1 ACDP 040 Strategies for Improving Basic Education School/Madrasah Effectiveness in Sumba, NTT VOLUME 2 Knowledge to Policy The Education Sector Analytical and Capacity Development Partnership (ACDP) i2 Strategies for Improving Basic Education School/Madrasah Effectiveness in Sumba Volume 2 Knowledge to Policy Published by: THE EDUCATION SECTOR ANALYTICAL AND CAPACITY DEVELOPMENT PARTNERSHIP (ACDP) Agency for Research and Development (Balitbang), Ministry of Education and Culture Building E, 19th Floor Jl. Jendral Sudirman, Senayan, Jakarta Phone:, Fax: Website: Secretariat Printed in December 2016 The Government of Indonesia (represented by the Ministry of Education and Culture, the Ministry of Religious Affairs, and the Ministry of National Development Planning/ BAPPENAS), the Government of Australia, through Australian Aid, the European Union (EU) and the Asian Development Bank (ADB) have established the Education Sector Analytical and Capacity Development Partnership (ACDP). ACDP is a facility to promote policy dialogue and facilitate institutional and organizational reform to underpin policy implementation and to help reduce disparities in education performance. The facility is an integral part of the Education Sector Support Program (ESSP). EU s support to the ESSP also includes a sector budget support along with a Minimum Service Standards capacity development program. Australia s support is through Australia s Education Partnership with Indonesia. This report has been prepared with grant support provided by Australian Aid and the EU through ACDP.
The consulting agency responsible for the preparation of this Inception Report is Cambridge Education. The expert team is comprised of: Mary Fearnley-Sander (Team leader and basic education specialist), Angela Cook (Specialist in School Inspection and Supervision), Maddi Mina Djara (Interpreter/ Translator and Researcher), Penelope Holden (Specialist in School Inspection and Supervision), Eko Cahyono Husein (Research Analyst), Tukiman Tarunasayoga (Policy Reviewer), Sandra Triatmoko (Education Cost and Finance Specialist), Gusti Ngurah Adhi Wibawa (Specialist in Education Statistics) ACDP Dr. David Harding, ACDP s Lead Advisor for Education Research and Knowledge Management is Lead Advisor for the Study, which is also supported by Hironimus Sugi as ACDP s Field Consultant. The views expressed in this publication are the sole responsibility of the authors and do not necessarily represent the views of the Government of Indonesia, the Government of Australia, the European Union or the Asian Development Bank. 23 Strategies for Improving Basic Education School/Madrasah Effectiveness in Sumba, NTT Volume 2 Knowledge to Policy 34 45 Table of content Table of Contents Acronyms and Terms.
Dalam konteks kelembagaan sekolah monitoring yang dilakukan kepala sekolah terutama dalam kegiatan administratif guru dan proses pembelajaran yang. KONSEP DASAR MONEV Keberhasilan sebuah program dapat dilihat dari apa yang direncanakan. Data dan informasi tentang pelaksanaan program, apakah proses pelaksanaan. Melaksanakan monitoring dan evaluasi (Monev) dan audit internal terhadap penyelenggaraan PPG di lingkungan program studi dan penyelenggaraan pendidikan berasrama serta monevin pada sekolah mitra tempat penyelenggaraan PPL PPG. Pelaksanaan program PPG SM3T di UNP saat ini meliputi sepuluh prodi yaitu: (1).
Vii Executive Summary. Ix The Knowledge to Policy Story. Ix Chapter 1 Policy Options Derived from the Sumba SD/MI Situation Analysis. 1 Policy Domain 1: Effective Teaching.
2 Policy Domain 2: Curricular Effectiveness. 5 Policy Domain 3: School Leadership. 6 Policy Domain 4: School Evaluation.
7 Policy Domain 5: An Integrated Teacher Workforce Policy. 9 Policy Domain 6: Remote School Support Policy Domain 7: Children s Readiness for School Chapter 2 District Policy Choices Introduction The Districts Priority Choices Choices and Fiscal Constraints Conclusion Chapter 3 The Jakarta-Sumba Policy Dialogue The Preparation of the Issues Policy Dialogue in Jakarta and Its Outcomes The Institutionalisation of the FPPS Conclusion Conclusion Achievements The Future Recommendations Annexes Annex 1: District Policy Plans Annex 2: Draft Constitution of the FPPS v6 Table of Content List of Table Table 1. The Policy Agenda of the FPPS. Areas of Policy Taken Up by Districts. Districts 2017 Commitments for KKG Table 4.
Districts Commitments on Quality of School Leadership Table 5. District Choices for Teacher Policy Table 6. Expenditure Allocations in the Four Sumba Districts (in Billions of Rupiah) Table 7. Relative Proportions of Direct and Indirect Expenditure (in Billions of Rupiah) Table 8. Direct Expenditure Budget Allocations by Large Sectors in Table 9. Budget Allocation for 9-Year Compulsory Basic Education (in Billions of Rupiah) Table 10. Budget Allocation for Expenditure on Hire of Contract (Non-PNS) Teachers Table 11.
District Expenditure on the S1 Teacher Upgrade from the Direct Expenditure Budget Table 12. Shortfalls in Funding Policy Choices (Sumba Barat) Table 13.
The Affordability of Quality Improvement with Adjustment to Sectoral Direct Allocations in Favour of Education List of Box Box 1. The Cycle of School Evaluation Planning and Monitoring. Unit cost of Technology Enabling Tablet Delivery of Professional Development Box 3. 44 Chapter 2 3045 The Jakarta-Sumba Policy Dialogue Chapter 3 The Jakarta-Sumba Policy Dialogue Policy dialogue between the representatives of the four district governments of Sumba and the central government took place over the two days of September Through the facilitation of the ACDP in Jakarta, the policy dialogue meetings were a joint product of the Ministry of Education and Culture and the Sumba governments. In Jakarta, the development of the agenda was supported by Balitbang and the office of the Secretary General of Education. 13 The meetings were given a high profile, including an opening by the Minister of Education and Culture, and the Directorates-General were substantively engaged in discussion of the agenda issues.
14 This chapter narrates the development of the dialogue and its consequences. Its theme is the effect of the policy interaction on the resolve and capacity of the Sumba leadership to attain enabling conditions of quality education from the central government. The Preparation of the Issues In preparation of the issues for discussion with the central government, the FPPS instructed the districts to identify the policies in contention and their regulatory bases within the overall regulatory framework of Indonesia s education system.
For this process, the Dinas Pendidikan from each district identified officers for a technical team. This team developed the statement of the issues, identified related regulation, and also formulated specific recommendations on each issue so that the policy dialogue would be oriented towards outcomes.
Their 13 By Balitbang through the Pusat Analisis dan Sinkronisasi Kebijakan (PASKA) under the leadership of Ilza Mahyuni and the Bidang Hubungan Pusat dan Daerah (James Modouw as special advisor to the Minister) under the Secretary General. 14 PASKA achieved this through a preparatory event (21 September) arranged to brief the Ministry on the issues and the organisation of responses. 3146 Chapter 3 policy briefs were endorsed by the leadership of each district and submitted to the Jakarta organisers of the event as the Sumba text for the policy dialogue. 15 The FPPS brought six policy issues to the table. These included the three major issues that dominated Sumba concerns well prior to the ACDP 040 intervention: the under-supply of PNS teachers; the obstacles to their placement in private schools, now perceived to be threatening their survival; and frustration with the low quality of the teachers emanating from the teachers degree. With their corrosive effect on the whole of quality education provision in Sumba, these issues have for long been the ground on which stakeholders wanted the central government to pay heed to what was happening in Sumba. Others were issues implicating national policy which arose directly from the Situation Analysis, such as inconsistent treatment affecting the quality of the teacher workforce, conditions of work for school leadership not conducive to the exercise of leadership by principals, and the non-resourcing of the PAUD sector alongside its expected provision by districts.
A strategy of the issue presentation was to feature the special characteristics of Sumba as a disadvantaged region, in line with PP 78/2014 (Acceleration of Development for Disadvantaged Regions) and its implications of special treatment. This was one reason for the inclusion of the issue of the Front Line Teachers in Sumba (Guru Garis Depan GGD), as an exemplar of how national policy actively disadvantages when it is premised on conditions that cannot be met by the region it is applied to. The text below is the Sumba text for policy dialogue in Jakarta.
It has been reproduced in its entirety from documents submitted to the sessions to show the technical capacity of the Sumba presentation of its case. 16 Policy area 1: The availability of PNS teachers. As many as 35% of schools in Sumba are community schools.
However, PNS allocation is limited to government schools, leaving 40% of Sumba s primary school enrolment without adequate teachers. Distributing available PNS teachers across the full primary enrolment results in a class-teacher ratio of 0.6 half of what is needed.
The case for reconsidering the basis of allocation of PNS to Sumba is supported by several regulations. The foundation law of Sisdiknas states Citizens of remote or disadvantaged areas have the right to special education service (Article 5, clause 3). Sumba s districts fall into the category of disadvantaged and the historical provision of primary education by community schools is a reason for regarding Sumba s situation as exceptional. In addition, Government regulation (PP) 28/1981 on support for private schools, 15 Bahan-Bahan dari Sumba Forum Kebijakan Gugus Tugas Tingkat Tinggi Musyawarah antara Pemangku Kepentingan di Kementerian Pendidikan dan Kebudayaan dengan di Pemangku Kepentingan di Sumba terkait masalah Pendidikan Dasar/MI Jakarta, September The accompanying recommendations have not been reproduced here. They appear in their updated form later in the chapter, redeveloped after the FPPS considered its response to the Ministry s original reception of them.
3247 The Jakarta-Sumba Policy Dialogue states that those that meet prerequisites can be given support, including through provision of PNS staff (Article 3b). This regulation has not been rescinded. Exacerbating undersupply, a recent central instruction requires the endorsement from the principal of a government school principal for promotion for all PNS teachers. This is leading to the withdrawal of PNS teachers placed by local government in private schools.
With this trend, the quality of private schools faces collapse. The Ministerial regulation (PermenPAN 17/2014), which is responsible for this instruction on PNS teacher promotion, is not consistent with PP 28/1981 or other higher order regulations including the national education law (Sisdiknas) and PP 74/2008 on the rights and responsibilities of teachers. Policy area 2: Improving teacher professionalism by reducing disparities in conditions.
There are more non-pns than PNS teachers in Sumba. However, their work conditions vary drastically from those of PNS: between Rp 150,000 Rp 1 million for non-pns teachers, as compared to Rp 3-6 million for PNS. These low wages are not compatible with developing a professional teacher workforce and the disparity of conditions within a single staffroom inhibits efforts for whole school improvement.
Local government is supplying the deficit of PNS teachers from its own resources. It is fiscally impossible for districts to also equalise wages.
The central government should provide the same bonus payment (tunjangan fungsional) that PNS teachers receive to all eligible non-pns staff. This would assist in alleviating the extent of the disparities between non-pns and PNS teachers.
Not all eligible teachers who teach in remote schools receive the remote teacher allowance. This is because the central government funding is limited by a quota system and the number of teachers in remote schools in Sumba exceeds the quota. Furthermore, the identification of remote schools by the central government can be erroneous. It can differ internally as between the different ministries involved and is not consulted with local governments. Policy area 3. The teacher qualification. The S1 program of PGSD has proved an unsuitable form of teacher preparation for Sumba trainee teachers, especially as it has to be undertaken by distance mode, which limits the development of practical classroom skills.
By contrast, the former teacher training school (sekolah pendidikan guru SPG) produced teachers with strong pedagogic skills and knowledge of child development. Sumba districts would like to adopt a pathway to teaching through enrolment of trainee teachers at the end of basic education, to prepare for entry to the S1 through an SMK pre-vocational teacher stream rather than through the current SMA mode of entry. This proposal does not challenge the Teacher Law, ensuring the S1 remains the prerequisite qualification for teaching. It would attract candidates who have chosen the vocation of teaching and it would give them exposure to practical methodologies. There is no 3348 Chapter 3 obstacle from SMK-related regulation. PP 19/2005 on the National Standard of Education provides for SMK graduates to further their studies to higher education, rather than enter the workforce.
17 Policy area 4. Expanding Sumba teachers access to the front line teachers program.
18 Among the 500 GGD in the Sumba there are none from Sumba itself. This situation is the result of selection criteria which requires graduates from tertiary institutions accredited at level B. It is very difficult for Sumba students to meet that criterion. In addition, GGD teachers from outside Sumba have difficulty teaching the children they are meant to support because they don t know the children s mother tongue. This is contrary to Sisdiknas which allows primary children the right to learn in their own language (Article 33, para 2).
Policy area 5. School leadership. A number of policy factors inhibit effective school leadership: (1) the difference between the remuneration of principal and teachers is very small (between Rp 150,000) which is incommensurate with headship responsibilities and may discourage existing principals from efforts for school improvement and deter good candidates from applying.
19 (2) principals frequent absence from the school, is caused by heavy administrative responsibilities. Such absences contribute to teacher absenteeism and the dominance of administration detracts from a focus on management of teaching and learning. Policy area 6. Resourcing quality education for PAUD and early grades. PAUD is especially important for disadvantaged regions because disadvantaged children benefit most from pre-school experience provided it is of quality.
However, the PAUD subsector lacks trained facilitators, teachers and supervisors, operating grants and mechanisms for teacher professional development. Without this fundamental investment, PAUD will not have impacts on children s learning and development. In addition, many children of early childhood and early grades age in disadvantaged and isolated communities in Sumba often suffer from under-nourishment which affects their capacity to learn. More funding and guidance to village authorities needs to be available for an integrated PAUD and early grades school feeding program.
The Presidential regulation (PP60/2013) on holistic integrated early childhood services specifies that the ADD can be used for PAUD. 17 Article 26 clause 3. Competence standard of vocational high school aims to develop intelligence, knowledge, personality, noble character, and skills for independent living and for participating in further education according to student s vocational department. 18 Announcement No 30660/A3/KP/2016 on Recruitment of CASN GGD, KepmenPAN/RB No 762 / 2014 on Formation of PNS for SM-3T, Joint Ministerial Decree of 5 Ministers on the Management and Equitable Distribution of PNS Teachers, PP No 78/ 2014 on Law No 5 /2014 on ASN, Perpres 131/ 2015 on Acceleration of Development in Disadvantaged Areas, PP 66/ 2010 on Management and Delivery of Education.
19 Permendiknas 28/2010 on Designation of Teachers as Principals. 3449 The Jakarta-Sumba Policy Dialogue Policy Dialogue in Jakarta and Its Outcomes Three features of the encounter between the districts and the government on education policy are important for the future of policy development in Sumba. The Jakarta Response The first of these is the engagement of the central government. In Jakarta, the September event was viewed at the outset as the beginning of a process of collaborative exploration between the centre and Sumba districts of policy solutions, of value for centre-regional policy improvement, especially for disadvantaged regions. 20 The issues and solutions brought by Sumba were seen by the Ministry leaders from the wider perspective of aligning with the President s policy of building from the periphery (membangun dari pinggiran).
There was talk of making Sumba a model of central district policy interaction. The NTT provincial government, participating in the discussions, strongly supported the idea of Sumba representing the disadvantaged in NTT. Paska had already developed the idea of pioneer regions regions targeted for particular support and customised experimentation, in line with the needs and capacity of the ministry. In this context, the idea of a cross-ministerial task force was raised to address the issues of unsynchronised and maladjusted policy that the Sumba cases exemplified. Various policy areas were identified as possible openers for review: certainly the GGD, even PNS policy for regions like Sumba, the lack of linkage between the ADD and education support, and the need for more regional (NTT) provision for training of principals. However, the meetings concluded in Jakarta without further development of the suggestion of a Jakarta task force on policy review for disadvantaged regions. What was provided was dedicated support to the FPPS in the form of the Special Advisor to the Minister from the Secretary-General s Unit for Centre- Regional Linkages.
In addition, Balitbang undertook to make available resources to Sumba for ongoing policy analysis to help develop options. 21 The overall response of the Ministry to the specific Sumba issues could be characterized as accommodating where the concerns did not imply a change in the bases of resourcing. Thus, the key issue of the SMK entry point to the S1 received surprisingly strong endorsement as innovative thinking of wider application than Sumba alone, fitting the new Ministerial focus on vocational education as it did. There was ready recognition too of the current unsuitability of the GGD program for Sumba on equity and effectiveness considerations and an undertaking for a Sumba MOU with central ministries (Ministry for Education and Culture, Higher Education) to explore facilitation of Sumba teachers access to the program. 20 Kabupaten di Pulau Sumba membentuk suatu Forum Peduli Pendidikan Sumba (Koordinator Forum: Wakil Bupati Sumba Barat) lintas SKPD untuk menyiasati persoalan-persoalan pendidikan yang merupakan inisiatif cemerlang yang jarang ditemui di wilayah lain. Opening address by Bapak James Modouw / Sekretaris Jenderal.
21 ACDP 040 Report on the Sumba-central government Policy Dialogue September 2016 submitted to the ACDP Jakarta 12/10/50 Chapter 3 Even on the matter of obstacles to PNS teacher placement in private schools, the Ministry undertook to consider the issue in the revisions to the 2008 Peraturan Pemerintah (PP) on teachers rights and responsibilities. The Sumba Response For the Sumba participants, however, the effect of the Jakarta responses was to strengthen the will to pursue better outcomes than these. At stake above all, and affecting most other quality issues, are the issues of teacher supply. Stakeholders also considered that on several issues the matter in the specifically formulated recommendations had not been directly dealt with. They considered the response on allowances for non-pns teachers and remote service to be only a re-statement of the status quo and the removal of the specific accreditation barrier to Sumba access to the GGD program to not be necessarily implicated in the proposed solution.
There were concerns too to see the suggestion of a central-sumba policy task force actually materialise as a mechanism for review of policy for disadvantaged regions. 22 As a result, the follow-up meeting of the FPPS in Waikabul, Sumba Tengah in October, came to view the September policy meetings as only the opening of a policy dialogue and one that needs continuation. Two key decisions were taken at the October meeting. One was to respond to the Ministry s reception of the issues at the meetings and the second was to strengthen the capacity of the FPPS to function as a policy body able to continue in dialogue with the Ministry. In pursuit of the first of these objectives, the FPPS prepared a letter to the Minister of Education requesting his support for consideration of another set of recommendations, reiterating or building on those proposed in September. This persistence in areas such as PNS supply, where the FPPS were advised that fiscal incapacity made it impossible for the central government to increase PNS allocation, indicates the strength of their commitment to continued policy engagement, to see the issues brought to a formal resolution. Only the recommendation relating to PAUD concedes the unlikelihood of the central government resourcing this sub-sector.
In proposing policy analysis of the consequences of not resourcing PAUD, this recommendation arguably draws on the experience of the Sumba leadership during ACDP 040 of the spotlight that evidence can throw on policy deficiencies, as a first step in change. The letters of request and the recommendations were issued by each Bupati and submitted to the Special Advisor assigned to the FPPS for delivery to the Minister. The attachment to the letter containing the recommendations is itself are addressed to the High level Task Force of the Ministry, in this way the FPPS willing the central government to bring it into existence. 22 ACDP Report of the FPPS meeting 25 October 2016 submitted to the ACDP Jakarta, 16/11/51 The Jakarta-Sumba Policy Dialogue Box 3.
The Renewed Recommendations to the Minister that were Agreed at the Waikabul Meeting Recommendation 1: The placement of PNS in private schools a. A meeting of the Sumba leadership with the relevant ministries to study the matter of allocation of PNS teachers to Sumba b. The central government to make available sufficient funds to pay the functional allowance to all non-pns teachers who fulfil qualification requirements c. Principals of private schools to be approved to sign off on the promotion of PNS teachers in their schools d. The Centre for Analysis and Synchronisation of Policy (PASKA) to include the issue of the placement of teachers in private schools in the revisions to PP 74/2008 on the rights and responsibilities of teachers Recommendation 2: The functional allowance for non-pns teachers The central government together with the local government to identify Sumba s remote schools and the budget for the following year.
Recommendation 3: Simplification of the recruitment of Front Line Teachers (GGD) The proposed MOU between the Directorates-General and Sumba for the GGD program to include amongst other things: a. Candidates for the GGD program in the PPG Kolaborasi stream to be from accredited tertiary programs, not necessarily tertiary programs accredited level B b. Universitas Nusa Cendana (Undana) to be given the authority to implement the PPP Kolaborasi program for GGD candidates Recommendation 4: Teaching stream pathway thorugh SMK The central government with the agreement of the relevant ministries and facilitated by the provincial government of NTT to develop the policy enabling a teaching stream pathway to the S1 to be offered through the institution of the SMK. Recommendation 5: Principal Leadership The Ministry team currently developing the PP on school principals to include a differentiation of the remuneration of the school principal from that of teachers in line with the different levels of responsibility. Recommendation 6: Improving the quality of PAUD and early grades: a. The amount of the non-infrastructure DAK needs to be increased b. The guidelines for allocation of the non-infrastructure DAK need to be increased (should be extended to all levels of PAUD not merely children aged 5-6 years) c.
Balitbang or PASKA to undertake studies into: i. The effectiveness of PAUD without resourcing from the central government ii. The effectiveness of the Village Fund Allocation without guidelines for its use for PAUD and early grades iii. Analysis on the effectiveness of budget allocations in basic education 3752 Chapter 3 iv.
The impact of the Gizi Anak Sekolah program PROGAS (Nutrition for school students) and possible replication in disadvantaged areas including Sumba v. Longitudinal studies on the literacy continuum between PAUD and early grades as part of developing the effectiveness of the Literacy Movement The Institutionalisation of the FPPS The centre-district policy engagement was an important influence on the value Sumba stakeholders placed on the FPPS. Its original conceptualisation as giving Sumba one voice was realised as efficacy through the Jakarta experience. Members witnessed the Ministry galvanised around responding to them for several days.
Many said they had never had access to the Ministry decision makers like that before. The prospect of holding the central government to account for its policies affecting quality in Sumba schools energised their own commitment to policy improvement, so they could demonstrate corresponding efforts as part of their case to the Ministry.
Last but by no means least important was the way the leadership began to use their own resources for policy development. It was the FPPS technical team which had the regulatory inconsistencies at their fingertips and knowledge of the practical effects of policy, for making the cases.
This is a resource that has seemingly been under-used by local decision makers. But itwas clear by the end of the six months of the FPPS operation that the Vice-Bupati knew where to find the technical strengths, not necessarily aligned with positions, in their departments. The value placed on the FPPS is demonstrated by the leaderships decision to institutionalise it as a policy fixture on the Sumba scene. This was done by the decision of the Waikabul meeting to draft a constitution for it. Draft Constitution of the FPPS. The constitution gives it two objectives, consistent with the two fronts on which it has supported policy development in Sumba: (1) coordinating and synchronising education policy in line with central and government authority; and (2) monitoring and evaluating the implementation of education policy in Sumba and good practice. The FPPS will interface with the central government, seeking participation from relevant ministries as the issues occure.
It will undertake consultations with the community and with donors on Sumba s education needs. Its decisionmaking capacity is enhanced with the inclusion of representation of local Parliaments education committees and the head of finance in the Bupatis executive office. It is empowered with a Secretariat from Bappeda and its own budget and sets out an operating procedure for meetings. Emblematically, the FPPS has been given a new name: Forum Restorasi Pendidikan Sumba (FRPS), which emphasise Sumba ownership over the institution and Sumba s values in education which it is there to protect. 3853 The Jakarta-Sumba Policy Dialogue Conclusion The October meeting of the FPPS coincided with the end of the present term of ACDP 040. Through the proposed extension of technical support to Sumba for the consolidation of its new policy commitments, the opportunity is there for Sumba to continue to develop its capacity to work pro-actively with the centre in policy adjustment to accommodate regional difference and disadvantage.
In the policy dialogue so far, there have been major gains to take forward. The main gain is the real possibility of a form of teacher training which Sumba stakeholders can shape to their needs.
It is also possible that an inroad will be made into the policy impasse of private school support through Sumba s compelling pursuit of it in the promotion issue. If the GGD program is adapted to enable Sumba teachers to compete on the basis of their merit rather than on the status of the university they attended, that will be an iconic demonstration of what equitable policy for disadvantaged regions looks like.