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The World BankINDONESIA: IMPROVING TEACHER PERFORMANCE AND ACCOUNTABILITY (KIAT GURU) (P159191)

REPORT NO.: RES32774

RESTRUCTURING PAPER

ON A

PROPOSED PROJECT RESTRUCTURING

OF

IMPROVING TEACHER PERFORMANCE AND ACCOUNTABILITY (KIAT GURU)

APPROVED ON JUNE 27, 2016

TO

BURSA PENGETAHUAN KAWASAN TIMUR INDONESIA (BAKTI)

11 June 2018

Social, Urban, Rural and Resilience Global Practice

East Asia and Pacific

Regional Vice President: Victoria Kwakwa Country Director: Rodrigo A. Chaves

Senior Global Practice Director: Ede Jorge Ijjasz-VasquezPractice Manager/Manager: Kevin A Tomlinson

Task Team Leader: Dewi Susanti

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ABBREVIATIONS AND ACRONYMS

BETFCEMGAIRIMoECPDOPPMRFTATNP2KTunjangan Khusus

Bank Executed Trust FundCommunity Empowerment MechanismGrant AgreementIntermediate Results IndicatorMinistry of Education and CultureProject Development ObjectivePay for Performance MechanismResults FrameworkTechnical AssistanceNational Team for Acceleration of Poverty Reduction, Secretariat Vice President OfficeTeachers’ Special Allowance


BASIC DATA

Product Information

Project ID Financing Instrument

P159191 Investment Project Financing

Original EA Category Current EA Category

Approval Date Current Closing Date

27-Jun-2016 29-Jun-2018

Organizations

Borrower Responsible Agency

Bursa Pengetahuan Kawasan Timur Indonesia (BaKTI) Tim Nasional Percepatan Penanggulangan Kemiskinan (TNP2K)

Project Development Objective (PDO)

Original PDOThe Project Development Objective is to improve the presence and service quality of primary school teachers in targeted areas. The objective will be reached by making teachers more accountable and by empowering communities to participate in education.OPS_TABLE_PDO_CURRENTPDOSummary Status of Financing

TF Approval Signing Effectiveness ClosingNet

Commitment Disbursed Undisbursed

TF-A2955 30-Jun-2016 30-Jun-2016 30-Jun-2016 29-Jun-2018 4.99 4.40 .59

Policy Waiver(s)

Does this restructuring trigger the need for any policy waiver(s)?No


I. PROJECT STATUS AND RATIONALE FOR RESTRUCTURING

1. The most recent Implementation Status Report archived on June 6, 2018, rated implementation progress as Moderately Satisfactory and progress toward achievement of the Project Development Objective (PDO) as Satisfactory. Teacher presence, as measured through the project’s scoring mechanism, improved from a baseline of 65 in August 2016 to 92.34 in March 2018 (compared to a target of 85). Teacher service quality, also measured through the project’s scoring system, improved from a baseline of 56 to 94.4 (compared to a target of 85) for the same period. The Grant Recipient, Yayasan BaKTI, has followed through on all the actions agreed after the December 2017 mission. As of end May 2018, there was still a balance of US$ 0.59 million in the grant of US$ 4.987 million.

2. The Ministry of Education and Culture (MoEC) has issued two additional key regulations that will facilitate implementation in 2018: (a) Ministerial Decree No 95/P/2018 on National Priority Program in Delivery of Tunjangan Khusus (Teachers’ Special Allowance), which identified this project, KIAT Guru, as a MoEC national priority program; and (b) Secretary General Regulation No 11/2018, which provided technical guidelines for its implementation. These two decrees enabled the payment of Tunjangan Khusus conditioned on teacher performance (either teacher presence or service performance). They also empowered community representatives to hold teachers accountable in project schools.

3. The national, district, and village governments continue to strongly support project implementation. The MoEC has allocated IDR 35.8 billion (US$1.56 million) of Tunjangan Khusus to be paid based on KIAT Guru’s formula in the five project districts and IDR 1 billion (US$71,430) for implementation support. The five district governments have allocated a total of IDR 929.5 million (US$66,350), and 170 of 176 (96 percent) village governments have allocated IDR 1.84 billion (US$ 131,430) to pay for monthly community meetings in 185 of 203 (91 percent) schools.

II. DESCRIPTION OF PROPOSED CHANGES

4. This Restructuring Paper seeks the approval of the Country Director for a Level 2 restructuring. The World Bank has received a request for a No Cost Extension (NCE) from Yayasan BaKTI. Supporting request letters were sent by the Executive Secretary of the National Team for Acceleration of Poverty Reduction, Secretariat Vice President Office (TNP2K) dated April 9, 2018, and by the Acting Director General for Teachers and Education Personnel at MoEC dated May 24, 2017.

5. The goals of the restructuring are: (a) to extend the closing date of the Grant Agreement from June 29, 2018 to December 31, 2018; (b) to modify the implementation schedule; (c) to revise the disbursement forecast; and (d) to amend the Results Framework. The restructuring will continue technical assistance (TA) to five district governments to sustain the field implementation activities independently, and to MoEC to set up governance and administration mechanisms for project scale-up to national level.


III. SUMMARY OF CHANGES

Changed Not Changed

Change in Results Framework ✔

Change in Loan Closing Date(s) ✔

Change in Disbursement Estimates ✔

Change in Implementation Schedule ✔

Change in Implementing Agency ✔

Change in Project's Development Objectives ✔

Change in Components and Cost ✔

Cancellations Proposed ✔

Additional Financing Proposed ✔

Reallocation between Disbursement Categories ✔

Change in Disbursements Arrangements ✔

Change in Overall Risk Rating ✔

Change in Safeguard Policies Triggered ✔

Change of EA category ✔

Change in Legal Covenants ✔

Change in Institutional Arrangements ✔

Change in Financial Management ✔

Change in Procurement ✔

Other Change(s) ✔

IV. DETAILED CHANGE(S)

OPS_DETAILEDCHANGES_RESULTS_TABLE

RESULTS FRAMEWORK

Project Development Objective Indicators PDO_IND_TABLE

Improved teacher presence scoreUnit of Measure: NumberIndicator Type: Custom

Baseline Actual (Current) End Target Action


Value 65.00 92.34 85.00 Revised

Date 31-Aug-2016 30-Apr-2018 30-Nov-2018

Improved teacher service quality scoreUnit of Measure: NumberIndicator Type: Custom


Value 56.00 94.40 85.00 Revised

Date 31-Aug-2016 30-Apr-2018 30-Nov-2018

Intermediate IndicatorsIO_IND_TABLE

Relevant government regulations issuedUnit of Measure: Yes/NoIndicator Type: Custom


Value No Yes Yes Revised

Date 31-Aug-2016 30-Apr-2018 30-Nov-2018

Number of Community Score Card agreedUnit of Measure: NumberIndicator Type: Custom


Value 0.00 203.00 203.00 No Change

Date 31-Aug-2016 31-Dec-2017 30-Apr-2018

Cumulative number of village monthly meetings conductedUnit of Measure: NumberIndicator Type: Custom


Value 0.00 2417.00 2000.00 No Change

Date 31-Aug-2016 30-Apr-2018 30-Apr-2018

Cumulative number of end-of-semester meetings conductedUnit of Measure: NumberIndicator Type: Custom



Value 0.00 203.00 350.00 No Change

Date 31-Aug-2016 30-Apr-2018 30-Apr-2018

Percentage of Tunjangan Khusus allowance for teachers assigned to PPM models are paid according to KIAT Guru formulaUnit of Measure: PercentageIndicator Type: Custom


Value 0.00 85.00 85.00 Revised

Date 31-Aug-2016 30-Apr-2018 30-Nov-2018

Number of MoEC and district government officials receiving capacity buildingUnit of Measure: NumberIndicator Type: Custom


Value 0.00 580.00 750.00 Revised

Date 31-Aug-2016 30-Apr-2018 30-Nov-2018

Number of Village Cadre and User Committee members received capacity buildingUnit of Measure: NumberIndicator Type: Custom


Value 0.00 2628.00 2000.00 No Change

Date 31-Aug-2016 30-Apr-2018 30-Apr-2018

OPS_DETAILEDCHANGES_LOANCLOSING_TABLE

LOAN CLOSING DATE(S)

TF StatusOriginal Closing

Revised Closing(s)

Proposed Closing

Proposed Deadline for Withdrawal

Applications

TF-A2955 Effective 31-Dec-2017 29-Jun-2018 31-Dec-2018 30-Apr-2019


OPS_DETAILEDCHANGES_DISBURSEMENT_TABLE

DISBURSEMENT ESTIMATES

Change in Disbursement EstimatesYes

Year Current Proposed

2016 631,200.00 631,200.00

2017 3,200,300.00 1,523,400.00

2018 1,155,500.00 2,241,400.00

2019 0.00 591,000.00

2020 0.00 0.00


IMPROVING TEACHER PERFORMANCE AND ACCOUNTABILITY (KIAT GURU)RESTRUCTURING PAPER

JUNE 2018

A. SUMMARY

This Restructuring Paper (RP) seeks the approval of the Country Director for a Level 2 restructuring that would: (a) extend the Grant closing date from June 29, 2018 to December 31, 2018; (b) revise the implementation schedule; (c) revise the disbursement estimates; and (d) amend the Results Framework (RF).

B. PROJECT STATUS

1. The Grant Agreement between the World Bank and Yayasan BaKTI as the Grant Recipient became effective on June 29, 2016, with a financing amount of US$3,623,000. Upon requests from the Ministry of Education and Culture (MoEC), and the National Team for Acceleration of Poverty Reduction under the Office of the Vice President (TNP2K), the Country Director, in September 2017, approved Additional Financing of US$1,364,000 and an extension of closing date from December 30, 2017 to June 29, 2018. The Grant Agreement Amendment was signed and became effective on September 28, 2017, bringing the total grant to US$4,987,000. The project consists of implementation of Community Empowerment Mechanism (CEM) activities in 203 schools and Pay for Performance Mechanism (PPM) activities in 135 schools (through this project), and impact evaluation activities in 270 schools (through BETF – P160640). The project has three components: (a) CEM, (b) PPM, and (c) TA and Project Management.

2. The CEM provides community members with an explicit role to monitor and evaluate teacher service performance and to ensure teacher accountability. It consists of three phases, which align closely with the Intermediate Results Indicators (IRIs), and per mid-May 2018 achieved the following targets:

a. Initial Phase to set up Community Score Cards, which were agreed between teachers and community representatives in all 203 project schools (100% met);

b. 2,417 monthly village meetings were conducted vs the target of 2,000 (120.85% met); andc. End-of-semester village meetings to evaluate the agreement between community representatives and

teachers took place in 203 schools vs the target of 350 (58% met) because the end-of-semester village meetings were conducted once instead of twice as planned. The Grant Recipient, Yayasan BaKTI, with approval from the Task Team Leader, decided instead to conduct capacity development trainings for village cadres and user committee members to be able to conduct the end-of-semester village meetings independent of the project facilitators.

3. The PPM links the payment of the Tunjangan Khusus with teacher presence or teacher service quality. This component has two IRIs, which by mid-May 2018 had achieved the following targets:

a. Issuance of relevant government regulations, which were issued for 2017 and 2018. MoEC has issued two additional key regulations related to the project for 2018: (i) Ministerial Decree No 95/P/2018 on National Priority Program in Delivery of Tunjangan Khusus, which identified this project, KIAT Guru, as a MoEC national priority program; and (ii) Secretary General Regulation No 11/2018 which provided technical guidelines for its implementation; and


b. Percentage of Tunjangan Khusus for teachers assigned to PPM models who will be paid according to the KIAT Guru formula for 744 of 757 (98%) teachers in 2018, exceeding the target of 85%.

4. The TA and Project Management covers the costs not directly paid through CEM and PPM activities with beneficiaries. This component has two IRIs, which per mid-May 2018 achieved the following targets:

a. Capacity building activities for MoEC and district officials were conducted for 580 staff compared to the target of 375 (154% met); and

b. 2,628 Village Cadre and User Committee members were trained compared to the target of 2,000 (131%).

5. As of June 2018, the project was rated Satisfactory (S) for progress towards the PDO and Moderately Satisfactory (MS) for Implementation Progress. The PDO indicator for improved teacher presence is 92.34 compared to the target of 85; and the score for improved teacher service quality is 94.4 compared to the target of 85 by March 2018. The grant still has a balance of US$0.59 million.The Grant Recipient has submitted a request for a No Cost Extension (NCE) through December 31, 2018. Letters supporting the extension were sent by the Executive Secretary of the National Team for Acceleration of Poverty Reduction, Secretariat Vice President Office (TNP2K) on April 9, 2018, and from the Acting Director General for Teachers and Education Personnel at MoEC on May 24, 2017.

C. PROPOSED CHANGES

6. The primary purpose of this RP is to extend the Grant Agreement (TF0A2955) closing date by six months from June 29, 2018 to December 31, 2018 to provide TA for the district and national governments. The extension will continue TA to five project district governments to sustain the field implementation activities independently, and to MoEC to set up governance and administration mechanisms to scale up the project to national level. At the district level, during the proposed extension, there will only be ten (out of 55) project facilitators remaining per district. The project facilitators will provide on-demand TA to district governments in: (a) issuing regulations for the remainder of 2018 and in strengthening policies for 2019 onwards, (b) administering payment of Tunjangan Khusus based on performance, (c) collecting monthly monitoring data from all project schools, and (d) providing on-demand technical responses to schools and sub-districts. The key benefit of this extension is that by end December 2018, the key stakeholders and beneficiaries at the village, sub-district, and district levels in five project districts will have been implementing the project activities with very minimum support from the project facilitators. In July 2018, the Task Team plans to conduct a technical workshop with MoEC on the initial results of the impacts and effectiveness of the interventions in improving teacher presence, teacher performance, and student learning outcomes. The workshop will present and discuss policy implications for the scale-up. As a follow up, at the national level, with technical support from the Task Team, the Grant Recipient will: (a) collate and synthesize field implementation reports, (b) conduct and write descriptive analysis of monitoring data that has been collected, (c) disseminate knowledge gained and lessons learned through various forums, (d) revise and develop technical guidelines for implementation by village, sub-district, district, and national stakeholders based on policy recommendations to be provided by the Task Team, and (e) provide other on-demand TA for MoEC and relevant national ministries and agencies for policy take-up based on recommendations provided.

7. Second, as a consequence to the timeline extension, implementation schedule and disbursement estimates are revised from June 29, 2018 to December 31, 2018. The project has no outstanding audit report. For the reporting period of January to June 2018, the audit report will be due in December 2018. The Interim Financial Report (IFR) of the first quarter of 2018, with reporting period from January to March 2018, has been submitted and acknowledged on May 2018. The next IFR for reporting period of second quarter 2018 (April to June 2018) will be


due in mid-August 2018. There is no changes in project cost by component, and the proposed change in disbursement estimate is to reflect the project forecast until December 2018.

8. Third, this RP proposes changes to the RF, due to the completion of some activities and the extended timeline. The project has largely achieved its IRIs. Therefore, the project will no longer track changes to some of the associated IRIs. The target completion dates for most of the indicators will be changed from “April 2018” to “November 2018.”

a. No change to the following IRIs, which are considered achieved due to completion of the project-funded field activities in April 2018, and will no longer be tracked:

i. “Number of Community Score Cards agreed.” ii. “Cumulative number of village monthly meetings conducted.”

iii. “Cumulative number of end-of-semester meetings conducted.” iv. “Number of Village Cadre and User Committee members received capacity building.”

b. Change the target endline from “April 2018” to “November 2018” to PDO-level indicators and the following IRI-level indicators:

i. “Percentage of Tunjangan Khusus allowance for teachers assigned to PPM models are paid according to KIAT Guru formula.”

ii. “Issuance of relevant government regulations.” iii. “Number of MoEC and district officials received capacity building.” In addition to the change

endline, a new cumulative total of 750 government officials have been agreed.

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