PPG National Report 2 (English)_Cover_1-2.cdr - usaid prioritas [PDF]

Prioritizing Reform, Innovation, and Opportunities for Reaching Indonesia's Teachers, Administrators, and Students (USAID PRIORITAS)

TEACHER DEPLOYMENT IN INDONESIA Challenges and Solutions November 2015 This publication was produced for review by the United States Agency for International Development. It was prepared by RTI International. The contents are the responsibility of RTI International and do not necessarily reflect the views of USAID or the United States Government.

Prioritizing Reform, Innovation, and Opportunities for Reaching Indonesia’s Teachers, Administrators, and Students (USAID PRIORITAS) Prioritizing Reform, Innovation, and Opportunities for Reaching Indonesia's Teachers, Administrators, and Students (USAID PRIORITAS) Teacher Deployment in Indonesia: Challenges and Solutions

Contract AID-497-C-12-00003 November 2015

Prepared for USAID/Indonesia

Prepared by RTI International 3040 Cornwallis Road Post Office Box 12194 Research Triangle Park, NC 27709-2194 USAThe author's views expressed in this civila on do not necessarily reflect the views of the United States Agency for Interna onal Development or the United States Government. RTI Interna onal is a trade name for Research Triangle Ins tute.

The author's views expressed in this publica on do not necessarily reflect the views of the United States Agency for Interna onal Development or the United States Government.

Contents List of Acronyms, Abbreviations, and Terms..............................................................................................vii EXECUTIVE SUMMARY .................................................................................................................................. ix RINGKASAN UTAMA ................................................................................................................................... xiv 1

INTRODUCTION .............................................................................................................................. 1 1.1 1.2 1.3 1.4 1.5

2

Background............................................................................................................................. 1 Aims ......................................................................................................................................... 2 Approach ................................................................................................................................ 2 District selection................................................................................................................... 4 Data sources, data analysis, and verification .................................................................. 5

CAPACITY BUILDING ...................................................................................................................... 6 2.1 2.2 2.3

Introduction ........................................................................................................................... 6 Developing the capacity of service provider personnel .............................................. 6 Developing the capacity of district education personnel ............................................ 7

3

DEPLOYMENT OF PRIMARY SCHOOL CLASS TEACHERS............................................... 10

4

DEPLOYMENT OF PRIMARY SCHOOL SUBJECT SPECIALIST TEACHERS .................. 15 4.1 4.2 4.3

5

Introduction ......................................................................................................................... 15 Islamic religion teachers .................................................................................................... 16 Physical education teachers .............................................................................................. 17

POLICY OUTCOMES FOR PRIMARY SCHOOLS .................................................................. 19 5.1 5.2 5.3

Introduction ......................................................................................................................... 19 Strategic issues .................................................................................................................... 19 Policy outcomes .................................................................................................................. 21 5.3.1 5.3.2 5.3.3 5.3.4 5.3.5

6

DEPLOYMENT OF JUNIOR-SECONDARY TEACHERS....................................................... 27 6.1 6.2 6.3

7

School mergers .................................................................................................................... 22 Multigrade classes ............................................................................................................... 23 Transfer of teachers between schools .......................................................................... 24 Reassigning subject teachers as class teachers, assigning mobile teachers ........... 25 Recruiting civil-servant teachers from the ranks of temporary teachers and of nonteaching civil servants ......................................................................................................... 25

Introduction ......................................................................................................................... 27 Teacher supply and demand based on the 2006 Curriculum .................................. 28 The impact of curriculum change on teacher requirements .................................... 33

POLICY OUTCOMES FOR JUNIOR-SECONDARY SCHOOLS......................................... 38 7.1 7.2 7.3

Introduction ......................................................................................................................... 38 Strategic Issues .................................................................................................................... 38 Policy outcomes .................................................................................................................. 39 7.3.1 7.3.2 7.3.3 7.3.4 7.3.5

Transferring teachers between schools ........................................................................ 39 Transferring teachers between districts ....................................................................... 40 Reassigning teachers to teach different subjects or multiple subjects .................. 40 Reassigning junior-secondary teachers to primary schools ..................................... 40 Assigning mobile or “itinerant” teachers ...................................................................... 41

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7.3.6 7.3.7

7.4

Additional policy recommendations for primary and junior-secondary levels .... 42 7.4.1 7.4.2 7.4.3

8

Introduction ......................................................................................................................... 44 Methodology ........................................................................................................................ 44 Policy mix and potential cost-benefit ............................................................................. 45 Cost assumptions ............................................................................................................... 46 Cost-benefit analysis results ............................................................................................. 47 8.5.1 8.5.2

8.6

District level ......................................................................................................................... 47 National level ....................................................................................................................... 49

Conclusions .......................................................................................................................... 50

CHALLENGES .................................................................................................................................... 51 9.1 9.2

Introduction ......................................................................................................................... 51 Challenges in conducting the PPG Program................................................................. 51 9.2.1 9.2.2 9.2.3

9.3

9.4

Data sources ........................................................................................................................ 51 Human resources ................................................................................................................ 52 Teacher deployment in madrasah ................................................................................... 52

Political challenges in policy implementation ............................................................... 53 9.3.1 9.3.2

Local political economies .................................................................................................. 53 Financial incentives .............................................................................................................. 53

Regulatory and technical constraints ............................................................................. 54 9.4.1 9.4.2 9.4.3 9.4.4

10

Limiting school appointments of honorary teachers ................................................. 42 Introducing part-time teaching and job-share arrangements ................................... 43 Subject teachers teaching across primary and junior-secondary levels ................ 43

COST-BENEFIT ANALYSIS ............................................................................................................ 44 8.1 8.2 8.3 8.4 8.5

9

Recruiting civil-servant teachers from the ranks of temporary teachers ............. 41 Increasing teaching loads ................................................................................................... 41

The DAPODIK system ...................................................................................................... 54 Regulations ............................................................................................................................ 55 Teacher training................................................................................................................... 55 Coordination ........................................................................................................................ 55

POLICY DEVELOPMENTS AND RECOMMENDATIONS .................................................... 56 10.1 10.2 10.3 10.4 10.5

Introduction ......................................................................................................................... 56 District policy developments ........................................................................................... 56 Provincial policy developments ....................................................................................... 57 National policy developments ......................................................................................... 57 Policy recommendations ................................................................................................... 59 10.5.1 10.5.2 10.5.3 10.5.4

10.6

Incentives and sanctions .................................................................................................... 59 Regulations ............................................................................................................................ 59 Pre-service teacher training ............................................................................................. 60 Coordination ........................................................................................................................ 60

Conclusion............................................................................................................................ 61

REFERENCES ..................................................................................................................................................... 62 APPENDICES ..................................................................................................................................................... 63 APPENDIX 1: DISTRICTS THAT HAVE COMPLETED THE PPG PROGRAM................ 63 APPENDIX 2: STUDENT AND TEACHER DATA .................................................................. 65 APPENDIX 3: NEW DISTRICT REGULATIONS RESULTING FROM PPG...................... 67

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Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

List of Tables Table 1: Teacher Training Institute Partners for the Service Provider Program ........................................................... 7 Table 2: USAID PRIORITAS and District Education Office Roles in the Teacher Deployment Program .............. 8 Table 3: Number of 35-Minute Lessons per Week: 2006 and 2013 Primary School Curricula (SD) ..................... 16 Table 4: Number of 40-Minute Lessons per Week in Junior-Secondary Curriculum (SMP) .................................... 34 Table 5: Recommended Policy Mix for Primary Schools and Potential Costs and Benefits (Averaged for 18 Sample Districts) ....................................................................................................................................................... 45 Table 6: Recommended Policy Mix for Junior-Secondary and Potential Costs and Benefits (Averaged for 18 Sample Districts) ....................................................................................................................................................... 46 Table 7: Results of Cost-Benefit Analysis for Primary Schools (in million rupiah), National Level ......................... 49 Table 8: Results of Cost-Benefit Analysis for Junior-Secondary Schools (in million rupiah), National Level........ 50

List of Figures Figure 1: Basis of the Teacher Deployment Program ............................................................................................................ 3 Figure 2: Teacher Deployment Program Process ................................................................................................................... 4 Figure 3: Growth of Student Enrolments/Numbers of Primary School Teachers (Including Civil Servants and Temporary Teachers) in Regular Schools (Excluding Madrasah) 2000–2013 ........................................... 11 Figure 4: Student-Teacher Ratio in Primary Schools in 21 Sample Districts, 2013–2014 (Civil Servants and Non-civil Servants).................................................................................................................................................... 11 Figure 5: Needs and Supply of Primary Class Teachers (Civil Servants and Non-civil Servants) in 22 Sample Districts, Based on Number of Classes, 2013–2014 ....................................................................................... 12 Figure 6: Class Size, 10,535 Sample Primary Schools, 2013–2014 ................................................................................... 13 Figure 7: Student-Teacher Ratio (Including Non-civil Servants), 10,535 Sample Primary Schools, 2013–2014 ... 13 Figure 8: Deployment of Schools Based on Class Teacher Supply (Including Non-civil Servants), Batang District, 2013–2014 .................................................................................................................................... 14 Figure 9: Deployment of Schools Based on Average Class Size, Batang District, 2013–2014................................. 14 Figure 10: Current Primary School PAI Teacher Supply (Civil Servants and Non-civil Servants) and Requirements, Based on 2006 and 2013 Curricula .......................................................................................... 17 Figure 11: Adequacy of Primary School PE Teachers by District, (2006 and 2013 Curricula), 2013–2014 .......... 18 Figure 12: Percentage of Small Schools in 21 Sample Districts (Based on Average Class Size) 2103–2014 ......... 21 Figure 13: Growth of Student Enrolments/Numbers of Junior-Secondary School Teachers (Including Civil Servants and Temporary Teachers) in Regular Schools (Excluding Madrasah) 2000–2013 .................. 28 Figure 14: Supply and Demand for Junior-Secondary Science Teachers (Civil Servants and Non-civil Servants), 2013–2014 (2006 Curriculum, Cohort 1 Districts) ..................................................................... 29 Figure 15: Supply and Demand for Junior-Secondary Bahasa Indonesia Teachers (Civil Servants and Non-civil Servants), 2013–2014 (2006 Curriculum, Cohort 1 Districts) ................................................... 30

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Figure 16: Supply and Demand for Junior-Secondary Mathematics Teachers (Civil Servants and Non-civil Servants), 2013–2014 (2006 Curriculum, Cohort 1 Districts) ..................................................................... 30 Figure 17: Percentage of Certified Teachers with Less Than 24 Lessons Teaching Load per Week in the Sample of 23 Districts, by Subject, 2013–2014 (2006 Curriculum) ..................................................... 31 Figure 18: Number of Certified Teachers with Less than 24 Lessons Teaching Load per Week, by District, in the Sample of 23 Districts, 2013–2014 (2006 Curriculum) ...................................................................... 31 Figure 19: Supply of Civil-Servant Teachers for Five Core Subjects, East Java, 2013–2014 (2006 Curriculum) .................................................................................................................................................... 32 Figure 20: Civil-Servant Teacher Allocation for Five Core Subjects, by Subdistrict in Pamekasan District, 2013–2014 (2006 Curriculum) ............................................................................................................................. 33 Figure 21: Supply and Demand for Mathematics Teachers (Including Civil Servants and Non-civil Servants), Comparing the 2006 and 2013 Curricula (Cohort 1 Districts) .................................................................... 35 Figure 22: Supply and Demand for Science Teachers (Including Civil Servants and Non-civil Servants), Comparing the 2006 and 2013 Curricula (Cohort 1 Districts) .................................................................... 36 Figure 23: Supply and Demand for Indonesian Teachers (Including Civil Servants and Non-civil Servants), Comparing the 2006 and 2013 Curricula (Cohort 1 Districts) .................................................................... 37 Figure 24: Cost-Benefit Concept .............................................................................................................................................. 44 Figure 25: Financial Benefit from the Policy Recommendations to Address Shortages of Primary Teachers in Each District, over 10 Years .............................................................................................................................. 47 Figure 26: Financial Benefit from the Policy Recommendations to Address Shortages of Junior-Secondary Teachers in Each District, over 10 Years ........................................................................................................... 48

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List of Acronyms, Abbreviations, and Terms ACDP

Education Sector Analytical and Capacity Development Partnership (EU-funded partnership with the Indonesian Ministry of Education and Culture, Bappenas, and the Ministry of Religious Affairs) Bahasa Indonesia Indonesian Language BEC-TF Basic Education Capacity Trust Fund (World Bank project) BERMUTU Better Education through Reformed Management und Universal Teacher Upgrading [World Bank-funded project] BKD Provincial Personnel Board BOS Bantuan Operasi Sekolah (School Operational Grant) Bupati District Head DAPODIK Data Pokok Pendidikan (Education Database) DBE Decentralized Basic Education (USAID-funded project) DFAT Department of Foreign Affairs and Trade (incorporating Australian Government Aid Agency) EMIS Education Management Information System EPRA Education Policy Research in Aceh (DFAT-funded project) EU European Union FTE Full-time equivalence GOI Government of Indonesia GTT Guru Tidak Tetap (honorary teachers) IAIN Institut Agama Islam Negeri (State Institute of Islamic Studies) ICT Information and communication technology IT Information technology K2 Kategori 2 (Category 2 Honorary Teachers eligible to become permanent civil servant teachers) KBK Kurikulum Berbasis Kompetensi (Competency-Based Curriculum) KTSP Kurikulum Tingkat Satuan Pendidikan (School-Based Curriculum, or 2006 Curriculum) LPKIPI Lembaga Pelatihan & Konsultasi Inovasi Pendidikan Indonesia LPMP Lembaga Penjaminan Mutu Pendidikan (Education Quality Assurance Body) LPTK Lembaga Pendidikan Tenaga Kependidikan (Teacher Training Institution) M&E Monitoring and evaluation Miliar A thousand million; used instead of “billion” MOEC Ministry of Education and Culture MOHA Ministry of Home Affairs MORA Ministry of Religious Affairs MTs Madrasah Tsanawiyah (Junior-Secondary Madrasah) NGO Nongovernmental organization OECD Organization for Economic Cooperation and Development OTSUS otonomi khusus (special autonomy) PADATIWEB Former national level EMIS PAI Pendidikan Agama Islam (Islamic religious education) PE Physical education Peraturan Pemerintah Government Regulation Permendiknas Peraturan Menteri Pendidikan Nasional (Minister for National Education Regulation) Peraturan Regulation Permendikbud Peraturan Menteri Pendidikan dan Kebudayaan (Minister for Education and Culture Regulation) PLPG Pendidikan dan Latihan Profesi Guru (Teacher Education and Professional Development) Polides Village clinics

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PP PPG PPG PPG PRIORITAS

Rp RTI RTL Satu atap SD SKKT SMA SMK SMP SNPK STKIP TKPPA TOT TTI UIN UNESCO UNIMED US$ USAID UU Walikota WS

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Peraturan Pemerintah (Government Regulation) Penataan dan Pemerataan Guru (Teacher Deployment) Pendidikan Profesi Guru (Teacher Professional Education: a program to retrain non-education graduates for teaching) Pengembangan Profesi Guru (Teacher Professional Development) Mengutamakan Pembaharuan, Inovasi, dan kesempatan bagi Guru, Tenaga Kependidikan, dan Siswa (Prioritizing Reform, Innovation, and Opportunities for Reaching Indonesia’s Teachers, Administrators, and Students) USAID-funded project. Indonesian Rupiah RTI International (a trade name for Research Triangle Institute) Rencana Tindak Lanjut (Follow-Up Plan) One-roof [schools]; small schools that can include a primary and small juniorsecondary school on one campus. Sekolah dasar (primary school) Sarjana Kependidikan dengan Kewenangan Tambahan (Bachelor of Education with Supplementary Authority) Sekolah Menengah Atas (senior-secondary school) Sekolah Menengah Kejuruan (vocational and pre-professional senior-secondary school) Sekolah Menengah Pertama (junior-secondary school) Standar, Norma, Prosedur, dan Kriteria (Standards, Norms, Procedures, and Criteria) Small teacher training institutes Tim Koordinasi Pendidikan Provinsi Aceh (Aceh Education Development Coordination Team) Training of trainers Teacher Training Institutes Universitas Islam Nasional (State Islamic University) United Nations Educational, Scientific, and Cultural Organization University of Medan United States dollar United States Agency for International Development Undang-Undang (Law) Mayor (Municipal District Head) Workshop

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

EXECUTIVE SUMMARY Introduction Indonesia has an oversupply of teachers. The country has more teachers, proportionately, than most other countries in the world (World Bank, 2013). With an overall ratio of one teacher to 16 primary school students (15:1 in junior-secondary), there is a substantial oversupply of teachers. However, this oversupply of teachers is poorly distributed. Urban schools are commonly overstaffed, while schools in rural and isolated areas are understaffed. This situation creates inefficiencies within the system and penalizes poor and marginalized communities. As a result of uneven teacher deployment and inflexible staffing of small schools, many classes in Indonesia are taught by underqualified and uncertified temporary teachers. Oversupply and uneven deployment of teachers represent an enormous cost to the education system. Additional inequities exist within the system, with its two categories of teachers, permanent civil servants and temporary non-civil servants, earning hugely different salaries for performing the same type of work. More efficient and equal teacher deployment could ensure that all schools are properly staffed, while at the same time releasing funds for quality improvement, resulting in an appropriate supply of qualified and certified teachers. The teacher deployment problem has long been acknowledged in Indonesia, but political and technical constraints have hampered efforts to address it. In 2011, a Joint Five Ministerial Edict was issued by the Ministers of Finance, Home Affairs, Education, Civil Service and Bureaucratic Reform, and Religion requiring districts to map and redistribute civil servants in line with the needs. Notwithstanding this, until 2014 few districts had made a serious commitment to redistribute teachers. Following the election of a new government and appointment of a new Minister for Education and Culture in 2014, the Government of Indonesia formulated a five-year national development plan and, based on this, in mid-2015, the Ministry adopted a new strategic plan for education. Teacher deployment emerged as a priority in both of these documents. Improving teaching through better deployment, quality improvement, accountability, and incentives for teachers is the government’s major priority in the education sector. Prioritizing Reform, Innovation, and Opportunities for Reaching Indonesia’s Teachers, Administrators, and Students (USAID PRIORITAS) is working with 92 districts (including 52 partner districts and 40 former Decentralized Basic Education [DBE] partner districts) and 16 universities, to improve the quality of teaching, the management and governance of education, and the coordination among levels and institutions within the system. In this context, the project has developed and implemented the USAID PRIORITAS Teacher Deployment Program, known as Penataan dan Pemerataan Guru (PPG) program1 in over 50 districts. This report describes the process, results, policy outcomes, and cost-benefit of the PPG Program implemented between 2013 and 2015. Working with local partners from the districts, universities, and province-level education quality assurance agencies (LPMP), USAID PRIORITAS has mapped teacher deployment, developed policy solutions, conducted public consultations (multi-stakeholder forums), and is supporting implementation in the above-noted districts. The analysis of the number of teachers needed is based on minimum service standards and curriculum requirements for the 2006 and 2013 curricula. It is limited to teachers in regular schools2 that are administered by the Ministry of Education and

1

In this report, “PPG Program” or “the program” refers to the USAID PRIORITAS Teacher Deployment Program, whereas the term “PPG” refers only to teacher deployment in general. 2 In this report, the term “regular school” is used to describe all primary and junior-secondary schools, state and private, that fall under the auspices of MOEC. Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

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Culture (MOEC). Meanwhile, a pilot analysis is underway for madrasah. Moreover, the PPG Program has been disseminated to a further five districts with district funding. The results of the mapping and analysis in the initial project cohort (Cohort 1) of 23 districts, collated and analyzed at national level, are presented in this Teacher Deployment Report. In the first two sections, this report describes the PPG Program and how it is implemented by USAID PRIORITAS to help districts better deploy teachers and build capacity among government employees, university facilitators (service providers), and province-level quality assurance agencies (LPMP). The remaining sections provide analysis details for results gleaned for primary and juniorsecondary schools and touch on challenges and policy developments and recommendations.

Strategic issues and policy outcomes and solutions The teacher deployment analysis highlights an imbalance between schools and subdistricts in primary school teacher deployment and between school subjects in junior-secondary teacher deployment. Most of the Cohort 1 districts have now adopted policies and begun programs to improve teacher deployment based on this analysis. The following provides the most salient points for primary and junior-secondary schools in terms of teacher deployment. Teacher deployment at the primary school level Strategic issues and policy outcomes for primary schools are as follows: 

Based on the current number of classes and the standard of one teacher per class, a substantial lack of civil-servant teachers exists at primary school level in all districts.



The lack of enough civil-servant teachers for all classes results from the large number of small schools and small classes in primary schools.



The deployment of classroom teachers between schools and subdistricts within the districts is uneven.

Policy solutions vary depending on local contexts and include the following strategies for the primary school level:

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

Merging (or “regrouping”) of small primary schools in close proximity: 123 small schools have been regrouped, resulting in 60 merged schools.



Multigrade teaching in small and isolated primary schools where a merger is not geographically possible: 84 schools have combined classes or are soon to combine classes and implement multigrade methodologies. (All of these are in Blitar and Ciamis. Several other districts are planning to apply multigrade teaching, as well.)



Transferring teachers from overstaffed to understaffed schools—with incentives for teachers to relocate to less attractive locations: 1,276 teachers have been transferred.



Redeploying teachers from one function or level in the system to another: 58 primary subject specialist teachers have been reassigned as primary class teachers



“Mobile teachers” have been assigned to more than one school, where schools do not have sufficient students to support a full-time subject specialist in specific subjects: 32 subject teachers have been assigned as mobile teachers.



Recruiting from the ranks of temporary teachers to meet specific shortages: 1,419 contract teachers have been appointed as civil servants.

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

Teacher deployment at the junior-secondary school level Strategic issues and policy outcomes for junior-secondary schools are as follows: 

An oversupply of teachers exists at the junior-secondary level, with many teachers unable to meet the minimum requirement of 24 lessons of in-class teaching per week required to receive the professional allowance for certified teachers.



At junior-secondary school level, disparities exist between subjects, with some subjects oversupplied and some undersupplied, and between schools and subdistricts.



The 2013 curriculum (currently under review) changes the requirements for teachers at junior-secondary level. There is an increased need for teachers of science, math, Bahasa Indonesia, Islamic education, and civics.

Policy solutions adopted in the junior-secondary sector include the following strategies: 

Transfer between schools of the same level: 213 junior-secondary teachers have been transferred from overstaffed to understaffed schools



Mobile teachers: 363 junior-secondary teachers have been assigned to teach in more than one school (mobile or “itinerant” teachers)



Recruitment from the ranks of temporary teachers: 348 junior-secondary contract teachers have been appointed as civil servants to meet specific shortages.

Additional policy solutions for primary and secondary-school levels Outcomes in several districts, which undertook PPG after this Teacher Deployment study was conducted, include a broader range of policy solutions. Many more teachers have been transferred, schools have been merged, and teachers have been redeployed, including the following: 

201 junior-secondary school teachers, 25 senior-secondary school teachers, and two vocational school teachers have been redeployed as primary class teachers



139 school principals and 70 kindergarten teachers have been redeployed as primary class teachers



129 civil servants have been retrained and appointed as teachers

Additional policy solutions that have been discussed, but not yet adopted, both for the primary and junior-secondary school levels, include the following: 

Retraining teachers in oversupplied subjects to teach in undersupplied subjects



Certifying teachers to teach more than one subject



Assigning teachers to teach across primary and junior-secondary school levels (especially in “one-roof schools,” which include a primary and a small junior-secondary school on one site and in remote areas).



Transferring teachers between districts where neighboring districts are oversupplied/ undersupplied for specific subjects



Creating group schools (schools with more than one campus) in very isolated areas



Limiting schools in appointing “honorary” teachers



Instituting part-time teaching appointments and job sharing.

Cost-benefit analysis The most current available data from MOEC show that Indonesia has a national shortage of 412,509 primary school teachers. This figure is based on the number of primary classes and the requirement

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for one civil-servant teacher per class. If this shortage is met only by appointing new civil-servant teachers, the cost of salaries and allowances over a 10-year period will be Rp346 trillion (approximately US$26,600 million). This cost will be even greater if the government and schools still have to pay for the excess of teachers (civil servants and non-civil servants) that currently exists because of uneven and inefficient deployment. Meanwhile, if the shortage of primary school teachers is addressed through the policy mix described above, the GOI can save around Rp234 trillion (approximately US$18,000 million) over 10 years, or Rp23 trillion per year—compared with the cost of the conventional solution, which is hiring new teachers through civil-service appointments. The shortage issues are different for the junior-secondary school teachers, as described above. While there is a sufficient number of teachers overall, these are poorly distributed with shortages in some subjects and excesses in others. The financial benefits of better teacher deployment are thus less obvious, although significant nonetheless. The shortage of teachers at this level is 18,258 (Ministry of Education and Culture, 2015a). The net benefit derived from the recommended combination of policies, focusing particularly on optimization of current civil-servant teachers, is approximately Rp11.8 trillion (US$900 million) over 10 years, or Rp1.2 trillion (US$90 million) per year. Based on this analysis, the potential savings from more efficient teacher deployment in primary and juniorsecondary schools thus amounts to Rp246 trillion (US$19,000 million) over a 10-year period.

Constraints Two sets of challenges constrain improving teacher deployment: (1) challenges in conducting the analysis required (i.e., implementing the PPG Program) and (2) challenges in implementing policies arising from the PPG analysis. The former are mainly technical in nature, while the latter are mainly political and regulatory. Technical constraints include problems with data and local capacity. Without support, districts typically lack the capacity to accurately map teacher deployment or conduct analysis to identify policy solutions. Political constraints impact implementation and result from local political economies and the balance of power between levels and sections of government. Teachers and their spouses (many of whom are civil servants) commonly provide a support base for local politicians and are rewarded with attractive placements. As a result, some schools are overstaffed and some are understaffed. Regulatory constraints resulting from current regulations also make it difficult to implement some solutions. Because teachers are under the authority of districts, the central and provincial governments have yet to play a major role in supporting implementation in districts. Recent developments at the national level, however, indicate that the central government is taking a more proactive role to support districts in finding solutions and improving teacher deployment.

Conclusions Indonesia could make significant improvements in providing education by improving teacher deployment. Implications for policy and planning at national level are substantial. Providing incentives to districts that gain efficiencies in human resource management could assist in implementation. Under the current arrangements, districts may incur significant cost, financially and politically, but gain little benefit, because the savings from more efficient teacher deployment accrue to the central government, which funds teacher salaries through budget transfers.

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Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

The tendency of the GOI to attempt to ensure compliance through top-down controls and sanctions could be balanced by national and provincial governments developing enabling regulations and by providing support and incentives for program implementation. Regulations could make it easier for schools to adopt flexible solutions such as multigrade classes, mobile teachers, multi-subject teachers, and so on. Incentives could take the form of grants from the national budget for teacher quality improvement programs. Financial support from the national budget for teacher deployment could also support payment of incentives to teachers transferring to remote locations; provide funding to revitalize merged schools; and provide funding to cover other costs incurred in arranging teacher transfers, retraining of teachers, and so forth. The central government of Indonesia is very supportive of the USAID PRIORITAS Teacher Deployment Program that aligns with national policy and builds on the work of earlier projects, including the USAID-funded Decentralized Basic Education 1 (DBE1) and World Bank-funded Better Education through Reformed Management und Universal Teacher Upgrading (BERMUTU) projects. MOEC’s newly released strategic plan prioritizes teacher deployment, along with teacher quality improvement. The USAID PRIORITAS Teacher Deployment program is packaged as a set of training modules; materials, including videos; background reading; and a software application. Service provider personnel from partner universities and province-level quality assurance centers (LPMP) are trained to implement the program, and a number of districts have expressed interest in adopting it. As pressure mounts from the central government, from teachers who are unable to teach the minimum of 24 lessons per week and may no longer be eligible to receive professional allowances, and from schools and their communities that are underserved by teacher deployment, more districts are likely to want to adopt the program. The role of provinces, such as is in Aceh and North Sumatra, where the provinces are facilitating the program in all districts, can be significant in promoting and facilitating Teacher Deployment. Ultimately the Teacher Deployment program has the potential to greatly improve the quality of education throughout the country by ensuring that schools are properly staffed and releasing funds for quality improvement and teacher training.

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RINGKASAN UTAMA Kata Pengantar Indonesia memiliki jumlah guru yang berkelebihan. Secara proporsional, jumlah guru di Indonesia lebih banyak dibandingkan negara-negara lain di dunia (World Bank, 2013). Dengan perbandingan guru terhadap siswa secara keseluruhan adalah satu banding 16 untuk sekolah dasar (1:15 di sekolah menengah), terdapat kelebihan pasokan guru secara substansial. Namun, angka ini tidak terdistribusi dengan baik. Sekolah di daerah perkotaan biasanya mengalami kelebihan guru sedangkan sekolah di daerah pedesaan dan daerah terpecil mengalami kekurangan guru. Situasi ini membuat sistem tidak efisien dan menyulitkan masyarakat miskin dan marjinal. Sebagai akibat dari distribusi guru yang tidak merata dan penugasan staf yang tidak fleksibel di sekolah-sekolah kecil, banyak kelas di Indonesia diajar oleh guru honorer yang tidak memenuhi kualifikasi dan tidak tersertifikasi. Kelebihan dan ketidakmerataan guru ini berdampak besar pada sistem pendidikan. Di samping itu, terdapat ketidaksamarataan dalam sistem, dengan adanya dua kelompok guru, guru PNS permanen dan guru non PNS honorer, yang menerima gaji dalam jumlah yang sangat berbeda untuk pekerjaan yang sama. Pemerataan guru secara lebih efisien dapat menjamin bahwa semua sekolah memiliki staf yang cukup dan pada saat yang sama mengeluarkan dana untuk peningkatan kualitas, menghasilkan guru berkualitas tinggi dan bersertifikasi dalam jumlah yang cukup. Masalah dengan penataan dan pemerataan guru di Indonesia telah diakui sejak lama, namun tekanan politik dan teknis telah menghambat upaya-upaya untuk mengatasinya. Pada tahun 2011, sebuah Surat Keputusan Bersama Lima Kementerian diterbitkan oleh Kementerian Keuangan, Kementerian Dalam Negeri, Kementerian Pendidikan dan Kebudayaan, Kementerian Pemberdayaan Aparatur Negara dan Reformasi Birokrasi, serta Kementerian Agama, yang mewajibkan kabupaten untuk melakukan pemetaan dan mengatur ulang distribusi PNS sesuai dengan kebutuhan. Meskipun demikian, sampai dengan tahun 2014 tidak banyak kabupaten telah membuat komitmen serius untuk mendistribusikan guru-guru. Menyusul terpilihnya pemerintahan baru dan penunjukan Menteri Pendidikan dan Kebudayaan yang baru di 2014, Pemerintah Indonesia menyusun rencana pembangunan nasional lima tahunan dan, berdasarkan rencana tersebut, di pertengahan tahun 2015 Kemdikbud mengadopsi sebuah rencana strategis baru untuk pendidikan. Penataan dan pemerataan guru muncul sebagai prioritas dalam kedua dokumen tersebut. Peningkatan pembelajaran melalui pemerataan yang lebih baik, peningkatan kualitas, akuntabilitas dan insentif untuk guru menjadi prioritas utama pemerintah di sektor pendidikan. USAID PRIORITAS saat ini bekerja dengan 92 kabupaten (termasuk 52 kabupaten mitra dan 40 kabupaten bekas mitra DBE) dan 16 universitas, untuk meningkatkan kualitas pengajaran, manajemen dan tata kelola pendidikan, dan koordinasi antara tingkat sekolah dan institusi yang ada dalam sistem. Dalam konteks ini, USAID PRIORITAS telah mengembangkan dan mengimplementasikan program Penataan dan Pemerataan Guru di 50 kabupaten. Laporan ini menjelaskan proses, capaian, hasil kebijakan dan keuntungan biaya dari program Penataan dan Pemerataan Guru yang diimplementasikan antara tahun 2013 dan 2015. USAID PRIORITAS, bekerja sama dengan mitra lokal dari kabupaten, universitas dan lembaga penjamin mutu pendidikan (LPMP) tingkat provinsi, telah berhasil memetakan distribusi guru, mengembangkan solusi kebijakan, mengadakan konsultasi publik (forum multi-stakeholder) dan mendukung implementasi di kabupaten-kabupaten tersebut. Analisis kebutuhan guru berdasarkan standar layanan minimum dan persyaratan kurikulum untuk kurikulum 2006 dan 2013. Analisis ini

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dibatasi pada guru-guru di sekolah reguler3 yang terdaftar di Kemdikbud. Sementara itu, sebuah analisis percobaan sedang dijalankan untuk madrasah. Selain itu, program Penataan dan Pemerataan Guru telah didiseminasikan ke lima kabupaten lainnya melalui APBD. Hasil dari pemetaan dan analisis pada 23 kabupaten kohor pertama yang dikumpulkan dan dianalisa di tingkat nasional, ditampilkan dalam laporan ini. Dalam dua bagian pertama, laporan menjelaskan mengenai program Penataan dan Pemerataan Guru dan bagaimana program ini diimplementasikan oleh USAID PRIORITAS sehingga membantu kabupaten dalam menata dan memeratakan guru yang lebih baik, dan membangun kapasitas di antara pegawai pemerintahan, fasilitator universitas (penyedia layanan) dan LPMP tingkat provinsi. Bagian lainnya memberikan rincian analisis untuk hasil yang didapatkan untuk SD/MI dan SMP/MTs serta menjelaskan tantangan dan perkembangan kebijakan dan rekomendasi.

Isu strategis serta hasil kebijakan dan solusi Analisis ini menggarisbawahi adanya ketidakseimbangan dalam penataan dan pemerataan guru sekolah dasar antara sekolah dan kecamatan dan ketidakseimbangan pada penataan dan pemerataan guru sekolah menengah pertama antar mata pelajaran. Saat ini sebagian besar kabupaten telah mengadopsi kebijakan dan memulai program untuk meningkatkan penataan dan pemerataan guru berdasarkan analisis ini. Berikut adalah poin-poin utama dalam hal penataan dan pemerataan guru di SD/MI dan SMP/MTs. Penataan dan pemerataan guru di tingkat sekolah dasar Isu strategis dan hasil kebijakan untuk sekolah dasar adalah sebagai berikut: 

Berdasarkan jumlah kelas saat ini dan standar satu guru per kelas, terdapat kekurangan substansial dalam jumlah guru PNS pada tingkat sekolah dasar di seluruh kabupaten.



Masalah ini umumnya muncul karena besarnya jumlah sekolah kecil dan kelas kecil di sekolah dasar.



Distribusi guru kelas antara sekolah dan kecamatan dalam satu kabupaten tidak merata.

Solusi kebijakan bervariasi tergantung konteks setempat, dan termasuk langkah berikut untuk sektor sekolah dasar: 

Menggabungkan (atau ‘mengelompokkan ulang’) sekolah-sekolah dasar kecil yang berada dalam jarak yang berdekatan: 123 sekolah kecil telah dikelompokkan ulang, menjadi 60 sekolah gabungan.



Pengajaran kelas rangkap di sekolah dasar kecil dan terisolasi dilakukan di mana penggabungan sekolah tidak memungkinkan secara geografis: 84 sekolah telah atau akan segera menggabungkan kelas dan mengimplementasikan metodologi kelas rangkap. (Semua solusi ini diterapkan di Blitar dan Ciamis. Beberapa kabupaten lainnya sedang merencanakan kelas rangkap.)



Memindahkan guru dari sekolah yang kelebihan guru ke sekolah yang kekurangan guru – dengan insentif bagi guru yang direlokasi ke daerah yang tidak diminati: 1.276 guru telah dipindahkan.



Menata ulang guru dari satu fungsi/tingkat dalam sistem ke fungsi/tingkat lain: 58 guru khusus mata pelajaran utama telah ditata ulang sebagai guru kelas sekolah dasar.

3

Dalam laporan ini, istilah “sekolah reguler” mengacu pada SD dan SMP, negeri dan swasta, yang berada di bawah naungan Kemdikbud. Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

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

‘Guru mobile’ ditugaskan di lebih dari satu sekolah, karena sekolah tidak memiliki cukup siswa untuk mendukung guru khusus mata pelajaran penuh waktu di mata pelajaran tertentu: 32 guru mata pelajaran telah ditugaskan sebagai ‘guru mobile’.



Merekrut guru honorer untuk memenuhi kekurangan khusus: 1.419 guru kontrak telah diangkat menjadi guru PNS.

Penataan dan pemerataan guru pada tingkat sekolah menengah pertama Isu strategis dan hasil kebijakan untuk sekolah menengah pertama adalah sebagai berikut: 

Secara umum, terdapat kelebihan guru di tingkat sekolah menengah pertama, dengan banyak guru tidak dapat memenuhi persyaratan minimum 24 jam tatap muka per minggu sebagaimana diwajibkan agar mereka dapat menerima tunjangan profesi untuk guru tersertifikasi.



Pada tingkat sekolah menengah pertama, kesenjangan muncul antar mata pelajaran dengan sebagian mata pelajaran kelebihan guru dan sebagian lagi kekurangan, dan juga antara sekolah dan kecamatan.



Kurikulum 2013 (saat ini sedang direviu) mengubah persyaratan untuk guru pada tingkat sekolah menengah pertama. Sementara itu, terdapat peningkatan kebutuhan untuk guru IPA, Matematika, Bahasa Indonesia, Pendidikan Agama Islam dan Pendidikan Kewarganegaraan.

Solusi kebijakan yang diadopsi di tingkat sekolah menengah pertama termasuk hal berikut: 

Transfer antar sekolah pada jenjang yang sama: 213 guru SMP telah dipindahkan dari sekolah yang kelebihan guru ke sekolah yang kekurangan guru.



Guru mobile: 363 guru SMP telah ditugaskan untuk mengajar di lebih dari satu sekolah (“guru mobile” atau “guru keliling”)



Merekrut guru honorer: 348 guru kontrak SMP telah diangkat menjadi guru PNS untuk memenuhi kebutuhan khusus

Solusi kebijakan tambahan untuk sekolah dasar dan sekolah menengah pertama Hasil di beberapa kabupaten yang melakukan pemetaan dan penataan guru setelah studi Penataan dan Pemerataan Guru ini dilakukan, meliputi solusi kebijakan dalam rentang yang lebih luas. Banyak guru yang telah dipindahkan, sekolah yang telah digabungkan dan guru yang ditata ulang, sebagaimana berikut ini: 

201 guru SMP, 25 guru SMA, dan dua guru SMK telah ditugaskan sebagai guru SD



139 kepala sekolah dan 70 guru TK telah ditugaskan ulang sebagai guru SD



129 PNS telah dilatih ulang dan ditugaskan sebagai guru

Solusi kebijakan tambahan yang telah didiskusikan, tapi belum diadopsi, baik untuk sekolah dasar dan sekolah menengah pertama, termasuk hal berikut ini:

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

Melatih ulang guru-guru yang mata pelajarannya berkelebihan untuk mengajar mata pelajaran yang kekurangan guru



Sertifikasi guru untuk mengajar lebih dari satu mata pelajaran



Menugaskan guru untuk mengajar lintas jenjang sekolah dasar dan sekolah menengah pertama (terutama sekolah satu atap yang sekolah dasar dan sekolah menengah pertamanya berada dalam satu lahan, dan di daerah terpencil).



Transfer guru antar kabupaten di mana kabupaten yang bertetangga mengalami kelebihan/kekurangan guru untuk mata pelajaran tertentu

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015



Menciptakan sekolah kelompok (sekolah yang mempunyai lebih dari satu kampus/gedung) di daerah terpencil



Membatasi pengangkatan guru honorer oleh sekolah



Melembagakan pengangkatan staf paruh waktu dan staf yang berbagi pekerjaan (‘job sharing’)

Analisis keuntungan biaya Data terakhir dari Kemdikbud menunjukkan bahwa Indonesia saat ini kekurangan 412.509 guru sekolah dasar secara nasional. Data ini berdasarkan jumlah kelas di sekolah dasar dan persyaratan satu guru PNS per kelas. Jika kekurangan ini dipenuhi dengan pengangkatan guru PNS baru, jumlah gaji dan tunjangan dalam 10 tahun akan mencapai Rp 346 triliun (sekitar USD 26.600 juta). Biaya ini akan membesar jika pemerintah dan sekolah masih harus membayar kelebihan guru (PNS dan non PNS) yang terjadi akibat ketidakmerataan dan distribusi guru yang tidak efisien. Sementara itu, jika kekurangan guru sekolah dasar diatasi dengan kebijakan yang tersebut di atas, Pemerintah dapat menghemat sekitar Rp 234 triliun (sekitar USD 18.000 juta) dalam kurun waktu 10 tahun, atau Rp 23 triliun per tahun. Dengan kata lain, biaya dari gabungan kebijakan yang diusulkan akan lebih murah Rp 234 trillion (USD 18.000 juta) dibanding solusi konvensional dengan merekrut guru baru melalui pengangkatan guru PNS. Isu kekurangan guru berbeda untuk guru sekolah menengah pertama, sebagaimana dijelaskan di atas. Secara umum, jumlah guru mencukupi dan masalahnya lebih kepada penataan ulang guru dibanding mengisi kekurangan. Keuntungan keuangan dari penataan dan pemerataan guru yang lebih baik tidak terlalu jelas, walaupun tetap signifikan. Kekurangan guru pada jenjang ini sejumlah 18.258 (Kemdikbud, 2015a). Keuntungan bersih berasal dari kombinasi kebijakan yang direkomendasikan, dengan fokus pada optimasi guru PNS yang ada, adalah sekitar Rp 11,8 triliun (USD900 million) dalam kurun waktu 10 tahun, atau Rp 1,2 triliun (USD90 juta) per tahun. Berdasarkan analisis ini, potensi penghematan dari penataan guru yang lebih efisien di sekolah dasar dan sekolah menengah pertama mencapai Rp 246 triliun (USD 19.000 juta) dalam kurun waktu 10 tahun.

Kendala Ada dua tantangan yang menghambat peningkatan penataan dan pemerataan guru: (1) tantangan dalam melakukan analisis yang diperlukan (misalnya mengimplementasikan program penataan dan pemerataan guru) dan (2) tantangan dalam mengimplementasikan kebijakan dari analisis penataan dan pemerataan guru. Yang pertama merupakan hal teknis, sedangkan yang kedua terkait politik dan regulasi. Kendala teknis termasuk masalah dengan data dan kapasitas lokal. Tanpa dukungan, kabupaten biasanya tidak memiliki kapasitas untuk memetakan distribusi guru secara akurat atau melakukan analisis untuk mengidentifikasi solusi kebijakan. Kendala politis mempengaruhi implementasi dan hasil dari ekonomi politik setempat dan keseimbangan kekuasaan antara tingkatan dan bagian di pemerintahan. Guru dan pasangan mereka (yang kebanyakan adalah PNS) biasanya menjadi pendukung politik lokal dan menerima penempatan yang menarik. Sebagai akibatnya, sebagian sekolah memiliki kelebihan staf dan sebagian lain kekurangan staf. Kendala regulasi yang disebabkan regulasi saat ini juga menyulitkan untuk implementasi beberapa solusi. Karena guru berada di bawah otoritas kabupaten, pemerintah pusat dan pemerintah provinsi tidak memegang peran yang signifikan dalam penataan dan penataan guru, dan hingga akhir-akhir ini, belum maksimal memainkan perannya dalam mendukung implementasi di daerah. Namun demikian, perkembangan terakhir pada tingkat nasional mengindikasikan bahwa pemerintah pusat mulai

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

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mengambil peran yang lebih proaktif dalam mendukung kabupaten untuk menemukan solusi dan meningkatkan penataan dan pemerataan guru.

Kesimpulan Indonesia dapat menghasilkan peningkatan signifikan dalam pelaksanaan pendidikan dengan meningkatkan penataan dan pemerataan guru. Implikasi pada kebijakan dan perencanaan pada tingkat nasional menjadi substansial. Menyediakan insentif kepada kabupaten yang melakukan efisiensi dalam manajemen sumber daya manusia dapat mendukung program ini. Dengan pengaturan yang berlaku saat ini, kabupaten mungkin saja menghasilkan biaya yang signifikan, baik secara finansial maupun politis, namun keuntungannya hanya sedikit, karena penghematan dari penataan guru yang lebih efisien ditarik kembali ke pemerintah pusat, yang membiayai gaji guru melalui transfer anggaran. Kecenderungan Pemerintah Indonesia untuk memastikan kepatuhan melalui kendali atas-bawah dan sanksi dapat diseimbangi dengan upaya pemerintah pusat dan pemerintah provinsi untuk mengembangkan regulasi yang memampukan, dan menyediakan dukungan dan insentif untuk implementasi program. Regulasi dapat mempermudah sekolah untuk mengadopsi solusi fleksibel seperti kelas rangkap, ‘guru mobile’, guru multi mata pelajaran dan sebagainya. Insentif dapat berbentuk hibah dari APBN untuk program peningkatan kualitas guru. Dukungan keuangan dari APBN untuk program penataan dan pemerataan guru dapat pula mendukung pembayaran insentif untuk guru yang dipindah ke daerah terpencil, untuk pendanaan untuk revitalisasi sekolah gabungan, dan pendanaan untuk membayar biaya lain yang timbul dalam pengaturan pemindahan guru, pelatihan ulang guru dan lainnya Pemerintah pusat sangat mendukung program PRIORITAS ini, yang selaras dengan kebijakan nasional dan melanjutkan hasil kerja dari projek sebelumnya, termasuk DBE-1 yang didanai oleh USAID dan BERMUTU yang didanai oleh World Bank. Rencana strategis Kemdikbud yang baru memrioritaskan penataan dan pemerataan guru, serta peningkatan kualitas guru Program Penataan dan Pemerataan Guru USAID PRIORITAS dikemas sebagai satu perangkat modul pelatihan, termasuk video, bacaan latar belakang, dan aplikasi ‘software’. Personel penyedia layanan dari universitas mitra dan LPMP tingkat provinsi dilatih untuk melaksanakan program, dan sejumlah kabupaten berminat untuk mengadopsinya. Dengan meningkatnya tekanan dari pemerintah pusat, dari guru yang tidak dapat mengajar minimum 24 pelajaran per minggu sehingga tidak lagi layak menerima tunjangan profesi, dan dari sekolah serta komunitasnya yang tidak terlayani oleh penataan dan pemerataan guru, lebih banyak kabupaten akan bersedia mengadopsi program ini. Peran provinsi, seperti di Aceh dan Sumatera Utara, di mana provinsi memfasilitasi program di semua kabupaten, dapat menjadi signifikan dalam memromosikan dan memfasilitasi penataan dan pemerataan guru Pada akhirnya program penataan dan pemerataan memiliki potensi untuk meningkatkan kualitas pendidikan di Indonesia dengan memastikan bahwa sekolah memiliki staf yang cukup dan menyediakan dana untuk peningkatan kualitas dan pelatihan guru.

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Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

1 INTRODUCTION 1.1

Background As a result of uneven teacher deployment and inflexible staffing of small schools, many classes in Indonesia are taught by underqualified and uncertified temporary teachers. An oversupply of teachers means that many schools are overstaffed, while uneven deployment means that some are understaffed. The cost to the system is enormous, draining funds from potentially more productive uses, such as teacher quality improvement. There

The North Sumatra Government will follow-up on the result of teachers deployment workshop. The North Sumatra Government will develop a special teacher deployment group to accelerate the distribution of teachers to improve quality education service.

are also inequities within the system, with two categories of teachers, permanent civil servants and temporary non-civil servants, earning hugely different salaries for performing the

same type of work. The problem with teacher deployment has long been acknowledged in Indonesia, but both political and technical constraints have hampered efforts to address the problem. Regulations to address the issue have been part of education policy since 2007.1 In 2011, a Joint Five Ministerial Edict was issued by the Ministers of Finance, Home Affairs, Education, Civil Service and Bureaucratic Reform, and Religion requiring districts to map and redistribute civil servants aligned with actual needs. Nevertheless, until 2014, few districts had made a serious commitment to redistribute teachers. Following the election of a new government and appointment of a new Minister for Education and Culture in 2014, the GOI formulated a new Five-Year National Development Plan and, based on this, in mid-2015, the MOEC adopted a new Five-Year Strategic Development Plan for Education. Teacher deployment emerged as a priority in both of these documents. Improving teaching through better deployment, quality improvement, accountability, and teacher incentives is the current government’s major priority in the education sector. Indonesia has two categories of teachers: (1) permanent civil servants hired by the district government and (2) temporary non-civil servants usually hired directly by schools. The objective of current national policy is to achieve a standard of one permanent civil-servant teacher for every primary class. Based on the number of classrooms, there is a shortage of 412,509 civil-servant primary teachers in Indonesia (Ministry of Education and Culture, 2015a). This shortage is largely

1

Government Regulation (Peraturan Pemerintah or PP) No. 38 of 2007 on the division between Central and Local Authorities, states that civil service teachers can be transferred between schools within districts, interdistrict, and between provinces. As a follow-up to this regulation, Ministerial Decree No. 12, 2010, on Standards, Norms, Procedures, and Criteria (Standar, Norma, Prosedur, dan Kriteria, or SNPK) regulates how teachers can be transferred between schools within districts, between districts within provinces, and between provinces. Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

1

met by hiring temporary teachers to fill the gaps. Meanwhile, typically over 70% of district-employed civil servants are teachers, and personnel costs account for more than half of the total district budget. Better teacher deployment can create efficiencies, releasing funds for quality improvement. It can also improve quality directly by ensuring that schools and classes are appropriately staffed. USAID PRIORITAS is a five-year project being implemented by RTI International under a cooperative agreement between the governments of the United States of America and the Republic of Indonesia. The project is funded by the United States Agency for International Development (USAID). It began in May 2012 with the aim of achieving expanded access to quality basic education. As part of this program, USAID PRIORITAS is working with over 50 districts, adopting a capacity building approach, helping districts to map their teacher deployment and address the issues to make necessary concrete changes to teacher deployment. This Teacher Deployment in Indonesia report focusses on the deployment of class teachers in regular primary and junior-secondary schools. Although a pilot is underway to adapt the approach to the Islamic school2 sector, this report does not address teacher deployment in Islamic madrasah. The report describes the approach taken to mapping teacher deployment, summarizes the results of analysis conducted at the national level on the outcomes of mapping and policy analysis in the initial cohort of 23 districts, discusses strategic issues arising, and describes policy outcomes for addressing the issues, together with cost-benefits and constraints of implementation. The report concludes with a discussion of the challenges in teacher deployment and provides recommendations for the provincial and national levels of government.

1.2

Aims

The Teacher Deployment Program, known as Penataan dan Pemerataan Guru (or PPG Program) aims to: 1. Map the deployment of teachers in schools, between schools in subdistricts, and between schools and subdistricts within the district. 2. Develop and implement policy in districts to achieve a comprehensive and equitable deployment of teachers. 3. Make recommendations for national policy to support the comprehensive and equitable deployment of teachers. 4. Develop the capacity of teacher training institutions as service providers to facilitate the Teacher Deployment Program (PPG) in districts and provinces. 5. Develop institutional capacity in local government, particularly focusing on those responsible for restructuring and for deploying teachers in the districts, including staff of the Department of Education and the Regional Employment Board.

1.3

Approach

Better deployment of teachers can improve the quality and equity of educational service delivery. But policies need to take context into consideration, because teacher deployment has social, economic, and political impacts. Public consultation and approaches to building ownership of the policy at local community levels can assist in resolving the issue. A strong legal framework is

2

2

The term “Islamic school” is used in this report to refer to madrasah that fall under the auspices of MORA. Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

required to reduce the resistance of those impacted: the implementation of teacher deployment policies must be based on current regulations. Good practices that improve efficiency in teacher deployment require a two-pronged approach (see Figure 1). First, they are found by learning from international and Indonesian experience as to what constitutes good practice in teacher management. Second, government regulations can provide a basis for such good practices. In addition to providing policy options, further sharing of information on good practice among stakeholders can build confidence, helping to convince district education stakeholders that other districts have implemented teacher deployment policies with good outcomes. Figure 1: Basis of the Teacher Deployment Program

International good practices

Principles and practices of good teacher management

Government regulations Indonesia

Keeping the above two-pronged approach in mind, the process, as shown in Figure 2, for facilitating the PPG Program with the District Education Office consists of five activities or stages: (1) Orientation, (2) Data Analysis Workshop, (3) Policy Analysis Workshop, (4) Civil Consultation, and (5) Policy Implementation Workshop. 1. Orientation. This initial activity aims to build a shared commitment between USAID PRIORITAS and the partner district to the equitable deployment of teachers, as well as raising awareness of the importance of good data as a basis for policy making. 2. Workshop 1: Data Analysis and Identification of Strategic Issues. This activity focusses on mapping the deployment of teachers in detail and formulating strategic issues for teacher deployment, based on data analysis results. 3. Workshop 2: Policy Analysis. This activity focuses on policy analysis steps (identifying policy alternatives, establishing criteria for the selection of policy alternatives, formulating policy recommendations), and designing policy implementation, as well as determining the likely impact of policy determination. 4. Civil Consultation: Multi-stakeholder Forum. In this activity, policy recommendations are shared with stakeholders and decision-makers to obtain feedback and help finalize district policy. 5. Implementation Workshop. At this stage, the main activity is to develop regulations and a technical implementation plan to enable implementation and concrete action at school, subdistrict, and district levels.

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

3

Figure 2: Teacher Deployment Program Process National TOT

Provincial TOT

Socialization

Workshop 1: Teacher Deployment Analysis

Workshop 2: Policy Analysis

Mentoring/facilitation 1: prepare data and materials for Workshop 1

Mentoring/facilitation 2: complete analysis of teacher deployment and identify strategic issues

Mentoring/facilitation 3: complete policy alternatives, select alternatives, and prepare policy proposal

Output: data prepared for Workshop 1

Output: analysis and materials for Workshop 2

Output: policy and presentation for Public Constulation

Public Consultation Policy Implementation Workshop

Implementation Review Monitoring and Meetings

Note: TOT = training of trainers

1.4

District selection

USAID PRIORITAS, together with Indonesian government partners in each province, jointly selected 50 districts from seven provinces that were nominated by USAID: Aceh, North Sumatra, Banten, West Java, Central Java, East Java, and South Sulawesi. These districts were selected in three cohorts. The selection was not random and was purposive to the extent that it included rural and urban districts across a range of provinces. No particular consideration was made for issues related to teacher deployment. The Teacher Deployment program is being implemented in all of these districts. Appendix 1 provides a list of the 50 partner districts from all three cohorts, plus six additional dissemination districts in which the Teacher Deployment program is being self-funded by the districts. The initial cohort of 23 districts (Cohort 1) was analyzed for this report, as data were not yet available for districts from Cohorts 2 and 3 at the time of the study. In each sample district (Cohort 1), the deployment of all teachers in all regular primary and juniorsecondary schools was studied. This includes state and private schools administered under MOEC, but (excepting two districts in Aceh) not madrasah, which are administered under MORA. The total number of primary schools in the sample is 10,535, which represents 8% of all regular primary schools in the country.3 The number of junior-secondary schools in the sample is 2,010, which

3

The total number of regular primary schools (state and private schools, excluding madrasah) is 132,558, based on data from the Ministry of Education and Culture (2015c). 4

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

represents 6% of all regular junior-secondary schools in the country.4 The number of teachers in the sample (including civil servants and non-civil servants) is 144,636.5 Results from two districts in Aceh were not included in some parts of the Teacher Deployment analysis. In these districts, the study included Islamic madrasah (at the request of the district heads), and thus a different database was used, making it impossible to merge the data at national level. Nonetheless, these two districts were included in the study because the district reports were considered in those parts of the analysis where it was not necessary to merge the data. A cost-benefit analysis was conducted for a subset of 18 of the 23 Cohort 1 districts. These 18 districts were selected because they had adequate data available at the time the cost-benefit analysis was undertaken.

1.5

Data sources, data analysis, and verification

The teacher deployment and school needs mapping used data obtained from MOEC’s national online education database, known as DAPODIK. This system, which includes data on individual teachers, students, and schools, has been steadily improving since it was introduced four years ago, both for quality of data and ease of accessibility. The DAPODIK data were analyzed using a USAID PRIORITAS-developed Microsoft Excel-based application. Project partners from the districts were trained in using the software and conducted the analysis, together with specialists from RTI and partner universities. At times during this process, anomalies in the data became apparent and were corrected by district team members, who were able to contact schools directly and either verify or correct the data. In addition, the data analysis and resulting policy recommendations were verified with stakeholders through public consultation and implementation workshops, in which those impacted by proposed policies were able to voice concerns and raise issues that may have been missed in the district-level analysis.

4

The total number of regular junior-secondary schools (state and private schools, excluding madrasah) is 35,488, based on data from the Ministry of Education and Culture (2015c). 5 This total comprises 105,629 primary teachers and 39,007 junior-secondary teachers. Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

5

CAPACITY BUILDING 1.6

Introduction The approach developed by USAID PRIORITAS for the Teacher Deployment Program is not merely product-oriented (producing outputs, including a map of teacher deployment and policy recommendations for teacher deployment), but also focuses on developing the capacity of stakeholders associated with teacher deployment, especially at district level.

One way to help ensure sustainability of an intervention is by developing the capacity of service providers—those PUBLIC CONSULTATION TEACHER DEPLOYMENT: The Teacher individuals or institutions that are able to Deployment Program Public Consultation in Aceh Jaya was attended by Vice Regent, Head of Education Office, Board of Planning and provide consulting and facilitation Development District, MORA, Board of Regional Employment, PGRI, services to the districts and provinces and schools representatives. that need help to address the issue of teacher deployment. Ultimately, these service providers will take the place of donor-funded project teams and, it is expected, will be directly contracted by government agencies to provide the types of services required for better management and governance of education. While, ideally, these service providers will become formalized within their institutions, and contracts will be made with institutions such as university business centers or private nongovernmental organizations (NGOs), this is rarely the case at present. For example, although USAID PRIORITAS is working to help teacher training institutes (TTIs) plan ahead for this type of approach, the necessary institutional arrangements are not yet in place. Current arrangement are typically made between the project (or disseminating districts) and individuals, rather than with institutions. Service provider personnel from partner TTIs are included at every step of the PPG Program: they increasingly lead the program implementation. In this way, service providers are trained to disseminate the program to other districts and to support ongoing implementation in partner districts. In response to demand, service providers, as institutions or as individuals, are able to provide independent mentoring and training to facilitate the PPG Program process in USAID PRIORITAS partner districts, former-DBE districts, and other districts that request assistance. The USAID PRIORITAS role in supporting the service providers is to deliver class-based training (national and provincial level), on-the-job training, and a variety of support tools, including the PPG Program software application, guidebook, modules, training materials, and worksheets. All tools and materials developed by USAID PRIORITAS are freely available; education stakeholders can access and use these tools at no cost.

1.7

Developing the capacity of service provider personnel

Service providers for the PPG Program currently consist of academic staff from Teacher Training Institutions (LPTK), MOEC’s province-based Education Quality Assurance Bodies (LPMP), and nongovernmental organizations (NGOs) working in the field of education, specifically Lembaga

6

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

Pelatihan dan Konsultasi Inovasi Pendidikan Indonesia (LPKIPI) in East Java. A listing of PPG Program service providers is presented in Table 1. Table 1: Teacher Training Institute Partners for the Service Provider Program No

Province

Institution

1

Aceh

1.

Universitas Syah Kauala

2.

IAIN Ar Raniry

1.

Universitas Negeri Medan

2.

IAIN Sumatra Utara

3.

LPMP Sumatra Utara

1.

Universitas Sultan Ageng Tirtayasa

2.

IAIN Sultan Maulana Hasanuddin Banten

1.

Universitas Pendidikan Indonesia

2.

UIN Sunan Gunung Jati

1.

Universitas Negeri Semarang

2.

Universitas Negeri Yogyakarta

3.

Universitas Katholik Satya Wacana

4.

IAIN Walisongo Semarang

5.

LPMP Jawa Tengah

1.

Universitas Negeri Malang

2.

Universitas Negeri Surabaya

3.

UIN Sunan Ampel

4.

LPKIPI, Surabaya

1.

Universitas Negeri Makassar

2.

UIN Alauddin Makassar

2

3

4

5

6

7

1.8

North Sumatra

Banten

West Java

Central Java

East Java

South Sulawesi

Developing the capacity of district education personnel

The capacity of district education personnel in teacher deployment is developed in two ways: through workshops and through mentoring. A series of collaborative district-capacity assessments conducted by USAID PRIORITAS with district personnel in 2012, 2013, and 2014 found that district personnel and institutions generally lack capacity in a number of key areas such as in (1) data handling and management; (2) data analysis; (3) strategic information-based planning; and (4) coordination between government departments, with stakeholders and between levels (e.g. district and province). All of these are addressed through the capacity building aspects of the PPG Program. The various stages of the program and project and district roles are presented in Table 2.

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

7

Table 2: USAID PRIORITAS and District Education Office Roles in the Teacher Deployment Program No 1

PPG Program Stages Data analysis

USAID PRIORITAS Role 1. Prepare tools and materials (guidelines, software, module, training materials) 2. Training (capacity building) service provider and district staff

District Role 1. Prepare data analysis team

Output Map of teacher deployment

2. Prepare education data (DAPODIK) 3. Conduct analysis of teacher deployment

3. Facilitate analysis of teacher deployment 2

3

Identification of strategic issues

Identification of policy alternatives

Facilitate and mentor the process to identify strategic issues for PPG

1. Identify strategic issues based on analysis

1. Prepare tools and materials (guidelines, module, training materials, etc.)

1. Prepare the policy analysis team

2. Facilitate and mentor for the identification of policy alternatives

2. Agree on strategic issues for teacher deployment based on district conditions

2. Identify the various policy alternatives based on results of analysis and local conditions

Strategic issues for teacher deployment

Policy alternatives for teacher deployment (PPG)

4

Policy recommendations

Facilitate and mentor the policy process

Formulate policy to be implemented based on the macro and local policy contexts

Policies recommended

5

Policy formulation

Facilitate and mentor the policy process

1. Decide on/select policy based on policy recommendations proposed

Policies formulated

2. Conduct public consultation on PPG policy 6

7

8

Policy implementation

PPG policy monitoring & evaluation

1. Prepare module for policy implementation workshop

1. Integrate policy into the district program and budget

2. Facilitate implementation planning through workshop and mentoring

2. Formulate regulations/ technical policy implementation guidelines as appropriate

Facilitation of the preparation of M&E tools

Conduct monitoring and evaluation of PPG

1. Regulations (Peraturan Bupati/Walikota) on PPG 2. Implementation of programs/ activities Achievement of targets /indicators for teacher deployment

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

There are two aims for the above-mentioned PPG Program workshops: (1) to develop the capacity of district personnel in conducting policy analysis to improve the deployment of teachers; and (2) to produce a teacher deployment map based on DAPODIK and formulate and select policy recommendations based on the results of the teacher deployment analysis. The PPG Program workshop approach is based on district clusters. Participants from each district work as a group within the workshop alongside participants from other districts’ groups. This approach facilitates group work, as the activity uses real data from each district. In this way, the activity is not merely a training exercise, but results in real products that can be used directly in mapping teacher deployment and in preparing policy recommendations for the respective districts. Participants also benefit by sharing the results from among other districts, especially among districts with similar teacher deployment issues. One of the problems in developing capacity for this kind of program is the lack of continuity posttraining (after the workshops). The post-workshop follow-up “action plan” (rencana tindak lanjut or RTL) sometimes becomes a “no action plan” (rencana tidak lanjut). To avoid this type of development, each PPG Program workshop includes an activity/unit for preparing the RTL. The RTL sets out what will be done, the source and type of material to be prepared, who is in charge, how long it will take, the output to be produced, and when and where it is to be implemented. The role of facilitators, including project personnel and service providers, is to assist the district’s technical team in carrying out the tasks planned in the RTL. Experience demonstrates that it is possible for district personnel to complete the tasks in the RTL, even though they are typically very busy with routine tasks. However, in some districts, the follow-up does not match the schedule in the RTL, perhaps because work commitments are heavy and the timing is tight. As a result of the assistance provided, the leader of the technical team and the Head of the Education Office generally both develop a high level of confidence, enabling them to present the results of the analysis and policy recommendations on teacher deployment to the District Head (Bupati or Walikota), often in front of the public consultation participants.

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

9

2 DEPLOYMENT OF PRIMARY SCHOOL CLASS TEACHERS

MULTI GRADE TEACHER: Rini Pujihastuti SPd is a multigrade teacher at SDN Suruhwadang III and IV, Blitar. The school is implementing multigrade learning because there are only 4-10 students per class.

There are two main ways of assessing teacher supply at primary school level: (1) by identifying the number of teachers in relation to the number of classes (the standard is one teacher per class), and (2) by identifying the number of students per teacher (studentteacher ratio). As described above, the first approach suggests a substantial shortage of teachers in the system. However, based on student-teacher ratios, there appears to be a surplus, as described below.

According to the World Bank (2013), Indonesia has one of the lowest student-teacher ratios in the World. As shown in Figure 3, below, the growth in teacher numbers in the 10-year period from 2000 to 2010 was remarkable. During this period, a 7% increase in student numbers was outstripped by a 45% increase in the number of teachers. As a result, the studentteacher ratio dropped from 23 to 16. There are at least three factors associated with this phenomenon. During this period (1) district government recruitment of civil servants was generally unrestricted; (2) many contract teachers received appointments as permanent civil servants; and (3) in 2005, the GOI introduced per capita school operational funds (BOS), enabling schools to directly hire temporary teachers, without relying on community payments. In 2011, the trend from the previous decade was reversed, with a 5% decrease in teacher numbers, while student numbers remained constant. This change coincided with the national government’s efforts to limit the growth of teacher numbers, both permanent civil servants and temporary teachers. In 2011, the GOI imposed a moratorium on the recruitment of additional civil servants in districts.6 The GOI also restricted schools from spending more than 20% of BOS operational funds on salaries for temporary teachers.7 In the following year, 2012, teacher numbers began to rise again, and the upward trend resumed. Further analysis reveals that the main effect in 2011 was due to a decrease in the number of temporary teachers reported. It seems likely that schools continued to hire temporary teachers during this period, but under-reported them to comply with the 20% limit on BOS spending.

6

Peraturan Bersama Menteri Negara Pendayagunaan Aparatur Negara dan Reformasi Birokrasi, Menteri Dalam Negeri dan Menteri Keuangan No. 02/SPB/M. PAN-RB/8/2011. 7 Peraturan Menteri Pendidikan Nasional No. 37/2010 tentang Petunjuk Teknis Penggunaan Dana BOS Tahun Anggaran 2011. 10

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

Figure 3: Growth of Student Enrolments/Numbers of Primary School Teachers (Including Civil Servants and Temporary Teachers) in Regular Schools (Excluding Madrasah) 2000–2013

Data Source: Ministry of Education and Culture, 2013, 2015a, 2015b, & 2015c (see Appendix 2).

When comparing the above data from Figure 3 with the teacher supply in primary schools in the USAID PRIORITAS sample districts, as reflected in the student-teacher ratio (illustrated in Figure 4, below), the ratio for sample districts is similar to the national average of 16 students per teacher (including both permanent and temporary teachers). Meanwhile, the disparity among districts is high. The student-teacher ratio is less than 16 in over half of the 21 sample districts (indicated with black bars) as noted in Figure 4. Figure 4: Student-Teacher Ratio in Primary Schools in 21 Sample Districts, 2013–2014 (Civil Servants and Non-civil Servants) Kab. Madiun Kab. Wajo Kab. Situbondo Kab. Blitar Kab. Sragen Kab. Pamekasan Kab. Mojokerto Kab. Ciamis Kab. Bantaeng Kab. Batang Kab. Banjarnegara Kab. Maros Kab. Semarang Kab. Purbalingga Kab. Pandeglang Kab. Labuhan Batu Kab. Bandung Barat Kota Medan Kab. Serang Kota Cimahi Kab. Nias Selatan

10 11 11 11

13 13 13 13 13 14 14 15 16 16 17 18 21 22 23 24 25

In contrast to the student-teacher ratio, which suggests a surplus of teachers, when based on the standard of one permanent civil-servant teacher per class, a major shortage of primary school

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

11

teachers is evident in the sample districts. When including temporary teachers in the count, a shortage is still evident in some districts, but it is not as large. The variation in supply of classroom teachers for the number of primary classrooms among districts is substantial, especially when only civil-servant teachers are counted. In Figure 5, below, the black bars show the number of teachers required to supply the current number of classes. The dark grey bar shows the number of civil-servant teachers currently employed, and the light grey bar the number of non-civil servant teachers. When only civil-servant teachers are counted, then all sample districts are undersupplied with classroom teachers. However, when non-civil servant teachers are included, some districts are oversupplied, but there is still a shortage in many districts, as shown in Figure 5. Figure 5: Needs and Supply of Primary Class Teachers (Civil Servants and Non-civil Servants) in 22 Sample Districts, Based on Number of Classes, 2013–2014

8000 7000 6000 5000 4000 3000 2000 1000 0

Needs

Civil Servant

Non-Civil Servant

There is thus an apparent contradiction between the two measures, where student-teacher ratios suggest an oversupply of teachers, while the measure of adequacy based on one civil-servant teacher per class suggests an undersupply in all districts. This discrepancy can be explained, in part, by reference to class size, or the ratio of students to classes. There are many small schools, with correspondingly small classes, in rural and urban areas. Figure 6, below, shows that more than half of the schools in the sample (57%) have less than 20 students per class. Some 13% of schools have an average class size of less than 10 students.

12

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

Figure 6: Class Size, 10,535 Sample Primary Schools, 2013–2014

9%

2%

13%

< 10 10 - 19 20 - 28 32%

29 - 36 > 36

44%

When student-teacher ratios are considered, as in Figure 7, below, including class teachers and primary school subject teachers (teachers of Islamic Religion and Physical Education), the number is smaller again. Nearly three-quarters (73%) of schools in the sample districts have a student-toteacher ratio of less than 20. Some 26% of schools in the sample have a ratio of less than 10 students per teacher. Figure 7: Student-Teacher Ratio (Including Non-civil Servants), 10,535 Sample Primary Schools, 2013–2014

5% 1% 26% 21%

< 10 10 - 19 20 - 28 29 - 36 > 36

47%

The following Figures 8 and 9 illustrate teacher deployment in Batang District, selected as it is typical of the districts studied. As shown, 67% of schools in this district are overstaffed by one teacher (based on the standard of one class teacher per class). Meanwhile, 66% of schools have an average class size of under 24 students.

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

13

Figure 8: Deployment of Schools Based on Class Teacher Supply (Including Non-civil Servants), Batang District, 2013–2014 0% 1%

1%

31%

< 2 teachers < 1 teacher ideal > 1 teacher

67%

> 2 teachers

Figure 9: Deployment of Schools Based on Average Class Size, Batang District, 2013–2014 2% 12%

30%

32

32%

When based on average student-teacher ratios, the number of teachers in primary schools is more than adequate in Indonesia, where many schools have excess teachers. However, many schools are also understaffed for the number of classes they have. This imbalance results from an uneven deployment of teachers across schools and because many schools have small classes, a condition that was apparent in all the sample districts.

14

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

3 DEPLOYMENT OF PRIMARY SCHOOL SUBJECT SPECIALIST TEACHERS 3.1

Introduction

CROSS-FUNCTION TEACHER: Mila Asmiawati SPd was previously an English teacher. Following the teacher deployment program, she is now a Grade II teacher at Cibabat Mandiri Elementary School, West Java.

The profiles of primary school subject teachers are different from ones for classroom teachers. With two exceptions, all subjects in Indonesian primary schools are generally taught by class teachers. The two exceptions are religion and physical education. The two ways to determine the need for subject specialist teachers in primary schools are (1) the standard of having one Islamic religion teacher and one physical education teacher for each primary school and (2) based on the minimum teaching load.

Under Education Regulation 74, 2008,8 certified teachers are required to teach a minimum of 24 lessons per week. Meanwhile, in most districts, the allocation of Islamic religion teachers is not based on the minimum requirement of 24 lessons per week, but on the standard of one teacher per school. The following analysis is based on teaching load and not on the “one teacher per school” standard. The number of subject teachers required is thus determined by the number of lessons per week as specified in the current curriculum. These differ for the 2006 and the 2013 Curriculum, as illustrated in Table 3 below. Note that at the time of writing, the 2013 Curriculum is under review. The implementation of this curriculum was put on hold, following a change of government in late 2014. In the meantime, schools that had already implemented the new curriculum are permitted to continue its use.

8

Peraturan Pemerintah (PP) No. 74 Tahun 2008 tentang Guru.

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

15

Table 3: Number of 35-Minute Lessons per Week: 2006 and 2013 Primary School Curricula (SD) Number of 35-minute lessons per week 2006 Curriculum 2013 Curriculum

Subject

VI

I

II

III

IV

V

VI

Religion

3

3

3

4

4

4

4

4

4

Civics

2

2

2

5

5

6

5

5

5

Mathematics

5

5

5

5

6

6

6

6

6

Bahasa Indonesia

5

5

5

7

7

7

Science

4

4

4

3

3

3

3

3

3

3

3

3

Arts & Crafts

4

4

4

4

4

4

4

4

4

PE, Sports, and Health

4

4

4

4

4

4

4

4

4

Local Content

2

2

2

Personal Development

2*

2*

2*

32

32

32

30

32

34

36

36

36

Total

26

27

III

Thematic

V

Thematic

IV

Social studies

II

Thematic

I

28

8

9

10

*Not formally timetabled.

If the 2013 Curriculum is fully introduced in its current form, there is no need to increase the number of classroom teachers, because their allocation is not based on the teaching load, but rather on the number of classes. As illustrated in Table 3, above, the requirement for religious education increases from three to four lessons per week with the introduction of the 2013 Curriculum, as currently formulated. This translates into a 30% increase in the requirement for religious education teachers. Meanwhile, there is no change to the requirement for physical education teachers.

3.2

Islamic religion teachers

Based on requirements for the 2006 Curriculum (KTSP), most districts have an oversupply of Islamic education teachers (Guru Pendidikan Agama Islam [PAI]), especially when including non-civil servant teachers in the count. In fact, there are several districts where the number of civil-servant teachers is already sufficient, and the oversupply problem is compounded by the addition of non-civil servant teachers. As shown in Figure 10, below, this oversupply holds true for the 2006 Curriculum in Banjarnegara, Batang, Madiun, and Sragen districts. Meanwhile, when the calculation is based on the teaching load required for the 2013 Curriculum, almost all partner districts are found to have a shortage of PAI teachers. The exceptions are Sragen, Batang, and Madiun.

16

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

Figure 10: Current Primary School PAI Teacher Supply (Civil Servants and Non-civil Servants) and Requirements, Based on 2006 and 2013 Curricula

3.3

Physical education teachers

As described in Table 3 above, the number of lessons per week for physical education (PE) is unchanged from the 2006 to the 2013 Curriculum. Figure 11, below, shows the teacher supply (both civil-servant and non-civil servant) for primary school PE teachers compared to the demand/requirements, based on the number of lessons per week (minimum standard of 24 lessons per teacher).

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

17

Figure 11: Adequacy of Primary School PE Teachers by District, (2006 and 2013 Curricula), 2013–2014

As can be seen from Figure 11, above, the results are varied. Based solely on the number of teacher hours, there is currently an undersupply of civil-servant, primary PE teachers in all districts. When non-civil servants are included in the calculation, most districts are still undersupplied, with an oversupply evident in a few (Batang, Madiun, Mojokerto, Purbalingga, Semarang, Situbondo, and Sragen).

18

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

4 POLICY OUTCOMES FOR PRIMARY SCHOOLS 4.1

Introduction To determine the needs for class teachers in primary schools, two national standards were used: (1) the standard of one primary class teacher per class and (2) the maximum standard primary class size of 32 students.9 For subject specialists, the minimum requirement of 24 teaching lessons per week was used.

A LESSON AT SDN CILIMUS AFTER THE MERGER BETWEEN SDN 1 CILIMUS AND SDN 3 CILIMUS: After these two primary schools merged, the learning process became more effective and efficient. Here a teacher guides student learning outside the classroom: observing the process of evaporation of water.

4.2

This report section describes the strategic issues emerging from this analysis based on the above national standards, along with the resulting policy outcomes at the primary school level.

Strategic issues

Two main strategic issues emerged from the data analysis discussed above. These are (1) uneven class teacher deployment, and (2) small schools. Under current regulations, schools are able to hire temporary, non-civil servant teachers to address shortages in their district teacher allocation.10 This practice has led to many schools in the sample districts having recruited more class teachers than required, resulting in an excess of non-civil service class teachers in a number of schools in the districts. Thus, the main strategic issues related to the deployment of primary classroom teachers include the following: 1.

All districts are experiencing a substantial lack of civil servant teachers—based on the current number of classes and the standard of one teacher per class.

2.

Deployment of classroom teachers between schools and subdistricts within the districts is uneven.

3.

An excess of temporary teachers exists in a number of schools. This holds true in most districts.

9

The class size of 32 stems from the national Minimum Service Standards set by the Ministry for Home Affairs (MOHA). The National Education Standards, set by a national board appointed by MOEC, are slightly lower, with the standard being between 20 and 28. 10 Under current rules, schools are only entitled to spend up to 20% of their per-capita school operational grants (BOS) on temporary teacher stipends. However, many schools get around this restriction by “hiding” the spending under different budgetary allocations. Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

19

4.

Small classes and small schools are currently the main issue in primary school teacher deployment.

The matter of small primary schools emerged as a strategic issue for teacher deployment in most of the sample districts analyzed. School and class size are major factors impacting the shortage of class teachers, when based on the requirement of one teacher per class. For the purposes of the study, schools with an average class size of 16 or below (less than half of the standard maximum of 32) are classified as “small.” With the standard six primary classes per school, this means a school enrolment of 96 or less. Using this definition, over 20% of schools in the sample districts were classified as “small,” while in a number of districts that percentage was much higher. This large percentage of small schools and small classes explains why an undersupply of teachers exists when based on the number of classes, but that the supply is sufficient when based on the average student-teacher ratio. In this context, the most efficient strategy to alleviate the supply issue would be to reduce the need for classroom teachers in small schools. Such a solution could be applied in a number of ways: (1) merging small schools that are co-located or closely located, (2) introducing multigrade classes in isolated schools, and (3) introducing part-time or mobile teachers to teach specialist subjects (physical education and religion) in two or more small schools. While mobile teachers are becoming more common across Indonesia, as teachers require a minimum of 24 teaching periods per week to receive their monthly certification allowance (Peraturan Pemerintah No. 74, 2008), current regulations and systems do not permit part-time teaching. Meanwhile, part-time teaching could be another obvious and very viable solution to the oversupply problem. Other innovative approaches to the teacher supply and small school issues include turning some isolated small schools into satellite branches of a group school. In such case, children can attend early grades in the branch school and, when they are a little older and able to walk to the group school, attend higher grades in the larger school. Group schools of this type have been successfully developed in rural Papua. Another approach for very small, isolated schools is to adopt a two-year intake policy. Each class has a two-year age span, thus in a given year the school has three classes: Classes 1, 3, and 5, or Classes 2, 4, and 6. Merging schools has already been promoted by donor-assisted development projects over a number of years. However, the resistance to change from local communities, school principals, and teachers with a vested interest is often high. Without the involvement of local communities and stakeholders in the policy-making and change process, the strong political support from the district (such as a District Head Decree), and the financial support to manage the transition, success in merging schools is unlikely. In Indonesia, the experience with multigrade class teaching has been even less successful than attempting to merge schools (Luschei & Zubaidah, 2012). While the practice of multigrade classes is standard in most countries, including in the developed world, and the World Bank estimates that over 50% of children globally are taught in multigrade classes (World Bank Indonesia, 2010), attempts to introduce the practice in Indonesia have encountered resistance and have generally not been sustained. MOEC is also concerned at the national level with the problem of small schools. For the purposes of calculating national per-capita school operational grants (known as BOS), the Ministry defines a small school as one with fewer than 80 students. Under the current regulation, these schools receive a minimum grant based on a school population of 80, regardless if the actual population may be less than this number. According to Ministry data, some 19,800 Indonesian schools are currently categorized as small (Ministry of Education and Culture, 2015b). This number represents over 13%

20

Teacher Deployment In Indonesia, Challenges and Solutions—November 2015

of all primary schools. Meanwhile, according to the World Bank (2013), 20% of primary schools have an enrolment of under 90 students, and the average class size in Indonesian primary schools is 10 students. Surprisingly, small schools are found not only in rural and isolated areas, but also in urban areas and on the heavily populated island of Java. As illustrated in Figure 12, below, in 13 of the sample districts, 20% or more schools are designated as small (with an average class size of 16 or less). In four districts, over 40% of primary schools were categorized as small: Wajo (55%), Madiun (45%), Situbondo (43%), and Blitar (41%). Many of these have an average class size of eight or less (onequarter or less than the MOHA national standard), making a school enrolment of 48 or less. Figure 12: Percentage of Small Schools in 21 Sample Districts (Based on Average Class Size) 2103–2014 60% 50% 40% 30% 20% 10% 0%

44% 39% 35% 34%

30%

29% 27% 22% 28% 24%

11% 6% 8% 7% 5% 2% 3% 7%

21% 23% 20% 16%

4% 3%