USAID PRIORITAS: Prioritizing Reform, Innovation, and Opportunities for Reaching Indonesia’s Teachers, Administrators, and Students

The problem of uneven teacher deployment has long been recognized in Indonesia. With an overall ratio of approximately one teacher to 16 primary school students (1:13 in junior-secondary), there is a substantial oversupply of teachers. However, these are poorly distributed. Urban schools are commonly overstaffed while schools in rural and isolated areas are unde r s ta f f ed . Th i s s i t ua t ion c rea te s inefficiencies within the system and penalizes poor and marginalized communities.

USAID PRIORITAS has offices in Jakarta and in seven provinces.

Address and Contact:Ratu Plaza Office Tower, 25th Fl. Jl. Jenderal Sudirman Kav 9, Jakarta 10270, IndonesiaPhone: (62-21) 722 7998, Fax: (62-21) 722 7978,Email: usaidprioritas@prioritas.or.idwww.prioritaspendidikan.org

The national policy frameworkA joint Five Minister Edict was issued in 2011, requiring all districts to redistribute civil servant teachers evenly and according to need. The edict was issued by the Ministers of Education, Religious Affairs, Finance, Home Affairs and State Bureaucracy.

Although this regulation required the redistribution to be implemented by end of 2013, few districts have complied. The major challenges to implementation are vested political interests and local resistance.

Teachers and their spouses (many of whom are civil servants) commonly provide a political support base for local politicians and are rewarded with attractive placements. In addition, districts lack the capacity to accurately map teacher distribution or conduct analysis to identify policy solutions. As teachers are under the authority of districts, the central and provincial governments have played no significant role.

Figure 1: The Development of Teacher-Student Ratios in Indonesia and Comparisons with Other Countries, 2010 (Including Civil Servants and Non-Civil Servants)

Source: MOEC 2011, UNICEF, 2011

The Teacher Deployment programUSAID PRIORITAS is working with 98 districts (including former Decentralized Basic Education - DBE districts) and 16 Teacher Training Institutes to improve the quality of teaching, the management and governance of education, and coordination between levels and institutions within the system. In this context, the project has developed an approach to assist districts to improve the distribution of teachers. The analysis of teacher needs is based on minimum service standards and requirements of the Curriculum (2006 and 2013).

The Teacher Deployment program known as Penataan dan Pemerataan Guru (PPG) has been implemented in an initial cohort of 23 districts in seven provinces. Working with local partners from the districts, TTIs and province-level education quality assurance agencies (LPMP), USAID PRIORITAS has mapped teacher distribution, developed policy solutions, conducted public consultations (multi-stakeholder forums) and is supporting implementation in these districts.

The program (1) helps districts to better deploy teachers, and (2) builds capacity among government employees, university facilitators (service providers) and province level quality assurance agencies (LPMP). Work is underway with a second cohort of 20 districts. The program is also being disseminated in several former DBE districts and in all districts in the province of Aceh with the support of the Provincial Government.

Better teacher deployment ultimately means better teaching.

Figure 2: Teacher-Student Ratio in Primary Schools Including Civil Servants and Non-Civil Servants (23 Districts, 2013-2014)

Teacher Deployment in Indonesia Policy Brief

22.2 20.9 20.3 19.6

18.5 18.5 18.8 17.5 16.6 16.0

15.2 14.3 15.0 13.5 12.5 12.2

13.7 12.5 13.0 12.9

0

5

10

15

20

25

Primary Junior Secondary

484443

282221

18181716

131111

8

CambodiaAfghanistan

BangladeshColombia

BrazilKorea, Rep

JapanFrance

ChinaIndonesia

GermanyBrunei Darussalam

AustriaKuwait

USAID PRIORITAS: Prioritizing Reform, Innovation, and Opportunities for Reaching Indonesia’s Teachers, Administrators, and Students

The problem of uneven teacher deployment has long been recognized in Indonesia. With an overall ratio of approximately one teacher to 16 primary school students (1:13 in junior-secondary), there is a substantial oversupply of teachers. However, these are poorly distributed. Urban schools are commonly overstaffed while schools in rural and isolated areas are unde r s ta f f ed . Th i s s i t ua t ion c rea te s inefficiencies within the system and penalizes poor and marginalized communities.

USAID PRIORITAS has offices in Jakarta and in seven provinces.

Address and Contact:Ratu Plaza Office Tower, 25th Fl. Jl. Jenderal Sudirman Kav 9, Jakarta 10270, IndonesiaPhone: (62-21) 722 7998, Fax: (62-21) 722 7978,Email: usaidprioritas@prioritas.or.idwww.prioritaspendidikan.org

The national policy frameworkA joint Five Minister Edict was issued in 2011, requiring all districts to redistribute civil servant teachers evenly and according to need. The edict was issued by the Ministers of Education, Religious Affairs, Finance, Home Affairs and State Bureaucracy.

Although this regulation required the redistribution to be implemented by end of 2013, few districts have complied. The major challenges to implementation are vested political interests and local resistance.

Teachers and their spouses (many of whom are civil servants) commonly provide a political support base for local politicians and are rewarded with attractive placements. In addition, districts lack the capacity to accurately map teacher distribution or conduct analysis to identify policy solutions. As teachers are under the authority of districts, the central and provincial governments have played no significant role.

Figure 1: The Development of Teacher-Student Ratios in Indonesia and Comparisons with Other Countries, 2010 (Including Civil Servants and Non-Civil Servants)

Source: MOEC 2011, UNICEF, 2011

The Teacher Deployment programUSAID PRIORITAS is working with 98 districts (including former Decentralized Basic Education - DBE districts) and 16 Teacher Training Institutes to improve the quality of teaching, the management and governance of education, and coordination between levels and institutions within the system. In this context, the project has developed an approach to assist districts to improve the distribution of teachers. The analysis of teacher needs is based on minimum service standards and requirements of the Curriculum (2006 and 2013).

The Teacher Deployment program known as Penataan dan Pemerataan Guru (PPG) has been implemented in an initial cohort of 23 districts in seven provinces. Working with local partners from the districts, TTIs and province-level education quality assurance agencies (LPMP), USAID PRIORITAS has mapped teacher distribution, developed policy solutions, conducted public consultations (multi-stakeholder forums) and is supporting implementation in these districts.

The program (1) helps districts to better deploy teachers, and (2) builds capacity among government employees, university facilitators (service providers) and province level quality assurance agencies (LPMP). Work is underway with a second cohort of 20 districts. The program is also being disseminated in several former DBE districts and in all districts in the province of Aceh with the support of the Provincial Government.

Better teacher deployment ultimately means better teaching.

Figure 2: Teacher-Student Ratio in Primary Schools Including Civil Servants and Non-Civil Servants (23 Districts, 2013-2014)

Teacher Deployment in Indonesia Policy Brief

22.2 20.9 20.3 19.6

18.5 18.5 18.8 17.5 16.6 16.0

15.2 14.3 15.0 13.5 12.5 12.2

13.7 12.5 13.0 12.9

0

5

10

15

20

25

Primary Junior Secondary

484443

282221

18181716

131111

8

CambodiaAfghanistan

BangladeshColombia

BrazilKorea, Rep

JapanFrance

ChinaIndonesia

GermanyBrunei Darussalam

AustriaKuwait

Teacher distribution – detailed mapping in 23 districtsThe results of teacher deployment mapping in 23

1districts are described in a national report . The report highlights the imbalance in primary school

Figure 4: Class Size and Teacher-Student Ratio, Cohort 1 Primary Schools (23 Districts, 2013-2014)

Figure 3: Needs & Supply of Civil Servant and Non-Civil Servant Primary School Class Teachers (23 Districts, 2013-2014)

1 http://prioritaspendidikan.org/en/media/view/file/cat/studi_dan_penelitian

teacher deployment between schools and sub-districts, and in junior-secondary teacher deployment between subjects.

13%

44%

32%

9%

2%

Distribution of Schools Based on Ratio of Students to Number of

Classes (Class Size)

<10 10-19 20-28 29-36 >36Ratio of Students to Classes

26%

47%

21%

5% 1%

Distribution of Schools, Based on Ratio of Students to Teachers

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

Ratio of Students to Teachers

21%

0

1000

2000

3000

4000

5000

6000

7000

8000

Requirement Civil Servants Non Civil Servants

Strategic Issues

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

This problem arises mainly due to the large number of small schools and small classes in primary schools.

The distribution of classroom teachers between schools and sub-districts within the districts is uneven. A number of schools have an excess of non-civil servant teachers. This is true in most districts.

Most districts have a shortage of both Islamic Education teachers and Physical Education teachers at primary school level.

Over half of the districts surveyed have yet to achieve the minimum qualification of a Bachelor’s Degree (S1) for over thirty per cent of their primary teachers.

In general there is an oversupply of teachers at junior-secondary level, with many teachers unable to meet the minimum requirement of 24 lesson periods of face-to-face teaching per week required for them 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 also between schools and sub-districts.

The 2013 Curriculum changes the requirements for teachers at junior-secondary level. ICT teachers (undersupplied for the 2006 Curriculum) will be employed under the 2013 Curriculum to support

2students, teachers, and administrators . Meanwhile there is an increased need for teachers of Science, Math, Bahasa Indonesia, Islamic Education and Civics.

Figure 5: Number of Certified Teachers with Less than 24 Lesson-Periods Teaching Load per Week, by Subject (23 Districts, 2013-2014)

2 Permendiknas No. 68/2014

Natural Science

Indonesian

Social Science

Math

Citizenship Education

English

Sports and Health

Islamic Education

Arts and Culture

ITC

Skills

Christian Education

1610

1590

1559

1383

1359

986

961

956

754

550

281

67

Teacher distribution – detailed mapping in 23 districtsThe results of teacher deployment mapping in 23

1districts are described in a national report . The report highlights the imbalance in primary school

Figure 4: Class Size and Teacher-Student Ratio, Cohort 1 Primary Schools (23 Districts, 2013-2014)

Figure 3: Needs & Supply of Civil Servant and Non-Civil Servant Primary School Class Teachers (23 Districts, 2013-2014)

1 http://prioritaspendidikan.org/en/media/view/file/cat/studi_dan_penelitian

teacher deployment between schools and sub-districts, and in junior-secondary teacher deployment between subjects.

13%

44%

32%

9%

2%

Distribution of Schools Based on Ratio of Students to Number of

Classes (Class Size)

<10 10-19 20-28 29-36 >36Ratio of Students to Classes

26%

47%

21%

5% 1%

Distribution of Schools, Based on Ratio of Students to Teachers

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

Ratio of Students to Teachers

21%

0

1000

2000

3000

4000

5000

6000

7000

8000

Requirement Civil Servants Non Civil Servants

Strategic Issues

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

This problem arises mainly due to the large number of small schools and small classes in primary schools.

The distribution of classroom teachers between schools and sub-districts within the districts is uneven. A number of schools have an excess of non-civil servant teachers. This is true in most districts.

Most districts have a shortage of both Islamic Education teachers and Physical Education teachers at primary school level.

Over half of the districts surveyed have yet to achieve the minimum qualification of a Bachelor’s Degree (S1) for over thirty per cent of their primary teachers.

In general there is an oversupply of teachers at junior-secondary level, with many teachers unable to meet the minimum requirement of 24 lesson periods of face-to-face teaching per week required for them 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 also between schools and sub-districts.

The 2013 Curriculum changes the requirements for teachers at junior-secondary level. ICT teachers (undersupplied for the 2006 Curriculum) will be employed under the 2013 Curriculum to support

2students, teachers, and administrators . Meanwhile there is an increased need for teachers of Science, Math, Bahasa Indonesia, Islamic Education and Civics.

Figure 5: Number of Certified Teachers with Less than 24 Lesson-Periods Teaching Load per Week, by Subject (23 Districts, 2013-2014)

2 Permendiknas No. 68/2014

Natural Science

Indonesian

Social Science

Math

Citizenship Education

English

Sports and Health

Islamic Education

Arts and Culture

ITC

Skills

Christian Education

1610

1590

1559

1383

1359

986

961

956

754

550

281

67

When the supply and demand for teachers is calculated on the basis of a minimum teaching load of 24 lesson periods per week for each teacher, according for the 2006 Curriculum (KTSP), almost all districts are found to have an excess (including civil servants and non-civil servants). Using the

same formula, most are undersupplied for the requirements of the 2013 Curriculum. This is illustrated in the following figure, which shows the needs for teachers for the 2006 and 2013 mathematics curriculum and current supply in 23 districts.

Figure 6: Supply and Demand for Mathematics Teachers (including Civil Servants and Non-Civil Servants), Comparing the 2006 and 2013 Curriculum (23 Districts, 2013-2014)

District Policy Solutions

Policy solutions vary depending on local contexts, and include the following: Transferring teachers from overstaffed to understaffed schools – with incentives for teachers to

relocate to less attractive locations. Transferring of teachers from junior-secondary to primary level. Merging (or 'regrouping') of small primary schools in close proximity. Multi-grade teaching in small and isolated primary schools where merger is not possible. Mobile teachers assigned to more than one school, where schools do not have sufficient students to

support a full-time subject specialist in specific subjects. Teachers assigned to teach across primary and junior-secondary levels (especially in 'one-roof schools',

which include a primary and a small junior-secondary school on one site, and in remote areas). Recruiting from the ranks of non-tenured honorary teachers to meet specific shortages. Some districts

require national government approval for this (due to a moratorium imposed on districts which spend over 50 per cent of their budget on civil servant salaries).

Transfer of teachers between districts where neighboring districts are oversupplied/undersupplied for specific subjects.

Retraining of teachers in oversupplied subjects to teach in undersupplied subjects. Splitting large classes or limiting enrolments from out of area in oversubscribed urban schools. Creating group schools (schools with more than one campus) in very isolated areas. Limiting the appointment of honorary teachers by schools.

0

100

200

300

400

500

600

700

800

900

Req 2006 Curriculum Req 2013 Curriculum Civil Servants Non Civil Servants

USAID PRIORITAS is a five year program funded by USAID, implemented by Research Triangle Institute (RTI), the Education Development Center (EDC), and World Education. USAID PRIORITAS is designed to increase access to quality basic education in Indonesia. USAID PRIORITAS has a special focus on: (1) Improving pre- and in-service teacher education at Teacher Training Institutes (TTI) through programs that

emphasize improved practice Making teaching and learning in primary and junior secondary schools more interesting, relevant and effective with

an emphasis on Reading, Math and Science Developing participatory and accountable school management focused on improving learning Improving education resource management in the provinces and districts, with a focus on teacher deployment and

educational funding.

ConstraintsConstraints to the implementation of the Teacher Deployment program include the limitations of the national education database, DAPODIK, and the capacity of district staff to conduct analysis. The data are often incomplete and sometimes inaccurate. Data managers are often not permanent civil service staff and are frequently transferred to other departments, thus losing the capacity that has been built within district education offices.

However, using the DAPODIK data for planning and policy development places value on the quality of the data, ultimately leading to better data. As local governments become accustomed to using the data in this way, they begin to demand verified, accurate and complete data. Using DAPODIK also makes the program relatively easy to disseminate and implement in other districts.

It should be noted that this report addresses the issue of teacher deployment only in regular schools. The Joint Five Minister Edict applies equally to civil servant teachers in Islamic madrasah under the auspices of the Ministry of Religious Affairs (MORA).

Implications for provincial policy and planningAlthough the implementation of Teacher Deployment is a district responsibility, provinces can assist by facilitating inter-district transfers and providing support to districts.

Coordination between the provincial government and teacher education providers is also important, as universities plan for the production of new teachers based on human resource need projections and currrent deficiencies in the system.

Implications for national policy and planningThe central government could support the program with increased planning and coordination between the five ministries responsible for the 2011 Edict.

Some local policy solutions, such as multi-grade classes, lack support within the national policy framework.

Providing incentives to districts which gain efficiencies in human resource management could also assist. The tendency of government to attempt to ensure compliance through top-down controls and sanctions could be balanced by national and provincial governments providing support and incentives for program implementation.

The futureThe USAID PRIORITAS Teacher Deployment program is packaged as a set of training modules, materials including film, 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.

More districts are likely to want to adopt the program as pressure mounts from: (i) the central government which issued the 2011 Joint Five Minister Edict, (ii) teachers who are unable to teach the minimum of 24 lesson periods per week and will no longer be eligable to receive professional allowances in 2015 (the grace period for such teachers expires at the end of 2014), and (iii) schools which are still understaffed.

The roles of provinces, such as 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.

When the supply and demand for teachers is calculated on the basis of a minimum teaching load of 24 lesson periods per week for each teacher, according for the 2006 Curriculum (KTSP), almost all districts are found to have an excess (including civil servants and non-civil servants). Using the

same formula, most are undersupplied for the requirements of the 2013 Curriculum. This is illustrated in the following figure, which shows the needs for teachers for the 2006 and 2013 mathematics curriculum and current supply in 23 districts.

Figure 6: Supply and Demand for Mathematics Teachers (including Civil Servants and Non-Civil Servants), Comparing the 2006 and 2013 Curriculum (23 Districts, 2013-2014)

District Policy Solutions

Policy solutions vary depending on local contexts, and include the following: Transferring teachers from overstaffed to understaffed schools – with incentives for teachers to

relocate to less attractive locations. Transferring of teachers from junior-secondary to primary level. Merging (or 'regrouping') of small primary schools in close proximity. Multi-grade teaching in small and isolated primary schools where merger is not possible. Mobile teachers assigned to more than one school, where schools do not have sufficient students to

support a full-time subject specialist in specific subjects. Teachers assigned to teach across primary and junior-secondary levels (especially in 'one-roof schools',

which include a primary and a small junior-secondary school on one site, and in remote areas). Recruiting from the ranks of non-tenured honorary teachers to meet specific shortages. Some districts

require national government approval for this (due to a moratorium imposed on districts which spend over 50 per cent of their budget on civil servant salaries).

Transfer of teachers between districts where neighboring districts are oversupplied/undersupplied for specific subjects.

Retraining of teachers in oversupplied subjects to teach in undersupplied subjects. Splitting large classes or limiting enrolments from out of area in oversubscribed urban schools. Creating group schools (schools with more than one campus) in very isolated areas. Limiting the appointment of honorary teachers by schools.

0

100

200

300

400

500

600

700

800

900

Req 2006 Curriculum Req 2013 Curriculum Civil Servants Non Civil Servants

USAID PRIORITAS is a five year program funded by USAID, implemented by Research Triangle Institute (RTI), the Education Development Center (EDC), and World Education. USAID PRIORITAS is designed to increase access to quality basic education in Indonesia. USAID PRIORITAS has a special focus on: (1) Improving pre- and in-service teacher education at Teacher Training Institutes (TTI) through programs that

emphasize improved practice Making teaching and learning in primary and junior secondary schools more interesting, relevant and effective with

an emphasis on Reading, Math and Science Developing participatory and accountable school management focused on improving learning Improving education resource management in the provinces and districts, with a focus on teacher deployment and

educational funding.

ConstraintsConstraints to the implementation of the Teacher Deployment program include the limitations of the national education database, DAPODIK, and the capacity of district staff to conduct analysis. The data are often incomplete and sometimes inaccurate. Data managers are often not permanent civil service staff and are frequently transferred to other departments, thus losing the capacity that has been built within district education offices.

However, using the DAPODIK data for planning and policy development places value on the quality of the data, ultimately leading to better data. As local governments become accustomed to using the data in this way, they begin to demand verified, accurate and complete data. Using DAPODIK also makes the program relatively easy to disseminate and implement in other districts.

It should be noted that this report addresses the issue of teacher deployment only in regular schools. The Joint Five Minister Edict applies equally to civil servant teachers in Islamic madrasah under the auspices of the Ministry of Religious Affairs (MORA).

Implications for provincial policy and planningAlthough the implementation of Teacher Deployment is a district responsibility, provinces can assist by facilitating inter-district transfers and providing support to districts.

Coordination between the provincial government and teacher education providers is also important, as universities plan for the production of new teachers based on human resource need projections and currrent deficiencies in the system.

Implications for national policy and planningThe central government could support the program with increased planning and coordination between the five ministries responsible for the 2011 Edict.

Some local policy solutions, such as multi-grade classes, lack support within the national policy framework.

Providing incentives to districts which gain efficiencies in human resource management could also assist. The tendency of government to attempt to ensure compliance through top-down controls and sanctions could be balanced by national and provincial governments providing support and incentives for program implementation.

The futureThe USAID PRIORITAS Teacher Deployment program is packaged as a set of training modules, materials including film, 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.

More districts are likely to want to adopt the program as pressure mounts from: (i) the central government which issued the 2011 Joint Five Minister Edict, (ii) teachers who are unable to teach the minimum of 24 lesson periods per week and will no longer be eligable to receive professional allowances in 2015 (the grace period for such teachers expires at the end of 2014), and (iii) schools which are still understaffed.

The roles of provinces, such as 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.