the principal.

“The school says my child cannot enroll because we did not pay a school project contribution.”

In public basic education, non-payment of voluntary contributions should not prevent enrollment. DepEd Order No. 03, s. 2018 states that public school learners must be accepted upon submission of minimum documentary requirements, and non-payment of voluntary contributions shall not prohibit enrollment. (Supreme Court E-Library)

“The school will not issue clearance because of unpaid graduation expenses.”

Graduation expenses, photos, flowers, decorations, tarpaulins, souvenirs, and similar items should be examined carefully. If they are voluntary or optional, they should not be used to block clearance or records. Ask for a written itemization and the basis for making the amount mandatory.

“My child has unpaid tuition in a private school.”

This is different from a voluntary contribution. The school may have a contractual claim for tuition or approved fees. Ask for:

the enrollment contract;
the approved schedule of tuition and fees;
the statement of account;
the school policy on release of documents;
a possible payment plan;
partial release of records needed for transfer, scholarship, or urgent enrollment.

If the unpaid amount is not tuition but a donation, contribution, or membership fee, ask the school to separate it from the tuition account.

“The previous school closed and we need records.”

For basic education records, contact the Schools Division Office that supervised the school. DepEd Order No. 54 recognizes processes through the SDO, and if Form 137 is unavailable, School Form 5 may be used as a substitute in certain situations.

“We are abroad and need school records for immigration, employment, or foreign school admission.”

You may need certified true copies, CAV, and DFA apostille, depending on the foreign institution’s requirement. If the parent or student is abroad, an authorized representative in the Philippines may need an authorization letter or Special Power of Attorney. DFA apostille services generally require an online appointment, and minors may need additional authority documents. (DFA Appointment System)

How to File a Complaint with DepEd

A complaint is stronger when it is specific, documented, and respectful.

What to include

Prepare a short complaint letter containing:

name of the student;
grade level and school year;
name of the school;
specific document withheld;
date you requested the document;
name or position of the person who refused;
exact unpaid amount being cited;
whether the amount is a contribution, membership fee, tuition, or property accountability;
what you are requesting DepEd to do.

Attach:

screenshots or written messages;
statement of account;
request letter;
proof of enrollment or transfer;
IDs;
receipts, if any.

Where to file

You may start with:

School Head or Principal Best first step if the issue is caused by a teacher, class adviser, registrar, or cashier.
Schools Division Office File with the SDO supervising the school. Many SDOs have a Legal Unit, Records Unit, Public Assistance Desk, or SGOD.
Regional Office Use this if the SDO does not act or the issue involves division-level delay.
DepEd Action Center or government complaint channels These may help track unresolved public service concerns.

Some division offices provide walk-in and online complaint receiving procedures, including referral to the Legal Unit and information on other government feedback channels such as 8888, ARTA, or the Civil Service Commission contact center. (DepEd Quezon)

Practical Tips Before the Situation Gets Worse

Do not argue at the classroom door. Put the request in writing.
Do not sign a waiver admitting the amount is mandatory if you dispute it.
Ask for an itemized statement of account.
Separate voluntary contributions from tuition or property accountability.
Keep proof of every payment.
For transfers, coordinate with the receiving school because Form 137/SF10 is usually school-to-school.
For urgent enrollment, ask about temporary enrollment and an affidavit of undertaking.
For foreign use, check early because CAV and apostille requirements can take extra time.

Frequently Asked Questions

Can a public school withhold Form 137 because of unpaid PTA contribution?

Generally, no. If the unpaid amount is a voluntary PTA contribution or membership fee, DepEd Order No. 54, s. 2016 says it cannot be used as a basis for non-admission, non-promotion, or non-issuance of clearance. Form 137/SF10 is normally requested by the receiving school from the previous school.

Can a teacher refuse to give the report card because of unpaid class fund?

If the class fund is voluntary, it should not be used to withhold the report card. Ask the teacher or adviser to put the reason in writing, then elevate the matter to the school head if needed.

Are school contributions illegal?

Not always. Voluntary contributions may be allowed if they follow DepEd rules and are not collected as a condition for enrollment, promotion, clearance, or release of records. The problem starts when “voluntary” payments are treated as mandatory.

Can a private school withhold records because of unpaid tuition?

Private school tuition is different from a voluntary contribution. Tuition and approved fees may create contractual obligations under the Civil Code. However, parents should still ask for the written policy, itemized statement of account, and proof that the amount is tuition or an approved fee—not a disguised donation or voluntary contribution.

Is Form 137 the same as the report card?

No. The report card is commonly called Form 138 or SF9. The permanent record is commonly called Form 137 or SF10. The report card is usually given to the parent or learner, while Form 137/SF10 is usually transferred directly from the previous school to the receiving school.

Can parents personally get Form 137 from the school?

Usually, no. DepEd’s learner record transfer procedure says learners and parents are not allowed to hand-carry Form 137 because the document contains confidential academic information and must preserve its integrity. The receiving school should request it from the originating school.

What if the new school requires Form 137 before enrollment?

For basic education, the receiving school should help request Form 137/SF10. DepEd enrollment rules also recognize temporary enrollment procedures when required documents are not immediately available, subject to completion later. (Supreme Court E-Library)

Can the school require clearance before releasing records?

A clearance process may be used to check legitimate accountabilities, such as unreturned books or actual property obligations. But non-payment of voluntary contributions or membership fees should not be used as a reason to deny clearance.

Where do I complain if the school refuses to release records?

Start with the school head or principal. If unresolved, go to the Schools Division Office, SGOD, Legal Unit, Regional Office, or DepEd Action Center. Bring written proof of the refusal and copies of your requests.

What if the records are needed abroad?

Ask the school or SDO what certified copies are required, then check whether the foreign institution requires CAV and DFA apostille. If a representative will process the papers in the Philippines, prepare a proper authorization letter or Special Power of Attorney, especially if the student or parent is abroad. (DFA Appointment System)

Key Takeaways

Unpaid voluntary contributions should not block student records, enrollment, promotion, or clearance in Philippine basic education.
DepEd Order No. 54, s. 2016 directly addresses non-payment of voluntary school contributions and membership fees.
DepEd Order No. 03, s. 2018 also says non-payment of voluntary contributions shall not prohibit enrollment.
Form 138/SF9 is the report card; Form 137/SF10 is the permanent record.
Form 137/SF10 is normally requested school-to-school, not hand-carried by parents.
Private school tuition and approved fees are different from voluntary contributions and may involve contractual obligations.
Always ask for the reason for withholding in writing and request an itemized statement of account.
If the school refuses without valid basis, escalate to the principal, Schools Division Office, SGOD, Legal Unit, Regional Office, or DepEd Action Center.