Does the Indonesian Government System Promote
Quality Educa9on? An Ins9tu9onal Approach
Ninasap' Triaswa' Faculty of Economics University of Indonesia
“Whether the Indonesian Government System Promotes Quality Educa9on” • The Role of Ins'tu'ons for Quality Educa'on • Main Organiza'ons for Quality Educa'on • Suppor'ng Systems for Quality Educa'on
1. The Role of Ins9tu9ons for Quality Educa9on
• Ins9tu9ons = set of rules and regula9ons, both formal and informal (from Structure à Conduct à Performance: ” quality educa9on”)
Role of Government in Educa'on
• Central government (2011): Rp 89.7 T • Transfer to regions (2011): Rp 155.6 T • Educa'on Development Fund (2011): Rp 1 T • Total Na'onal Educa'on: (2011): Rp 246.3 T • APBN 2011: Rp 1229.6 T • GDP: Rp 7427.1 T • % to APBN 2011: 20% • % to GDP 2011: 3.3%.
Government System: Formal Rules and Regula9ons suppor9ng quality educa9on • Cons'tu'ons = UUD RI 1945 (4th amendment) • Laws:
– No.17/2003 on State Finance and No.32 on Regional Government (role of central vs local government on educa'on)
– No. 20/2003 on Na'onal Educa'on System – No.1/2004 on Na'onal Treasury – No 15/2004 on State Finance Inves'ga'on, Management and
Accountability – No.32/2004 on Regional Government – No. 33/2004 on Financing Balance between Central and Regional
Government – No.25/2005 on Na'onal Development Planning System – No. 17/2007 on Long Term Development Plan 2005-‐2025 – Annual Government Work Plan (RKP), – Na'onal Budget (APBN) and – Local Budget (APBD) and – Other local rules & regula'ons at opera'onal levels
2. Main Organiza9ons for Quality Educa9on
• Central: President and Vice President supported by – MoEC, MoRA, MoHA, MoF, Min. Of Planning, BPK
• Regional:Governor, Bupa'/Walikota supported by – Educa'on Office, Bappeda, Sekda, Bawasda
Main Func9ons • Ministry of Educa'on and Culture (MoEC) before was
MoNE, has produced its revised Strategic Plan 2011-‐2014 in December 2010 as a basis for decision making process at na'onal level.
• Ministry of Home Affairs and Local Government – MoHA is the provider of rules and regula'ons related to local government accountability
– Local/District Government announces the opera'onal rules and regula'ons
• Ministry of Finance and Na'onal Supreme Audit – Direc'ng the PFM Reform to the Performance Management (e.g. Performance Planning, Budge'ng, and Audi'ng)
• Ministry of Na'onal Planning – Coordina'on of Planning from local to central government in prepara'on of Annual Work Plan (RKP)
• Demand: Households à
• the increasing trend of popula'on, especially the middle class income in Indonesia à poten'al demand for quality educa'on (Mc Kenzie Report in 2012 projec'on: it increases from about 45 millions in 2010 to more than 130 millions in 2030) • Current Employment BPS data: more than half of Indonesian workers s'll at the lowest level (primary educa'on or less) à poten'al demand for quality educa'on (lower)
Market: D & S for Quality Educa9on
Market: D & S for Quality Educa9on
Supply: Government versus Private à • Currently government is the main provider for schooling in Indonesia (primary to secondary educa'on), while private is the main provider for ter'ary educa'on • Access for schooling is s'll limited (the higher level of educa'on, the lower school par'cipa'on rate , varies amongregions)
ISSUES/CHALLENGES ARE.... • Although Indonesia has general ins'tu'onal framework for suppor'ng quality educa'on, it s'll needs: – Consistent design (from central to local gov to school levels) of opera9onal rules and regula9ons for effec9vely achieving quality educa9on (Pendidikan berkualitas) providing among others: • effec've organiza'on structure to managing quality educa'on (i.e. Planning, Budge'ng, Implementa'on, and Monitoring & Evalua'on)
ISSUES/CHALLENGES ARE.... • Government Structure for achieving Quality Educa'on is fragmented: – The authority for implemen'ng educa'on policy to school level is conducted at the Local Government levels while …
– The main educa'on policy is decided at the Ministry of Educa'on and Culture level ...
– Mnitoring and evalua'on process are complikcated and not well supported by an integrated info system
– Ministry of Home Affairs, Ministry of Finance and Ministry of Na'onal Planning and Na'onal Supreme Audit has the authority to provide general rules and regula'ons for public accountability system
ISSUES/CHALLENGES ARE.... • Concensus on defining Quality Educa9onà currently it is s'll not
clearly defined. Most of government current indicators (in state documents) for quality educa'on are input and of supply side, i.e. very limited indicators related to outputs (i.e. graduates) and outcomes (i.e. employment produc'vity) or in terms of service to demand side (e.g. Students)
• Although the MoEC has a revised Strategic Plan which was designed to accommodate the Performance Management model as stated by the PFM Reform (based on Law no 17/2003), it has no direct control to educa'onal policy implementa'on at the local levels.
• Indicators that were applied at MoEC mostly are supply side inputs e.g. Number of schools, teachers, ra'o of teachers to schools
• Very few on demand side indicators e.g. Percentage of popula'on age > 15 yrs that illiterate, gross enrolment ra'os
• Very limited incen've system at school levels for quality teaching and learning
ISSUES/CHALLENGES ARE.... Concensus on building an Incen9ve System for quality educa9on à bureacra'c reform has provided a basis for building an incen've system for performance management. However currently it is not yet clear how it would support the quality educa'on. “Money follows func'ons” principle is important for building quality educa'on For example:
• Teachers’ remunera'on (primary and secondary level) currentky decicded by central and local government, does not represent teachers’ performance at school levels
• At ter'ary level, higher educa'on ins'tu'ons could build a beper incen've system for their staff
• MoHA provide general accountability rules for local government, however it does not specify any quality educa'on indicators that should be reported on the accountability report Local governments do not effec'vely follow the guidelines from central minsitries unless there any incen've mechanism suppor'ng the central policies.
• Ministry of Finance and Na'onal Supreme Audit (BPK) have crucial roles to design whether the central and local governments should apply performance management consistent with policies in educa'on sector. The BPK should then conduc'ng the performance audit susppor'ng/ reflec'ng educa'on quality. However, boh MoF and BPK have not yet clearly designed the accountability system toward quality educa'on
ISSUES/CHALLENGES ARE.... • The Ministry of Na'onal Planning (MNP) does not have a strong authority as in the Orde Baru era, it s'll has the planning coordina'on func'on but not the budgetary func'on anymore. The PFM reform since 2000 has fully shired the budgetary authority to MoF. Thus there is a separate planning and repor'ng mechanism for planning (MNP) and budgetary (MoF) func'ons.
• Another (possible) addi'onal role of Ministry of Na'onal Planning is to monitor the performance management in each ministry. Currently the performance monitoring on quality educa'on is the role of MoEC through its sta's'cal directorate. However, the response rate arer decentraliza'on is lower due to lack of incen've system.
3. Suppor9ng Systems • Weak Incen9ve System – Government: weak coordina'on between central vs. local government (e.g. case of recruitment of teachers as civil servant) • Based on Civil Servant Law, it is very difficult to terminate the employment of civil servant • The implementa'on of Bureaucra'c Reform program does not clearly set up the incen've system for civil servant
– Private sectorà apply a market based incen've system (primary to ter'ary educa'on levels)
– Civil societyà provide some grants for suppor'ng quality educa'on
3. Suppor9ng Systems • Very Limited Integrated Informa9on System – Government: Central and Local • Data collec'on at Ministry of Educa'on and Culture is weak due to decentraliza'on policy (report from the regions are not very regular) • Main indicators based on BPS (for Popula'on and Employment Survey)
– Market: Demand and Supply for Informa'on system (both educa'on and employment) • Job Fair • Website: Government and Private
POLICY RECOMMENDATIONS Strengthening the ROLE OF GOVERNMENT à since educa9on is a “right” • Structure:
– To restructure Government System in suppor'ng quality educa'on (who is accountable for educa'on performance?)
• Conduct: To improve the effec'veness of organiza'on to implement the performance management concept (e.g. • MoF: to simplify budget procedures, apply ICT for budge'ng, • Na'onal Supreme Audit: to conduct Performance Audit regularly, • MoEC: to strengthen the integrated informa'on system)
• Performance: – To build concensus on main indicators at school levels for quality teaching
– To monitor and evaluate educa'on performance based on a transparent integrated system (to build a symmetric informa'on system) based on comprehensive and consistent data
POLICY RECOMMENDATIONS • STRENGTHENING THE ROLE OF PRIVATE INSTITUTIONS &
PEOPLE/CIVIL SOCIETY • Structure
– Clarify the model of public, private and people structure for partnership to support quality educa'on i.e. the government policies : • Local: simplify educa'on business license procedures, • Central: tax incen'ves for imported educa'onal goods (books, laboratory equipment and materials, etc)
• Conduct – Transparent process/procedures of private school/educa'onal ins'tu'on for the use of public funds for quality educa'on
• Performance – Publish Report on private and civil society ins'tu'ons’ performance on suppor'ng quality educa'on
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